ULHBRFMS - File Reorganisation Implementation Plan V3.1

URBAN INSTITUTIONAL AND INFRASTRUCTURE DEVELOPMENT PROGRAM (UIIDP)
CONSULTANCY SERVICE FOR UPGRADING AND REVIEWING OF

COMPREHENSIVE COMPUTER ASSISTED URBAN LAND HOLDING AND
BASIC MUNICIPAL REVENUE FILING MANAGEMENT SYSTEM AND DATA
BASE FORMATION IN 18 CITIES
FILE REORGANISATION IMPLEMENTATION

PLAN
AUGUST 2021
Prepared by:
www.ahcul.com
UPGRADING AND REVIEWING OF COMPREHENSIVE COMPUTER ASSISTED URBAN LAND HOLDING
AND BASIC MUNICIPAL REVENUE FILING MANAGEMENT SYSTEM AND DATABASE FORMATION IN 18
CITIES
FILE REORGANISATION IMPLEMENTATION PLAN
PROJECT INFORMATION
Assignment Name Consultancy Service for Upgrading and Reviewing of
Comprehensive Computer Assisted Urban Land Holding
and Basic Municipal Revenue Filing Management
System and Data Base Formation in 18 Cities in Oromia
(4 Cities), and SNNPRS (4 Cities), Tigray (4 Cities),
Amhara (4 Cites), Harari (1 City) and Dire Dawa City)
Client Ministry of Urban Development and Construction
Project Urban Institutional and Infrastructure Development

Program (UIIDP)
Country Ethiopia
Document Version 3.1
Version Date 22nd August 2021
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TABLE OF CONTENTS
ACRONYMS AND ABBREVIATIONS....................................................iii
LIST OF TABLES...................................................................................iv
LIST OF FIGURES.................................................................................iv
1. INTRODUCTION..............................................................................1
1.1. Background...................................................................................................................1
1.2. Purpose of the report....................................................................................................2
1.3. Structure of the report...................................................................................................2
1.4. Scope of work...............................................................................................................2
1.5. Disclaimer..................................................................................................................... 3
2. FILE REORGANISATION METHODOLOGY...................................4

2.1. File reorganization workflow..........................................................................................4
2.2. Pre-fieldwork.................................................................................................................5
2.3. Fieldwork....................................................................................................................... 7
2.4. Post fieldwork................................................................................................................ 8
2.5. File reorganization.........................................................................................................8
2.6. Legal File Document Scanning....................................................................................12
2.7. Database formation.....................................................................................................16
2.8. Analysis report preparation.........................................................................................20
3. FILE REORGANISATION TEAM STRUCTURE............................21

3.1. Team structure............................................................................................................ 21
3.2. Roles and responsibilities of key actors......................................................................21
3.3. File reorganization team size......................................................................................25
4. FILE REORGANIZATION WORK PLAN.......................................30
5. COMMUNICATION MANAGEMENT.............................................31
5.1. File reorganization phase communication plan...........................................................31
5.2. Information Distribution...............................................................................................31
5.3. Information Data Bank.................................................................................................32
6. RISK MANAGEMENT....................................................................33
APPENDICES........................................................................................35
Appendix I: Fieldwork Data collection forms.........................................................................36
Appendix II: File reorganization forms..................................................................................37
Appendix III: File scanning forms.........................................................................................38
Appendix IV: Files Data encoding forms...............................................................................39
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ACRONYMS AND ABBREVIATIONS
AHC AH Consulting
ELADM Ethiopian Land Administration Domain Model
ERCA Ethiopian Revenue and Customs Authority
GIS Geographic Information System
ICT Information and Communication Technology
MUDCo Ministry of Urban Development and Construction
QA Quality Assurance
RORB Right and Obligation Registry Book
SNNPR Southern Nations, Nationalities, and Peoples' Region
TOR Terms of Reference
UIIDP Urban Institutional and Infrastructure Development Program
ULHBRFMS Urban Land Holdings and Basic Revenue File Management Systems
UPIN Unique Parcel Identification Number
URRPO Urban Revenue Reform Project Office
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LIST OF TABLES
Table 1: List of cities...............................................................................................................2
Table 2: Number of legal files...............................................................................................10
Table 3: Number of legal files to be scanned in all cities......................................................14
Table 4: Data to be captured from scanned files..................................................................17
Table 5: Available registry books in the cities.......................................................................18
Table 6: Roles and responsibilities.......................................................................................21
Table 7: Number of teams for the fieldwork activity..............................................................26
Table 8: Number of teams for the file reorganization activity................................................27
Table 9: Number of teams for the file scanning activity........................................................28
Table 10: Number of teams for the database formation activity............................................29
Table 11: Communication plan.............................................................................................31
Table 12: Risks and mitigation measures.............................................................................33
LIST OF FIGURES
Figure 1: File reorganization workflow....................................................................................4
Figure 2: Categories of documents to be scanned...............................................................14
Figure 3: Folder naming hierarchy........................................................................................16
Figure 4: File reorganization team structure.........................................................................21
Figure 5: File reorganization work plan.................................................................................30
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1. INTRODUCTION
This section provides an introduction and background to the project.
1.1. Background
AH Consulting (AHC) entered into a contract with Ministry of Urban Development and
Construction (MUDCo) under the UIIDP Project to provide consultancy service for
Upgrading and Reviewing of Comprehensive Computer Assisted Urban Land Holding
and Basic Municipal Revenue Filing Management System and Data Base Formation
in 18 Cities in Oromia (4 Cities), and SNNPRS (4 Cities), Tigray (4 Cities), Amhara (4
Cites), Harari (1 City) and Dire Dawa City). The consultancy commenced in
December 2020 and is expected to be completed within a period of 18 months.
This consultancy is part of Urban Revenue Reform Project (URRPO). The mission of
URRPO is to strengthen the financial capability of cities and enable them to carry out
their role in achieving a middle-income country vision. The project will create a
modernized urban revenue system that aims at the creation of substantial, consistent
and equitable local urban revenue that will provide a source of general revenues for
the provision, operation and maintenance of local public services. The project was
piloted in three cities namely, Mekelle, Bahir Dar and Dire Dawa, and planned to be
scaled up to all cities in the country. The rationale for Reviewing and Upgrading of
ULHBRFMS and DBF is to lay the foundation for the overall improvement of
municipal revenue and would also contribute to establishing a thriving and healthy
property market; facilitating transactions that directly improve land based municipal
revenues.
To understand the land and municipal revenue files arrangement situation on ground,
AHC conducted a survey in 15 cities. The team couldn’t conduct a survey in the 3
cities of the Tigray region (Adigat, Axum and Shire Endaselassie) due to the political
instability in the area.
The following were the key findings:

a. All land rights are created at the city level administration and the files
distributed to the sub cities or kebele archives offices for management and
ease of service delivery, however in some regions such as in Oromia specially
in Adama city, land rights can be created at sub city and kebele level. The copy
of files created at kebele level may be shared to the city central office;
b. The average number of legal files in each city is 40,000 files;
c. Most cities have legal files that are not organized, scanned and encoded;
d. The municipal revenue files are stored in three different offices in the cities:
i. The land related files at the the land offices (together with the land files,
except Bishoftu which has a separate archive room for revenune);
ii. The construction related revenue files at the construction office (except
for Sidama and SNNPR); and
e. All the other files at the revenue offices (city and sub city level).Some files are
incomplete or damaged due to poor handling;
f. Some files have no title certificate; and
g. Some services in some cities (Adama, Bahir Dar, Hawassa and Mekelle) are
decentralized to sub-cities.
To this end, AHC is planning to start the file reorganization and database formation
phase, which is the main phase of this assignment.
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1.2. Purpose of the report

The purpose of this report is to present the roadmap for implementation of the file
reorganization phase activities. It indicates the detailed methodology for the file
reorganization activities, the team that will undertake the activities, the workplan for
all the 15 cities, the communication plan during the execution of the activities and a
risk management plan which will guide the successful implementation of the file
reorganization activities.
1.3. Structure of the report

The report has five (5) sections:
a. File reorganization methodology: This section indicates in detail the activities

that will be undertaken under the file reorganization phase of the assignment.
b. File reorganization team structure: This section describes the team structure
and the roles and responsibilities for each category of the personnel.
c. File reorganization workplan: This section indicates the workplan for the file
organization activities.
d. Communication management: This section indicates the set standards for
how and when communication takes place between the stakeholders of the file
reorganization phase.
e. Risk management plan: This section presents the analyzed possible risks that
can affect the file reorganization process and shows the mitigation control or
measure for each of the identified risks.
1.4. Scope of work

The file reorganization activities are set to be conducted in 18 cities of Ethiopia.
However, this implementation plan has been prepared for the 15 cities indicated in
the table below. This is because the 3 cities in the Tigray region have not yet been
assessed due to unstable political environment in the region. The Tigray cities will be
assessed when the political environment is stable or will be replaced by other cities
and the implementation plan will be updated to include these cities .
Table 1: List of cities
No. Region City No. of Sub cities No. of Urban Kebeles

1. Amhara Bahir Dar 6 29
2. Debre Birhan - 9
3. Dessie 5 18
4. Gondar 6 23
5. Oromia Adama 6 18
6. Bishoftu - 14
7. Jimma - 12
8. Shashamane - 8
9. Sidama Hawassa 8 -
10. SNNP Arbaminch - 11

11. Dilla - 5
12. Sodo - 7
13. Tigray Mekelle 7 33
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No. Region City No. of Sub cities No. of Urban Kebeles
14. Others Dire Dawa - 9

15. Harar - 7
Total number for Sub cities and
38 203
Kebeles
1.5. Disclaimer
This report is intended for use by the Ministry of Urban Development and
Construction, and any parties it may expressly authorize. The circulation and use of
the contents of this report is therefore limited and any analysis and interpretation of
the contents must be made within the context of the assignment, and the TOR’s.
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2. FILE REORGANISATION METHODOLOGY

This section indicates in detail the activities that will be undertaken under the file
reorganization phase of the assignment.
2.1. File reorganization workflow

The tasks to be undertaken under the file reorganization phase have been subdivided
into 7 activities as indicated in the figure below:
Figure 1: File reorganization workflow
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2.2. Pre-fieldwork
The objective of this activity is to ensure that all required resources such as the staff
at each city, maps, materials (forms for data collection) are available and in place
before commencing field work and file rearrangement.
2.2.1. Recruitment of contractual staff

Together with the Committees that were setup by the MUDCo in the 15 cities,
contractual staff for each of the activities to be undertaken (as explained in this
section) will be recruited. The roles and responsibilities of all the categories of
contractual staff are indicated under section 3 of the plan. The recruitment criteria will
be based on the requirements of the work. The salary level has been determined
before recruitment and will be included in the job advertisement by the city
administration. The recruitment process will include:
a. Job advertisement (10 days as a minimum period required by the law);
b. Receipt of the applications from the public;
c. Selection of contractual staff by the committee; and
d. Contract signing with the successful applicants.
2.2.2. Training of contractual staff, city & kebele/sub-city experts

The training will be conducted per city. The aim of the training is to ensure that all
stakeholders of the file reorganization phase understand the process and work flow
of all activities, the tools that will be used for the different activities and the
expectations from all the stakeholders. The training will be undertaken by the AHC
team. The trainees will be grouped into 5 categories as indicated below:
a. Management team: Managers of the cities and kebeles/ sub-cities (including
the members of the committee that were setup by MUDCo)
b. Field work team;
c. File reorganization team;
d. File scanning team; and
e. Database formation team.
Each team will be trained based on the activities that they will participate in. The
training will be both theoretical and practical.
2.2.3. Internal awareness

For successful implementation of the file reorganization activities, the regional, city
and kebele/sub-city managers and officers at both land and revenue offices have to
be aware of the activities being undertaken and be involved whenever required. Prior
to the commencement of the activities, our team through the Committees that were
setup in each city and regional office, will explain in details the activities that are
going to be conducted and will share the timelines for all activities in each city. This
will be done to ensure a smooth implementation of all file reorganization activities.
2.2.4. Public awareness

The public has an essential role in the integrated file reorganization process. Their
commitment and participation are necessary. Public awareness will be created by
organizing public meetings, target group discussions and by distributing written
materials. This activity will be done together with the community mobilisers that will
be selected in each city. This activity will be done per kebele. To prevent the spread
of COVID-19, we shall utilize the method of distributing materials such as posters,
leaflets and announcement at city and kebeles/sub-cities’ offices and only hold public
meetings with a few representatives while adhering to COVID-19 Standard
Operational Procedures (SOPs). The public meetings will be chaired by kebele head
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of administration /kebele general manager/ land administration staff, and the

community mobilization members. With a participatory method of approach, the
experts will give a more detailed explanation and elaboration about the planned
survey work and the importance of the file management system, door –to-door data
collection and map verification work in establishing credible and legally binding
protection of the file system and security of their legal documents.
2.2.5. Preparation of Map Data

Obtaining prepared parcel maps from the concerned body and preparing the map for
the project work is essential for easy implementation of file organization. This helps to
collect missed spatial information from the field, show the link between spatial
information(orthophoto) and non-spatial data (description of the parcel) and the gaps
need to be filled in between or at the end of the project implementation. Two types of
maps will be produced for this project.
The first one is parcel index map that will be produced before undertaking field works.
Parcel index map is important for easy and organized field data collection. As the
files are supposed to be organized in Region-city-sub city/woreda/kebele-
Neighborhood-Block and parcel code, maps showing such districts should be
prepared based on legal cadaster standard. Based on the city map, parcel index map
is going to be prepared to define spatial extent of parcel within neighborhood, kebele,
sub city and city. These maps will be printed in A3 and used by the data collectors.
The maps will guide data collectors to collect missing information in the identified
landholders’ files and help to match parcels with UPIN.
The second type of map is updated parcel map that will be prepared post fieldwork.
Updated parcel maps are the final maps that include cleared information and linked
spatial and parcel information (spatially Right, Restriction and Responsibility).
2.2.6. Verifying files for the legality

The main purpose of this section is to assess the files in the archive for the legal
documents like landholding certificate. This will assist to get the total number of files
without legal documents and legal parcels without viable documents. For municipal
revenue files, the revenue files will be verified to separate the revenue files to be
archived with the land files from the other municipal revenue files.
2.2.7. Sorting organized files from unorganized

The main purpose of this section is to identify the number of files organized and
unorganized one. So that the field data collection plan will be based on the status of
file organization. The other municipal revenue files will be sorted and organized
based revenue items and taxpayer’s name.
2.2.8. Capturing the Coordinates of the parcels which have no UPIN

UPIN is assigned based on the spatial location of parcels. Unorganized files that
contain locational coordinates on the land holding certificates will be identified and
extracted on Spreadsheet to be imported to existing Up-to-date base maps and can
be assigned its UPIN based on their location at office level. In complex environment
assigning of UPIN may require field visit. The two types of UPIN format, as it has
been stated in the ELADM, are indicated below:
a. Normal houses
Region (type= Alphabetic;2 digits)
City/Town (type= number;3 digits)
Sub-city/ Kebele (type= number; 2 digits)
Neighborhood (type= number; 2 digits)
Block number (type = number; 2 digits)
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Parcel number (type = number; 3 digits)
b. Condominium houses
Region (type= Alphabetic;2 digits)
City/Town (type= number;3 digits)
Sub-city/ Kebele (type= number; 2 digits)
Neighborhood (type= number; 2 digits)
Block number (type = number; 2 digits)
Parcel number (condominium site) (type = number; 3 digits)
Condominium block/ building unit code (type = number; 2 digits)
Condominium floor code (type = number; 2 digits)
Condominium house code (type = number; 2 digits)
2.2.9. Office work report

During the office work, weekly reports will be prepared by the experts in charge of
every city to indicate the progress of the work and shared with the city.
2.3. Fieldwork
The objective of this activity is to ensure that all the registered parcels with legal files
have all the key documents and have a UPIN code assigned before file arrangement,
scanning and data encoding.
2.3.1. Capturing land holders and taxpayers file data

As indicated in the introduction of this implementation plan, a survey was undertaken
and it indicated that files are stored at the city offices. There are cities like Adama,
Bahir Dar, Dessie and Hawassa, among others that store the files at the sub-cities
and/or kebeles offices. Such cities have some duplicates of the legal files either at
the city office or the sub-city and kebele offices. The activity for capturing land
holders’ file data will be undertaken to ensure that all landholder’s details are
captured before the field data collection and use this data for the subsequent
activities and to identify the inactive files and separate them from the active files.
The data will be collected from legal files that are stored in the archive rooms at the
city, sub-cities and kebeles offices. The data that will be collected will have the
following attributes: land holder’s full name, land use permit, folder number, file
number, UPIN code (if available), list of any missing information or document and
additional remarks to record relevant data. It will be recorded using excel sheet for
easier verification. The data for each city will be in the same spreadsheet for easier
identification of duplicates either at the city, sub-cities or kebeles offices and the
spreadsheets will be verified by the quality assurance expert to identify any errors
and have them corrected. The excel forms that will be used for data collection are
attached in Appendix I.
Municipal revenue files, that are not land related, will also be captured from the
archive rooms as per available city structure into spreadsheet. The data that will be
capture involves: revenue item category, revenue code, receipt Number, taxpayer
name, payment date, year of payment, amount of payment, file number, letters,
clearance and any missed information and remarks will be recorded in excel sheet.
2.3.2. Updating parcel Map data

The purpose of this activity is to ensure boundaries and parcel data are up-to-date.
This activity will be undertaken using the latest digitized area maps from each city.
The survey that was undertaken by our team indicated that some cities have
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mapping data that is not up-to-date, produced for legal cadaster development
purpose. The maps indicate the sub-cities, kebeles, neighborhoods, blocks, and
parcels demarcation. As the files are supposed to be organized in Region - city - Sub
city/Kebele – Neighbor - Block - parcels code, maps showing such boundaries will be
updated wherever there is need by considering the standard of legal cadaster. These
maps will be printed in A3 format to be used as index maps during fieldwork. This
activity will be done in collaboration with the city and regional administration offices.
2.3.3. Verification and assigning the UPIN for newly obtained parcels.
After capturing the land holders’ data from the archive rooms of the city or the
kebeles/sub-cities, consolidating, verifying the data at each city and getting the
digitalized maps, we shall commence fieldwork. This will be done after the data
collectors and all actors of this activity have been trained in the use of the tools that
will be utilized for collecting the data and the maps. The purpose of the fieldwork is to
obtain any missing data or document for each parcel, update the data in the files and
verify the maps. This will be done for all legal files in the pilot cities and new cities.
The data will be collected using printed forms with already available information of
each parcel and any remarks to be considered during the data collection.
2.4. Post fieldwork

The objective of this activity is to verify data collected from the fieldwork, encode the
captured data and reporting of the fieldwork activities. These activities will be carried
out concurrently with the fieldwork because the teams in charge of the activities are
different from the teams that will undertake the fieldwork.
2.4.1. Capturing the data into spreadsheet

The data collected using printed forms from fieldwork will be captured in an excel
spreadsheet by data encoders. The spreadsheets will be shared with everyone in
charge of data encoding and supervision of the fieldwork activity.
2.4.2. Field Data Verification

Using the captured data on the fieldwork forms, fieldwork supervisor(s) shall cross
reference the encoded data in the excel sheets and the files in the archive rooms.
This will be done daily to avoid an overload with unverified data. Already assigned
UPIN will also be cross referenced with the data on the field sheets. Errors in the
data will be corrected at this stage.
2.4.3. UPIN data Encoding in GIS System

After data verification is completed, the GIS experts will encode the assigned UPIN
codes (for parcels that didn’t have UPIN codes) into the GIS system and update the
file attributes table and metadata based on the ground reality after the field work.
2.4.4. Fieldwork reporting

During the fieldwork and post fieldwork activities, a weekly report will be prepared by
the experts in charge of every city to indicate the progress of the work and shared
with the city committee. These weekly reports will be consolidated and incorporated
in the monthly reports to be sent to MUDCo at the end of every month.
2.5. File reorganization

The objective of this activity is to rearrange all the legal files in the archive rooms as
per the UPINs.
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2.5.1. Number of files

As indicated in the introduction, a survey was undertaken and it indicated the
following:
a. The total number of legal land files counted in the 15 cities is 697,730;
b. In 7 cities (Debre birhan, Dessie, Bishoftu, Jimma, Shashamane, Dire Dawa
and Harar) the files are kept in the archive rooms for the city administration
office and the kebeles have a copy of each file to use for service delivery;
c. In 5 cities (Gondar, Adama, Arbaminch, Dilla, Sodo), the files are stored at the
city administration offices and sub cities and/or kebeles offices;
d. There are three cities (Bahir Dar, Hawassa and Mekelle) that don’t have any
files at the city administration office;
e. In the pilot cities (Bahir Dar, Dire Dawa and Mekelle), most of the files are
already arranged as per the UPINs. However, there are new files that don’t
have UPIN codes;
f. The new cities have started arranging the files using UPIN codes, however
most of the files are still arranged alphabetically per land holders’ names; and
g. It was noted that in Bahir dar, Arbaminch, Hawassa, Sodo and Mekelle, the
number of legal files available are more than the number of parcels in GIS or
the estimate from the land management team. This indicates that some of the
files are duplicates or that all parcels are not indicated in the GIS.
The table below indicates the number of files that were found in each city,
categorized by organized (with UPINs) and unorganized (alphabetically).
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UPGRADING AND REVIEWING OF COMPREHENSIVE COMPUTER ASSISTED URBAN LAND HOLDING AND BASIC MUNICIPAL REVENUE FILING MANAGEMENT
SYSTEM AND DATA BASE FORMATION IN 18 CITIES
Table 2: Number of legal files
No. City No. of No. of legal of files at City No. of legal of files at Kebeles/sub city Total no. of legal
parcels Organized Unorganized Total Organized Unorganized Total files
Amhara
1. Bahir Dar 60,000 0 0 0 36,374 58,840 95,214 95,214
2. Debre Birhan 23,385 26,384 13,926 40,310 0 0 0 40,310
3. Dessie 42,197 3,820 38,377 42,197 0 0 0 42,197
4. Gondar 55,000 3,316 2,905 6,221 25,139 6,510 31,649 37,870
Oromia
5. Adama 120,000 10,235 32,145 42,380 8,597 39,069 47,666 90,046
6. Bishoftu 42,472 7,585 17,125 24,710 0 0 0 24,710
7. Jimma 40,088 16,778 12,118 28,896 0 0 0 28,896
8. Shashamane 38,585 13776 21,905 35,681 0 0 0 35,681
Sidama
9. Hawassa 45,000 0 0 0 0 52,942 52,942 52,942
SNNP
10. Arbaminch 4,361 0 5,407 5,407 0 39,732 39,732 45,139
11. Dilla 12,489 0 2,278 4284 0 8,205 8,205 12,489
12. Sodo 3,589 0 1,869 1,869 0 21,882 21,882 23,751
Tigray
13. Mekelle 95,000 0 0 0 78,611 27,874 106,485 106,485
Others
14. Dire Dawa 32,000 16,174 15,826 32,000 0 0 0 32,000
15. Harar 30,000 17,000 13,000 30,000 0 0 0 30,000
Total 644,166 293,955 403,775 697,730
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AND BASIC MUNICIPAL REVENUE FILING MANAGEMENT SYSTEM AND DATA BASE FORMATION IN 18
CITIES
In regards to the municipal revenue files, the situation assessment (in 14 cities)
indicated the following:
a. All the 14 cities store files for recurrent revenue items. The event-based
revenue files are not archived.
b. Revenue files for Land related Revenue is stored at the land office with the land
files in all the 14 cities. Construction related Revenue files by Construction
Office (except in the Sidama and SNNPR) and other Municipal Revenue by city
and sub city revenue offices.
c. 5 out 14 cities (Debre Birhan, Dessie, Gondar, Harar and Dire Dawa), arrange
revenue files per revenue type, the other cities arrange the revenue files per tax
payer’s name. But even then, not all revenues had the files.
d. The revenue files in all cities are not well recorded using registry books
(hardcopy or excel) making it hard to know the accurate number of revenue
files.
e. The currently available number of files are: 259,446 in the 14 cities. These files
are arranged either by taxpayer’s name or by the revenue items (types).
2.5.2. File reorganization process

Based on the verified data after field data collection, the files in the archive rooms will
be arranged through the following tasks:
a. Shelves organization and labelling:

i. Each shelf shall be given a unique alphabetical name and each line of the
shelves shall be given a unique number corresponding to the shelves
name. The naming of the shelves shall be rearranged bottom-up approach.
ii. On each line, folders will be arranged in ascending order following the
physical ground reality i.e., neighborhood and block.
iii. The file organizers, sub city/kebeles coordinators and managers, land
registration and administration head and data encoders will receive
orientation on how the file block reorganization will take place.
iv. The shelves and each row shall be labelled, using printed stickers (colored
font and font size of 72), based on the methods described above.
b. File arrangement and labelling:

i. Land and land related revenue files will be arranged as per the UPINs (14
or 20 digits) will be labelled on the files that don’t already have the UPIN
using printed stickers (the font color should be black and the font size
should be 24 - 28).
ii. All land files shall be arranged as per UPINs (based on verified data) for
each kebele or sub city, in ascending order. The files being arranged will
be cross checked to ensure all legal documents are inside based on the
file arrangement checklist (figure 2) to facilitate the file scanning and data
encoding process.
iii. The municipal revenue files that are not land related will be arranged
alphabetically by taxpayer’s name by considering revenue items code.
These will be arranged from the revenue offices’ archive room.
iv. Each organized file will be ticked on the form B2 (Appendix II) for file
arrangement, scanning and data encoding tracking. This form will be in
both hardcopy and softcopy. This will help tracking and supervising the
activities completed every day.
v. Each file organizer will crosscheck if all documents are present and
organize the key documents as per the arrangement checklist (figure 2)
and label the file with the UPIN code and one who will cross-check the
organized files, update form B2 (Appendix II) and place the file in the
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folder. The form will be shared with the supervisor and data encoder at the
end of every day.
vi. The head of land management and administration will be responsible for
supervising the file arrangement process.
c. Folder arrangement and labelling:

i. The organized land files will be placed inside the folders as per blocks
(indicated in the UPIN code). The folders will be labelled to indicate the
files that are placed inside. They will be labeled as follows: Kebele code,
Neighborhood number, Block number, Parcels numbers. E.g.: K-01, N-02,
B-01, P-(001 - 010). The font for Kebele no., Neighborhood no. and Block
no. should be colored differently. The font color for parcels no. will be
black.
ii. The completed folders will be placed on the shelves in sequence, following
the order of UPIN codes. If folder 1 starts from parcel 001 to parcel 010,
then the next folder should start from parcel 011. The files inside the folder
should follow ascending order.
iii. Each folder may have 10 files based on the size of documents inside the
folder
iv. In case, the arrangement of files in one block is completed before the last
folder is fully filled (i.e., the folder has less than 10 files), the files for the
new block will be kept in a new folder. Files from different blocks cannot be
stored in the same folder.
v. The organized revenue files will be placed inside the folders as per revenue
item code alphabetically arranged by taxpayer name. The folders will be
labelled to indicate the files that are placed inside . They will be labeled as
revenue items code and starting letters of taxpayer’s name. To easily identify
the font for revenue items code and the beginning of taxpayer’s name should
be colored differently.
vi. The completed folders will be placed on the shelves in sequence, following
the order of revenue items code.
The above activities will be done until all files are arranged and placed in the shelves
and shall result into sets of re-organized files ready for scanning and database
formation.
For pilot cities, the process will start by checking the arranged files, rearrange the
files and update the information if there is need and adding the new revenue files.
The process will be the same as the one mentioned above.
2.6. Legal File Document Scanning

The objective of this activity is to scan the legal files documents, to digitize basic land
holder legal document and selected municipal revenue files and to upload the
scanned files on the file server.
2.6.1. File scanning operation process

The scanning process will be done after all the legal land files have been reorganized
and kept in the shelves as per the UPIN. The following activities will be undertaken
during the file scanning:
a. Our team will provide each city with scanners. The number of scanners for
each city will depend on the number of legal files to be scanned.
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b. The teams in charge of file scanning will be given training on the use of the
scanners, the scanning procedures and the tools that will be used during the
scanning process.
c. The files will be scanned following the order in which they have been arranged
in the shelves. Each team will be assigned a block to work on and once done
they will proceed to another block.
d. The archive officer(s) will hand over the files for scanning to the teams.
e. In pilot cities and cities that have started scanning, the IT expert will share the
scanned files. The scanning process in such cities will start the scanning with
these files. The teams will check the scanned documents and update them in
case any document is missing.
f. There will be document collector in each team in charge of selecting the
documents for scanning from the files and organizing them based on the
checklist for scanning and handing them over to person doing the scanning.
The document selector will verify that the land holder’s names is the same on
the scanning form before handing the documents for scanning.
g. The document collector will remove anything that shouldn’t go through a
scanner such as staplers or clips
h. After the documents have been scanned and saved in the folder, the document
collector will place the documents back to the file.
i. The scanning expert will update the scanning (form C2, Appendix III) and add
the folder name for that file and sign. The document collector will also sign on
the same form to confirm the scanning of the document.
Note: The scanning process is set to start when the hardware has been procured in
the cities to ensure that the scanned files are stored on the procured servers.
2.6.2. Estimated files to be scanned

As per the TORs of this project, the number of documents to be scanned for each
legal file is expected to be 10 pages on average based on the proposed documents
to be scanned. However, this is the same average number that was indicated for the
pilot cities and it did not include the revenue files, thus the expected average number
of documents to be scanned for each file is expected to be 15.
The documents that will be scanned are in different categories as indicated in the
figure below:
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Figure 2: Categories of documents to be scanned
2.6.3. Scope and Volume of operational work

The scanning of files will be undertaken at the cities’ offices and the sub cities /
kebeles offices (in scenarios where files are kept at kebeles). In addition to the pilot
cities, some cities have started the scanning and we shall continue from where they
have stopped, however as indicated in the file scanning operation process, we shall
update the scanned files in case any document is missing. The table below indicates
the number of files to be scanned in each city. It is to be noted that after the
reorganization of files, the number will change since there might be new files or
duplicated files that have been removed.
Table 3: Number of legal files to be scanned in all cities
Non-scanned
No. City No. of legal files Scanned files
files
Amhara
1. Bahir Dar 95,214 36,374 58,840
2. Debre Birhan 40,310 0 40,310
3. Dessie 42,197 1,459 40,738
4. Gondar 37,870 0 37,870
Oromia
5. Adama 90,046 8,246 81,800
6. Bishoftu 24,710 0 24,710
7. Jimma 28,896 0 28,896
8. Shashamane 25,000 0 25,000
Sidama
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Non-scanned
No. City No. of legal files Scanned files
files
9. Hawassa 52,942 1,171 51,771
SNNP
10. Arbaminch 45,139 0 45,139
11. Dilla 12,489 0 12,489
12. Sodo 23,751 0 23,751
Tigray
13. Mekelle 106,485 78,611 27,874
Others
14. Dire Dawa 32,000 16,174 15,826
15. Harar 30,000 17,000 13,000
Total 697,730 159,035 538,695
The revenue files haven’t been scanned in any city. After organization, when all land
revenue related files have been separated from the other revenue files, the exact
number of remaining files to be scanned will be known and additional teams will be
added for scanning these files.
2.6.4. Document Indexing and Storage

During the scanning process, the scanned documents will be stored on the
computers being used for scanning. At the end of every day, each team will share the
scanned documents with the ICT expert who will transfer them on the file server. The
ICT expert will receive training once the servers have been procured. The folder
naming of the scanned documents will follow this hierarchy, on both the computer
and the server:
a. Region code (main folder)
b. City code
c. Kebele code
d. Neighborhood code
e. Block code
In this hierarchy, the city code will be a sub folder under the region code, the kebele
code will be a sub folder under the city code and so on. The last sub folder will the full
UPIN code for parcels or condominiums. The figure below indicates the hierarchy for
folder naming:
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Figure 3: Folder naming hierarchy
This will apply to land files. The other municipal revenue files will be stored as per the
following hierarchy:
a. Region;
b. City,
c. Sub city;
d. Revenue item; and
e. Taxpayer’s names.
2.7. Database formation

The objective of this activity is to capture the data from scanned documents and the
Rights and Obligation Registry Book (RORB) into the ULHBRFMS and link the
scanned documents to this data.
2.7.1. Data Capturing from Scanned documents

After documents scanning, the data from the scanned documents will be captured
into the data capturing form (form D3, appendix IV) that will be shared with the data
encoders. The spreadsheets will be verified by the quality assurance expert of each
team on a daily basis. In the pilot cities, the data encoders will update the already
existing data (in case of changes or missing data) and start encoding the new files
thereafter.
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The table below indicates the attributes of data to be captured include the following:
Table 4: Data to be captured from scanned files
No Document type Attributes

.
1. Title deed /Land holding i. Land owner’s full names
certificate ii. Land holding certificate number
iii. Land holding certificate issue date
iv. Parcel size and parcel coordinates
v. Land Use
vi. Permitted building height
2. Land acquisition i. Mean of acquisition
ii. Previous owner (from whom it was acquired)
iii. Acquisition date
3. Agreements i. Date of agreement
ii. Contract type/purpose
iii. Contract amount (in case of a sale contract)
iv. Lease price (in case of a lease contract)
v. Prepayment amount (in case of a lease
contract)
vi. Annual payment amount (in case of a lease
contract)
vii. Lease starting and ending period
4. Cases (if there is a case) i. Issuance date
ii. Who gave the order (court, bank etc.)?
iii. Purpose of the documents (suspension or
cancelation)
5. Building permit i. Issuance date
ii. Permitted building height
iii. Permitted building material
6. Compensation i. Compensation
ii. Displacement date and location (in case of
displacement)
iii. Amount paid
iv. Date of payment
7. Municipal revenue files i. Receipt Number
(land related and non- ii. Type of revenue
land related) iii. Date of payment
iv. Payment period (for which year it was paid)
v. Paid amount
vi. Taxpayer name
2.7.2. Data Capturing from RORB

A Registry Book or the legal book is an official record for land holding rights and
tenure type. It is the most important document in a land registration and legal file
record management system. Registry book is the legal register of rights of the holder
and the land in which the holder has rights on the specific parcel or holding in land.
During the survey that was undertaken, we assessed the registry books in use in
each of the 15 cities and the results indicated that the total number of registry books
in the 15 cities is 127. The table below indicates the types and numbers of registry
books for each city:
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Table 5: Available registry books in the cities
No. City Types and number of registry books

Amhara
1. Bahir Dar 17 Registry Books
i. There is no registry book at the city office
ii. Atse Tewodros sub city has (4) registry books for
title deeds registration, right transfer, court
injunction and cancellation and condominium
registration
iii. The other sub cities have combined registry books
(used for registration, right transfer and court. The
total is 13
2. Debre Birhan 3 Registry Books
i. Registry book used to register 3R (1)
ii. Right Transfer Registration Registry book (1)
iii. Registration and records of land holders’ title
deeds (1)
3. Dessie 4 Registry Books
iii. Records of court injunction and cancellation (1)
iv. Registration and records of land holders’ title
deeds (1)
4. Gondar 12 Registry Books
v. There is no registry book at the city office
vi. The sub cities have combined registry books (used
for registration, right transfer and court. The total is
12
Oromia
5. Adama 4 Registry Books
i. Registration and records of land holders’ title
deeds (1)
ii. Records of bank injunction and cancellation (1)
iv. Registration of land rights transfer (1)
6. Bishoftu 3 Registry Books
i. Registration and records of land holders’ title
deeds (1)
ii. Records of bank and court injunction and cancel
(1)
iii. Registration of land rights transfer (1)
7. Jimma 5 Registry Books
i. Records of lease and rental agreement (1)
ii. Records of bank injunction and cancellation (1)
iv. Record of old possession (1)
v. Registration of land rights transfer (1)
8. Shashamane 3. Registry books
i. Title certificate records and registration (1)
ii. Records of bank and court injunction and
cancellation (1)
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No. City Types and number of registry books

iii. Registration of land holding right transfer (1)
Sidama
9. Hawassa 42 Registry Books
i. Title certificate records and registration (old
possession (26) and land on lease (12)
ii. Records of bank orders (4)
SNNP
10. Arbaminch 10 Registry Books
i. Records of old possession (8)
ii. Registration of land on lease (1)
iii. Records of condominium units (1)
11. Dilla 8 Registry Books
possession (5) and land on lease (1))
ii. Records of bank injunction (1)
12. Sodo 5 Registry Books
possession (3) and land on lease (1))
ii. Records of condominium units (1)
Tigray
13. Mekelle 5 Registry books
i. Protocol Registry (1)
ii. Mortgage and Court order registry (1)
iii. New Land right registry (1)
iv. Certificate registry (1)
v. Transaction registry (1)
Harari Region and Dire Dawa
14. Dire Dawa 3 Registry Books
deeds (1)
15. Harar 3 Registry Books
i. Records of bank injunction and cancellation (1)
deeds (1)
The data from the registry books will be captured using form D4 (appendix IV) that
will be shared with the data encoders. All the data in the registry books will be
captured on the spreadsheets and will be linked to the data from the scanned
documents. The captured data will be verified at the end of every day by the quality
assurance experts to ensure the data is correct. In the pilot cities, the data encoders
will update the already existing data for registry books (in case of changes or missing
data) and start encoding the new files thereafter.
2.7.3. Upload of the data

After data from the legal files and from the registry books has been captured into the
spreadsheets and has been verified by the quality assurance experts, the system
developers will export the data into the implemented ULHBRFMS. The data will at
that point be linked to the scanned legal files in the system. This task will be
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undertaken after the data analysis is completed to ensure that the data upload to the
system is correct and they are no errors or duplicates.
2.8. Analysis report preparation
The objective of this activity is to analyze the files and data to identify missing
documents/data, duplicates or any other errors and prepare a report that indicates
the findings and the recommendations. The following tasks will be undertaken under
this activity:
a. Document comparison: During the file reorganization process, we shall check

any missing or mismatching key document in every file and note it down. The
notes in this process will be used to analyze all the files. The analysis will focus
on the following:
i. Files with all basic documents,
ii. Files that lack one or more documents,
iii. Files with mismatching documents/like various names and plot size
among others.
Based on the analysis findings, we shall make recommendations to resolve the
discrepancy.
b. RORB and file documents comparison: Under this task, we shall compare
the RORB facts with the relevant file documents and identify files that have
identical facts with the RORB/ all file data are in line with RORB, files that have
mismatching fields with the RORB and make recommendations to address the
detected issues.
c. File and map overlapping analysis: Under this task, we shall compare the
facts from the files and the RORB to the facts from the maps used during the
fieldwork activity. This analysis will indicate the following findings:
i. Parcels with no legal file;
ii. Parcels with file that have all basic documents;
iii. Parcels with files that lack one or more legal documents
iv. Parcels files with mismatching documents;
v. Parcels that have the same size in the recent map and in the
scanned paper document
vi. Parcels that have smaller size in the recent map than in paper
document
vii. Parcels that have larger size in the recent map than in scanned
paper document
viii. Parcels that have no location information on their files
ix. Parcels with more than one legal document (file duplication)
The findings in these different categories will be analyzed and categorized in

plot size ranges like parcels with acceptable size, parcels that are below the
minimum allowable size. Based on the findings, we shall make
recommendations to resolve the discrepancy.
d. Analysis report preparation: Once the above tasks have been completed, we
shall prepare an analysis report that indicates the findings and
recommendations. We shall submit this report to the MUDCo for review and
approval.
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3. FILE REORGANISATION TEAM STRUCTURE

The successful execution of the file reorganization activities requires a team of
dedicated personnel at the city, sub cities and kebeles offices. This section describes
the team structure and the roles and responsibilities for each category of the
personnel.
3.1. Team structure

The following is the team structure for each city required to support the file
reorganization phase activities:
Figure 4: File reorganization team structure
3.2. Roles and responsibilities of key actors

The table below indicates the responsibilities for the key actors and the personnel
that will be assigned to each role that is indicated in the team structure (figure 4).
Table 6: Roles and responsibilities
No. Role Responsibilities Assigned person(s)

1. Overall i. Review weekly reports from  ULHBRFMS
Regional the cities Regional
supervisor ii. Review of the various committee
deliverables from AHC
iii. Making close follow up and
evaluations of the activities
being undertaken in the cities
iv. Supporting cities when the
need arises
v. Present anything that needs
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decision and endorsement of
the regions to the Regional
Urban Development &
Construction Bureau
2. Overall city i. Recruitment of contractual  ULHBRFMS City
supervisor staff: committee
 Receipt of the applications
from the public;
 Selection of contractual
staff by the committee;
and
ii. Assign committed city/sub city
staff for some of the roles
iii. Selection and orientation of
community mobilizers
iv. Provision materials such as
folders, shelves, computers
and office spaces.
v. Review of weekly reports from
the different teams and other
deliverables from AHC
vi. Present to the mayor; issues
related to logistics and
working space for decision
making.
vii. Produce and deliver reports
on regular basis to the mayor
and federal quality assurance
committee
3. Field work i. Provide additional training to  Senior GIS expert
supervisor the fieldwork teams (from city office)
ii. Supervise fieldwork activities
on daily basis
iii. Field data verification
iv. Preparation of the fieldwork
weekly report
4. Fieldwork QA i. Review the paper files prior to  Contractual staff
expert field data collection (external)
ii. Verify if the fieldwork
templates are filled correctly at
the end of everyday
iii. Verify if the data on the
spreadsheet is the data on the
paper file.
iv. Ensure all data collectors are
working directly with the
community mobilisers and the
GIS expert
5. GIS Expert i. Divide the sub-cities into  GIS Experts
neighborhoods (AHC)
ii. Assign unique 2-digit  GIS experts (from
neighborhood codes to each city office)
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neighborhood  Contractual staff
iii. Assign unique 2-digit block (external)
codes to each block
iv. Assign UPIN to the parcels
according to ELADM
v. Cross referencing and verify
the UPIN code with parcel
vi. Prepare A3 size map sheets
at 1:1500 scale for each sub-
city/woreda/kebele
vii. Print the maps and provide the
field data collectors with the
maps
viii. Provide technical assistance
on map reading and field
data collection
ix. Undertake map overlapping
and workout analytical report
x. Prepare draft map overlapping
analysis report
6. Data Collectors i. Capture the landholders’ data  Contractual staff
from archive room prior to (external)
fieldwork
ii. Obtain any missing data or
document for each parcel
during fieldwork
iii. Update the data in the files
after fieldwork
iv. Capturing data from fieldwork
into spreadsheets
7. Community i. Organizing public meetings  Contractual staff
mobiliser ii. Focus group discussions (external)
iii. Distributing written materials
iv. Give a more detailed
explanation and elaboration
about the planned survey work
to the public
8. File i. Provide additional training to  Land
reorganization the file reorganization teams management and
supervisor ii. Supervise the file arrangement administration
iii. Get the updated form B3 head (from city
(Appendix II) from each team office)
to check the completed work
daily
iv. Prepare a weekly report for file
arrangement
9. File i. Review the B2 form after file  Contractual staff
reorganization reorganization at the end of (external)
QA expert everyday
ii. Check the folder and file
labelling before they are
attached to the folders and
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files and after
iii. Ensuring that the file
organizers are following the
same checklists for file
reorganization
iv. Report to the supervisor an
issue that arise during the file
reorganization
10. File organizers i. Shelves organization and  Selected archive
labelling officers
ii. File arrangement and labelling  Contractual staff
iii. Folder arrangement and (external)
labelling
iv. Update form B2 (Appendix II)
to indicate organized files
11. ICT Expert i. Prepare and print the stickers  ICT Expert (from
that will be used for file, folder city office)
and shelves labelling
ii. Upload scanned documents to
the servers
iii. Provide IT support to the
different teams
12. File scanning i. Provide additional training to  ICT Expert (from
supervisor the file scanning teams office)
ii. Supervise all the scanning
activities
iii. Prepare a weekly report of the
scanning activity (including all
kebeles and sub cities)
13. Scanned files v. Review the scanned  Contractual staff
QA expert documents, folder naming and (external)
filed scanning form
vi. Verify if scanned files have
been placed back into the
folders and on the shelves
vii. Share the scanned documents
with the ICT expert to upload
them on the server
viii. Prepare a weekly report
14. Scanning expert i. Scan the documents from the  Contractual staff
document collector (external)
ii. Indexing of the scanned
document
iii. Creation of folders and
arrangement of the scanned
documents into the folders
15. Document i. Selecting the documents for  Contractual staff
collector scanning from the files (external)
ii. Organizing the documents
based on the checklist for
scanning
iii. Verify that the name of the
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land holder’s names is the
same on the scanning form
iv. Remove anything that
shouldn’t go through a
scanner
v. Place the documents back to
the file
16. Database i. Provide additional training to  ICT Expert (AHC)
formation the database formation teams
supervisor ii. Supervise the database
formation activities
iii. Prepare a weekly report
17. Encoded data i. Cross check the scanned data  Municipal revenue
QA expert and data captured in the and land
spreadsheet management
ii. Update the database experts (AHC)
formation tracking form after  Contractual staff
captured data is verified (external)
18. Data encoder i. Capture data from scanned  Contractual staff
files into spreadsheet (external)
ii. Capture data from registry
books
iii. Update the database
formation tracking form after
documents from one file are
all encoded
3.3. File reorganization team size

The tables below indicate the planned size of the file reorganization team for each
city:
25
UPGRADING AND REVIEWING OF COMPREHENSIVE COMPUTER ASSISTED URBAN LAND HOLDING AND BASIC MUNICIPAL REVENUE FILING
MANAGEMENT SYSTEM AND DATA BASE FORMATION IN 18 CITIES
Table 7: Number of teams for the fieldwork activity
Fieldwork
No. of Non-
Scanned Team members
No. City legal scanned Daily
files Data QA Superviso
files files load GIS Mobilisers Total
Collectors Expert r
1. Bahir Dar 95,214 36,374 58,840 1,002 67 7 7 4 1 86
2. Debre Birhan 40,310 0 40,310 424 28 3 3 2 1 37
3. Dessie 42,197 1,459 40,738 444 30 3 3 2 1 39
4. Gondar 37,870 0 37,870 399 27 3 3 2 1 36
5. Adama 90,046 8,246 81,800 948 63 6 6 4 1 80

6. Bishoftu 24,710 0 24,710 260 17 2 2 1 1 23
7. Jimma 28,896 0 28,896 304 20 2 2 1 1 26
8. Shashamane 25,000 0 25,000 263 18 2 2 1 1 24
9. Hawassa 52,942 1,171 51,771 557 43 4 4 3 1 55
10. Arbaminch 45,139 0 45,139 475 32 3 3 2 1 41

11. Dilla 12,489 0 12,489 131 9 1 1 1 1 13
12. Sodo 23,751 0 23,751 250 17 2 2 1 1 23
13. Mekele 106,485 78,611 27,874 1,121 75 7 7 5 1 95
14. Dire Dawa 32,000 16,174 15,826 337 22 2 2 1 1 28

15. Harar 30,000 17,000 13,000 316 21 2 2 1 1 27
Considerations:
 Each GIS expert and community mobiliser will work with 10 data collectors;
 The field work activity has to be completed within 95 days in all cities;
 The daily target for each team is 15 parcels (only parcels with legal files); and
 This number includes the contractual staff (external), city office staff and the kebele/ sub city office staff that we shall work with.
26
Table 8: Number of teams for the file reorganization activity
File reorganisation
Non-
No. of Scanned Team members
No. City scanned
legal files files Daily load File ICT QA
files Supervisor Total
organisers Expert Expert
1. Bahir Dar 95,214 36,374 58,840 1,904 48 5 2 1 56
2. Debre Birhan 40,310 0 40,310 806 20 2 1 1 24
3. Dessie 42,197 1,459 40,738 844 21 2 1 1 25
4. Gondar 37,870 0 37,870 757 19 2 1 1 23
5. Adama 90,046 8,246 81,800 1,801 45 5 2 1 53

6. Bishoftu 24,710 0 24,710 494 12 1 1 1 15
7. Jimma 28,896 0 28,896 578 14 1 1 1 18
8. Shashamane 25,000 0 25,000 500 13 1 1 1 15
9. Hawassa 52,942 1,171 51,771 1,059 26 3 1 1 31
10. Arbaminch 45,139 0 45,139 903 23 2 1 1 27

11. Dilla 12,489 0 12,489 250 6 1 1 1 9
12. Sodo 23,751 0 23,751 475 12 1 1 1 15
13. Mekelle 106,485 78,611 27,874 2,130 53 5 3 1 62
14. Dire Dawa 32,000 16,174 15,826 640 16 2 1 1 19

15. Harar 30,000 17,000 13,000 600 15 2 1 1 18
Considerations:
 Each ICT expert will work with 10 file organizers;
 Each QA expert will work with 20 file organizers;
 The file reorganization activity has to be completed within 50 days in all cities;
 The daily target for file organizer is 50 files; and
27
Table 9: Number of teams for the file scanning activity
File Scanning
Non-
No. City scanned
legal files files Daily load Document Scanning Scanned files
files Total
collectors Experts QA Experts
1. Bahir Dar 95,214 36,374 58,840 1,070 36 9 2 46
2. Debre Birhan 40,310 0 40,310 733 24 6 1 32
3. Dessie 42,197 1,459 40,738 741 25 6 1 32
4. Gondar 37,870 0 37,870 689 23 6 1 30
5. Adama 90,046 8,246 81,800 1,487 50 12 2 64

6. Bishoftu 24,710 0 24,710 449 15 4 1 19
7. Jimma 28,896 0 28,896 525 18 4 1 23
8. Shashamane 25,000 0 25,000 455 15 4 1 20
9. Hawassa 52,942 1,171 51,771 941 31 8 2 41
10. Arbaminch 45,139 0 45,139 821 27 7 1 35

11. Dilla 12,489 0 12,489 227 8 2 1 11
12. Sodo 23,751 0 23,751 432 14 4 1 19
13. Mekelle 106,485 78,611 27,874 507 17 4 1 22
14. Dire Dawa 32,000 16,174 15,826 288 10 2 1 13

15. Harar 30,000 17,000 13,000 236 8 2 1 11
Considerations:
 Each Scanning expert will work with document collector;
 Each Scanning QA expert will verify work 5 scanning experts;
 The file scanning activity has to be completed within 55 days in all cities;
 The daily target for each document collector is 30 files; and
28
Table 10: Number of teams for the database formation activity
Database formation
Non-
No. City scanned
legal files files Daily load Data Encoded data
files Supervisor Total
Encoder QA expert
1. Bahir Dar 95,214 36,374 58,840 654 44 4 1 49
2. Debre Birhan 40,310 0 40,310 448 30 3 1 34
3. Dessie 42,197 1,459 40,738 453 30 3 1 34
4. Gondar 37,870 0 37,870 421 28 3 1 32
5. Adama 90,046 8,246 81,800 909 61 6 1 68

6. Bishoftu 24,710 0 24,710 275 18 2 1 21
7. Jimma 28,896 0 28,896 321 21 2 1 25
8. Shashamane 25,000 0 25,000 278 19 2 1 21
9. Hawassa 52,942 1,171 51,771 575 38 4 1 43
10. Arbaminch 45,139 0 45,139 502 33 3 1 37

11. Dilla 12,489 0 12,489 139 9 1 1 11
12. Sodo 23,751 0 23,751 264 18 2 1 20
13. Mekele 106,485 78,611 27,874 310 21 2 1 24
14. Dire Dawa 32,000 16,174 15,826 176 12 1 1 14

15. Harar 30,000 17,000 13,000 144 10 1 1 12
Considerations:
 Each QA expert will work with 10 data encoders;
 The database formation activity has to be completed within 90 days in all cities; and
 The daily target for each data encoder is 15 files.
29
4. FILE REORGANIZATION WORK PLAN

This section indicates the workplan for the file organization activities. The activities and timelines are the same for all cities. The figure
below indicates the workplan for file reorganization activities:
Figure 5: File reorganization work plan

No. T as k Name Duration S tart F inis h
1 F ile re-org anis ation, Databas e formation and Analys is 356 days Mon 25/01/21 Mon 06/06/22
1.1 F ile re -org aniz ation 290 day s Mon 25/01/21 F ri 04/03/22
1.1.1 P lanning 85 days Mon 25/01/21 Fri 21/05/21
1.1.1.1 Vis it the 18 cities and other s takeholders 30 days Mon 25/01/21 Fri 05/03/21
1.1.1.2 D evelopment of fieldwork data collection tools 5 days Mon 08/03/21 Fri 12/03/21
1.1.1.3 P reparation and s ubmis s ion of a file reorganis ation implementation plan 20 days Mon 15/03/21 Fri 09/04/21
1.1.1.4 R eview of the implementation plan 30 days Mon 12/04/21 Fri 21/05/21
1.1.2 F ie ldw o rk 150 days Mon 24/05/21 Fri 17/12/21
1.1.2.1 S election of the teams at each city 30 days Mon 24/05/21 Fri 02/07/21
1.1.2.2 T raining of teams in charg e of data collection 10 days Mon 05/07/21 Fri 16/07/21
1.1.2.3 S ens itiza tion of the habitants 10 days Mon 19/07/21 Fri 30/07/21
1.1.2.4 Undertake F ield work 95 days Mon 02/08/21 Fri 10/12/21
1.1.2.5 UP IN data encoding in the G IS s ys tem 25 days Mon 15/11/21 Fri 17/12/21
1.1.3 F ile R e -arrang e m e nt 50 days Mon 30/08/21 Fri 05/11/21
1.1.4 Doc um e n t S c anning 55 days Mon 20/12/21 Fri 04/03/22
1.1.4.1 D evelop checklis t for documents to be s canned 5 days Mon 20/12/21 Fri 24/12/21
1.1.4.2 Identify documents for s canning 50 days Mon 27/12/21 Fri 04/03/22
1.1.4.3 Undertake s canning 50 days Mon 27/12/21 Fri 04/03/22
1.1.4.4 D ocuments indexing and s torage 50 days Mon 27/12/21 Fri 04/03/22
1.2 Databas e F orm ation 90 day s Mon 10/01/22 F ri 13/05/22
1.2.1 D evelopment of forms for data encoding 5 days Mon 10/01/22 Fri 14/01/22
1.2.2 T raining of the team in charg e of data ca pturing 5 days Mon 17/01/22 Fri 21/01/22
1.2.3 D ata encoding 60 days Mon 24/01/22 Fri 15/04/22
1.2.4 Upload the data to the upg raded s ys tem 20 days Mon 18/04/22 Fri 13/05/22
1.3 A naly s is of data 16 day s Mon 16/05/22 Mon 06/06/22
1.3.1 D ocument comparis on 5 days Mon 16/05/22 Fri 20/05/22
1.3.2 P repare, s ubmit and pres ent draft analys is report 1 day Mon 23/05/22 Mon 23/05/22
1.3.3 R eview of draft analys is report 8 days Tue 24/05/22 Thu 02/06/22
1.3.4 Incorporate comments and is s ue final analys is report 2 days Fri 03/06/22 Mon 06/06/22
30
CITIES
5. COMMUNICATION MANAGEMENT
This section indicates the set standards for how and when communication takes
place between the stakeholders of the file reorganization phase. The purpose of
communication management is to ensure timely and appropriate generation,
collection, dissemination, storage and disposition of file reorganization phase
information.
5.1. File reorganization phase communication plan

The following table indicates the information and communication needs of the
different stakeholders during the File reorganisation phase:
Table 11: Communication plan
# Stakeholder Type of Information Frequency of How the

to be communicated communication information will be
communicated
1. MUDCo QA Progress report of Monthly Monthly reports
Team Activities Planned,
undertaken, Risks,
Milestones Achieved
2. Regional Key decisions, Monthly Monthly reports
Committees Milestones, activities
achieved, key Dates
3. Cities Key decisions, Weekly Weekly reports
Committees Milestones,
deliverables achieved,
key Dates
4. Fieldwork Number and list of Daily Daily report
supervisor Parcels visited, (from each team)
collected data,
identified issues
5. File Number and list of Daily Daily report
reorganizatio reorganized files, (from each team)
n supervisor identified missing
documents and any
other issue
6. File scanning Number and list of Daily Daily report
supervisor scanned and verified (from each team)
files
7. Database Number and list of Daily Daily report
formation encoded files (from each team)
supervisor
5.2. Information Distribution

In order to achieve the above planned communication, AHC team will coordinate the
communication activities and ensure every stakeholder receives the planned
information with the help of the cities committees. Use of technology and formal
communication methods shall be used in the dissemination of project information.
The monthly reports will be shared with MUDCo Quality Assurance team.
31
CITIES
5.3. Information Data Bank

The Cities committees and AHC will maintain the information databank of all
documents and reports for the file reorganisation activities. Priority will be given to the
storage of electronic documents generated over the entire life of the file
reorganisation phase.
32
6. RISK MANAGEMENT
The Risk Management plan presents the analyzed possible risks that can affect the implementation of the file reorganization activities
and shows the mitigation control or measure for each of the identified risks. The table below indicates the identified risks for the file
reorganization activities and proposed mitigation measures.
Table 12: Risks and mitigation measures
# Risk Impact Mitigation Measures Responsibility

1. Unavailability and/or non- High The committees that were setup by MUDCo should be Cities and
cooperation of committees that available to provide the consultant with any required regional
were setup at city and regional documents, information, or equipment. In case of Committees
levels unavailability, they should assign someone to replace
them in the meantime.
MUDCo to be informed frequently on any emerging
issues through our Project Manager
2. The COVID-19 pandemic has High Make use of remote communication, and meeting AHC and Cities’
greatly affected the way businesses technology for meetings and presentations, and use committees
are conducted. We may fail to softcopies of documents.
access information during fieldwork,
fail to meet and fail to hold the
planned validation workshop
3. Inadequate data collection in the High Deploying experienced staff and using easy to AHC
fieldwork understand data collection tools and provision of
training before fieldwork.
4. Lack of main equipment such as High The cities committees should ensure that the Cities and
shelves, and folders. equipment is put in place prior to the file regional
reorganisation activities commencement to avoid committees
delaying the project.
5. Lack of office space for operation at High The cities committees should ensure some office Cities committees
the cities and kebeles/ sub cities space is allocated for the file reorganisation activities
prior to the activities commencement. The office
space should have desks and chairs.
6. Land parcels are informally/illegally Medium During filed verification, the consultant is using the AHC and Cities
subdivided and the number of index maps that show existing parcels. When the field committees
33
# Risk Impact Mitigation Measures Responsibility

possessors in the lot is more than team faces an issue of subdivided parcel on the
what is written in the legal file ground which is not on the map, they trace that on the
map and fill the field sheet for all parcels. The
collected information is organized and transferred to
responsible body formally to be solved based on the
legal frame works they are using
7. Multiple land parcels have been Medium Any discrepancies on spatial content will be recorded AHC and Cities
consolidated into a larger parcel. from the legal files and reported to the committees. committees
However, if the parcels are occurring on the base map
and the error on the coordinate is as a simple for
modification according to Cadastre guideline, we can
modify and correct that using simple vertex moving of
ARCGIS desktop.
8. The land parcels are existing on the Medium For those parcels without legal files, AHC team will AHC and Cities
map but do not exist in the files. identify them and share the information with the committees
committees so that it is delivered to right creators in
formally as a documenter (SENAD ALBA YEZOTA) so
that they can work on that.
9. Unresolved land disputes Medium As a firm, we are not going to change the legality AHC and Cities
aspect on a land, the existing reality will be recorded committees
and indicated to responsible bodies.
Generally, one of the major rationales of this project is
to quantify the work volumes of pre-adjudication works
for right creators. Thus, the project avails the
summary and detail of report to right creators to be
solved before getting into the cadastre system.
10. Lack of updated maps in some High AHC, together with the cities committees will work Cities committees
cities with the cadastre teams and regional teams to get and AHC
updated maps.
11. Unstable political climate in the High Prepare a separate work plan for the cities in Tigray MUDCo, AHC
Tigray region region once the political climate is back to normal.
12. Delay in the hardware procurement High Ensure that the procurement process is completed MUDCo, AHC
within the set timelines to avoid delaying activities
such as data scanning.
34
CITIES
APPENDICES
35
CITIES
Appendix I: Fieldwork Data collection forms

Form A1: Fieldwork team composition
City _________________________
Team members names
Assigned office (City/
Team No. GIS Expert Data collector Community mobilisor Sub city/ Kebele)
Form A2: Pre-field and fieldwork data collection form
Form A3: Fieldwork daily data sheets

City _________________________ Kebele/Sub city _________________ Team no. _________________________
Signatures
Daily performance (no.
No. Date of parcels visited) GIS Expert Data collector Community mobilisor Field work supervisor
1
2
3
4
5
6
7
8
9
10
11
12
36
CITIES
Appendix II: File reorganization forms

Form B1: File reorganisation team composition
City _________________________
Team members names Assigned office (City/
Team No. File organisers ICT Expert Sub city/ Kebele)
Form B2: File reorganisation form

City ______________ Sub City ____________ Kebele ____________ Team no:______ Signatures
No Date UPIN Code Land Holder’s Full Name Shelf code Folder No Remarks Team leader Supervisor
1
2
3
4
5
6
7
8
9
10
11
12
13
Form B3: File reorganisation daily data sheets

City _________________________ Kebele/Sub city _________________Team no. _________________________
Daily performance Signatures
No. Date (reorganised files) File organiser (lead) ICT Expert File reorganisation supervisor
1
2
3
4
5
6
7
8
9
10
11
12
37
CITIES
Appendix III: File scanning forms

Form C1: File scanning team composition
City _________________________

Team No. Document collector Scanning Expert Scanned files QA expert Sub city/ Kebele)
Form C2: File scanning form

City ______________ Sub City ____________ Kebele ____________ Team no:______ Signature
No Date UPIN Code Land Holder’s Full Name Folder No No. of scanned documents Remarks Team leader Supervisor
1
2
3
4
5
6
7
8
9
10
11
12
13
Form C3: File scanning daily data sheets

City _________________________ Kebele/Sub city _________________ Team no. _________________________

No. Date (scanned files) Document collector Scanning Expert Scanned files QA expert Scanning supervisor
1
2
3
4
5
6
7
8
9
10
11
12
38
CITIES
Appendix IV: Files Data encoding forms

Form D1: Database formation team composition
City _________________________
Team No. Data encoder QA Expert Sub city/ Kebele)
Form D2: Database formation daily data sheets

City _________________________ Kebele/Sub city _____________ Team no. _________________________
No. Date (encoded files) Data encoder Encoding QA expert Data encoding supervisor
1
2
3
4
5
6
7
8
9
10
11
12
Form D3: Scanned files data capture form
Form D4: Registry books data capture form
39

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URBAN INSTITUTIONAL AND INFRASTRUCTURE DEVELOPMENT PROGRAM (UIIDP)

CONSULTANCY SERVICE FOR UPGRADING AND REVIEWING OF

FILE REORGANISATION IMPLEMENTATION

Client Ministry of Urban Development and Construction

Project Urban Institutional and Infrastructure Development

Document Version 3.1

Version Date 22nd August 2021

2. FILE REORGANISATION METHODOLOGY...................................4

3. FILE REORGANISATION TEAM STRUCTURE............................21

4. FILE REORGANIZATION WORK PLAN.......................................30

ACRONYMS AND ABBREVIATIONS

The following were the key findings:

1.2. Purpose of the report

1.3. Structure of the report

a. File reorganization methodology: This section indicates in detail the activities

1.4. Scope of work

Table 1: List of cities

No. Region City No. of Sub cities No. of Urban Kebeles

10. SNNP Arbaminch - 11

13. Tigray Mekelle 7 33

No. Region City No. of Sub cities No. of Urban Kebeles

14. Others Dire Dawa - 9

2. FILE REORGANISATION METHODOLOGY

2.1. File reorganization workflow

Figure 1: File reorganization workflow

2.2.1. Recruitment of contractual staff

2.2.2. Training of contractual staff, city & kebele/sub-city experts

2.2.3. Internal awareness

2.2.4. Public awareness

of administration /kebele general manager/ land administration staff, and the

2.2.5. Preparation of Map Data

2.2.6. Verifying files for the legality

2.2.7. Sorting organized files from unorganized

2.2.8. Capturing the Coordinates of the parcels which have no UPIN

Parcel number (type = number; 3 digits)

2.2.9. Office work report

2.3.1. Capturing land holders and taxpayers file data

2.3.2. Updating parcel Map data

2.4. Post fieldwork

2.4.1. Capturing the data into spreadsheet

2.4.2. Field Data Verification

2.4.3. UPIN data Encoding in GIS System

2.4.4. Fieldwork reporting

2.5. File reorganization

2.5.1. Number of files

Table 2: Number of legal files

2.5.2. File reorganization process

a. Shelves organization and labelling:

b. File arrangement and labelling:

c. Folder arrangement and labelling:

2.6. Legal File Document Scanning

2.6.1. File scanning operation process

2.6.2. Estimated files to be scanned

Figure 2: Categories of documents to be scanned

2.6.3. Scope and Volume of operational work

Table 3: Number of legal files to be scanned in all cities

2.6.4. Document Indexing and Storage

Figure 3: Folder naming hierarchy

2.7. Database formation

2.7.1. Data Capturing from Scanned documents

Table 4: Data to be captured from scanned files

No Document type Attributes

2.7.2. Data Capturing from RORB

Table 5: Available registry books in the cities