Beira’s land registry: the key to the system change that will support a climate-resilient city

In 2019, Cyclone Idai destroyed large parts of the Mozambican port city of Beira. Two years later, a second cyclone struck the city. 70% of Beira’s buildings were damaged in these events. Without thoughtful urban management and water management, the city remains vulnerable to flooding and increasingly extreme weather. In order to build resilience, Peter van Tongeren from the Association of Netherlands Municipalities, in collaboration with Partners for Water and the municipality of Beira, has been working on a better functioning land registry. Van Tongeren explains how this is forming the foundation for a climate-resilient city.

“Beira, partly situated below sea level, is administratively an exception within Mozambique,” begins Van Tongeren. While the country has been governed for almost 50 years by the Frelimo party, Beira has been in the hands of the opposition party Movimento Democrático de Moçambique, founded by former mayor David Simango, for 22 years. “This city administration has a strong motivation to demonstrate that democratic governance and transparent service delivery are indeed possible.” Their vision is supported by a long-term delta cooperation with the Dutch government. This cooperation is financed and managed through the Partners for Water (PfW) program and the Dutch embassy and is locally implemented by VNG International and Kadaster International.

The Beira Master Plan 2035: The foundation for climate-resilient water infrastructure

Beira’s vision for the future is laid out in the Beira Master Plan 2035. This plan was developed in collaboration with the Netherlands and former mayor Simango, to make the city climate-resilient and economically robust. It focuses on crucial themes like drainage and water treatment, coastal protection, waste management, urban planning, economic development and improving living conditions for citizens. However, to maintain and further develop the services delivered and the governance of the city, a solid financial and administrative foundation is needed. And all this begins with a properly functioning land registry.

‘Our man in Beira’

A key figure in the long-term collaboration between the Netherlands and Beira is Peter van Tongeren, known as ‘our man in Beira’ among his Dutch colleagues. A professional HR and organisational consultant by training, he came to Mozambique in 2017 via VNG International to strengthen the municipal government. He found a city with great ambitions, but without the essential foundation of a land registry and clear urban planning to convert that potential into sustainable development.

“When I arrived in Beira, the land registry was stored in the basement of the town hall – and that basement regularly flooded,” explains Van Tongeren. “Files were lost or illegible. People received duplicate land licences, which led to conflicts. Without a proper land registry, you cannot properly plan a city, collect taxes, or manage water infrastructure.”

This realisation led to the start of a large-scale digitalisation project, funded by PfW, the Dutch embassy and others. The project was implemented in collaboration with Kadaster International and the municipality of Beira.

Transforming a flooded basement into a digital database

“The project began with the digitalisation of land registration. A team of twenty local staff was trained to scan and register 40,000 plots. A new database was developed in which all land and property data were correctly stored,” explains Van Tongeren.

With an organised land registry, property rights could be better guaranteed, and urban planners could gain an overview of the available space. But perhaps even more importantly, the municipality gained a means to efficiently collect taxes for water management needs.

“The land registry is the foundation,” explains Van Tongeren. “You can only have a well-functioning climate-resilient city if you are able to maintain essential water infrastructure through taxes. Property tax has the biggest potential for own source revenue. However, in order to collect it, you must know who lives where, which buildings exist, and who needs to pay property taxes.”

From land registry project to sustainable water infrastructure

One of Beira’s major problems is the lack of financial resources. The city is largely dependent on contributions from the national government, which are often delayed or sometimes not paid at all.

“By linking the land registry with the tax collection system, the municipality has been able to triple its income from property tax. It increased from €600,000 in 2018 to €1.8 million in 2023,” explains Van Tongeren. “And that’s just the beginning. We expect that this amount will increase further to €10 million per year in the coming years – equal to the current city budget.”

“With this income, Beira can maintain and expand its water infrastructure,” explains Van Tongeren. “That means money for drainage, sewerage, and coastal protection – essential aspects in a city that is so vulnerable to flooding.

Long-term international delta cooperation

The success of the land registry project is no coincidence. It’s the result of years of consistent cooperation between Beira and the Netherlands. In this effort, PfW and the Dutch embassy work with the local government to provide technical solutions, but also to build governance capacity for sustainable water management.

This cooperation has been made possible in part by the long-term vision of Beira’s previous mayor, Daviz Simango. When he came to power in 2003, he found a city in decline: widespread open defecation, poor waste management, cholera outbreaks, and barely functioning services. “Simango had a clear mission to transform Beira into a prosperous, climate-resilient city and saw cooperation with international partners as essential,” explains Van Tongeren. Under his leadership, the Beira Master Plan was established in 2013, and it still serves as a guide for urban development.

“His unexpected death in 2021 had a significant impact,” says Van Tongeren, “but his successor, Mayor Albano Carige, is continuing his work with the same vision.”

Initiating system change for sustainable water management

“What began as a cadastre project developed into true system change. It has now altered many other areas – from urban planning to governance structures – all working together to sustain Beira’s urban development and water infrastructure,” explains Van Tongeren. “New neighbourhoods are designed in advance rather than emerging spontaneously, and there is also a strong connection with water and sanitation management. For example when new homes are built, flood-prone areas are taken into account.” The PfW-funded VNG project also strengthens Beira municipality’s IT capacity, communication skills, leadership skills and donor coordination, all essential to improving and maintaining quality water infrastructure.

Beira as a model for the climate-resilient city

Beira has now become a role model for other Mozambican cities. “During a seminar in December 2024, multiple municipalities showed interest in the digitalisation model,” says Van Tongeren. “There is much admiration for what Beira is doing. Hopefully, this approach will also be applied in other cities.”
Yet there are challenges. Many municipalities are overwhelmed by day-to-day problems, preventing them from developing long-term resilience strategies. But if one thing is clear, it’s that a well-functioning land registry lays a foundation upon which a climate-resilient city can build.

From reconstruction to climate resilience

What began as a collection of wet papers in a flooded basement is now the backbone of Beira, which is rebuilding itself into a prosperous, resilient and climate-proof city. Thanks to the combination of local vision, international delta cooperation and water management cooperation, and a long-term strategy focused on system change, Beira is becoming a truly climate-resilient city with sustainable water infrastructure.