Planning for Fire Risk Reduction in Informal Settlements: A case study in Special Planning Area Mukuru, Nairobi

Abstract Informal settlements in Nairobi, like Mukuru, are characterized by extreme housing density, tenure insecurity and inadequate infrastructure, exposing residents to recurring fire hazards. This study examines how the Mukuru Special Planning Area (SPA) enables or constrains the integration of fire risk reduction strategies within broader urban redevelopment processes. It draws on a qualitative case study methodology through quasi-experimental comparison between Viwandani and Kwa Reuben, triangulated with key informant interviews and spatial observations. The findings show that, in the absence of the SPA, fire risk governance is shaped by incremental, owner-led adaptations, advocacy by community-based organizations (CBOs) and sporadic, top-down government interventions. The SPA fosters improved stakeholder alignment, participatory planning and incremental spatial interventions that reduce fire vulnerability without large-scale evictions. However, its effectiveness is undermined by barriers including fragmented thematic coordination, the exclusion of key informal stakeholders such as structure owners and informal electricity providers (Mulika Mwizi) and the risk of upgrading-induced displacement. The study concludes that while the SPA offers significant opportunities for more inclusive and adaptive fire risk governance, its transformative potential depends on the explicit integration of disaster risk management, comprehensive stakeholder engagement and the recognition of incremental upgrading as a legitimate planning strategy. This research contributes to debates on hybrid governance and inclusive planning in informal urban contexts, offering insights for risk reduction in rapidly urbanizing cities of the Global South.