Read the PDF - Abt Associates

The Comprehensive 

Development of the City 

of Luxor Project, Egypt – 

Final Structure Plan, 

Volume I - Technical 

Report 

Cambridge, MA 

Lexington, MA 

Hadley, MA 

Bethesda, MD 

Washington, DC 

Chicago, IL 

Cairo, Egypt 

Johannesburg, South Africa 

Executive Summary 

February 2000 

Prepared for 

Ministry of Housing, Utilities 

and Urban Communities/ 

Research and Studies 

Organization 

Abt Associates Inc. 

55 Wheeler Street 

Cambridge, MA 02138 

Prepared by 

Gabriel Abraham 

Ashraf Bakr 

Jonathan Lane

Phase II Final Structure Plan Contents 

Volume 1: Final Structure Plan - Technical Report 

Chapter 1: Executive Summary 

Chapter 2: The Challenge for Luxor in the 21 st Century 

Chapter 3: Development Principles for a Sustainable Region 

Chapter 4: Needs Assessment 

Chapter 5: The Regional Structure Plan 

Chapter 6: Luxor City Plan 

Chapter 7: The Plan for New Luxor 

Chapter 8: The Plan for the El Toad Tourism Zone 

Chapter 9: Implementation 

Chapter 10: Structure Plan Phasing 

Annex 1: Report Figures 

The Comprehensive Development of the City of Luxor Project 

Final Structure Plan, Volume 1: Technical Report 

Volume 2: Final Structure Plan - Supplementary Documents 

(under separate cover) 

Annex 2: Summary Scope for CDCL Project 

Annex 3: Luxor Social Profile 

Annex 4: Environmental Profile 

Annex 5: 1996 Utility Improvement Report Excerpts 

Annex 6: Agricultural Profile 

Annex 7: The General Environment for Tourism 

Annex 8: Heritage Concept 

Annex 9: The National Plan for the Development of the South of Egypt, 2017 

Annex 10: Profile of Egypt 

Annex 11: Documents in the Project File 

2

Volume 1: Technical Report Table of Contents 



Final Structure Plan, Volume 1: Technical Report, List of Figures _________________________7 

Final Structure Plan, Volume 1: Technical Report, List of Tables__________________________8 

Abbreviations and Acronyms ______________________________________________________9 

Acknowledgements ____________________________________________________________12 

Chapter 1: Executive Summary___________________________________________________13 

1.1 Overview of the Planning Process and the Project _______________________________13 

1.2 Readers’ Guide to the Structure Plan _________________________________________14 

1.3 Development Principles for a Sustainable Region________________________________16 

1.4 Growth Targets for the Region______________________________________________17 

1.5 Development Proposals ____________________________________________________17 

1.5.1 Luxor City __________________________________________________________ 18 

1.5.2 New Settlement Zones - New Luxor ________________________________________ 18 

1.5.3 New Touristic Activities - El Toad Touristic Zone, the Cruise Ship Port, and El Khuzam area19 

1.5.4 Existing Settlement Expansion Areas, outside of Luxor City ______________________ 20 

1.5.5 Support Agricultural Communities _________________________________________ 20 

1.6 Anticipated Employment Opportunities________________________________________20 

1.7 Other Region-wide Initiatives_______________________________________________21 

1.7.1 Transportation Improvements_____________________________________________ 21 

1.7.2 Utility Services and Groundwater Manageme nt________________________________ 21 

1.7.3 Project Management ___________________________________________________ 21 

Chapter 2: The Challenge for Luxor in the 21 st Century ________________________________23 

2.1 The Structure Plan and the Luxor Project _____________________________________23 

2.2 The Need: A Sustainable Region ____________________________________________23 

2.3 Protect Luxor’s Antiquities during an Era of Tourism Growth _____________________24 

2.3.1 Protect the Sites and Settings of Antiquities __________________________________ 24 

2.3.2 Recognize and Plan for Monument Capacity __________________________________ 24 

2.3.3 Manage the Growth of Tourism Facilities, Services, and Related Uses _______________ 24 

2.4 Direct Development in Accordance with a Regional Strategy_______________________25 

2.4.1 Develop Systems for Pro-active Regional Growth Management ____________________ 25 

2.4.2 Identify and Support Action Areas where the Region’s Growth will be directed ________ 26 

2.5 Conserve and Effectively Use the Region’s Resources_____________________________26 

2.5.1 Protect the Region’s Environment _________________________________________ 26 

2.5.2 Maintain and Expand Agricultural Lands and Use them Productively ________________ 27 

2.5.3 Develop the Region’s Human Resources_____________________________________ 28 

2.6 Improve Living Conditions for Luxor Residents_________________________________29 

2.7 Build the Capacity to Implement the Plan _____________________________________29 

2.7.1 Establish Mechanisms for High-Level Government Coordination ___________________ 30 

2.7.2 Secure Funding for Plan Implementation ____________________________________ 30 

3



2.7.3 Engage Private Sector Participation and Cooperation ____________________________ 30 

2.7.4 Create a Plan Implementation Structure _____________________________________ 31 

Chapter 3: Development Principles for a Sustainable Region ____________________________32 

Chapter 4: Needs Assessment ____________________________________________________33 

4.1 Overview_______________________________________________________________33 

4.2 Infrastructure ___________________________________________________________33 

4.3 Program Assumptions ____________________________________________________36 

4.3.1 Employment Growth ___________________________________________________ 36 

4.3.2 Population Growth ____________________________________________________ 37 

4.4 Hotel Distribution and Type ________________________________________________37 

4.5 Demand for New Facilities and Land _________________________________________37 

Chapter 5: The Regional Structure Plan ____________________________________________51 

5.1 Overview of the Structure Plan______________________________________________51 

5.1.1 A Regional Strategy ___________________________________________________ 51 

5.1.2 Coordinated Action Areas _______________________________________________ 54 

5.2 Structure Plan Elements to Protect and Enhance Resources________________________54 

5.2.1 Preserve and Interpret Heritage Resources ___________________________________ 54 

5.2.2 Protect and Expand Agricultural Lands ______________________________________ 56 

5.3 Structure Plan Elements to Manage Regional Growth ____________________________56 

5.3.1 Direct Regional Growth_________________________________________________ 56 

5.3.2 Expand the Region’s Transportation System __________________________________ 59 

5.3.3 Expanded Utility Services _______________________________________________ 61 

5.3.4 New Public Facilities___________________________________________________ 63 

5.4 Regional Growth Management and Administration______________________________63 

5.4.1 Jurisdictional Coordination ______________________________________________ 63 

5.4.2 Land Management_____________________________________________________ 65 

5.4.3 Service and Facility Management __________________________________________ 77 

5.4.4 Tourism Management __________________________________________________ 77 

Chapter 6: The Plan for Luxor City _______________________________________________78 

6.1 Description and Existing Development Trends __________________________________78 

6.2 The Vision for Luxor City in 2020 ___________________________________________79 

6.3 Planned Development Neighborhoods_________________________________________79 

6.3.1 The Need for Planned Development Neighborhoods ____________________________ 79 

6.3.2 The Planned Development Area Concept ____________________________________ 79 

6.3.3 Southern Development Area _____________________________________________ 80 

6.3.4 Eastern Development Area_______________________________________________ 81 

6.3.5 North Karnak Development Area __________________________________________ 81 

6.4 New Public Facilities and Extended Utilities____________________________________82 

6.4.1 Existing Context ______________________________________________________ 82 

6.4.2 Service Center Concept _________________________________________________ 82 

6.5 Improved Circulation and Access____________________________________________83 

6.5.1 Current Situation ______________________________________________________ 83 

4



6.5.2 Key Transportation Improvements _________________________________________ 83 

6.6 The Open Museum and Heritage District ______________________________________85 

6.6.1 The Need for Improvement ______________________________________________ 85 

6.6.2 The Open Museum and Heritage District ____________________________________ 86 

6.6.3 Management Zones within the Open Museum and Heritage District _________________ 86 

6.6.4 Open Museum and Heritage District Illustrations_______________________________ 87 

6.7 Phasing of Luxor City Improvements _________________________________________88 

Chapter 7: The Plan for New Luxor _______________________________________________89 

7.1 The Need for a New Town in the Luxor Region _________________________________89 

7.2 The Proposed Site ________________________________________________________89 

7.2.1 Location ____________________________________________________________ 89 

7.3 The Vision for New Luxor _________________________________________________89 

7.3.1 The Role of New Luxor in the Region ______________________________________ 89 

7.3.2 The Concept of the Plan_________________________________________________ 90 

7.4 Primary Land Uses and Activities____________________________________________90 

7.4.1 Needs Assessment_____________________________________________________ 90 

7.4.2 Neighborhood Areas ___________________________________________________ 90 

7.4.3 Service Centers _______________________________________________________ 91 

7.4.4 Open Space Areas _____________________________________________________ 92 

7.4.5 Agro-Processing and Light Industrial Areas __________________________________ 92 

7.5 Circulation Concept ______________________________________________________92 

7.5.1 Strong Regional Connections _____________________________________________ 92 

7.5.2 A Hierarchy of Streets __________________________________________________ 93 

7.5.3 A Distinctive Entry Boulevard ____________________________________________ 93 

7.5.4 Dedicated Pedestrian and Bicycle Paths _____________________________________ 93 

7.5.5 Limited Animal traffic __________________________________________________ 93 

7.6 Utilities Planning for New Luxor ____________________________________________93 

7.6.1 Water Supply ________________________________________________________ 94 

7.6.2 Wastewater__________________________________________________________ 94 

7.6.3 Irrigation____________________________________________________________ 94 

7.6.4 Solid Waste__________________________________________________________ 94 

7.6.5 Electrical/Communication Services ________________________________________ 94 

7.7 Phasing of New Luxor_____________________________________________________95 

Chapter 8: The Plan for the El Toad Tourism Zone ___________________________________96 

8.1 The Need for a Tourism Zone in the Luxor Region_______________________________96 

8.2 The Tourism Zone Site ____________________________________________________96 

8.2.1 Location ____________________________________________________________ 96 

8.2.2 Characteristics________________________________________________________ 96 

8.3 The Vision for the El Toad Tourism Zone______________________________________96 

8.3.1 The Role of El Toad in the Region _________________________________________ 96 

8.3.2 The Concept of the Plan: ________________________________________________ 97 

8.4 Primary Land Uses and Activities: ___________________________________________97 

8.4.1 Needs Assessment_____________________________________________________ 97 

5



8.4.2 Tourism Lodging______________________________________________________ 98 

8.4.3 Recreation __________________________________________________________ 98 

8.4.4 Commercial _________________________________________________________ 98 

8.4.5 Cultural and Entertainment ______________________________________________ 98 

8.4.6 Public Service Facilities_________________________________________________ 98 

8.4.7 Transportation Facilities ________________________________________________ 99 

8.5 Circulation Concept ______________________________________________________99 

8.5.1 Strong Regional Connections _____________________________________________ 99 

8.5.2 Convenient Internal Circulation ___________________________________________ 99 

8.6 Additional Design Aspects _________________________________________________99 

8.7 Phasing of the El Toad Tourism Zone________________________________________100 

Chapter 9: Implementation_____________________________________________________101 

9.1 Project Management and Implementation Unit ________________________________101 

9.1.1 Objectives of the Comprehensive Development of Luxor ________________________ 101 

9.1.2 Project Management __________________________________________________ 101 

9.1.3 The Institutional Capacity of the HCLC ____________________________________ 102 

9.1.4 Project Management and Implementation Unit – PMU__________________________ 102 

9.2 Monitoring and Evaluation________________________________________________103 

9.3 Financing the PMU______________________________________________________103 

9.3.1 Recommended Project Financing Approach _________________________________ 105 

9.3.2 Preservation and Development Authority (PDA) ______________________________ 112 

Chapter 10: Structure Plan Phasing ______________________________________________115 

Annex 1: Figures_____________________________________________________________120 

6



Final Structure Plan, Volume 1: Technical Report, List of Figures 

(All provided in Annex 1, at end of document) 

1. Regional Natural and Cultural Constraints 

2. Regional Structure Plan - 2020 

3. Regional Transportation - 2020 

4. Utility Services – 2020 

5. Tourism and Heritage Linkages - 2020 

6. Luxor City - Action Areas 

7. Luxor City - Structure Plan 

8. Luxor City - Circulation 

9. Open Museum and Heritage District Existing Key Features 

10. Open Museum and Heritage District Concept Diagram 

11. Open Museum and Heritage District Existing Circulation 

12. Open Museum and Heritage District Proposed Circulation 

13. Open Museum and Heritage District Management Zones 

14. Aerial view of the Avenue of the Sphinxes towards Luxor Temple 

15. Ground level view of activity along the restored Avenue of the Sphinxes 

16. Activity along the Lower Corniche in the Luxor City Open Museum and Heritage District 

17. The Processional Way in front of Karnak Temple’s entrance 

18. View towards the Necropolis from the Open Museum and Heritage District Visitor Center 

19. Coordinate Map of New Luxor and El Toad 

20. New Luxor - Structure Plan 

21. New Luxor - Neighborhoods 

22. New Luxor - Public Facility Zones 

23. New Luxor Typical Neighborhood 

24. Civic space within a New Luxor neighborhood center 

25. New Luxor City Center 

26. New Luxor - Parks and Open Spaces 

27. New Luxor - Circulation 

28. El Toad Touristic Zone - Plan 

29. Aerial view of the El Toad Tourism Zone entry 

30. El Toad Entry Area 

7



Final Structure Plan, Volume 1: Technical Report, List of Tables 

Table 1: Development Summary .....................................................................................................17 

Table 2: Key Program Elements: Comprehensive Development Plan for the Luxor Region...........39 

Table 3: Estimate of West Bank Visitation, Based on Monument Capacity ....................................40 

Table 4: Estimated Hotel Demand, 2020 ........................................................................................41 

Table 5: Distribution of New Hotels ...............................................................................................41 

Table 6: New Facilities Needed in Luxor City, 2020.......................................................................42 

Table 7: New Facilities Needed in New Luxor, 2020.......................................................................43 

Table 8: New Facilities Needed in El Toad, 2020............................................................................44 

Table 9: New Facilities Needed in Remaining Areas of Markhaz, 2020..........................................45 

Table 10: New Luxor City Center Development Program and Land Use Distribution, 2020..........46 

Table 11: New Luxor City Center Program Summary, 2020 .........................................................47 

Table 12: Typical District Level Development Program and Land Use Distribution, Luxor City and 

New Luxor...............................................................................................................................48 

Table 13: Typical District Service Center Land Requirements, Luxor City and New Luxor..........49 

Table 14: Typical Neighborhood Unit Program Summary, Luxor City and New Luxor................49 

Table 15: Typical Neighborhood Service Center Land Requirements, Luxor City and New Luxor50 

Table 16: Permitted Land Uses in Luxor City *.............................................................................67 

Table 17: Permitted Land Uses in New Luxor *.............................................................................68 

Table 18: Permitted Land Uses in El Toad *..................................................................................69 

Table 19: Permitted Land Uses in other Markhaz Areas*.............................................................70 

Table 20: Luxor City Table of Development Standards*...............................................................71 

Table 21: New Luxor Table of Development Standards*...............................................................73 

Table 22: El Toad Table of Development Standards ......................................................................75 

Table 23: PMU Revenue, by year (000,000 LE).............................................................................107 

Table 24: PMU Costs, by Year (000,000 LE).................................................................................108 

Table 25: PMU Revenue -Cost Relationships and Cash Flow ........................................................109 

Table 26: Luxor City Structure Plan Phasing ..............................................................................116 

Table 27: New Luxor Structure Plan Phasing..............................................................................117 

Table 28: El Toad Structure Plan Phasing ...................................................................................118 

Table 29: Other Markhaz Structure Plan Phasing.......................................................................119 

8



Abbreviations and Acronyms 

Currency 

Currency Unit: Egyptian Pounds (LE) (as of December 1999) 

LE 1.0 = 100 piasters 

LE 1.0 = US$ 0.29 

US$ 1.0 = LE 3.41 

Weights and Measures 

Metric System 

Abbreviations and Acronym 

CDCL 

Comprehensive Development for the City of Luxor 

CDM 

Camp Dresser Mckee 

CEA 

Cost Effectiveness Analysis 

EEAA 

Egyptian Environmental Affairs Agency 

EGSA 

Egyptian General Survey Authority 

EGSMA 

Egyptian Geological Survey and Mining Authority 

EHA 

Egyptian Hotels Association 

GDP 

Gross Domestic Product 

GNP 

Gross National Product 

GOE 

Government of Egypt 

GOPP 

General Organization for Physical Planning (within the Ministry of Housing, 

Utilities and Urban Communities) 

HCLC 

Higher Council for Luxor City 

IDSC 

Information and Decision Support Center (HCLC) 

IFC 

International Finance Corporation 

LM 

Line Ministries (or, Regional Offices of Line Ministries) 

MARL 

Ministry of Agriculture and Land Reclamation 

MFA 

Ministry of Foreign Affairs 

MFIC 

Ministry of International Cooperation 

MHUUC 

Ministry of Housing Utilities and Urban Communities 

MHUUC/ RSO Ministry of Housing, Utilities and Urban Communities /Research and Studies 

Organization 

MOC 

Ministry of Culture 

MOE 

Ministry of Economy 

MOEd 

Ministry of Education 

MOF 

Ministry of Finance 

MOHP 

Ministry of Health and Population 

MOP 

Ministry of Planning 

MOT 

Ministry of Tourism 

MOTR 

Ministry of Transportation 

NGO 

Non-governmental Organization 

PMU 

Project Implementation and Management Unit 

SCA 

Supreme Council for Antiquities (within the Ministry of Culture) 

TDA 

Tourism Development Authority (within the Ministry of Tourism) 

UNDP 

United Nations Development Programme 

UNESCO 

United Nations Educational, Scientific and Cultural Organization 

USAID 

United States Agency for International Development 

9



The Comprehensive Development of the City of Luxor Project, Egypt Final Structure Plan Report 

Ministry of Housing, Utilities and Urban Communities / Research and Studies Organization, 

The Arab Republic of Egypt Fiscal Year 

July 1- June 30 

President 

His Excellency Hosni Mubarak 

Project Sponsor 

The Honorable First Lady Mrs. Suzanne Mubarak 

Minister of Housing, Utilities and Urban Communities 

Dr. Eng. Mohammed Ibrahim Soliman 

President, Higher Council for the City of Luxor 

General Mahmoud Khalef 

National Counterpart of the Project 

Eng. Laila Kamel Barsoum, MHUUC 

National Project Director 

Eng. Mona Omar El Bassiouni, MHUUC/RSO 

Deputy National Project Director 

Eng. Hisham Moustafa, MHUUC/RSO 

Working Groups Moderator 

Dr. Tarek Wafik 

Project Consultants 

Abt Associates Inc. 

ICON Architecture Inc. 

Baraka Trading and Investments. 

Date: 

January, 2000 

Principal Project Implementing Agency 

Higher Council for the City of Luxor (HCLC) 

Proposed Term: 

2000-2020 

10



For Additional Information, Please Contact: 

Eng. Laila Kamel Barsoum, 

First Undersecretary of State National Counterpart for the Project 

Ministry of Housing, Utilities and Urban Communities 

1 Ismail Abaza Street, Kasr El Eini 

Cairo, Egypt 

Tel/fax 011-202-594-3088 

11



Acknowledgements 

The Structure Plan Report is the cumulative result of earnest and sincere efforts made by all those 

associated with the project. 

The consultants are particularly appreciative of Her Excellency, The First Lady, Mrs. Suzanne Mubarak 

for sponsoring the Comprehensive Development Plan for the City of Luxor Project, and giving national 

priority to the project so deserving for such a historic place as Luxor. 

The consultants would also like to express their gratitude to the Ministry of Housing Utilities and Urban 

Communities (MHUUC), MHUUC's Research and Studies Organization (RSO)—which served as the 

national counterpart for this planning process—and the United Nations Development Program (UNDP), 

for entrusting this study to us. Consultants would like to express thanks to His Excellency Minister of 

Housing, Utilities and Urban Communities, Dr. Eng. Mohammed Ibrahim Soliman for his leadership in 

the planning process and wisdom in commenting on the plans. Consultants would like to single out the 

most valuable assistance that Eng. Laila Kamel Barsoum extended in conducting the study, and her 

leadership in providing overall direction to the project. Consultants would also like to express gratitude 

to Eng. Mona El Bassiouni, National Project Director, and the staff of the Research and Studies 

Organization, for their contribution and guidance. Consultants are most appreciative for the advice, 

assistance, and resources made available through the Higher Council for Luxor City (HCLC) given by the 

Governor of the HCLC, General Mahmoud Khalef and their staff, in particular, Mr. Youseff Andraous, 

Mr. Hagag Youssouf, and Eng. Sheharezade Hamem. Sheikh Mohammed El Tayeb, Haj Ahmed Abu 

Zeid, and the citizens of Luxor extended a warm hospitality to consultants and made significant 

contributions to the planning process. The consultants would also like to express profound gratitude to 

the former Governors of the HCLC, General Mohammed Yousseff and General Selmi Selim. 

The consultants have been very fortunate to receive constructive advice and support from the broadly 

representative Project Working Group and the chairs of the Working Group committees, Dr. Tarek Wafik, 

and Eng. Mona Omar El Bassiouni. 

The consultants are very appreciative for the valued contribution made by the many government officials 

and private sector representatives who assisted with information and insights that greatly influenced the 

planning. Among the numerous Working Group members, the consultants would like to give thanks to 

Dr. Ali Soliman, First Undersecretary General, Ministry for International Cooperation, Dr. Adel Rady, 

Director of the Tourism Development Authority, and Dr. Mohammed El Saghir, Director of Egyptian 

Antiquities Sector at the Supreme Council for Antiquities. 

12



Chapter 1: 

Executive Summary 

This chapter reviews the major principles that have guided the plan, the resultant growth targets for the 

region, site-specific development proposals, and the region-wide recommended initiatives. 

1.1 Overview of the Planning Process and the Project 

The purpose of the Comprehensive Development of the City of Luxor Project (CDCL) was to recommend 

strategies for Luxor that would address, in a coordinated manner: 

(1) Preservation and protection of the unique antiquity settings, cultural resources, and heritage of the 

Luxor region, while expanding opportunities for tourist and visitor activities; 

(2) Planned regional growth that would promote sustainable economic development, by preventing 

further urban sprawl and the deleterious effects of unplanned development on Luxor’s cultural 

heritage and on the living conditions; and 

(3) A regional development strategy that would create new economic opportunities for the citizens of the 

region. 

The need for the project was prompted by increasing numbers of tourist visitors from all over the world to 

Luxor, drawn by the tombs, temples, temples and regional setting. Ironically, their dedication to viewing 

these treasures is becoming a threat. In the tombs, their very presence is becoming detrimental to the 

quality and preservation of the paintings. There and in the temples, their increasing number and the 

virtual lack of any effective crowd management means waiting and jostling, elements that detract from 

the cultural experience. At the same time, the virtual absence of facilities for other tourist activities 

means very short stays in the area, lessening the benefits to the local economy, and less flexibility in 

scheduling visits to the cultural sites. Even so, the increasing number of tourists visiting Luxor has also 

provided the impetus for accelerated growth in Luxor and its surrounding areas. Growth pressures in turn 

have resulted in encroachments on the tombs and monuments, thereby jeopardizing the cultural heritage 

and impairing their value as a tourist attraction. Additionally, regional growth pressures now risk loss of 

productive agricultural lands, as an expanding population seeks space for living in a constrained 

environment. 

To respond to these trends, the Ministry of Housing, Utilities and Urban Communities and the UNDP in 

1997 sponsored Abt Associates Inc. for the study of a 20-year Comprehensive Development Plan for the 

City of Luxor (CDCL). The project was developed through an interactive and cooperative process that 

engaged several Working Groups comprised of representatives from Government Ministries, the Higher 

Council of Luxor City (HCLC), and other public, private, and non-profits interests concerned with the 

future of the study area. Several “Plenary” meetings were convened at key points in the project so that 

participants could react to work in process and assess the overall progress of the CDCL. In conjunction 

with the process, a “Fast Track” group met regularly to assess priority proposals and projects within the 

Luxor region to insure that these were consistent with the directions, findings, and recommendations of 

the overall planning effort. The Research and Studies Organization (RSO), within the Ministry of 

Housing, Utilities, and Urban Construction (MHUUC), supervised the project and working process. 

The CDCL project was conceived to have three distinct types of products that would combine both long 

range planning and immediate action: 

• The Structure Plan, presented in this document, provides an overall strategy for the twenty-year 

growth of the Luxor region, focusing upon planned growth within Luxor City and several target 

development areas across the region. This Plan encompasses strategies for how the region should 

13



grow, where population should be concentrated, and how growth opportunities can be addressed so as 

to meet the CDCL project objectives. 

• Six Investment Projects have been defined in the course of the work as the most critical elements 

that should be implemented, and a report for each project has been developed that identifies the 

scope, scale, cost, and effect of each project, with the aim of seeking sources of public and private 

investment. These projects include: 

Investment Project 1: Restoration of the Avenue of the Sphinxes 

Investment Project 2: Development of The Destination Resort of El-Toad 

Investment Project 3: Development of the New Community of New Luxor 

Investment Project 4: Infrastructure Services for New Luxor and El Toad 

Investment Project 5: Establishment of High-Value Agriculture 

Investment Project 6: Development of the Open Museum and Heritage District in Luxor City 

• The Heritage Plan includes recommendations for improvements to the setting and tourist 

infrastructure associated with the key monument venues. 

Clearly, all of the products of the CDCL are closely intertwined and should be reviewed jointly for 

a full understanding of their total scope. The Structure Plan provides the overall framework to 

which the other elements relate. 

1.2 Readers’ Guide to the Structure Plan 

Volume 1: Technical Report of the Structure Plan includes findings, recommendations, and related 

tables and illustrations for the overall study area. Volume 2: Supplementary Documents to the 

Structure Plan includes selected data and special studies that were carried out during preparation of the 

CDCL or are immediately germane to the work. For simplicity and ease of reading, data presented in 

Volume 2 is, in general, not repeated in Volume 1. The contents of both volumes are highlighted below. 

Volume 1: Final Structure Plan Technical Report includes the following sections: 

• Chapter 1: Executive Summary – highlights purpose of the project, reviews client and work 

process, and presents, in abbreviated form the key findings of the Structure Plan. 

• Chapter 2: The Challenge for Luxor in the 21 st Century – presents the major issues that must be 

addressed in the future for the study area and suggested conceptual approaches to each issue. 

• Chapter 3: Development Principles for a Sustainable Region – provides a summary list of 

principles recommended to address the issues posed in Chapter 2. 

• Chapter 4: Needs Assessment – includes an assessment of future population, employment, and 

tourism, using these projections to assist in defining development and facility needs within the study 

area for the twenty year plan. This section relies strongly on much data provided in Volume 2, 

particularly the Social Profile (Annex 3), the Agricultural Sector (Annex 5), the General Environment 

for Tourism (Annex 6), the Heritage Concept (Annex 7, especially the assessment of visitor patterns 

and impacts dealing with monument capacity). Additionally, this section defines key facility and 

service standards. 

• Chapter 5: The Regional Structure Plan – provides an overview of the strategy for the study, 

defining the scope, scale, and location of land uses and related services for each sub-area, as well as 

the rationale for their inter-relationship to one another. Development standards are presented for each 

sub-area. 

• Chapter 6: Luxor City Plan, Chapter 7: The Plan for New Luxor, and Chapter 8: The Plan 

for the El Toad Tourism Zone – these Chapters present the rationale and approach to each major 

14



sub-area. The Investment Project Reports provide considerably greater detail regarding costs and 

implementation recommendation for each of these sub-areas. 

• Chapter 9 and 10: Implementation and Phasing – presents general approach to organizing and 

implementing the recommendations, including formation of a special Project Management and 

Implementation Unit (PMU) to supervise the overall project and creation of a Preservation and 

Development Authority (PDA), reporting to the PMU, to guide development and preservation in the 

Luxor City Open Museum and Heritage District. Phasing recommendations are also provided. 

• Annex 1: Report Figures – all illustrations to the Structure Plan are provided in the Annex. 

Volume 2: Final Structure Plan Supplementary Documents includes the following sections: 

• Annex 2: Summary Scope for CDCL Project – description of the project, its elements, and 

working process 

• Annex 3: Luxor Social Profile – social and economic characteristics of the population of the study 

area 

• Annex 4: Environmental Profile – environmental conditions in the study area 

• Annex 5: 1996 Utility Improvement Report Excerpts - excerpt on existing utility systems and 

planned improvements schedule for the study area. 

• Annex 6: Agricultural Profile – characteristics of the agricultural sector in the Luxor region and 

policy implications for the CDCL project. 

• Annex 7: The General Environment for Tourism – national tourism characteristics and trends and 

their implications for tourism in the Luxor region. 

• Annex 8: Heritage Concept – assessment of existing heritage resources and settings, as well as 

tourist visitor patterns to key antiquities. This analysis contains an assessment of the existing and 

future capacity of the monuments of Luxor, along with recommendations for increasing capacity 

while protecting cultural resources 

• Annex 9: The National Plan for the Development of the South of Egypt, 2017 – summary of the 

Government of Egypt’s policy plan for the South of Egypt, providing a context for the CDCL Plan. 

• Annex 10: Profile of Egypt – general economic and institutional profile of Government of 

• Annex 11: Documents in the Project File – Egypt references used in the process of preparing the 

CDCL project. 

15



1.3 Development Principles for a Sustainable Region 

The development principles, listed below, derive from the analysis of issues and objectives presented in 

Chapter 2 of the Structure Plan. 

Principle 1: Protect Luxor’s Antiquities during an Era of Tourism Growth 

• Protect the sites and settings of antiquities 

• Recognize and plan for monument capacity 

• Manage the growth of tourism facilities, services, and related uses 

Principle 2: Direct Development in Accordance with a Regional Strategy 

• Develop systems for pro-active regional growth management 

• Identify and support action areas where the region’s growth will be directed 

Principle 3: Conserve and Effectively Use the Region’s Resources 

• Protect the region’s environment 

• Maintain and expand agricultural lands and use them productively 

• Develop the region’s human resources 

Principle 4: Improve Living Conditions for Luxor Residents 

• Coordinate utility services with planned development. 

• Provide transportation facilities and services, which are efficient and allow regional residents 

convenient access to employment, municipal services, and other urban activities across the region. 

• Provide recreation facilities and “green” spaces, which can serve a growing urban population at 

contemporary standards. 

• Provide public and private services to areas where growth is desired. These should be provided at 

neighborhood, district, and citywide levels. 

• Provide increased educational and training opportunities for Luxor’s residents 

Principle 5: Build the Capacity to Implement the Plan 

• Establish mechanism for high-level government coordination 

• Secure funding for plan implementation 

• Engage private sector participation and cooperation 

• Create a plan implementation structure 

16



1.4 Growth Targets for the Region 

Detailed analyses of the population and employment growth assumptions upon which the Structure Plan 

is based are presented in Annexes 3, 5, and 7 of Volume 2 of the Structure Plan (Luxor Social Profile, 

Agricultural Profile, and Heritage Concept, which explains the methods used to determine the maximum 

tourism capacity of the antiquities sites and resultant tourism levels). These materials are synthesized in 

Chapter 4 of this document, the Needs Assessment. The following summary highlights key findings of 

this work. 

Assumed growth for the Luxor region is based on the facilities and services needed to accommodate the 

natural growth resulting from new tourism and agricultural reclamation. The tourism growth is assumed 

to be at levels that will be feasible and consistent with monument capacities determined in Phase I of this 

study and is presented in Annex 7 of Volume 2 of the Plan. Hotel rooms to be developed are based upon 

level of tourism that can be supported without exceeding the substantial capacities of the monument, 

taking account of the existing supply of hotel rooms and planned additions. The agricultural growth is 

assumed to be associated with an additional 25,000 feddan of reclaimed land. Areas suitable for 

agricultural reclamation as well as other natural and cultural constraints that were taken into account in 

the CDCL study are identified in Figure 1. Table 1 presents a summary of the key growth sectors from 

the Structure Plan, allocated to sub-areas in the study area. 

Table 1: Development Summary 

New 

Luxor 

El Toad 

Plateau 

Luxor 

City 

Remainder 

of Markhaz 

Total, 

for Luxor 

Study Area 

Population 

Existing 0 0 175,000 185,000 360,000 

Proposed, 2020 200,000 2,000 225,000 307,000 734,000 

New, 1999-2020 200,000 2,000 50,000 122,000 374,000 

New Thebes 35,000 

Agricultural 

25,000 

Villages 

Other Markhaz 62,000 

New Housing Units 48,077 481 12,019 29,327 89,904 

Hotel Rooms 700 4,500 500 900 6,600 

Feddan of New 

Agricultural Land 

25,000 25,000 

1.5 Development Proposals 

The following section provides a summary of key proposals of the Structure Plan. The rationale for these 

proposals is reviewed in Chapters 2 through 4, and a narrative overview presentation of these proposals is 

provided in Chapter 5. Figure 2 provides a regional map of the Luxor Structure Plan. Supplemental 

details on costs and implementation for the key elements of the Plan are provided in the Reports on 

Investment Projects 1 through 6, identified in Section 1.1 of this Plan and available through the MHUUC. 

17



1.5.1 Luxor City 

A detailed presentation of the recommendations for Luxor City is presented in Chapter 6 of this report. 

An overall map of the Luxor City recommendations is presented in Figure 7, with considerable 

supplementary detail illustrated in Figure 7 through Figure 18. Key recommendations are highlighted 

below: 

(1) Conservation of Heritage Resources – Luxor and Karnak temples and their surrounding areas would 

be protected, and the restoration of the Avenue of the Sphinxes will be completed. 

(2) Tourism Development – The “Open Museum” would be defined, preserved, and developed to reduce 

density, expand open space, and attract appropriate tourist services. A new visitor and information 

center would be developed. Improvements within the Open Museum district, in conjunction with the 

excavation and restoration of the Avenue of the Sphinxes project, would enhance the character and 

appeal of the Corniche and traditional markets. Tourism support services would be developed near 

attractions, without harming heritage resources. 

(3) Limited New Development – Population growth in Luxor City would be limited to 50,000 new 

residents through 2020. Informal settlements within monument areas and along transportation 

corridors would be discouraged. Development would be directed to planned areas well-served by 

utilities and public facilities, including: (a) North Karnak area, to define city edge and protect nearby 

antiquity sites; (b) East Luxor area, to define city edge and coordinate with planned city growth to the 

south; (c) South Luxor area, to define city edge and coordinate with planned city growth to the south. 

(4) Improved Circulation & Access – The roadway systems would be improved to reflect the defined city 

boundaries and to reinforce the planned new growth areas of the city. New vehicular and pedestrian 

railroad crossings will be provided, for better east-west access. New arterial roads are recommended 

as part of the Avenue of the Sphinxes project to relieve Corniche traffic, and along the eastern 

perimeter of the city. The street network would be extended to serve planned new development areas, 

along with improvements to appearance and function of major intersections. A new intersection 

would be planned with the inter-city arterial connecting to the New Luxor development, to improve 

the connection of East Luxor to South Luxor by linking over the railroad tracks. 

(5) An Enhanced Living Environment – In conjunction with planned new development in the peripheral 

neighborhoods of the city, a network of open spaces and parks would be formed, including major new 

District Service Centers. The District Centers would contain a mix of public facilities in areas north, 

east, and south of the city, to serve new and existing residents. Utilities would be extended to serve 

planned development neighborhoods. However, no utility expansion would be allowed within the 

protected area surrounding Karnak Temple. 

1.5.2 New Settlement Zones - New Luxor 

A detailed presentation of the recommendations for New Luxor is presented in Chapter 7 of this report. 

An overall map of the New Luxor Plan recommendations is presented in Figure 20, with supplementary 

detail illustrated in Figure 21 through Figure 27. Key recommendations are highlighted below: 

(1) Location and Concept – The community would be located east of substantial agricultural lands, 

insuring an attractive, green entry. Major development would be located on three elongated east-west 

plateaus, linked with major arterial streets. The city axis and city center, on the central plateau, is 

oriented to the Theban Necropolis, which is the most characteristic landmark in the region and highly 

visible from this location. 

(2) Neighborhoods – Each neighborhood would accommodate 8,000-10,000 residents, with central 

services, minimal through-traffic, and close proximity to larger service centers. 

18



(3) Parks and Open Spaces – Many city parks and open spaces would be located on the wadis between 

the plateaus, providing an effective use of land and supporting green spaces to city activities. A 

greenway system would link neighborhoods to one another. 

(4) Public Services – Each neighborhood would be served by a Neighborhood Service Center, containing 

primary school and day care services, a mosque, village square, and other local services within 

walking distance of the neighborhood. District Service Centers would each serve three 

neighborhoods, containing secondary and specialized educational and other public services, as well as 

commercial uses, compatible workshops, and public spaces. 

(5) Transportation – Early connections with New Luxor could be achieved by upgrading existing 

roadways, while the long-range connection to Luxor City would be provided through a new arterial 

boulevard leading to the southerly edge of Luxor City. 

(6) Relationship to agricultural lands – The northwest corner of the city, in close proximity to 

agricultural lands and potential irrigation resources associated with tertiary treatment of the new 

wastewater plant, would be devoted to agricultural processing. This neighborhood, with nearby agroprocessing 

industries, would provide an initial employment base and investment rationale for the 

City’s growth. 

1.5.3 New Touristic Activities - El Toad Touristic Zone, the Cruise Ship Port, and El 

Khuzam area 

A detailed presentation of the recommendations for the new touristic zone in the vicinity of El Toad is 

presented in Chapter 8 of this report. An overall map of the El Toad Plan recommendations is presented 

in Figure 28, with supplementary detail illustrated in Figure 29 and Figure 30. Key recommendations 

are highlighted below: 

(1) The El Toad Site – The El Toad Touristic Zone is proposed to be located outside agricultural and 

antiquities lands, south of the Nile River Bridge. The site includes several plateaus, separated by 

wadis, east of the railroad corridor. Development through the 2020 period should occur on the 

southern plateau, which can be strongly linked to the proposed cruise ship port. A small plateau 

containing commoner tombs will be left undisturbed and can provide a site of interest for the 

development. In the more distant future, assuming that monument capacity constraints are met, there 

would be the potential for future touristic zone development on the nearby plateau to the north. 

(2) Scale of Development at El Toad – Approximately 18 hotels, with a total of 4,500 rooms, are planned 

for the twenty-year period. Accommodations will vary in quality and type, including three-, four-, 

and five-star hotels and villa complexes. Attractions such as an 18-hole golf course and botanical 

garden are incorporated into El Toad in order to broaden the types of tourism experiences possible in 

the Luxor Region. A visitor center with a museum interpreting regional local life customs should be 

located along the formal entrance boulevard to El Toad, serving as a staging point for shuttle bus 

service within the El Toad area and for tour bus traffic to regional destinations. 

(3) Relationship between El Toad Touristic Zone and Proposed Cruise Ship Port – The El Toad plan 

should be closely coordinated with the new cruise ship port development in order to create an 

integrated tourism zone that promotes more joint cruise-hotel stays and improved connectivity. 

(4) Transportation Linkages between El Toad Area and the region – An inter-modal transportation 

facility should be built at the intersection of the Cairo-Aswan Highway and the El Toad entrance 

road, adjacent to the proposed new cruise ship port. The facility would become the primary transfer 

point between water and surface transportation in the area. A new road between El Toad and New 

Luxor, east of the highway, should be developed to provide a direct connection that bypasses local 

area settlements. Regular shuttle bus service should be established to provide convenient access 

among the cruise ship port, destinations within El Toad, and regional destinations on the East and 

West Bank. 

19



(5) El Khuzam and New Thebes related Touristic Areas -- North of the New Thebes development (see 

immediately below) is the area of Khuzam, which is a plateau with excellent views overlooking 

agricultural lands and the Nile. The Plan assumes completion of New Thebes and suggests the 

addition of a small hotel complexes to the south of New Thebes (in conjunction with the golf course) 

and to the north of New Thebes (to take advantage of the Khuzam site). 

1.5.4 Existing Settlement Expansion Areas, outside of Luxor City 

(1) New Thebes area – New Thebes is being developed by the New Communities Authority and is 

intended to accommodate an eventual population of 35,000. The Structure Plan assumes that this 

planned development is completed to serve its intended population, and that related touristic and 

agricultural support uses may be attracted to the north and south of New Thebes. 

(2) Areas to north and south of antiquities zone on West Bank – Outside the delineated antiquities zones, 

the Plan recommends reinforcement of existing settlements to allow modest growth in this area and to 

reinforce investments and improvements that have been make in existing communities. 

1.5.5 Support Agricultural Communities 

There is a need for “central” communities that offer services not available to existing small rural 

communities identified in and can support planned agricultural expansion and related business 

development. Each central agricultural community would include core services that would support 

smaller settlements in its vicinity. The proposed central support agricultural communities are shown in 

Figure 2, and include: 

(1) The north westerly neighborhood within New Luxor, which would be a logical place for the location of 

agro-industry and agro-processing for high-value crops, being close to new major transportation (rail, 

air, highway) and in the likely initial development area for a the new city with its significant services. 

(2) Mrs. Mubarak Village, south of the SCA protected area, where significant improvements in 

infrastructure have already been initiated. 

(3) El-Tarif, which has seen significant recent investment and can serve areas to the north of the SCA 

protected area. 

(4) A village to the extreme south of the study area on the West Bank, to provide services for nearby 

communities. 

1.6 Anticipated Employment Opportunities 

The implementation of the six-investment project anticipates the creation of numerous employment 

opportunities (both temporary and permanent). The table below is a summary of the employment 

opportunities. However, the full analysis is presented in the individual investment projects (1-6), 

produced in the CDCL project and printed under separate cover. 

Employment 

Opportunities 

Investment Project 1: Restoration of the Avenue of the Sphinxes 5,000 

Investment Project 2: Development of The Destination Resort of El-Toad 18,000 

Investment Project 3: Development of the New Community of New Luxor 58,840 

Investment Project 4: Infrastructure Services for New Luxor and El Toad 9,968 

Investment Project 5: Establishment of High-Value Agriculture 7,600 

TOTAL 99,408 

20



1.7 Other Region-wide Initiatives 

1.7.1 Transportation Improvements 

A system of regional circulation improvements, within Luxor City and throughout the region, would 

support the proposed Regional Plan. As illustrated in Figure 3 and described in further detail in Chapters 

5, 6, 7, and 8, these improvements include: 

(1) New inter-city connections among Luxor City, New Luxor, and the El Toad Touristic Zone. 

(2) Arterial street extensions and upgrades within Luxor City to serve proposed new development areas 

to the north, east, and south edges of the community. 

(3) A detailed street system within the New Luxor settlement. 

(4) Selected upgrade of streets across the agricultural areas that connect new and existing settlements. 

(5) Intermodal centers and new rail stations at key locations in the plan. 

(6) New tourist circulation services to offer greater choices on both East and West Banks, as well as to 

relieve congestion. 

(7) A new cruise ship port, south of the new bridge, to relieve congestion along Luxor City’s Corniche 

and to improve regional linkages and services for tourists. 

1.7.2 Utility Services and Groundwater Management 

New sewage treatment services would be extended to the major development area identified by the Plan, 

including major growth areas in Luxor City and New Luxor, as well as other areas in the Markhaz 

identified in the Secondary Cities project. Packaged treatment services would be provided for the cruise 

port, the El Toad Touristic Zone, and selected West Bank settlement. No sewer services would be 

provided to structures within monument protection zones, in order to discourage further informal 

developments and to limit surface water infiltration to antiquity foundations and sub-surface construction. 

Figure 4 identifies proposed utility service areas and key existing utility facilities, described in Chapters 

5, 6, 7, and 8 of this Volume, as well as in Annex 5 of Volume 2, that includes detailed materials prepared 

by others as part of the planned Secondary Cities improvement throughout the region. 

The recommendations within the Plan for agricultural reclamation have been developed in consultation 

with appropriate Egyptian agencies, including the Ministry of Agriculture and the Egyptian Survey and 

Mining Authority. The scale of these initiatives has been judged to be commensurate with subsurface 

ground water capacity and sound environmental principles. However, it is critical that water and water 

resources be evaluated properly, based on site-specific testing methods beyond the scope of this regional 

plan, prior to individual project approvals for site reclamation to insure that projects are sustainable and, 

particularly on the West Bank, that no adverse impacts will occur to antiquity resources. 

1.7.3 Project Management 

Implementation recommendations and rationales for the CDCL project are presented in Chapter 9 of this 

Plan, as well as within the detailed Investment Project Reports. In summary, the project has concluded 

that the HCLC does not have the resources, staff, clear authority, or funds to carry out major projects of 

the complexity and scale envisioned by the Plan on its own. Presently, the City Council of Luxor is not 

able to manage and guide projects following a planned approach. While numerous ministries continue to 

work in Luxor, the project team advocates the need for a Project Management Unit (PMU) because the 

work done to date has been done in an ad-hoc manner. The importance of planned and directed 

development cannot be understated, because of Luxor’s global significance. 

21



The Comprehensive Development Plan for the City of Luxor requires a sponsor who will guide it through 

the major activities. The Plan recommends that a special Board of Directors be formed at the highest 

governmental level, with the following characteristics: 

(1) The Board of Directors would be composed of Mrs. Suzanne Mubarak as its chairperson, the 

Ministers of Housing, Culture, Tourism, and the Governor of Luxor. 

(2) The mission of the Board would be to maintain a clear vision for the development of Luxor and 

ensure the implementation of all individual Investment Projects 1 , in accordance to the vision as stated 

by the Comprehensive Development Plan for the City of Luxor. The Board would guide the activities 

in a manner enabling inter-ministerial cooperation. 

(3) Recognizing that each ministry has the capacity to implement its own projects, the individual 

investment projects should be implemented within the ministries best able to do so, without creating 

any additional project teams or duplicating government structure. 

(4) The project management and implementation units within each stakeholder agency would coordinate 

with and report to the Board, who would be responsible for fund raising, management, and 

coordination among other ministries, and for the implementation of the project. 

(5) The Board would require a strong senior executive director who could represent its wishes to public 

and private entities, report on progress to the Board of Directors, track projects, prioritize resources, 

and enforce decisions. 

(6) In addition, the executive director would have a single technical project coordination team with the 

ability to translate directives from the Board of Directors to all the stakeholders, including the Higher 

Council for the City of Luxor. 

22



Chapter 2: 

The Challenge for Luxor in the 21 st Century 

2.1 The Structure Plan and the Luxor Project 

This Structure Plan is one element of the Comprehensive Development of the City of Luxor Project, 

under the coordinating supervision of the Ministry of Housing, Utilities and Urban Communities/ 

Research and Studies Organization (MHUUC/RSO). The project is an innovative effort to combine longrange 

strategic planning with early action implementation, working in collaboration with the Government 

of Egypt Ministries, Agencies, the Higher Council for the City of Luxor, and community representatives. 

The project will recommend a Structure Plan to guide Luxor’s growth for the next twenty years and 

Investment Projects 1 for immediate priority public and private funding. 

This Structure Plan defines the shape of the Luxor Administrative Area and will serve as a strategic 

guide for community improvement and resource allocation, as well as sub-studies for more detailed 

improvements to Luxor City, the new community of New Luxor, and a proposed New Touristic Zone at El 

Toad. 

2.2 The Need: A Sustainable Region 

Luxor, Egypt is one of the world’s most treasured antiquities sites, home to the Karnak Temple (the most 

significant Pharaonic temple in Egypt), Luxor Temple, Nefertari’s Tomb, the Valley of the Kings, the 

Valley of the Queens, the Tombs of the Nobles, and Colossi of Memnon. These sites, and their dramatic 

Nile Valley setting, have placed Luxor on the exclusive UNESCO World Heritage Site list as one of only 

560 natural and cultural sites worldwide. Major tourism locations are identified in Figure 5. 

In 1996, The Luxor Governorate had a population of 360,000. Luxor City is the major population center 

in this antiquities area, with about 175,000 residents in 1996. The West Bank of Luxor, site of many of 

the monuments and tombs, is a restricted development Protection Zone, forcing most new development to 

the East Bank, where the city center is located. The East Bank is experiencing tremendous growth 

pressures due to tourism expansion and population increase. 

Between now and 2020, if pro-active planning does not occur, the natural pressures of population growth 

and increased tourism, exacerbated by the scarcity of developable land, will pose grave risks to Luxor’s 

man-made, cultural, and natural resources. A coherent and coordinated plan is needed to protect the 

character and quality of Luxor. The following challenges must be addressed by the plan, in order to 

achieve a sustainable region where resources are protected and human opportunities are created, taking 

advantage of the priceless world heritage sites: 

(1) Direct development in accordance with a regional strategy 

(2) Improve living conditions for Luxor residents 

(3) Coordinate government actions and cooperate with the private sector 

(4) Conserve and effectively use the region’s resources 

(5) Protect Luxor’s antiquities during an era of tourism growth. 

The following section of this chapter addresses each of these challenges. 

1 Six Investment Projects were produced under the CDCL project and are available under separate cover 

23



2.3 Protect Luxor’s Antiquities during an Era of Tourism Growth 

2.3.1 Protect the Sites and Settings of Antiquities 

The antiquities of Luxor attract visitors from around the world, contributing substantially to the region’s 

economy. It is imperative that the strategy for regional growth incorporates realistic measures to protect 

these antiquities and their settings from damage, deterioration, and encroachment. These monuments, 

shown in Figure 5, particularly the West Bank tombs, are highly sensitive to water and moisture 

deterioration, requiring careful assessment of required improvements and monitoring of visitation patterns 

to ensure that over-use does not damage these settings. 

Additionally, urban growth in the vicinity of both East Bank and West Bank antiquities threatens the 

integrity and setting of the historic resources. In the villages of Gourna at the foot of the Necropolis, 

growth has accentuated water infiltration, causing damage to tombs and their decorative surfaces. In the 

Karnak Temple vicinity on the East Bank, informal settlements have developed over historic sites, and 

urban drainage has caused foundation settlement at the ancient temple columns. It is important that the 

long-range structure plan incorporates measures to mitigate and eventually eliminate these sources of 

deterioration of Luxor’s treasures. Furthermore, tourists and visitors should be encouraged to appreciate 

the fragility of these enduring sites and to respect their character. 

2.3.2 Recognize and Plan for Monument Capacity 

Phase I of this project has assessed the maximum capacity of the monuments and has determined that the 

limiting factor to tourism growth in Luxor is the “through-put” daily capacity of the West Bank tombs, 

challenged to accommodate visitors without deterioration. This capacity can be increased to a maximum 

daily volume of 2.35 times the number that visited these attractions in the peak period of 1997, by 

expanding the number of tombs open to visitors and by providing proper ventilation. The total maximum 

annual volume of tourists which could be accommodated to the antiquity sites under these conditions 

would be approximately 4.1 million visitors per year, assuming that tourist visits are distributed across the 

expanded attractions. It should be stressed that this capacity estimate assumes that the maximum level of 

tourism that can be accommodated in the Valley of the Kings is approximately 1.5 times the current peak 

period volume, and that further expansion of overall West Bank tourist visitation is dependent on making 

additional tombs and antiquity sites in this area available and attractive to visitors. The overall maximum 

of 4.1 million visitors per year is the maximum achievable volume of visitors that should be planned for 

in Luxor for the foreseeable future. 

2.3.3 Manage the Growth of Tourism Facilities, Services, and Related Uses 

Tourism is an important part of Egypt’s economy, representing revenues of LE 10,200 million (US 

$3,009 million) in FY 1995/96, and projected to increase substantially as political stability restores 

confidence in Egypt as a destination. Tourism is encouraged as a major component in the Government of 

Egypt’s (GOE) strategy to alleviate poverty and provide for a population that is expected to nearly double 

in 20 years, from 60 million persons to over 100 million persons. Without economic growth that 

corresponds to, or exceeds, population growth, the nation will become relatively poorer over time and 

political stability would be threatened. Without this stability, the world’s access to the valued antiquities 

in Egypt would be similarly threatened. 

Luxor, in particular, has a local economy based primarily on tourism. In planning for the growth of 

tourism, it is essential that the City, with assistance from the Government of Egypt and international 

entities, create opportunities for tourism facilities and services that will enhance the quality of the 

antiquity sites. This effort should also provide visitors with contemporary services that are competitive in 

24



a world where international interest in cultural tourism is a major growth factor. Thus, there is an urgent 

need to: 

(1) Provide visitors with broader information about antiquity sites and increase their interest in sites that 

have the capacity to absorb them. 

(2) Expand visitor choices and means of transport to the monument areas, especially on the West Bank 

(3) Create systems to monitor visitor flow to ensure that monument capacity is not exceeded. 

(4) Expand the number of monuments available and develop replicas and related attractions to 

accommodate visitors as well as to diversify Luxor’s tourism, to relieve some of the pressures on the 

antiquities and still provide a satisfying vacation experience. 

(5) Plan for sufficient new tourist accommodations commensurate with monument capacity, encouraging 

development of sites where appropriate amenities can be provided, where access is good, and where 

construction and day-to-day operations will not encroach upon either antiquity sites or Luxor’s fragile 

cultural landscape. 

(6) Protect the settings of key monuments from inappropriate and over-commercialized development that 

would detract from the very qualities that make Luxor special. 

Figure 5 identifies key tourism resources within the Luxor region as well as important heritage linkages 

that are supported and enhanced by the CDCL plan. 

2.4 Direct Development in Accordance with a Regional Strategy 

2.4.1 Develop Systems for Pro-active Regional Growth Management 

Despite government efforts to the contrary, development pressures throughout the Luxor region have 

resulted in expanding often informal and unauthorized settlements along transportation corridors. The 

informal settlements are growing in areas that lack adequate public facilities and services, and in areas 

encroaching on the antiquities of both the East Bank and West Bank. Moreover, these growth pressures 

have seen a gradual absorption of agricultural lands at the periphery of Luxor City and in areas 

surrounding existing villages. 

Continuation of gradual unplanned development, coupled with a doubling of the region’s population by 

the year 2020, will seriously threaten the quality of life for regional residents, will result in an 

increasingly congested Luxor City, and will be detrimental to the issues of monument protection and 

tourist service reviewed above. The construction of the new settlement at New Thebes is an important 

action to encourage planned development and growth. However, the location of this site to the north end 

of the region, far from the new bridge and proposed cruise ship port and opposite the southerly directions 

of growth in Luxor City, may limit its effectiveness in attracting growth at the scale which is envisioned 

over the planning period. 

Without a clear plan, the anticipated growth between now and 2020 risks damaging Luxor’s environment, 

resources, and setting. Government and the citizens of Luxor must endorse and support efforts to plan 

and implement public investments to direct regional growth and development. These include: 

(1) Designation of new growth areas, both within Luxor City and in the region which would be planned 

in coordinated fashion to absorb population increases and relieve development pressures in Luxor 

City and antiquity areas. 

(2) Management of public infrastructure, including water supply, expanded wastewater treatment 

services, and transportation facilities, to support the region’s growth policies. 

25



(3) Provision of opportunities for new attractive neighborhoods which would be available, on a voluntary 

basis, to residents now living in and adjacent to sensitive antiquity areas in the West Bank and Karnak 

Temple vicinity. 

2.4.2 Identify and Support Action Areas where the Region’s Growth will be directed 

In order to accommodate the approximate doubling of the region’s population, it will be essential to 

designate areas where growth is to be encouraged, and then to coordinate the provision of services and 

investment to these areas. Once such areas are identified in accordance with a regional plan, each 

government and private proposal must be reviewed with care to ensure consistency with the 

recommendations of the plan. Phase I of this study proposed the following broad target areas for 

development, which are amplified in this Structure Plan: 

(1) Planned growth areas to the north and south ends of Luxor City , where land is available, and where 

services can be effectively located. 

(2) Clearly defined development areas that are appropriately located near transportation and public 

services, including a major new regional settlement (New Luxor) and a new Touristic Zone (El Toad), 

in proximity to the proposed port and the Luxor Bridge. 

(3) Agricultural support villages on both East and West Banks which provide services to surrounding 

population centers and can be coordinated with the development of high value agricultural 

development and agro-processing centers. 

2.5 Conserve and Effectively Use the Region’s Resources 

2.5.1 Protect the Region’s Environment 

As part of the Phase I study, major environmental systems were reviewed as an input to determine the 

suitability of sectors of the region for use and development. As the plan is implemented, it will be 

important to protect the natural environment upon which the region depends, most especially the 

following resources and systems: 

(1) Hydrology – The Nile River Valley is wide on the eastern side and very narrow on the western side. 

The width of the whole valley in Luxor is about 10 km. The eastern desert, the area east of the Luxor 

valley, is a rough terrain area with continuous plateau where different erosion factors shaped the area 

with desert tables. The area is characterized by the existence of different wadis and flash flood zones. 

The major wadis in the east pass close to Al Bayadiya, Menshat Al Amary, and Madamud Village, is 

where development should be avoided. In the eastern region, floods occur that differ in intensity with 

the rainfall and the drainage area of the wadi. From the hydrological studies of the area, the wadi that 

is close to Madamud is considered to be large, where a high-intensity flood could occur from such a 

rainfall. 

(2) Soils – The subsurface conditions are typified by two kinds of soils. The first is river deposit soils, 

which were deposited during the Nile River flooding seasons. This soil is heavy and clayey or 

medium silt soil. The second is sandy dessert soils that represent the area close to the eastern desert. 

This type of soil is either sandy or considerably sandy soil, with light clayey soils overlying certain 

areas. The groundwater is relatively high, about 2 meters below ground surface near the river; 

however, in outlying areas the groundwater is relatively deep beneath the surface. 

(3) Groundwater – Because of the nature of the water-bearing strata, the acquifer systems in the study 

area can be classified in two main categories: the alluvial sand and the gravel sediments of the Nile 

Valley which constitutes a shallow acquifer system with a very high potential for water supply, and 

the Nubian sandstone which constitutes the only significant acquifer system in the western desert 

area. The main acquifer consists of coarse sand and gravel deposited. The groundwater is generally 

found between 2 and 7 meters below ground level. Fluctuation in ground water can be attributed to 

26



the main irrigation system. The main groundwater flow direction is towards the Nile on both sides, 

and the longitudinal gradient is rather modest. The quality of groundwater in the study area is an 

important issue, since most rural settlements still use shallow tube wells as the main source of 

drinking water. Such groundwater is known to have considerably high levels of salinity, and wells 

that produce soft water are greatly prized. The groundwater is relatively high near the city of Luxor. 

With the high level of salinity, the groundwater has in the past caused deterioration of the 

monuments. With increased agricultural production, the salinity in the soil will need to be carefully 

monitored. It is ver important that ground water conditions be professionally assessed, based on 

careful field-testing of existing conditions, when specific parcels are allotted for agricultural 

reclamation, as well as in association with any development actions in the vicinity of monuments and 

antiquity sites on the east and west banks. 

(4) Surface Water and Acquifers – The Nile at Luxor is not considered particularly polluted. The most 

serious source of pollution on the Nile emanating from the study area is the raw sewage coming from 

the many tourist cruising boats. At times, such sewage is equivalent to that produced by a town of 

15,000 persons. Although a scheme for pumping out the ships’ wastewater for disposal into the city 

sewers running along the Corniche was installed as part of the Corniche project funded by the World 

Bank, it is only now becoming operational. Actions to expand the port for cruise ships, with related 

support sewage services, are highly important to protect and improve water quality. 

(5) Irrigation Systems – Other than the Nile, surface water bodies in the study area are limited to 

irrigation canals and drains. Residents sometimes use drains and canals as dump areas for solid 

waste. In addition, the drains contain the run-off from agricultural fields, which contain fertilizers 

and pesticides. There have been no studies conducted on measuring the pollution in the irrigation 

canals. Irrigation can be a particular problem; as sugar cane grown on lands near the monuments 

requires substantial irrigation. The heavy irrigation combined with a lack of sewerage system in areas 

of Luxor City around the monuments could contribute to a high water table. Monument foundations 

are put at risk by the high level of salinity of irrigation water, which damages the monument 

foundations. 

2.5.2 Maintain and Expand Agricultural Lands and Use them Productively 

A key challenge for the Luxor region is the protection and best use of the agricultural sector and the 

significant designated agricultural lands within the study area. Typical to Egypt, but of specia l 

importance in Luxor, growth pressures for new development are often felt within the agricultural lands, 

whose owners can often make a higher return by developing buildings, thus taking land out of agricultural 

production. According to the Higher Council for Luxor City’s (HCLC) Agricultural Directorate, in 1996 

there were a total of 86,510 feddan of agricultural land in the Luxor Markhaz, of which over 50% were 

devoted to sugar cane, a crop with requires high water usage and does not allow for double -or triplecropping. 

Key agricultural challenges for the comprehensive development plan include: 

(1) Protection of existing agricultural lands outside the Luxor City boundary from urbanization – This 

strategy would be enabled by the directed development policies that were presented in the previous 

section of this chapter. 

(2) Encouragement of land reclamation, consistent with best practices and existing water supply – The 

government has announced plans to reclaim significant agricultural lands in Luxor, including 

approximately 25,000 feddan. The government has a stated policy to promote high-value crops on 

newly reclaimed lands. Many potential sites have been located, and final decisions on the exact 

priority parcels on the East and West Banks will be subject to the findings of test well drilling to 

locate appropriate water sources as a first step in allocating the land. On the East Bank, 3,500 feddan 

have already been earmarked for graduates of the Agricultural Technical College in 5 feddan plots. 

27



Where possible, these parcels would be desirable in low-lying wadi located in proximity to major new 

settlement areas, where population and related processing activities could be planned to be part of the 

new settlements. 

(3) Development of high-value crops, to take advantage of favorable climate and markets, as well as to 

increase economic productivity of Luxor’s agricultural land – Over a number of years, substantial 

research has been undertaken in Egypt as to the potential for high-value crop production. These crops 

not only add income to the Egyptian economy from exports, but also diversify Egypt’s produce so 

there is not a reliance on a single crop that fluctuates in price on world markets. There are several 

current on-going projects related to high-value crops in Egypt. Conclusions from these studies show 

that there is substantial potential for high-value crop production in Egypt, particularly for European 

and Middle Eastern markets. Because of climatic advantages (mild sub-tropical climate with 

abundant year-round sunshine), Egypt can provide crops early, late, or contra-seasonal for European 

markets and, thus, has a competitive edge due to the seasonality of European production. Egypt can 

also grow exotic horticultural products not available locally in Europe. Egypt has the additional 

advantages of low-cost labor and water, and close geographic proximity to potential markets, benefits 

that could make Egyptian products even more competitive than for competitors in Latin America, 

Asia, and Sub-Sahara Africa. The Ministry of Agriculture will be taking steps to expand the 

Agricultural Technical School program in Luxor to focus on high-value crops, and expects to expand 

the curriculum from three to five years. 

These measures would allow for meaningful improvements in the agricultural sector of Luxor. 

Investment Project 5 1 includes a detailed analysis and proposals for introducing high-yield agriculture to 

the Luxor region. These proposals would contribute to the increase in the income of the population in 

Luxor, as well as an increase in the levels of population as the economy expands. 

2.5.3 Develop the Region’s Human Resources 

Second to the antiquities, the people of Luxor are the region’s greatest asset. Their warmth and 

hospitality is obvious to any visitor to the region. However, traditional ways and a shortage of specialized 

education have resulted in a labor force inadequately trained to provide maximum support for economic 

development opportunities. If these opportunities are not provided to the local population, there will 

continue to be pressures to “import” skilled technicians and managers to perform the key jobs associated 

with Luxor’s future. If the skilled labor force is not cultivated and expanded, the mismatch may 

eventually inhibit future growth. As part of the plan, a key challenge is to invest in Luxor’s people, to 

provide expanded opportunities for educational and career growth, taking advantage of the major 

activities which will expand as the Luxor region grows. The first step in this effort is to improve basic 

education and services, including quality primary, secondary, and continuing education facilities and 

services that would enable the region’s youth to acquire the basic skills toward career advancement. 

Annex 3 to the Structure Plan, contained in Volume 2, includes a Social Profile that presents detailed 

data, based upon the 1996 population census, of population, household size, employment, and educational 

levels of the study area population. Educational levels are comparable to national averages, and residents 

of the Markhaz do not, in general, appear to have strong involvement in or benefit from the tourism 

industry in the region. Clearly, a fundamental challenge for residents of the region is to develop 

specialized education and training to take advantage of employment markets which further Luxor’s 

potentials, including: 

(1) Agriculture – The reclamation of desert land for agricultural use and the introduction of high-value 

agriculture crops and cultivation methods offers numerous opportunitie s for research and training. 

1 Six Investment Projects were created under the CDCL project and are available under separate cover 

28



Although agriculture was the major source of employment (24% of all those working), the 

productivity of agricultural activities and related economic benefit could be increased significantly 

through include improving management and technical education for high-value crop production, 

through augmenting and upgrading the curriculum at the active Agricultural Technical College of 

Luxor. 

(2) Tourism – There are facilities for tourism and hospitality training at the Luxor Hotel School, but the 

substantial growth of tourism and related facilities could provide opportunities for increased depth of 

curriculum and broader outreach activities. Hotels and restaurants employ only 5% of those 

employed in the region, and collaborative training opportunities could be pursued through cooperative 

arrangement with private sector operators and in conjunction with other Egyptian institutions. This 

effort would provide specialized training for hotel and hospitality positions, as well as to cultivate a 

new generation of entrepreneurs who could take advantage of increased tourism to start related 

service businesses. 

(3) Development management, administration, and related service industries – The scale of development 

required to implement the Luxor Plan will offer potential opportunities in development management, 

planning, as well as related building and construction services. Without a cadre of skilled 

professionals and technicians to manage this long-range process, its success will be tenuous. 

2.6 Improve Living Conditions for Luxor Residents 

Protection of the monuments and accommodation of tourists are important goals to be accomplished, but 

a truly effective plan must result in an improved quality of life and increased potential for the residents of 

Luxor, current and future. Municipal services, particularly utilities, are not uniformly available to city 

and village residents, and unplanned growth accentuates problems of accessibility, transportation, and 

proximity to services. The plan can address these factors and provide mechanisms to: 

(1) Coordinate utility services with planned development. 

(2) Provide transportation facilities and services that are efficient and allow regional residents 


(3) Provide recreation facilities and “green spaces” which can serve a growing urban population at 


(4) Provide public and private services to areas where growth is desired, including neighborhood-, 

district-, and citywide levels. 

(5) Provide increased educational and training opportunities for Luxor’s residents, as mentioned in 

Section 1.5.3. 

2.7 Build the Capacity to Implement the Plan 

Phase I of the project initiated a planning process. To achieve the benefits of an extensive planning 

process, the plan needs to incorporate effective mechanism for implementation. These mechanisms must 

ensure that all levels of government within Egypt and the region act in concert and in response to the 

guidance of the plan. Additionally, the implementation process must include explicit and effective 

measures to fully engage the private sector, which would provide a significant amount of the capital and 

energy for implementation. Without these types of coordination and cooperative mechanisms, the plan, 

no matter how worthy, will not attract the full support and participation of either the local community or 

the international donor agencies. The following sections highlight the challenges that confront the 

government in implementing the Comprehensive Development Plan for Luxor. 

29



2.7.1 Establish Mechanisms for High-Level Government Coordination 

The structure of decision-making and project implementation within the Government of Egypt is 

concentrated at the central government level. Thus, it is essential that coordination of and cooperation 

among ministries and agencies at the central government level be accomplished. Since so many 

ministries are essential to plan implementation in Luxor; it is requisite that a special emphasis be placed 

on structuring high-level government coordination. In Phase I, consultants recommended that new 

administrative and coordination mechanisms for Luxor be necessary to assure that agreement on plans 

and implementation can proceed expeditiously and effectively. As the funding for plan implementation 

will be substantial and will necessarily involve donor support, a special Project Task Force for 

approaching donors is desirable and would involve representatives from the Ministry for International Cooperation, 

MHUUC, other GOE Ministries, the private sector, and consultants. 

2.7.2 Secure Funding for Plan Implementation 

Funding for Comprehensive Development Plan implementation will require thousands of millions of 

Egyptian Pounds. Investment in Luxor would yield significant positive financial returns for residents of 

Luxor, the nation, and private investors. The world's interests in the antiquities would also benefit from 

significant investment in Luxor. The level of funding required to implement the Comprehensive 

Development Plan for Luxor is beyond the resources of the GOE alone. Due to the substantial level of 

funding required, a multi-faceted strategy should be adopted to channel GOE, donor, private sector, and 

international contributions. Components of a multi-faceted plan financing strategy could include: 

(1) GOE budget authority as well as GOE tax and user fee strategies. 

(2) International finance institutions (e.g., World Bank and its subsidiary, International Finance 

Corporation, and African Development Bank) for long-term loans. 

(3) Bilateral and multi-lateral donors for project grants and loans. 

(4) International Capital Markets for short-term and long-term project loans and/or Domestic Capital 

Markets for project equity and loans. 

(5) Private sector financing with equity, loans, and operating contracts. 

(6) International foundation and private contributions. 

The comprehensive Investment Project 1 concepts, which are in preparation as an element of the plan, 

demonstrate the extensive financing requirements and provide a framework to develop a financing 

strategy to implement major aspects of the Luxor Comprehensive Development Plan. 

2.7.3 Engage Private Sector Participation and Cooperation 

Many of the development and financing strategies advanced in the structure plan will require a significant 

role for the private sector in financing, development, and operations. There has been an increasing 

involvement of the private sector in meeting Egypt's development needs, especially in infrastructure, new 

town development, and reclaiming lands for agriculture. Luxor represents a distinct opportunity to 

engage the private sector in development. Before plan implementation commences, the role and extent of 

private sector involvement needs to be defined. This would include whether government or the private 

sector would be responsible for major developments, such as New Luxor, the El Toad Touristic Zone, 

Luxor City infrastructure, and the cruise ship port. This model of government planning and private sector 

implementation is being increasingly utilized in Egypt. There are other models of private sector 

participation emerging in Egypt, including Build-Operate-Transfer (BOT) and private sector new town 

development corporations, which extend the private sector role to undertake full implementation of major 

public developments. With the substantial financing and technical requirements involved with Luxor 

1 Six Investment Projects were produced through the CDCL project and are available under separate cover 

30



development requirements, the private sector role may be key to timely implementation of the plan. As 

part of Phase II of the project, definition and assignment of development responsibilities between 

government and the private sector is a priority. From these decisions, financing and implementation 

strategies can emerge. 

Cross-subsidy from private sector development is a strategy that is being successfully implemented in 

other major developments. Luxor also represents opportunities for land sales/leasing that would achieve 

surpluses that could be applied to meet development costs of projects that have less cost recovery. To be 

effective, cross-subsidy structures should be defined in the planning process so that they can be 

incorporated in any public tenders for land sales/leasing of major private sector development sites. The 

government owns most of the private sector development sites identified in the plan, and has the potential 

ability to initiating cross-subsidies to provide for local resident and other public concerns. 

2.7.4 Create a Plan Implementation Structure 

As discussed, above, high-level government coordination and cooperation are requisite for Luxor 

Comprehensive Development Plan implementation. In addition, a specific organizational structure is 

required to continue the planning and implementation processes. There are several approaches toward 

major development initiatives. At present, there is no specifically designated implementation structure 

for an overview perspective. Various units of government have responsibility for aspects of plan 

implementation. 

Central government is where development and financing decisions are concentrated. It is important that 

any unit of government designated to oversee Luxor Plan implementation be accorded appropriate 

authority and be given sufficient technical and financial resources to complete the task effectively. 

It is vital that plan implementation be addressed in conjunction with finalization of the Comprehensive 

Development Plan by the conclusion of Phase II of the study. The structure plans and related project 

recommendations will be even more effective if they are completed in conjunction with the 

implementation agency. 

31



Chapter 3: 

Development Principles for a Sustainable Region 

The previous chapter has reviewed the challenges that must be addressed by the Luxor Structure Plan and 

the other elements of the Comprehensive Plan for the Development of Luxor. This section restates 

simply the key principles that emerged in that chapter, serving as a summary and an important reference 

for the Plan and its recommendations. 

Principle 1: Protect Luxor’s antiquities during an era of tourism growth 

• Protect the sites and settings of antiquities 

• Recognize and plan for monument capacity 

• Manage the growth of tourism facilities, services, and related uses 

Principle 2: Direct development in accordance with a regional strategy 

• Develop systems for pro-active regional growth management 

• Identify and support Action Areas where the region’s growth will be directed 

Principle 3: Conserve and effectively use the region’s resources 

• Protect the region’s environment 

• Maintain and expand agricultural lands and use them productively 

• Develop the region’s human resources 

Principle 4: Improve living conditions for Luxor residents 

• Coordinate utility services with planned development. 

• Provide transportation facilities and services that are efficient and allow regional residents 


• Provide recreation facilities and “green spaces” which can serve a growing urban population at 


• Provide public and private services to areas where growth is desired, such as neighborhood-, 

district-, and citywide levels. 

• Provide increased educational and training opportunities for Luxor’s residents 

Principle 5: Build the capacity to implement the Plan 

• Establish mechanism for high-level government coordination 

• Secure funding for plan implementation 

• Engage private sector participation and cooperation 

• Create a plan implementation structure 

32



Chapter 4: 

Needs Assessment 

4.1 Overview 

This chapter provides a summary of the needs for new development that must be accommodated within 

the study area for the target year of 2020. The materials herein take account of our interaction with the 

Ministry of Housing, Utilities, and Urban Communities, Higher Council for the City of Luxor, Central 

Agency for Public Mobilization and Statistics (CAPMAS), and the Tourism Development Agency. 

Additionally, the work has referred to and incorporated provisions in the National Development Plan for 

South of Egypt prepared by the Ministry of Planning and the National Five Years Plan. The work has 

incorporated commitments of the Ministry of Agriculture to develop 25,000 feddan within the study area, 

based in part on the recommendations of Phase I of this study. 

Of equal importance, the assumptions regarding tourism growth and its consequences for the future 

growth of the study area are based upon the assessment of monument capacity which was included in the 

Phase I Report of this project. Consequently, the material herein modifies, to some extent, the estimates 

of regional growth that were included in the Phase I Report, on the basis of more updated information. 

Detailed tables that present relevant data, findings, and recommendations are provided at the end of this 

chapter. 

4.2 Infrastructure 

Electricity 

The City of Luxor is connected to the national grid, and at present has adequate energy. Moreover, many 

of the hotels, the largest draw on electricity have sufficient electrical needs, as do the cruiseships. Both 

the on land and cruiseship hotels have independent electrical generating plants and as a result utilize little 

from the city electrical supply and grid. However, as cruiseship docks get developed, and as more hotels 

get built the loading will become an issue. 

At present the HCLC, has no plans for further expansion. Any future development of electricity 

generating plants will be done through a BOT arrangement. Any future development in Luxor will 

require an environmental impact statement, which will also consider the electrical loading. 

Generation: There is no generating station in Luxor. The generating stations are located in: 

1- Esna, 

Power of 80 MW through 5 Turbines of 16 MW each; 

2- High, 

Power of 1000 MW through 10 Turbines of 100 MW each with other two standby turbines; and 

3- Aswan, 

Power of 200 MW 

Transformers: There are three transformer stations in Luxor city to cover both City and Markaz 

1- Transformer Station (Luxor by East 132 kV) located in Karnak, consists of 5 transformers including: 

2 transformers each of 32 MW 132/33 kV 


1 transformer of 20 MW 132/11 kV 

Total Station Power =124 MW 

33



2- Transformer Station (Luxor by West 33 kV) located in Gourna, consists of 1 transformer including: 

1 transformer of 15 MW 33/11 kV connected to Luxor station by east 132KV by a underwater 

cables under the Nile River 

Total Station Power = 15 MW 

3- Transformer Station (Luxor by East 220 kV) located in Karnak, consists of 4 transformers including: 



Total Station Power = 124 MW 

Water 

The existing water conditions and services in Luxor have been fully documented by the Secondary Cities 

project; (sections of this report have been excerpted in the annex in Volume 2 of this document.) 

The Markhaz of Luxor depends on wells’ water and filters. 

Compact Units: 13 compact units each of 100 M 3 /H distributed as follows: 

1. El Ashi 

2. El Zenyia 

3. Nag El Wehda 

4. El Edessat Bahri 

5. El Edessat Quibli 

6. El Dabiya No. 1 

7. El Dabiya No. 2 

8. El Aqualeta 

9. El Boairat 

10. Hosela (Gourna) 

11. Aggoura (Gourna) 

12. El Quibki Kamoula 

13. El Toad 

The following wells have been requested 

El Edessat and El Zenyia Villages 

Village # Diameter Depth in Cost L.E Pumping Total Cost 

in Inch M /M Head in M 

El Edessat (Soas) 1 10 80 400 15 45,000 

El Edessat (Elwan) 1 10 80 400 15 45,000 

El Edessat (Naddafen) 1 10 80 400 15 45,000 

El Zeiya Quibli 2 10 80 400 15 45,000 

El Zeiya Bahri 2 10 80 400 15 45,000 

Madamud 2 10 80 400 15 45,000 

Each well needs a Diesel Engine, Power of 40 HP and Pumping capacity of 25 L/S 

34



El Toad Village 

Village # Diameter Depth in Cost L.E Pumping Total Cost 

in Inch M /M Head in M 

El Toad (beside L.U.) 2 10 80 400 15 45,000 

El Toad (El Fatateeh) 2 10 80 400 15 45,000 

El Toad (El Noba) 1 10 80 400 15 45,000 

El Toad (Nag El Noba) 2 10 80 400 15 45,000 

El Toad (Nag El Tawil) 1 10 80 400 15 45,000 

All the 8 wells need 4 transformers, 

Power of 100 KW each. 

Water Pipe Network 

According to Plan of Rural Development Program (Sherouk) the following expenditures have been 

planned for fiscal year 1999/2000 

Village Budget in 1000 L.E. Notes 

Quibli Kamoula 80 5 Km Length, 4 Inch Diameter 

El Zenyia 140 5 Km Length, 6 Inch Diameter 

El Dabiya 88 4 Km Length, 4 Inch Diameter, 1 Km 6 Inch 

El Toad 45 3 Km Length, 4 Inch Diameter 

El Edessat 75 5 Km Length, 4 Inch Diameter 

El Aqualeta 112 4 Km Length, 6 Inch Diameter 

Wastewater 

The existing wastewater conditions and services in Luxor have been fully documented by the Secondary 

Cities project; (sections of this report have been excerpted in the annex in Volume 2 of this document.) 

However, the population in the Markhaz is principally served by Septic tanks for the disposal of 

wastewater. 

According to Plan of Rural Development Program (Shrouk) the following expenditures have been 

planned for fiscal year 1999/2000 

Village Budget in 1000 L.E. Notes 

Quibli Kamoula 33 Constructing of 10 Septic Tanks (1) 

El Zenyia 35 Constructing of 10 Septic Tanks (1) 

El Dabiya 45 Constructing of 100 Double Holes WC (2) 

El Edessat 120 Purchasing of wastewater disposal trucks (3) 

Note 

1. Septic Tank to serve a street or several streets of the village. 

2. This new project will be executed in El Dabiya Village first. This double tank system is presently 

being funded by donor assistance and is to be piloted in El Dabiya. 

3. This project will fund for the purchase of disposal trucks to draw the wastewater from the septic tanks 

35



4.3 Program Assumptions 

Table 1 summarizes key program elements. Demand for new development in the Luxor region will be 

largely driven by population growth, which will, in turn, be a function of employment growth. The 

employment in tourism and agriculture is the key determinant; both sectors are expected to increase less 

than the projections offered in the Phase I Structure Plan. 

4.3.1 Employment Growth 

Employment growth in the region is expected to be primarily a result of increase in the tourism and 

agriculture sectors. Since information from the 1996 census was unavailable, employment projections for 

existing and 2020 levels of employment were based on extrapolations from the 1986 census employment 

data and from the Phase I analysis, adjusted to current conditions and accommodating new information. 

Tourism-related Employment Growth 

The estimates of tourism-related employment growth have changed in comparison to the Phase I tourism 

projections due to a reduction in the assumed maximum annual number of visitors from that estimated in 

Phase I of the project, reflecting the policy that tourism targets should not exceed the realistic monument 

capacity which can be achieved within the time framework for the plan. The basis for this reduction is the 

estimated West Bank long-term monument capacity, as determined in the estimates of monument capacity 

contained in the Heritage Concept, presented in full in Annex 7 of Volume 2 of the Structure Plan. The 

following is a brief summary of the procedure used to determine this capacity (explained in full in Annex 

7). Based on visitor counts at East and West bank attractions and the determination that nearly all tourists 

visit both East and West Banks, the capacity of the West Bank tombs was determined to be the limiting 

factor determining maximum tourist volume. The maximum capacity of the West Bank tombs was 

computed based upon peak hour utilization, taking account of the practical limits of each existing tomb as 

well as the potential to substantially increase the number of tombs open to visitors. The Supreme Council 

on Antiquities provided estimates of visitation, based upon SCA’s assessment of acceptable visitor use 

and density. The peak hour volume was extrapolated to determine daily, monthly, and annual maximum 

visitation, based upon existing data about tourist visitation patterns. The estimate of monument capacity 

for 2020 is repeated in this chapter and is provided in Table 3. 

The number of tourist visitors in peak periods was used as a basis to estimate hotel room demand in 2020, 

based on several assumptions, including: 

(1) Experience in recent 1997 peak periods show hotels to be at an almost full capacity 

(2) The ratio of day visitors to overnight visitors will remain relatively constant 

(3) Approximately 100 cruise ships will be added to the current fleet serving Luxor and providing 

overnight capacity 

Table 4 indicates the demand for new hotel rooms in Luxor, based on these assumptions and on the total 

maximum tourist visitation that can be achieved within the limits of the estimated monument capacity. 

This table shows the effective room supply, with the increase in cruise ship fleet plus existing hotel 

rooms, as planned at 10,285 rooms. However, the existing effective room supply of 7,244 is assumed to 

be at full capacity with the 1997 tourist volumes. The estimated need for room increases may be 

computed by comparing the long-term potential peak day tourist volume to the 1997 peak day volume. 

Based on the aforementioned analysis of monument capacity (Table 3 in this report), the long-term 

maximum estimate is 28,875 visitors per day to the West Bank, as compared to 12,240 visitors per day in 

1997. The ratio of 28,875:12,240 can be applied to the 1997 effective overnight hotel room supply of 

7,244, yielding an estimated room demand of 16,883. Subtracting the planned room supply, taking 

36



account of the cruise boat expansion and planned hotel rooms in process, this indicates a net shortage of 

hotel rooms of 6,598, rounded to 6,600. This estimate is not significantly at variance with estimates, 

which have been promulgated by the Tourism Development Agency. Tourism sector employment has a 

significant effect on population, estimated to create one job per new hotel room in direct employment and 

five jobs per new hotel room in supporting services. This estimate, as noted above, is considerably below 

the projections from Stage I of this study, which had not adequately accounted for monument capacity. 

Agricultural Employment Related Growth 

Phase I had indicated a plan for the reclamation of up to 25,000 feddan for agriculture, a policy that has 

been adopted by the Ministry of Agriculture. Agriculture sector employment is estimated to create one 

job per each five feddan. 

4.3.2 Population Growth 

Population growth in the Luxor region is expected to result in approximately 375,000 new residents by 

2020. The lower growth rate is based on three factors: 

(1) Reduced new employment from tourism and agriculture, as explained above 

(2) Reduced household size in 2020 that is consistent with projections for nearby New Aswan 

(3) Increased labor force participation rate by the local population, women in particular 

Table 2 indicates the proposed distribution of population within the study area. The reduced estimate of 

population growth, as compared to Phase I, reflects the same policy of orienting growth towards new 

settlements, especially New Luxor, but also results in a population growth for Luxor City from 175,000 to 

225,000, a considerably smaller number than shown in Stage I. Based on these assumptions, Table 2 

indicates the distribution of population, employment, hotel rooms, and households within the overall 

study area and its sub-parts. 

4.4 Hotel Distribution and Type 

Table 4 shows the hotel demand, based on the adjusted tourist visitation estimates of the final Structure 

Plan, previously presented in Table 3. Based on qualitative assessment of the attractiveness of sites, as 

well as the policy that the bulk of new hotels should be located outside of Luxor City and to the south part 

of the study area, near the Luxor bridge, rooms were allocated to sub-areas in the region, as shown in 

Table 5. It is assumed that new construction will break down rather evenly among five-star, four-star and 

three-star accommodations. As Luxor increasingly positions itself as a major tourism destination, it is 

projected that approximately two out of every three new rooms constructed will be on the El Toad 

Plateau. 

4.5 Demand for New Facilities and Land 

The remaining tables attached to this memorandum provide the comprehensive program for new facilities 

in the Luxor region. Tables 6, 7, 8, and 9 indicate the demand for new facilities in Luxor City, New 

Luxor, the El Toad Touristic Village, and the remainder of the Markhaz, respectively. These estimates 

are based on services needed by the net new population and tourism levels between now and 2020. Needs 

are estimated for Public Facilities and Services, Commercial and Light Industrial Uses, Agriculture and 

Open Space, Parking, Housing, and Tourism Lodging. A final category, the Tourism Services Program, 

is specific to the El Toad Plateau only. 

37



Underlying the program for new facilities is the assumption that new growth in each sub-area will likely 

take a very different form, consequently the standard and demand for new facilities varies. El Toad is 

envisioned as a tourism zone with hotels, supporting services, and a very small number of affluent 

residents. New Luxor is envisioned as a new town development, comparable to other new town plans in 

the south of Egypt, such as New Aswan. New growth in Luxor City is expected to include in-fill 

development and new development areas along the southern border of the city. In the remaining areas of 

the Markhaz, additional growth will likely be rural in character and located in scattered villages. 

The demand for facilities and services has been differentiated between the urban development expected in 

Luxor City and New Luxor, and the scattered settlement development expected in the remaining areas of 

the Markhaz. Within both New Luxor and Luxor City, facilities at different “units” of organization: 

(1) Neighborhood Centers, serving approximately 8,000 residents. 

(2) District Centers, serving approximately 24,000 residents. 

(3) Within New Luxor, a City Center serving the entire new community of 200,000. 

For each type of center, a mix of activities has been recommended to serve the needs of its population for 

both public services and commercial activity. The Neighborhood and District Centers in Luxor City will 

be comparable to those estimated in New Luxor. However, these centers in Luxor City will serve both 

new residents and existing neighborhoods, and should be reviewed at the time of construction to adjust 

their program to address specific deficiencies in the service area. The following tables summarize these 

recommendations: 

(1) Table 10 – indicates the detailed program of uses recommended for the New Luxor City Center, 

serving an ultimate population of 200,000 

(2) Table 11 – provides a summary program of land requirements for the New Luxor City Center 

(3) Table 12 – provides a detailed program of uses for a typical District Center for either New Luxor or 

Luxor City, serving a population of approximately 23-25,000 

(4) Table 13 - provides a summary program of land requirements for a typical District Center for either 

New Luxor or Luxor City, serving a population of approximately 23-25,000. 

(5) Table 14 and Table 15 – provides a detailed program of uses and program of land requirements for a 

typical Neighborhood Center for either New Luxor or Luxor City, serving a population of 

approximately 8,000 

Standards used to determine demand for facilities per population and the size required for facilities in all 

areas are based on comparable new developments in the south of Egypt, such as New Aswan and New 

Thebes, and general planning standards for facilities and services in new development areas. 

38



Table 2: Key Program Elements: Comprehensive Development Plan for the Luxor Region 

New Luxor El Toad Plateau Luxor City Remainder of 

Markhaz 

Total, for Luxor 

Study Area 

Population 

Existing 0 0 175,000 185,000 360,000 

Proposed, 2020 200,000 2,000 225,000 307,000 734,000 

New, 1999-2020 200,000 2,000 50,000 122,000 374,000 

Exist. Emp. (by sector) 

Hotel Employment 7,244 

Hotel-supporting service 36,220 

Other 35,988 

Total Existing 

79,452 

('96est.) 

New Emp. (by sector) 

Hotel Employment 700 4,500 500 900 6,600 

Hotel-supporting 

3,750 22,500 2,500 4,250 33,000 

services 

Agriculture 5,000 5,000 

Other - 21,000 

Total New, 1999- 

2020 

4,450 27,000 3,000 10,150 65,600 

Housing 

People/HH 4.00 4.00 4.00 

New Housing Units 47,700 500 12,500 30,500 89,527 

Hotels 

New Rooms 700 4,500 500 900 6,600 

Number of hotels 3 18 2 4 27 

Reclaimed Agricultural Land (Feddan) 25,000 25,000 

39



Table 3: Estimate of West Bank Visitation, Based on Monument Capacity 

Valley of the Kings 

West Bank, Overall 

Peak Hour 

10 Hour Day 

Maximum 

10 Hour Day 

Likely 

10 Hour Day 

Likely 

Peak Month 

Likely 

Annual Visitors 

Site 

Increase, 

Extended Hours 

Units Assumptions Existing Short Term Long-term Existing Short Long-term 

Term 

Tomb 

visitorhours 

Tomb 

visitorhours 

Tomb 

visitorhours 

West Bank 

visitors 

West Bank 

visitors 

West Bank 

visitors 

West Bank 

visitors 

Available visithours 

Actual visithours 

1 tomb visithour 

Peak Day, % of 

Month 

Peak Month, % 

of Year 

Extend to 16 

hours 

958 1,333 1,483 1,656 2,789 3,850 

9,580 13,330 14,830 16,560 27,890 38,500 

75.0% 7,185 9,998 11,123 12,420 20,918 28,875 

=4hour 7,185 9,998 11,123 12,420 20,918 28,875 

visit 

5.0% 143,700 199,950 222,450 248,400 418,350 577,500 

14.0% 1,026,429 1,428,214 1,588,929 1,774,286 2,988,214 4,125,000 

35.0% 1,385,679 1,928,089 2,145,054 2,395,286 4,034,089 5,568,750 

Note 1: Assume that West Bank tomb capacity defines overall capacity 

Note 2: Assume each visitor spends 1 hour inside tombs; 3 tomb-visits at 20 minutes. 

Therefore, each tomb visit-hour equals 1 West Bank visitor 

40



Table 4: Estimated Hotel Demand, 2020 

Hotels in Luxor Cruise Ships (rooms Total 

Notes 

Study Area divided by 3) 

Existing Hotel Room Supply 3,858 3,386 7,244 includes Mövenpicke--334 

additional rooms 

1997 Tourists/day=12,420 

Planned Additions to Hotel Room Supply 

Add 100 cruise ships likely 1,693 1,693 

Add rooms planned 1,348 1,348 

Sub-total, Supply 5,206 5,079 10,285 

2020 Hotel Room Demand 

Total Room Demand, based on 

increased capacity of West Bank 

tombs in 2020 

Tourists/day=28,875 

Required additional rooms in 

Study Area 

11,804 5,079 16,883 

6,598 0 Rounded = 6,600 

Approximate Distribution of Estimated New Rooms: 

Luxor City 500 

New Luxor 700 

Other Markhaz 900 Khuzam, 600; West Bank, 300 

Khuzam 600 

Other West Bank 300 

El Toad 4,500 

Total 6,600 

Plus rooms already planned or started in Luxor City 1,348 

Table 5: Distribution of New Hotels 

Breakdown by Hotel Type 

Totals 

Five Stars Four Stars Three Stars New Hotels New Rooms 

Typical Size, 300 250 200 

rooms/hotel 

Luxor City 2 2 500 

New Luxor 2 1 3 700 

El Toad 7 4 7 18 4,500 

Other Markhaz 2 2 4 900 

Totals 7 10 10 27 6,600 

41



Table 6: New Facilities Needed in Luxor City, 2020 

Assumed new population, current 

to 2020= 

Assumed new hotel rooms, current 

to 2020= 

Region Luxor 

Total City 

374,000 50,000 

6,600 500 

* Total Land Area is ratio of New 

population to service standard 

number 

of 

facilities 

Demand for New Facilities Size of Each Facility Total Land Area 

Required * 

population units 

served by 

each 

building 

area (m2) 

land area 

(feddan) 

(feddan) 

Public Facilities & Services: 

Education 

Technical School 1 100,000 per school 5,880 5.14 2.57 agriculture and tourism trades 

Secondary School 2 24,000 per school 3,050 2.50 5.21 540 pupils per school 

Primary School 13 4,000 per school 3,500 2.55 31.88 765 pupils per school 

Nursery & Kindergarten 25 2,000 per facility 135 0.14 3.50 100 children per facility 

Government 

District Service Facilities 2 24,000 per facility 1,650 0.80 1.67 Branch post offices, police stations, etc. 

Cultural (urban areas only) 

Neighborhood Center Religious 6 8,000 per facility 1,240 0.44 2.75 neighborhood mosque 

District Center Religious 2 24,000 per facility 2,950 1.10 2.29 mosque (2200m2); church(750m2) 

District Cultural Center 2 24,000 per facility 2,300 1.10 2.29 library, theater, exhibitions, mtg. space 

Health 

Urban District Center Clinic 2 24,000 per facility 750 0.30 0.63 

Urban Commercial: 

Neighborhood Center 6 8,000 per center 2,060 0.98 6.13 retail services only 

District Center 2 24,000 per center 7,900 4.40 9.17 retail, professional services 

Recreation & Open Space: 

Neighborhood Parks 6 8,000 per park 3.81 23.81 playgrounds; open space 

District Parks 2 24,000 per park 5.50 11.46 sports courts, fields; open space 

Cemeteries 2 24,000 per cemetery 

Parking 

Neighborhood Center 6 8,000 per parking lot 0.39 2.44 25m2/car; 65 car capacity 

District Center 2 24,000 per parking lot 0.89 1.85 25m2/car; 150 car capacity 

Housing: 

High Income 1,608 4 per household 112 0.06 95.65 hh income above LE 7000/yr 

Middle Income 3,929 4 per household 90 0.05 187.01 hh income between LE 5000-7000/yr 

Low Income 6,964 4 per household 68 0.04 248.61 hh income between LE 3000-5000/yr 

Tourism Lodging: 

Hotel (4 star) 2 250 avg. 

4,583 7.28 14.55 area per rm=55m2; 15% site coverage 

rooms/hotel 

Developed Land 653.44 

Infrastructure (15% of Developed Land Total) 98.02 

Total 751.46 

Notes 

42



Table 7: New Facilities Needed in New Luxor, 2020 


to 2020= 

Assumed new hotel rooms, current 

to 2020= 

Region Total New Luxor 

374,000 200,000 

6,600 700 

Demand for New Facilities Size of Each Facility Total Land 

Area 

Required 

number of 

facilities 

population units 

served by each 

building 

area 

(m2) 

land area 

(feddan) 

(feddan) 

Public Facilities: 

Education 

Technical School 2 100,000 per school 5,880 5.14 10.28 agricultural trades and tourism training 




Government 

per facility 

Relocated Offices per facility 20 

Urban District Services 8 24,000 per facility 1,650 0.80 6.67 Branch post offices, police stations, 

etc. 

New Luxor City Center Services 1 200,000 per facility 10,500 4.13 4.13 Main post office, police station, etc. 


Neighborhood Center Religious 25 8,000 per facility 1,240 0.44 11.00 neighborhood mosque 

District Center Religious 8 24,000 per facility 2,950 1.10 9.17 mosque (2200m2); church(750m2) 

New Luxor City Center Religious 1 200,000 per facility 8,100 2.90 2.90 mosque (5600m2); church(2500m2) 

District Cultural Center 8 24,000 per facility 2,300 1.10 9.17 library, theater, exhibitions, mtg. space 

New Luxor City Cultural Center 1 200,000 per facility 4,200 2.00 2.00 700 seat cinema; 500 seat theater 

Health 

Urban District Center Clinic 8 24,000 per facility 750 0.30 2.50 

New Luxor Special Clinic 1 200,000 per facility 1,400 0.67 0.67 

New Luxor Public Hospital 1 200,000 per facility 5,000 2.00 2.00 400 bed hospital 

New Luxor Private Hospital 1 200,000 per facility 5,000 2.00 2.00 400 bed hospital 

Commercial: 

Neighborhood Center Commercial 25 8,000 per center 2,060 0.98 24.50 retail services only 

District Center Commercial 8 24,000 per center 7,900 4.40 35.20 retail; professional services 

New Luxor City Center 

1 200,000 per center 23,300 9.30 9.30 retail; office; professional services 

Commercial 

Light Industrial: 

Workshops, relocated 550 workshops 75 0.02 13.10 commercial trades 

Workshops, new 450 workshops 75 0.02 10.71 commercial trades 

Small Manufacturing, Warehousing, etc. facilities 243.80 

Agro-Processing Facilities 3 facilities 6.67 20 

Recreation & Open Space: 

Neighborhood Parks 25 8,000 per park 3.81 95.25 playgrounds; open space 


New Luxor City Center Park 1 200,000 per park 18.00 18.00 stadium; gyms; sports courts, fields 

Cemeteries 8 24,000 per cemetery 

Parking: 

Neighborhood Center 25 8,000 per parking lot 0.39 9.75 25m2/car; 65 car capacity 

District Center 8 24,000 per parking lot 0.89 7.12 25m2/car; 150 car capacity 

New Luxor City Center 1 200,000 per parking lot 2.38 2.38 25m2/car; 400 car capacity 

Housing: 

High Income 5,055 per 

112 0.06 300.77 hh income above LE 7000/yr 

household 

Middle Income 16,185 per 

90 0.05 770.41 hh income between LE 5000-7000/yr 

household 

Low Income 26,460 per 

68 0.04 944.62 hh income between LE 3000-5000/yr 

household 




rooms/hotel 



rooms/hotel 



Total 3233.62 

Notes 

43



Table 8: New Facilities Needed in El Toad, 2020 

Assumed new population, 

current to 2020= 

Assumed new hotel rooms, 


Region 

Total 

El-Toad 

Plateau 

374,000 2,000 

6,600 4,500 

number 

of 

facilities 

Demand for New Facilities Size of Each Facility Total Land 

Area 

Required 

population 

served by 

each 

units 

building 

area (m2) 

land area 

(feddan) 

(feddan) 


Education 

Nursery & Kindergarten 1 2,000 per facility 135 0.14 0.14 NA std: 100 children per facility 

Housing: 

High Income 500 4 per household 112 0.06 29.75 hh income above LE 7000/yr 


Hotel (5 star) 7 300 avg. rooms/hotel 7,000 16.67 116.67 area per rm:70m2; 10% site coverage 

Hotel (4 star) 4 250 avg. rooms/hotel 4,583 7.28 29.10 area per rm=55m2; 15% site coverage 

Hotel (3 star) 7 200 avg. rooms/hotel 3,000 3.57 25.00 area per rm=45m2; 20% site coverage 

Tourism Services: 

Tourism- Shared Recreation 

Sports Hall (indoor) 1 facility 2,000 1.19 1.19 Gym, fencing, etc. 

Outdoor Pool 1 facility 0.89 0.89 hotel pools additional 

Tennis Courts 9 500 rooms per facility 0.71 6.43 

Sports Courts 5 1,000 rooms per facility 0.60 2.68 basketball, volleyball 

Sports Fields 1 facility 2.05 2.05 Soccer, etc. 

Playgrounds 10 450 rooms per facility 0.77 7.74 

Horse Riding Area 1 facility 3.00 3.00 25 horses and supporting services 

Mini-Golf 1 facility 1.19 1.19 

Golf Course 1 facility 167.00 167.00 18 hole course 

Tourism- Cultural Facilities 

25% site coverage 

General Facility 1 facility 1,155 1.10 1.10 library; multi-purpose hall; exhibition 

space 

Museum 1 facility 1,000 0.60 0.60 

Cinemas (outdoor) 1 facility 1,000 0.60 0.60 1000m2 cinema with 1000 seats 

Theater (outdoor) 1 facility 250 0.15 0.15 250m2 for 250 seats 

Night Club 1 facility 300 0.18 0.18 

Tourism- Public Service Facilities 


Visitor Center 1 facility 1,000 0.60 0.60 

Administrative Center 1 facility 0 0.00 0.00 information, administration and 

maintenance center 

Communications Center 1 facility 800 0.48 0.48 Post office, etc. 

Security Service Center 1 facility 1,200 0.71 0.71 Police, fire, etc. 

Tourism- Commercial Services 


Retail shops 30 150 guests/shop 1,800 1.07 32.14 60m2/shop 

Restaurants 5 1,000 guests/restaurant 500 0.30 1.34 500m2, 100 seats each facility; daily 

cycle of 2.5 each rest. 

Cafes 5 1,000 guests/café 325 0.19 0.87 325m2 avg. size 

Central Services 1 facility 1,400 0.83 0.83 Laundry, maintenance, etc. 

Tourism- Transportation 


Intermodal Facility 1 facility 13,000 3.10 3.10 distribution center for cars and coaches 

Service Station 1 facility 3,000 0.71 0.71 fuel, service and maintenance center 

Parking (services area) 1 parking lot 2.38 2.38 bus & car arrival area parking; hotel 

parking additional 



Total 504.40 

Notes 

44

Table 9: New Facilities Needed in Remaining Areas of Markhaz, 2020 



Assumed new population, 


Assumed new hotel rooms, 


Region 

Total 

Other 

Markhaz 

374,000 122,000 

6,600 900 

number 

of 

facilities 

Demand for New Facilities 

population unit 

served by 

each 

Size of Each 

Facility 

building land area 

area (feddan) 

(m2) 

Total Land 

Area 

Required 

(feddan) 


Education 

Technical School 1 100,000 per school 5,880 5.14 6.27 agricultural trades and tourism training 




Government 

Relocated Offices per facility 20.00 

District Service Facilities 5 23,000 per facility 1,650 0.80 4.24 Branch post offices, police stations, etc. 

Health 

Rural Village General 

5 23,000 per facility 750 0.30 1.59 

Clinic 

Commercial: 

Village Commercial 122 1,000 per shop 60 ad hoc neighborhood commercial 

Light Industrial: 

Workshops, relocated 550 workshops all current Luxor City workshops removed 

Workshops, new 450 workshops to be located in New Luxor and Other Markhaz 

only 

Agro-Processing Facilities 4 facilities 6.67 26.68 to be located in agricultural villages 

Housing: 

High Income 3,922 4 per household 112 0.06 233.38 hh income above LE 7000/yr 

Middle Income 9,586 4 per household 90 0.05 456.30 hh income between LE 5000-7000/yr 

Low Income 16,992 4 per household 68 0.04 606.60 hh income between LE 3000-5000/yr 



rooms/hotel 

4,583 7.28 14.55 area per rm=55m2; 15% site coverage; 1/3 total 

new rooms 


rooms/hotel 

3,000 3.57 7.14 area per rm=45m2; 20% site coverage; 1/3 total 

new rooms 



Total 823.81 

Reclaimed Agricultural Land 25,000 Ministry of Agriculture 

Notes 

45



Table 10: New Luxor City Center Development Program and Land Use Distribution, 2020 

New 


to 2020= 

Luxor 

200,000 

Population served by City Center = 200,000 

Demand for New Facilities Size of Each Facility Total Land Area Required Notes 

number population units 

building land area totals by subcategory 

totals by 

of 

facilities 

served by 

each 

area (m2) (feddan) 

(feddan) 

category 

(feddan) 

Public Facilities & Services: 44.98 

Education 

Technical School 2 100,000 per school 5,880 5.14 10.28 agricultural trades and tourism 

training 

Government 

Relocated Offices per facility 20.00 20.00 

New Luxor City Center Services 1 200,000 per facility 10,500 4.13 4.13 Main post office, police station, 

etc. 


New Luxor City Center Religious 1 200,000 per facility 8,100 2.90 2.90 mosque (5600m2); 

church(2500m2) 

New Luxor City Cultural Center 1 200,000 per center 4,200 2.00 2.00 700 seat cinema; 500 seat theater 

Health 

New Luxor Special Clinic 1 200,000 per facility 1,400 0.67 0.67 

New Luxor Hospital 1 200,000 per facility 10,500 5.00 5.00 400 bed hospital 

Commercial: 9.30 

New Luxor City Center 1 200,000 per center 23,300 9.30 9.30 retail; office; professional services 

Light Industrial: 1.19 assumes 75% site coverage 

Workshops (commercial trades) 50 200,000 per center 75 0.02 1.19 

Recreation & Open Space: 18.00 

New Luxor City Center Park 1 200,000 per park 18.00 18.00 stadium; gyms; sports courts, fields 

Parking: 2.38 

New Luxor City Center 1 200,000 per parking 

2.38 2.38 25m2/car; 400 car capacity 

lot 

Tourism Lodging: 18.12 


rooms/hotel 

13,750 7.28 14.55 area per rm=55m2; 15% site 

coverage 


rooms/hotel 

9,000 3.57 3.57 area per rm=45m2; 20% site 

coverage 



Grand Total 108.06 

46

Table 11: New Luxor City Center Program Summary, 2020 



Total Land Area Required 

totals by sub-category (feddan) totals by category (feddan) 

City Center Services Area 73.97 

Public Facilities & Services 24.98 

Commercial 9.30 

Workshop 1.19 

Tourism Lodging 18.12 

Park 18.00 

Parking 2.38 

Total 73.97 

Infrastructure 11.10 

(15% of Developed Land Total) 


47



Table 12: Typical District Level Development Program and Land Use Distribution, Luxor City and New 

Luxor 

Assumed new urban 

population, current to 

2020= 

Luxor New Luxor Total 

City 

50,000 200,000 250,000 

Approximate population 

per district = 

Approximate number of 

new districts = 

24,000 24,000 24,000 

2 8 10 

Demand for New Facilities (per 

district) 

number population units 

of served by 

facilities each 

Size of Each 

Facility 

building 

area 

(m2) 

land 

area 

(feddan) 

Total Land Area 

Required 

totals by 

subcategory 

(feddan) 

totals by 

category 

(feddan) 

Public Facilities & 

5.80 

Services: 

Education 


Government 

Urban District Services 1 24,000 per facility 1,650 0.80 0.80 Branch post offices, police 

stations, etc. 

Cultural (urban areas 

only) 

District Center Religious 1 24,000 per facility 2,950 1.10 1.10 mosque (2200m2); 

church(750m2) 

District Cultural Center 1 24,000 per center 2,300 1.10 1.10 library, theater, exhibitions, mtg. 

space 

Health 

Urban District Center 

1 24,000 per facility 750 0.30 0.30 

Clinic 

Commercial: 4.40 

District Center 1 24,000 per center 7,900 4.40 4.40 retail; professional services 

Light Industrial: 1.19 assumes 75% site coverage 

Workshops (commercial 50 24,000 per center 75 0.02 1.19 

trades) 

Recreation & Open Space: 5.50 


Parking: 0.89 

District Center 1 24,000 per 

0.89 0.89 25m2/car; 150 car capacity 

parking lot 




Notes 

48



Table 13: Typical District Service Center Land Requirements, Luxor City and New Luxor 


(per district center) 

totals by sub-category totals by category (feddan) 

(feddan) 

District Services Center 17.78 

Public Facilities & Services 5.80 


Parks 5.50 

Parking 0.89 

Workshops 1.19 

Total 17.78 




Table 14: Typical Neighborhood Unit Program Summary, Luxor City and New Luxor 



(feddan) 

Neighborhood Service Center 7.97 

Neighborhood Mosque 0.44 


Primary School 5.10 

Nursery & Kindergarten 0.56 

Parking 0.39 

Park 0.50 

Residential Areas 95.00 

Housing 85.00 

Open Space 10.00 

Total 102.97 




49



Table 15: Typical Neighborhood Service Center Land Requirements, Luxor City and New Luxor 


(per service center) 


(feddan) 

Service Center 2.31 

Neighborhood Mosque 0.44 


Parking 0.39 

Park 0.50 

Total 2.31 




50



Chapter 5: 

The Regional Structure Plan 

5.1 Overview of the Structure Plan 

5.1.1 A Regional Strategy 

As presented in Chapter 2 and further summarized in Chapter 3, the plan for the Luxor region combines a 

philosophy of resource protection with strategies for positively directing new growth. These two 

philosophies will lead to a sustainable region by 2020, where population has doubled to approximately 

750,000, where tourism has increased to manageable levels, and where growth is directed to appropriate 

locations. This strategy, based upon resource stewardship, will result in better experiences for those who 

are attracted to visit the treasures of Luxor and better lives for current and future residents. Highlights of 

this regional strategy are reviewed below, followed by detailed sections on the elements of the plan. 

Protect and Enhance Resources 

The first priority of the plan must be to protect and enhance the key resources of the region, including the 

heritage resources within designated antiquity areas as well as the agricultural and the environmental 

systems upon which the region depends. Figure 1 indicates the location of key heritage, landscape, and 

environmental resources that have become important factors in the plan. 

The key strategies for management and improvement of heritage resources include: 

(1) Preservation, to protect the key antiquities sites and settings that make Luxor unique – Luxor’s 

historic resources are the magnets that draw visitors; if these resources are not protected, the 

Comprehensive Development Plan, however well-intentioned, will fail. Preservation efforts should 

deal with individual monument and antiquity sites, the surroundings of each monument, and the 

regional landscapes that place each monument in a larger context. 

(2) Interpretation, to define means and methods to convey to visitors an overview of the importance of 

Luxor – Interpretation will also explain the specific story of each individual monument and site. If 

the historical context and achievements of Luxor and the purpose/significance of the sites are made 

understandable, both visitors and residents will appreciate and respect these resources. 

(3) Improvements to enhance the visitor experience and better protect the monuments – Site 

improvements should include parking, transportation, pedestrian improvements, on-site visitor 

comfort facilities, circulation and access within monument areas, volume controls (where 

appropriate), lighting to extend visitor hours, and maintenance. Related area development may 

include visitor accommodations and support facilities (such as hotels, shopping, and related support 

facilities). Standards are necessary for new and rehabilitated development that adjoins antiquity sites, 

to ensure that the context of each site is protected. 

(4) Delineation of the Luxor “Open Museum and Heritage District,” to create a cohesive and enhanced 

historical zone that will protect resources and accommodate additional tourists – The District, 

defined in Figure 7, will include the area roughly defined between the Winter Palace in the south to 

the canal 800 meters north of Karnak Temple, encompassing an area east-west that includes the 

primary souq east of the Avenue of the Sphinxes to the Nile in the west. The core of this region is a 

significant historical area that is being negatively impacted by a lack of open space, deteriorating 

infrastructure, and increasing congestion from ad-hoc development. There is a distinct opportunity to 

create a 3-kilometer long historical zone that would include completion of the Kebash Avenue 

(Avenue of the Sphinxes) restoration, and extension of the Karnak Temple restoration to include 

lands surrounding it to the Nile and around the Temple of Mut. Resource protection should be 

coupled with arrangements for voluntary relocation of structures encroaching on monument areas, 

51



and introduction of new compatible uses within the Open Museum and Heritage District to establish a 

unique extensive tourism zone. 

(5) Preservation of the historical ambiance and cultural setting of Luxor – Key resources, which can be 

taken for granted, include the larger setting of the Nile, agricultural lands, desert, and low-scale 

human settlements. The physical setting of Luxor greatly enhances the historical significance of the 

area. The viewshed from the East Bank across the Nile, particularly from Luxor City, should be 

preserved, which would include maintaining the West Bank in its present low-scale traditional 

architecture and relocating cruise ship docking from the Corniche. The agricultural lands around 

Luxor City need to be preserved and informal development controlled. Settlements in the West Bank 

Protection Zone buffer area should be retained, as they are traditional and increase interest about the 

West Bank; however, guidelines should be strictly enforced to assure that traditional architecture is 

preserved. Since the setting of Luxor is one of its greatest assets, its preservation should receive 

significant attention in the Comprehensive Development Plan. 

(6) Creative and responsible West Bank antiquities resource utilization and management – Additional 

tombs and monuments can be restored to increase their attractiveness, and existing monuments can be 

protected and better utilized in order to accommodate projected visitor volumes over the next 20 

years. There are over 500 tombs on the West Bank, but only 40 are currently open to the public. 

Restoring additional tombs and better promoting other monuments on the West Bank that are not 

frequently visited will accommodate increases in visitor volumes expected to reach up to 4.1 million 

persons annually in 20 years, representing the practical estimated tourist capacity of the study area. 

This should include planned relocation of residents from Old Gourna, restoration of tombs beneath 

presently populated areas, and retention of two villages (with few tombs beneath) for a touristic and 

economic base for residents of Old Gourna after relocation. The existing tombs must be preserved, 

which will include humidity and rainwater mitigation measures and proper ventilation being 

retrofitted. Visitor volume controls will disperse tourists and prevent over-utilization of some of the 

more popular monuments. Lighting major monument areas will extend visitor hours and relieve some 

of the overcrowding during current peak periods. 

(7) Improved visitor information and services – There should be two visitor centers in Luxor: one on the 

East Bank, in conjunction with the Open Museum, and a second on the West Bank. These are 

identified in Figure 5. Each visitor center would include interpretative facilities to explain the 

history and cultural sites of Luxor. The centers would also provide information to visitors on 

planning their trips and would serve as launching points for tours. These locations would provide for 

bus parking to relieve congestion and could be central stops for ecologically positive bus shuttle 

systems to sites. A bus shuttle linking key tourist attractions on the East Bank, including Luxor 

Temple, Karnak Temple, the Corniche, a new Visitor Center, and sites along the restored Avenue of 

the Sphinxes could enable reduced traffic impacts of tourists on the City and increased visitor choice 

and flexibility of visit timing and sequence. These concepts are amplified in the Heritage Concept of 

Annex 8 in Volume 2 of this Plan, as well as in the reports on Investment Project #6, The Luxor City 

Open Museum and Heritage District. The visitor centers could also have a computerized central 

ticketing function that would allow for visitor volume controls at sites. 

The natural environment and cultivated agricultural lands of Luxor are closely intertwined and represent 

natural, cultural, and economic resources of great significance. It is important that long-term 

development plans be shaped to protect the natural resources of Luxor and to locate activities that take 

account of available water supply and land suitability. Key strategies for the protection and best use of 

Luxor’s environmental and land resources include: 

(1) Agricultural Land Preservation – Agriculture is an essential part of the region’s economy and the 

way of life for Luxor residents. Preservation of current agricultural lands outside Luxor City is 

required by Egyptian Law, and is essential to retaining economic viability and preserving the region’s 

landscape. The plan should discourage additional urbanization outside the Luxor City area, a 

52



measure which would, in turn, preserve agricultural land from inappropriate absorption into 

settlements. 

(2) Agricultural Expansion through Reclamation – Plans for the reclamation of 25,000 feddan of 

reclaimed cultivated land will significantly increase agricultural lands in Luxor. In addition, 500,000 

feddan of reclaimed land is planned for agricultural production in the New Mubarak Valley, located 

to the south between Luxor and Aswan. These reclaimed agricultural lands are planned to promote 

high-value crops for export, and this volume will provide the basis for establishing agro-industries for 

agricultural processing and air shipment to Europe and the Middle East. A new Nile River port in 

Luxor could also support river barge shipment of crops to ports on the Mediterranean. This new 

agricultural production will significantly increase employment in Luxor, and will also be consistent 

with the plan’s resource preservation principles. Where site and soil conditions permit, this land 

should be located in close proximity to planned desert reclamation for new settlements, enabling the 

“greening” of the desert as an amenity for new urban uses. 

(3) Protection of Other Sensitive Lands – Wadis, quarry areas with mineral deposits, and the water 

resources of the region, are shown in Figure 1 and are all sensitive environmental assets that must be 

factors in resultant decisions of the plan. Based on information acquired during the Plan’s 

preparation, new developments have been located on sites that are not typically suitable for 

agricultural use. Wadis and sensitive environmental sites have been avoided, and the scale and type 

of development has been specified to respect the environmental capacities and limits of the region. 

Manage and Direct Regional Growth 

Resulting from the resource preservation priorities, the plan recommends managing regional growth by 

channeling public and private resources into development priority areas that are carefully selected to 

minimize resource impacts. Figure 2 shows the Regional Structure Plan, indicating the areas that have 

been selected for future growth, each carefully chosen to fulfill several criteria: 

(1) Reduce pressure for new development in Luxor City – Luxor City has limited land area, and further 

development will either press outwards towards the agricultural lands at the city’s perimeter or 

encroach on the pivotal monument zone. Today, Luxor City is home to approximately 50% of the 

population of the study area. With a doubling of regional population, it is unacceptable for this 

concentration to continue. Accordingly, the regional population growth strategy, as presented in 

Chapter 4, has the objective of limiting the growth of new population within Luxor City through 

2020, to a number that can be absorbed at reasonable and appropriate urban densities. This results in 

new population of 50,000 to Luxor City, or approximately 15% of the anticipated new growth. Such 

a dramatic shift will require intense and coordinated efforts. Accomplishment of this significant 

redistribution will require serious and sustained public policy and fiscal commitments to implement 

the recommendations in this structure plan. 

(2) Efficiently use existing and proposed infrastructure – The two most significant improvements that 

will affect the region are the new Luxor Bridge, connecting East and West Banks and linking 

important tourist destination, and the proposed expanded wastewater treatment facility expansion, 

which has the potential to modernize infrastructure through the 2020 period. Both of these facilities 

are located to the south of Luxor, along the axis where the most powerful growth of Luxor City has 

been experienced. It is logical and desirable that the principal direction of growth for the urban area 

will be towards the south of the existing city. 

(3) Scope and locate new ventures to reinforce existing measures and support other initiatives – A major 

problem for Luxor, and for any region subject to conflicting desires and pressures, is the lack of 

coordination in public investment and public policies which are contrary to one another. To remedy 

this problem, the plan recommends several major improvement initiatives along the southerly growth 

corridor—including the major new settlement of New Luxor, the El Toad Touristic Zone, and the 

proposed cruise ship port and touristic area—where public services and transportation improvements 

can be logically clustered. These areas, in close proximity, can be planned to functionally and 

economically support one another. 

53



(4) Guide new development to areas where existing problems can be solved – This principal is 

particularly important within the boundary of Luxor City, which is feeling growth pressures at its 

edges. To the north edge of the city, increasing urbanization in the Karnak Temple vicinity has 

encroached upon the historic resources. To the south of the city, rapid growth along the Television 

Street corridor is occurring, outstripping available infrastructure. To the east of the railroad line, 

significant development has occurred which is poorly linked to the remainder of the city, interwoven 

with remaining agricultural and village settlements. New initiatives, shown in Figure 7, are proposed 

in all three areas to address these problems. 

(5) Plan for growth in areas where adverse impact can be mitigated or avoided – The environmental 

analysis performed in Phase I of the study identified ecologically and agriculturally valuable lands 

where development should not occur. This analysis has been used as a guide for the 

recommendations. 

(6) Locate new urban growth and tourism uses in areas that will be desirable to investors and users – In 

all cases, the recommendations have attempted to place new uses in locations which are logical from 

an infrastructural and environmental point of view, and are also in locations which will be acceptable 

to future users, as noted in the aforementioned points. 

Achievement of this targeted growth strategy will require careful and systematic public policies and 

supportive private actions. 

5.1.2 Coordinated Action Areas 

Figure 2 indicates the key Action Areas for development, resulting from the regional strategy. Within 

and adjacent to each area, substantial infrastructure and public facility improvements have also been 

identified. These areas are amplified in the sections and chapters that follow, and include: 

(1) Existing Settled Areas (shown in Figure 7) 

North Luxor/Karnak Area – urban infill and supportive services 

Central Luxor and Open Museum – heritage preservation, tourism, and supportive uses 

East Luxor -- urban infill and supportive services 

South Luxor City -- urban infill and supportive services 

Other Markhaz Areas – support and services for existing agricultural and other settlements 

(2) New Development Areas, Shown in Figures 20, and 28) 

New Luxor – community of 200,000 

Agricultural Villages - new settlements of 8-10,000 nearby cultivated areas 

El Toad Touristic Zone – coordinated development for 4,500 hotel rooms 

Cruise Ship Port – facility to enable expansion of cruise ship operations, improved sanitation 

New Thebes and Vicinity – completion of planned new settlement and surrounding area 

5.2 Structure Plan Elements to Protect and Enhance Resources 

5.2.1 Preserve and Interpret Heritage Resources 

East Bank 

Major concepts for the East Bank resources and their expanded settings have been presented in the 

Heritage Section of the Phase I Report. These heritage concepts include circulation, park and open space, 

preservation and development zones, and associated visitor services. Key elements were recommended 

for further discussion and refinement in subsequent study phases. Chapter 6 on Luxor City provides a 

more detailed description of the major actions of the East Bank, which are summarized below, and shown 

in Figures 9-13: 

54



(1) The Open Museum Area – The area between Luxor and Karnak Temples and the Nile River, 

incorporating some adjacent areas of the city, will be changed by the restoration of the Avenue of the 

Sphinxes. These developments will provide an opportunity to improve the core of Luxor City, 

developing the look and feel of an “open museum.” Within this area, there is a signif icant 

concentration of public property that could be redeveloped for cultural facilities and tourist support 

services. New museums, green spaces, and carefully located and designed commercial and tourist 

support development would be implemented in this region. The overall district should be designed to 

complement the Avenue of the Sphinxes project and its edges, ensuring effective links to existing city 

districts and facilities, and strengthening links to existing souqs and retails areas. Existing 

neighborhoods would be retained, where possible, in conjunction with the overall concept. 

(2) East Bank Visitor Center – This facility would be a point of orientation, information, and overall 

interpretation for the regional resources of Luxor. The visitor center will be a major facility which 

incorporates highly centralized information and powerful multi-media overview interpretation about 

Luxor’s history and attractions. It will be a potential source of substantial revenue through the 

services and retail opportunities that could be incorporated into its design. The visitor center would 

also provide a space for management of tourist services and volumes, enabling monument capacities 

to be respected. 

(3) East Bank Tourist Shuttle – A tourist shuttle loop should be provided to allow visitors who elect to 

walk portions or the entirety of the Avenue of the Sphinxes, to return to their point of origin. The 

shuttle should stop at Luxor Temple, Karnak Temple, the East Bank Visitor Center, and other sites 

along the Avenue of the Sphinxes and Corniche, providing an important means for tourists to reach 

antiquities sites and the facilities and services within the city. 

(4) Site Entry Improvements – Each key site should be interpreted to give an overview of its significance. 

Ideally, such interpretation should be provided prior to entry into the site perimeter: for Karnak 

Temple in the visitor service zones and for Luxor Temple probably to the north edge of the site 

(linking to the Avenue of the Sphinxes). 

West Bank 

Improvement and management of heritage resources on the West Bank must provide the means for 

monitoring the number and distribution of tourists—to ensure that monument capacities are not 

exceeded—and mechanisms, where necessary, to offer choices to visitors which can expand their choices. 

As described in the Phase I Report, the following heritage preservation and visitor improvement actions 

are recommended: 

(1) West Bank Visitor Center – A West Bank Visitor Center is necessary to serve the following functions: 

(a) provide an overview to the necropolis and mortuary temples; (b) offer visitor services; (c) 

manage visitor flows through linkage to an overall Luxor ticketing network; (d) market sites which 

are under-used; (e) provide in-depth interpretation of the necropolis and lifestyle of the West Bank. 

Additionally, this Visitor Center could serve as a staging area and point of control for coordinated 

transport to sensitive West Bank sites. This proposal has been discussed with representative of the 

Supreme Council on Antiquities, who have advocated location of such a facility to the north of the 

Theban necropolis in the vicinity of El Rawagah village. SCA believes that such a location will 

encourage local citizens to relocate their businesses and residences to this community, facilitating 

evacuation of the antiquities area. The authors of the Structure Plan recommend that the preferred 

location for this facility be in the vicinity of New Gourna Village, designed by the renowned Egyptian 

architect Hassan Fathy and request, with respect, that SCA reconsider its previously stated preference. 

In the opinion of the Consultant Team, a visitor center at El Rawagah would have the disadvantage of 

requiring access along the West Bank Cairo-Aswan Highway, which contains relatively continuous 

informal settlement along its westerly edge, significantly obscuring views of the Necropolis for 

arriving visitors and providing a less attractive visual approach than the direct west-bound entry now 

in use. The location of the Visitor Center in proximity to the New Gourna Village of Hassan Fathy 

55



presents several compelling advantages: (1) It is at the convergence of routes from the Luxor Bridge 

and Luxor Ferry; (2) It provides a highly attractive approach to the Theban Necropolis, passing by 

the Colossi of Memnon that mark the entry; (3) if the Visitor Center is designed to be a single level 

structure it would not obscure the panorama; (4) the location provides an opportunity to integrate this 

facility with the preservation and interpretation of Hassan Fathy’s New Gourna Village, an effort 

which has some historic and architectural significance in its own right and has attracted international 

interest and support; (5) Because of Hassan Fathy’s world renown it would be much easier to secure 

funding for the restoration and upgrading of this village. 

(2) West Bank Shuttle System – In conjunction with the West Bank Visitor Center, access to major 

destination clusters should be managed to ensure that visitor traffic does not overwhelm the resources 

and their setting. If the overall visitation increases to two or three times current visitor levels, such a 

system need not entirely replace existing services but could be a means of mitigating the growth in 

traffic while providing an energy-efficient and more economical means of distribution. Cooperative 

arrangements or concessions with tour operators could result in far more efficient (and less costly) 

solutions to visitor transport, resulting in decreased parking lots, reduced vehicular emissions, and a 

more secure and attractive environment. West Bank transportation services could include destination 

shuttles between the West Bank Visitor Center and tomb locations, as well as an inter-attraction 

shuttle linking these clusters and the mortuary temples. Ideally, visitors would pass through the West 

Bank Visitor Center and board vehicles at that location, enabling visits to one or more hillside sites. 

Tickets for the service could be incorporated into fees associated with a Luxor Passport or individual 

site admissions, as well as the overall computer system to manage visitor flows and protect resources 

from levels of visitation that exceed desired capacities. Additionally, vehicles could be adapted to 

provide en route interpretive information. 

(3) Site Entry Area Improvements – The West Bank sites and settings are particularly vulnerable to visual 

intrusion because of the spectacular and stark landscape within which they are located. In general, 

improved interpretation of each key site provided prior to entry into the site perimeter, located for 

convenience to avoid impact on views, and in relationship to parking and visitor, services should be 

provided to give an overview of the site’s significance. Within such facilities, several services should 

be provided, including interpretive overview, cassettes and audio hook-ups, comfort facilities, shaded 

rest areas, refreshment, information, and access to licensed guide services. 

5.2.2 Protect and Expand Agricultural Lands 

The plan’s objective is to protect existing agricultural lands and enable gradual reclamation of additional 

agricultural properties commensurate with appropriate water management and other development and use 

policies for the region. Figure 1 shows the boundary of existing designated agricultural lands, as well as 

lands identified as potentially suitable for reclamation, so designated by the Egyptian Survey Authority 

and Ministry of Agriculture. The specific lands to be selected for early reclamation are to be determined, 

but should be identified in coordination with other recommendations of this structure plan. Additionally, 

the proposals for existing settlements, particularly Luxor City, as well as for new urbanized areas beyond 

the agricultural zone, are designed to carefully delineate the perimeter of the urban area and to direct new 

growth to areas where conflict with agricultural activities will be minimized. 

5.3 Structure Plan Elements to Manage Regional Growth 

5.3.1 Direct Regional Growth 

As mentioned above, the strategy of the plan is to direct regional growth to defined areas, minimizing 

pressure on Luxor City and the monument areas. The targets for this strategy are illustrated in Figures 6 - 

18, and defined below: 

56

Luxor City 



Specific proposals for Luxor City are presented in detail in Chapter 6 of this report and include the 

following elements: 

(1) Limited New Development – Population growth in Luxor City will be limited to 50,000 new residents 

through 2020. Informal settlements within monument areas and along transportation corridors will be 

discouraged. Development will be directed into planned areas well-served by utilities and public 

facilities, including: (a) North Karnak area, to define city edge and protect nearby antiquity sites; (b) 

East Luxor area, to define city edge and coordinate with planned city growth to the south; (c) South 

Luxor area, to define city edge and coordinate with planned city growth to the south. 

(2) Improved Circulation & Access – The roadway systems will be improved to reflect the defined city 

boundaries and to reinforce the planned new growth areas of the city. New vehicular and pedestrian 

railroad crossings will be provided for better east-west access. New arterial roads are recommended 

as part of the Avenue of the Sphinxes project, to relieve Corniche traffic, and along the eastern 

perimeter of the city. The street network will be extended to serve planned new development areas, 

along with improvements to appearance and function of major intersections. A new intersection with 

the inter-city arterial connecting to the New Luxor development would also improve the connection 

of East Luxor to South Luxor, linking over the railroad tracks. 

(3) An Enhanced Living Environment – In conjunction with planned new development in the peripheral 

neighborhoods of the city, a network of open spaces and parks would be formed. These will include 

major new District Service Centers, containing a mix of public facilities in areas north, east, and south 

of the city to serve new and existing residents. Utilities would also be extended to serve planned 

development neighborhoods. 

(4) Conservation of Heritage Resources – Luxor and Karnak temples and their surrounding contexts 

would be protected, along with the project to restore the Avenue of the Sphinxes. 

(5) Tourism Development – The “Open Museum and Heritage District” would be defined, preserved, and 

developed with the intent of reducing density, expanding open space, and attracting appropriate 

tourist services. A new visitor and information center would be developed. Improvements within the 

district, in conjunction with the Avenue of the Sphinxes project, would enhance the character and 

appeal of the Corniche and souqs. Additionally, tourism support services would be developed near 

attractions without harming heritage resources. 

New Settlement Zones - New Luxor 

New Luxor is recommended to be a major new settlement that will be planned for up to 200,000 residents 

and will absorb a significant proportion of the region’s growth between now and 2020. The city will 

evolve to a major center of government and employment, with all required services. A detailed 

description is provided in Chapter 7, and illustrated in Figures 20-27. Major features of the proposal 

include the following: 

(1) Location – The community is located east of substantial agricultural lands, ensuring an attractive 

greenway entry. 

(2) Layout Concept – Major development will be located on three elongated east-west plateaus, linked 

with major arterial streets. The city axis and city center, on the central plateau, is oriented to the 

Theban Necropolis, which is the most characteristic landmark in the region and highly visible from 

this location. 

(3) Parks and Open Spaces – Many city parks and open spaces are located on the wadis between the 

plateaus, providing an effective use of land and supporting green spaces to city activities. A 

greenway system links neighborhoods to one another. 

(4) Neighborhoods – Each neighborhood is conceived as a relatively independent unit of 8,000-10,000 

residents, with central services, minimal through traffic, and close proximity 

57

58 



(5) Public Services – Each neighborhood is served by a Neighborhood Service Center, containing 

primary school and day care services, mosque, village square, and other key small-scale services 

within walking distance of the neighborhood. District Services Centers will each serve three 

neighborhoods, containing secondary and specialized educational and other public services, as well as 

commercial uses, compatible workshops, and public spaces. 

(6) Transportation – Early connections with New Luxor can be achieved by upgrading existing 

roadways, while the long-range connection to Luxor City will be provided through a new arterial 

boulevard which leads to the southerly growth area of the existing city. 

(7) Relationship to Agricultural Lands – The northwest corner of the city, in close proximity to 

agricultural lands and potential irrigation resources associated with tertiary treatment of the new 

wastewater plant, will include an agricultural village. An adjacent area for agro-processing facilities 

and industrial uses will provide an initial employment base and investment rationale for the city’s 

growth. 

New Touristic Zones - El Toad Touristic Zone and the Related Cruise Ship Port 

The plan for the El Toad Tourism Zone has been developed to create a desirable area of both attractions 

and accommodations that serves regional tourists. Key features of the site are described in Chapter 8, 

illustrated in Figures 28-29, and include the following: 

(1) The Site – the El Toad Touristic Zone is proposed to be located outside agricultural and antiquities 

lands, south of the Luxor Bridge. The site includes several plateaus, separated by wadis, east of the 

railroad corridor. Development through the 2020 period should occur on the southern plateau, which 

can be strongly linked to the proposed cruise ship port. In the more distant future, assuming that 

monument capacity constraints are met, there will be the potential for future touristic zone 

development on the nearby plateau to the north. 

(2) Scale of Development – Approximately 18 hotels, with a total of 4,500 rooms, are planned for the 

twenty-year period. Accommodations will vary in quality and type, including three-, four-, and fivestar 

hotels and villa complexes. Attractions, such as an 18-hole golf course and botanical garden, are 

incorporated into El Toad in order to broaden the types of tourism experiences possible in the Luxor 

Region. A visitor center with museum interpreting regional local life customs should be located 

along the formal entrance boulevard to El Toad, to serve as a staging point for shuttle bus service 

within the El Toad area and for tour bus traffic to regional destinations 

(3) Relationship to Proposed Cruise Ship Port – The El Toad plan should be closely coordinated with the 

new cruise ship port development in order to create an integrated tourism zone that promotes more 

joint cruise-hotel stays and improved connectivity. 

(4) Transportation Linkages – An inter-modal transportation facility should be built at the intersection of 

the Cairo-Aswan Highway and the El Toad entrance road, adjacent to the proposed new cruise ship 

port. The facility would become the primary transfer point between water and surface transportation 

in the area. A new road between El Toad and New Luxor, east of the highway, should be developed 

to provide a direct connection that bypasses local area settlements. Regular shuttle bus service should 

be established to provide convenient access among the cruise ship port, destinations within El Toad, 

and regional destinations on the East and West Bank. 

Existing Settlement Areas 

(1) New Thebes and Khuzam Area – New Thebes is being developed by the New Communities Authority 

and is intended to accommodate an eventual population of 35,000. The anticipated completion date 

was to be 2010, and significant new infrastructure has been put in place. An investment site of 2,000 

feddan south of this area has been identified to include tourism and other uses, although no 

development has yet been started on this parcel. Further south is a parcel of 250 feddan, which has 

been substantially improved for a golf course, although the completion of this project has been 

delayed. These areas are linked to the airport via the Military Road, which has been widened to 38



meters between New Thebes and the airport. North of New Thebes is an area of Khuzam, which 

comprises a plateau with excellent views overlooking agricultural lands and the Nile. The plan 

acknowledges the completion of New Thebes and suggests the addition of small hotel complexes to 

the south of New Thebes (in conjunction with the golf course) and to the north of New Thebes (to 

take advantage of the Khuzam site). 

(2) Areas to North and South of Antiquities Zone on the West Bank – Outside the delineated antiquities 

zones, the plan recommends reinforcement of existing settlements to allow for modest growth in this 

area and to reinforce investments and improvements that have been made in existing communities. 

Support Agricultural Villages 

There is a need for “central” communities that offer services not available to existing small rural 

communities and can support planned agricultural expansion and related business development. Each 

central agricultural community would include facilities comparable to a “District” level center (as defined 

in Chapter 4) and would support smaller settlements in its vicinity. 

The proposed central support agricultural communities include two locations each on the West and East 

Banks: 

(1) Mrs. Mubarak Village, south of the SCA protected area, where significant improvements in 

infrastructure have already been initiated. 

(2) The El-Tarif vicinity, which has seen significant recent investment and can serve areas to the north of 

the SCA protected area. 

(3) The Northwesterly Neighborhood within New Luxor, which would be a logical place for location of 

agro-industry and agro-processing for high value crops, being close to new major transportation (rail, 

air, highway) and in the likely initial development area for a the new city with its significant services. 

(4) An additional area on the East Bank, north of Luxor City, which is to finally determined in 

cooperation with local authorities and, subject to these discussions, might be located in the vicinity of 

the New Thebes planned development. 

5.3.2 Expand the Region’s Transportation System 

As part of the recommendations to accommodate the region’s growth and doubling in population between 

now and 2020, a coordinated set of transportation improvements will be required in order to: (a) 

accommodate the efficient and safe movements of goods and people, including residents and visitors; (b) 

anticipate and support the desired strategy to direct the region’s growth; and (c) provide a clear structure 

and hierarchy of services which can support the necessary development. 

Figures 3 and 5 show the characteristics and key improvements that are recommended as part of this 

system. Figure 3 indicates the overall regional transportation network, highlighting existing and 

proposed major facilities. Figure 5 indicates the elements of this system that serve major tourism flows, 

which should be managed as a system to maintain attractive views and regional character which can 

reinforce the overall visitor experience. The characteristics indicated on this map are highlighted in the 

following sections. 

Regional Roadway Network 

(1) Inter-City Highways – The principal highways serving the region will continue to be the north-south 

Cairo-Aswan Highways on East and West Banks, connected by the new Luxor Bridge south of the 

City. The major new improvement is an inter-city highway connecting Luxor City and New Luxor. 

This road, to be a four-lane, divided roadway, plus shoulders permitting eventual expansion, should 

be located north of the rail line at the southern edge of Luxor City, and would directly connect to New 

Luxor, crossing the East Bank Cairo-Aswan Highway and canal. This roadway would transition into 

a major arterial that becomes the main axis of the city center of New Luxor, along its central plateau. 

59



(2) Major Regional Arterial Roadways – Several important arterial connections are proposed, to serve 

regional traffic flows. These streets would typically be divided with a median, and might vary in 

width from three to four lanes (plus allowance for shoulders and parking). The connections include: 

• Major road network along plateaus of New Luxor and cross-connections 

• Greenbelt perimeter roadway along east edge of Luxor City, from RR to airport road 

• Connection between New Luxor Road and Perimeter Road and Corniche in Luxor City 

• Connector roadway linking El Toad Touristic Zone, New Luxor, and airport 

Local Roadway Networks 

(1) Other Arterial Roadways – Numerous new smaller arterial roadways are proposed within existing and 

new settlements, including: 

• New Luxor streets that define neighborhoods 

• Connector loop at El Toad Touristic Zone and linking to cruise ship port 

• Upgrades to existing roadways at north Corniche extension, Aswan-Cairo highway connector 

to north Corniche extension 

• In Luxor City, several existing streets serve this function. One such example is Television 

Street, which will be extended with new arterials added, such as the proposed New Kebash 

Avenue 

(2) Other Minor Collector and Connector Roadways – Many smaller roadways connect arterials to one 

another or link smaller settlements or neighborhoods to the regional network. 

(3) Major Entry Intersections and “Gateway” Locations – The specialization of the regional roadway 

system should be designed to acknowledge the particular role of key intersections at the entry points 

to major development areas. Such entry points should be designed with special care, to preserve open 

space and scenic values, as they often represent the junction between the agricultural lands which 

characterize the region and the beginning of more heavily urbanized or developed areas. Such sites 

should be kept clear of informal settlements and should be landscaped with care, to reflect positively 

on the areas in which they are located, including: 

• Entries to Luxor City along El Awameya Road, New Luxor Highway, and airport road 

• Entry to New Luxor from New Luxor Highway 

• Entries to Cruise Port district and El Toad Touristic Zone 

• Entry to West Bank antiquities area in the vicinity of New Gourna Village 

Public and Specialized Transportation Services 

As the region grows, facilities should be designed and located to properly serve the region’s 

transportation needs, including: 

(1) Public Transportation: 

• Rail – The existing railroad alignment would be maintained, but several modifications would be 

preferred in order to facilitate the region’s growth and development. New passenger rail stations 

should be developed at the south entry to Luxor City (where major growth is anticipated) and also 

where the rail line crosses the Cairo-Aswan Highway. These stations will serve major population 

growth areas. Other rail improvements would be to relocate major areas for car storage from the 

center of the city to the area between the south edge of Luxor City south and the Cairo Aswan 

Highway. Such relocations, along with possible platform modifications at the main rail station 

would reduce the width of the rail corridor at key junctions between the central area of Luxor and 

the area east of the rail line, enabling more effective and less costly pedestrian and road crossings. 

Additionally, it is also possible that freight service at the southerly location, as well as transfers 

from rail to truck, would be better relocated outside Luxor City. 

60



• Bus – The central station would remain in its approximate location within Luxor City. However, 

a supplementary station would be developed at the south entry point to Luxor City, at the 

intersection of the New Luxor Highway with the Greenbelt perimeter road. Additionally, a bus 

transfer station would be developed near the entrance to New Luxor, towards the southerly entry 

to the main central parkway. 

• Ferry – Existing passenger ferry service would remain, and a new service would be added to the 

north end of the study area, linking the area of New Thebes and Khuzam on the East Bank to the 

agricultural growth areas north of El Tarif on the West Bank. 

(2) Tourist Transportation Services 

• New bus transfer and tour support facilities at El Toad and the cruise port, to facilitate dispatch of 

shuttles and tours. 

• New shuttle systems on East and West banks, with dispatch at visitor centers. 

• New water taxi and “landing” at Cruise Port, connecting to a public landing in the vicinity of the 

Mummification Museum and Luxor Temple and to the visitor center at New Gourna on the West 

Bank. 

(3) Goods Movement, Transfer, and Maintenance 

Inter-modal transfer areas should be created at key locations where multiple modes intersect. These 

locations could be suitable for goods transfer and storage and include the Cruise Port (some bargetruck 

goods handling is possible if barge traffic expands) and the intersection of new Luxor Highway 

and Cairo-Aswan Highway (rail to truck). 

5.3.3 Expanded Utility Services 

Utility Service Management 

Luxor lacks a well-coordinated institutional structure of utility service organizations, policies, and 

regulations. The challenge of meeting the growing demand for water and wastewater services is 

aggravated by institutional shortcomings in infrastructure planning, design, construction, operations, and 

maintenance. The aggregate outcome of these elements is that the quality of service and the benefits 

obtained fall short of the design objectives, leading to insufficiency in the expected rate of return and to 

consumer dissatisfaction. Further, the assets do not last for their expected lifetimes, leading to added 

strain on scarce capital resources. Figure 4 identifies Utility Services in the region 

Water Supply – The main source of water for the Luxor system is the Nile. Wells are used on the West 

Bank, but their use is minimal. Luxor City currently supplies Nile River water to villages in the rural 

portions of the East Bank Markhaz, but the operation and maintenance of the distribution system is the 

responsibility of the Qena governorate. As the region grows, new settlements, including New Luxor and 

El Toad will require a well-planned distribution system with necessary pumps and supporting facilities. 

Ideally, a private sector-led effort should design, finance, build, and operate a water treatment plant to 

serve both New Luxor and the El Toad Tourism Zone. Water treatment facilities will be phased in 

according to development, but sufficient land will be set aside to develop full capacity for projected 

development over the next twenty years. A build-operate-transfer (BOT) or concession agreement could 

provide for bulk water sale to New Luxor and for the setting of rates for the El Toad area. 

Solid Waste – Currently, solid waste from urban areas is collected by truck from a number of public and 

private companies and dumped into the desert south of the airport. There is apparently no management of 

the site, as no additional information was available from Luxor’s Center for Information. As far as is 

known, there is no organized system for collecting solid waste in the rural parts of the Luxor region. 

Until recently, most waste was organic, could be burned, or was disposed of by scavengers. With the 

rapid rise in the use of plastic bags, bottles, and packaging, solid waste has become a visible problem in 

the Luxor area. 

61



A well-managed sanitary landfill operation for the disposing of solid waste should be planned to serve the 

entire East Bank, including current Luxor City, New Luxor, and El Toad. A sanitary landfill would 

replace the current practice of informal dumping. In addition to managing the collection and disposal of 

waste, a system of composting—the biological process to decompose the waste and obtain usable soil 

conditioner—should be promoted in New Luxor. By doing so, there is the opportunity to further enrich 

New Luxor’s desert setting with vegetation. The feasibility of co-generation, involving recycling solid 

waste and energy generation, should also be explored. 

Wastewater – Under the Secondary Cities Project, USAID is planning to finance a major wastewater 

improvement project in the region. Elements of the plan include: 

• Construction of a new wastewater stabilization pond, including facilities for effluent disposal, at a site 

next to the existing treatment plant, east of the Cairo-Aswan Highway and between the airport and the 

proposed site of New Luxor. 

• Rehabilitation and upgrading of the existing wastewater treatment plant, including the module 

presently under construction. 

• Expansion of the wastewater collection system should include installation of new wastewater pump 

stations and force mains. As part of this effort, possibly six new lift stations will be needed. The 

main areas to be served will be residential areas around Karnak Temple, the Al-Agata sub-district on 

the Nile, villages directly east of the railway, and extensive areas around Luxor Airport. Upon 

completion, the expansion is expected to serve nearly all of the built up areas of Luxor City. 

Presently, there are no plans for central sewage disposal on the West Bank. Wastewater in New Luxor 

will come almost entirely from non-industrial sources, such as residences, commercial businesses, and 

public facilities. The waste should be collected by gravity sewers and conveyed to the new treatment 

plant located just two kilometers northeast of New Luxor. A 1996 report by CDM consultants concluded 

that the new plant should be sufficient to meet projected demands until the year of 2020, assuming a 

regional population of approximately one million, consistent with the population projections of this plan. 

New Luxor’s location near the new waste treatment plant offers an additional benefit. The effluent, or 

grey water, from the treatment plant can be used to irrigate the New Luxor shelterbelt, while the sludge 

from the treatment ponds can be used as a soil conditioner to reclaim desert lands for agriculture. 

Electricity – Thermal stations using oil and natural gas typically generate Egypt’s electricity. Luxor City 

and its suburban areas receive electricity from the national grid that is supplied mostly from the turbines 

of the Aswan High Dam. Power is taken from the Al Agalta substation (located on the West Bank) with 

step-downs to substations on the East Bank. In rural areas of the Markhaz, the power supply is variable. 

Some villages have their own distribution systems and provide relatively good service, whereas other 

villages still rely on old systems that are overburdened and subject to very frequent blackouts. 

A coordinated strategy should be developed to upgrade the existing communications and electrical service 

in the area. It is anticipated that a new electric sub-station and a telephone exchange will be needed to 

serve both the New Luxor and El Toad areas. Estimates have been made for 10,000 new 

telecommunications lines in the area. 

The existing utilities corridor that runs between New Luxor and El Toad offers the necessary rights-ofway 

to locate additional lines that can serve both areas as they develop. 

Areas for Priority Service 

62



Figure 4 indicates the parts of the existing study area that already have water and sanitary services, as 

well as the planned expansions as part of the plan. 

5.3.4 New Public Facilities 

As described in Chapter 4, the growth of population in the study area will require commensurate 

expansion of public facilities. A detailed program for such facilities has been included in that chapter. It 

is important that new facilities are planned in locations where development is to be directed, and that 

adequate land and infrastructure be allocated to ensure that these facilities can be built, when needed. The 

plan endeavors to avoid situations where unplanned development absorbs critical sites that may later be 

essential for proper planned growth. The key facilities include: 

(1) Neighborhood Centers, accompanying each unit of approximately 8,000-10,000 people. These 

centers have been conceived to include basic support services for a neighborhood, including primary 

school, pre-school, mosque, commercial uses, modest parking, and a small park or square. 

(2) District Centers, serving units of approximately 25,000 people, or three neighborhoods. Each District 

Center has been programmed to include a secondary school, local government services (police, post 

office, health services), local religious and cultural activities, commercial uses, light industrial 

workshop types of uses, parks, and support parking. These District Centers have been located at the 

edges of Luxor City, where growth is anticipated, within New Luxor, and throughout the Markhaz. 

The specific strategies within Luxor City and New Luxor are explained in Chapter 6 and Chapter 7, 

respectively. 

(3) Government Services, which are principally located today in Luxor City; however many of those 

facilities which are located on the Corniche and throughout the Open Museum area should be 

considered for relocation to New Luxor as this settlement is developed. This relocation would free up 

considerable property between the restored Avenue of the Sphinxes and the Nile, and would ensure 

that support services are available within New Luxor. 

(4) Specialized regional services and institutions, including university faculties that specialize in tourism 

and agriculture, as well as specialized technical training facilities that support the growth of the 

region. 

New public services should be sited and located in close coordination with the regional development 

strategy in order to reinforce the goals of the plan. 

5.4 Regional Growth Management and Administration 

5.4.1 Jurisdictional Coordination 

The projects listed above are complex, and each project has multiple elements. These projects will be 

carried out through private sector initiatives, as well as government and donor assistance. However, the 

project will fail to come to fruition without adequate and sustained guidance from a body charged with 

proper authority to ensure: 

(1) Consensus 

(2) Cooperation and coordination 

(3) Legal enforcement of projects 

Without these measures, Luxor will continue to develop in an ad-hoc manner, with no significant impact 

in physically improvement the conditions of the city, and no significant impact on the economic viability 

of the city. Moreover, it will continue to be a drain on national resources because, with changing tides in 

tourism, it will grow in spurts, and infrastructure and services will have to be continuously supplied in 

response to differing growing spurts. 

63

Existing Implementing Processes 



Most major projects are carried out by either the investors or ministries (using government or donor 

funds). The most significant agencies involved in project implementation include: 

(1) Ministry of Housing 

(2) The HCLC 

(3) Ministry of Culture 

(4) Ministry of Transport 

(5) Ministry of Agriculture 

(6) Tourism Development Agency 

(7) Others such as the Social Development Fund 

The Institutional Capacity and Role of the Higher Council for the City of Luxor 

The HCLC was established by Presidential Decree No. 153 in 1989 in response to the increasing need for 

control of urban growth in the Luxor area. The HCLC is empowered to prepare, approve, and enforce 

land use plans within the area under its authority, which replaces that previously vested in the Qena 

Governorate. It is also empowered to implement development projects. However, the HCLC is currently 

inadequately staffed to undertake a project such as the CDCL without significant additional assistance. 

The HCLC does not have the resources, the staff, the clear authority, or the funds to carry out major 

projects on its own. Presently, the HCLC is not able to manage and guide projects following a planned 

approach. 

The Need 

While numerous ministries continue to work in Luxor, the project team advocates the need for a Project 

Management Unit (PMU) because the work done to date has been done in an ad-hoc manner. The 

importance of a planned and directed development cannot be understated, because of Luxor’s global 

significance. 

Proposed Solution 

The Comprehensive Development Plan for the City of Luxor requires a sponsor who will guide it through 

the major activities. This sponsor would take the form of a Board of Directors, composed of Mrs. 

Suzanne Mubarak as its chairperson, and the Ministers of Housing, Culture, Tourism, and the Governor 

of Luxor. This Board would maintain a clear vision for the development of Luxor and ensure the 

implementation of all individual Investment Projects 1 , in accordance to the vision as stated by the 

Comprehensive Development Plan for the City of Luxor. The Board would guide the activities in a 

manner that enables inter-ministerial cooperation. 

Recognizing that each ministry has the capacity to implement its own projects, the individual Investment 

Projects could therefore be undertaken within the ministries best able to do so, without creating any 

additional project teams or duplicating government structure. This management structure recognizes that 

the undoing of the Comprehensive Development for the City of Luxor will be the lack of consensus and 

cooperation between the ministries. 

The six Investment Projects of the CDCL would be implemented by the ministries and investors most 

associated with the project. The project management and implementation units within each stakeholder 

agency would coordinate with and report to the Board and the Board would be responsible for fund 

raising, management, and coordination between other ministries and the implementation of the project. 


64



The Board would require a strong senior executive director who could represent its wishes to public and 

private entities, report on progress to the Board of Directors, track projects, prioritize resources, and 

enforce decisions. In addition, the executive director would have a single technical project team with the 

ability to translate directives from the Board of Directors to all the stakeholders, including the Higher 

Council for the City of Luxor. 

5.4.2 Land Management 

If the CDCL Plan is to achieve its important objectives, a development guidance system must be 

administered. Presently, construction projects by both public and private sector interests are moving 

ahead throughout the region in an uncoordinated and ad-hoc fashion. Without some level of guidance, the 

significant growth expected over the next twenty years will result in a decline in the quality of life for 

area residents and a deterioration of Luxor’s significant cultural resources. 

In order to achieve CDCL objectives, it is essential that development regulation procedures be established 

for building construction in the primary growth centers of the region. Current restrictions cover height 

limits, but do not cover other important development aspects or land uses. Objectives for CDCL land use 

controls and development standards include: 

(1) Separating incompatible land uses by defining a system of permissible uses 

(2) Allowing considerable flexibility for mixing compatible uses 

(3) Ensuring adequate open space, setbacks, and pedestrian ways to improve the living environment 

(4) Maintaining and strengthening contextual regulations for the Monuments and their surroundings in 

Luxor City and the West Bank 

(5) Defining priority areas for planned development 

Land Use Tables 

Tables 16-19 describe permitted land uses for Luxor City, New Luxor, El Toad and the remaining 

portions of the Markhaz. Only new construction in these areas must be permitted in the land use 

categories described; existing construction is exempted from meeting the standards. Land uses not 

identified must submit application for special permit. 

Across the top row of each table, sub-areas within each jurisdiction are identified. The left column of 

each table itemizes land uses classified into four categories. The first category of residential land uses 

includes single-family and multi-family dwellings. The second category of commercial land uses 

includes offices, services, and retail businesses. The third category of public land uses includes public 

and cultural facilities, government offices, and open spaces that are publicly owned and operated. The 

final category includes other land uses with most of these land uses requiring segregation from the other 

such categories. 

Development Standards Tables 

Development standards can ensure a safe and sanitary environment throughout the Luxor region that sets 

a reasonable basis for architectural design. Performance standards, rather than material and construction 

specifications, are offered for each sub-area in order to stimulate innovative design and promote the use 

of new materials. 

Tables 20-22 describe performance standards for new development in three sub-areas of the study area: 

Luxor City, New Luxor, and El Toad. Only new construction in these areas must conform to the 

development standards prescribed; existing construction is exempted from meeting the standards. Aspects 

of development included in the standards are building coverage maximums, open space minimums, 

65



building setbacks from the street and adjacent structures, building heights, minimum street frontage, and 

sidewalks. 

Implementing the Land Use Controls and Development Standards 

Procedures to implement the land use controls and development standards for the Luxor region must 

include design review and inspection. Design review of each development project (public and private) 

should be a necessary prerequisite to project approval and subsequent construction. This review and 

approval should be the responsibility of a “design review committee,” with the majority of members 

drawn from HCLC staff and additional representatives from the community, appointed by the Governor 

and representing individuals knowledgeable about real estate, design, and/or community development. 

This committee should meet as often as necessary to avoid delay in the implementation of development 

projects. Inspection of construction to ensure compliance with approved plans should be the 

responsibility of PDA specialists in design and construction 

66

Table 16: Permitted Land Uses in Luxor City * 



Monument 

Protection 

Zone/ 

Buffer Zone 

Heritage 

District 

Development 

Area 

Heritage District 

Neighborhood 

Preservation 

Area 

Corniche: 

within 

Heritage 

District 

Planned 

Development 

Area: 

Residential 

Other City Areas 

Planned 

Development 

Area: District 

Centers 

Corniche: 

outside 

Heritage 

District 

Residential Single Family X O O X O X X O 

Multi-Family X O O X O P P O 

Remaining 

Areas of 

Luxor City 

Commercial Commercial Office X O P P X O P O 

General Retail X O O P X O P O 

Open Market (souq) X O O P P O P O 

Tourism Retail/Services X O P O X P O P 

Hotel < 50 rooms X O P O X P O X 

Hotel > 50 rooms X P X O X X O X 

Restaurant X O O O O O O O 

Cinema/ Theater X O P O X P O O 

Workshop* X P O P X O X O 

Public Government Office X P X P X O X P 

Health Clinic X P O X O O O O 

Elementary School X P O X O P X O 

Secondary School X P O X X O X O 

Technical/Trade School X P O X X O X O 

Nursery X P O X O X X O 

Religious X P O P O O O O 

Museum/Visitor Center X O P O X X O P 

Cemetery X X X X X X X O 

Parks/Open Space P O O O O O O O 

Recreation Facility X X O P O O X O 

Public Utility X P P P P P P P 

Other Gas Station X P X X X P X P 

Engine Service/Repair X X X X X X X P 

Parking Lot/Garage X P X P X P X P 

Agricultural Storage X X X X X X X X 

Warehouse/Storage X X X X X X X P 

Manufacturing** X X X X X X X X 

Animal Husbandry X X X X X X X X 

* any use not defined in chart must submit application for special permit 

Legend: 

O = permitted land use 

P = by special permit only land use 

Notes: 

* Workshops are small (

Table 17: Permitted Land Uses in New Luxor * 



Residential Areas Open Industrial Areas Service Centers 

Urban 

Neighborhoods 

Agricultural 

Neighborhoods 

Space 

Areas 

Light 

Industrial 

Agro- 

Processing 

Neighborhood 

Centers 

District 

Centers 

Residential Single Family O O X X X X X X 

Multi-Family O O X X X X P O 

Commercial Commercial Office X X X X X X O O 

General Retail X X X X X O O O 

Open Market (souq) P O X X X P P P 

Tourism Retail/Services X X X X X X P O 

Hotel < 50 rooms X X X X X X P O 

Hotel > 50 rooms X X X X X X X P 

Restaurant O O X X X O O O 

Cinema/ Theater X X X X X X P O 

Workshop* X O X P P O O O 

Public Government Office X O X X X X O O 

Health Clinic P O X X X O O O 

Elementary School O O X X X O X X 

Secondary School X O X X X X O O 

Technical/Trade School X O X X X X O O 

Nursery O O X X X O X O 

Religious P O X X X O O O 

Museum/Visitor Center X X P X X X X O 

Cemetery X X P X X X X X 

Public Utility P P P P P P P P 

Park/Open Space O O O X X O O O 

Recreation Facility X O O X X O O O 

Other Gas Station X O X O O X P P 

Vehicle Service/Repair X P X O O X X X 

Parking Lot/Garage X X X O O P P P 

Agricultural Storage X P X X O X X X 

Warehouse/Storage X X X O O X X X 

Manufacturing** X X X O O X X X 

Animal Husbandry X P P X O X X X 


Legend: 



Notes: 




Table 18: Pe rmitted Land Uses in El Toad * 

Hotel 

Parcels 

Villa 

Parcels 

Tourism Zone 

Recreational 

Facility 

Parcels 

Town Center 

(Arabic 

name) 

Outside Zone 

Cruise Ship 

Port/Nile 

Riverfront 

Residential Single Family X P X X X 

Multi-Family X O X O X 

Commercial Commercial Office X X X O X 

General Retail X X X O O 

Open Market (souq) X X X P X 

Tourism Retail/Services O X X O O 

Hotel < 50 rooms O X X X X 

Hotel > 50 rooms O X X X X 

Restaurant O X X O O 

Cinema/ Theater O X P O O 

Workshop* X X X P O 

Public Government Office X X X O X 

Health Clinic O X X O X 

Elementary School X X X X X 

Secondary School X X X X X 

Technical/Trade School X X X X X 

Nursery X X X X X 

Religious X X X O X 

Museum/Visitor Center X X X O X 

Cemetery X X X X X 

Public Utility X X P P P 

Park/Open Space O O O O O 

Recreation Facility O O O O X 

Other Gas Station X X X X P 

Vehicle Service/Repair X X X X P 

Vehicle Storage/Garage X X X P P 

Agricultural Storage X X X X X 

Warehouse/Storage X X X X P 

Manufacturing** X X X X X 

Animal Husbandry X X X X X 


Legend: 



X = not-permitted land use 

Notes: 




Table 19: Permitted Land Uses in other Markhaz Areas* 

Designated Development Communities Historic Areas Other Areas 

New Thebes Khuzam Agricultural 

Communities 

West Bank 

Monument 

Area 

Agricultural 

Zones 

Areas 

Suitable for 

Agriculture 

Residential Single Family O O O X X X X X 

Multi-Family O O O X X X X X 

Commercial Commercial Office O O O X X X X X 

General Retail O O O X X X X X 

Open Market (souq) P P P X X X X X 

Tourism Retail/Services O O O P X X X X 

Hotel < 50 rooms O O X X X X X X 

Hotel > 50 rooms O O X X X X X X 

Restaurant O O O X X X X X 

Cinema/ Theater O O O X X X X X 

Workshop* P X O X X X X X 

Public Government Office O O O X X P X X 

Health Clinic O O O X X P X X 

Elementary School O O O X X P X X 

Secondary School O O O X X P X X 

Technical/Trade School P X O X X P X X 

Nursery O O O X X P X X 

Religious O O O X X P X X 

Museum/Visitor Center O O O P X X X X 

Cemetery O O O X P P X X 

Park/Open Space O O O X X P X X 

Recreation Facility O O O X X X X X 

Public Utility P P P P P P P P 

Other Gas Station P P P X P P O P 

Vehicle Service/Repair P X P X X X O P 

Parking Lot/Garage O P P P X P O P 

Agricultural Storage X X O X O O X X 

Warehouse/Storage X X O X P P P P 

Manufacturing** X X X X X X X X 

Animal Husbandry X X O X O O X X 


Legend: 



Notes: 




Table 20: Luxor City Table of Development Standards* 

Aspect Purpose Requirements by Heritage District Sub-Area 

Luxor Heritage District 

Development Area 

Corniche Area 

Monument Protection 

Zone and Buffer 

Open Space 

• Maximum building 

coverage* 

sunlight, air 

• Usable public space passive open space; 

active recreation 

Building Envelope 

Minimum required setback 

from street 

Minimum required setback 

from Common Property 

Line 

sunlight, visual 

privacy, ventilation, 

sunlight 

civic: 70% site area 

commercial: 80% site area 



5m for streets west of Avenue 

of the Sphinxes & 

perpendicular to the Nile, 

with a maximum height of 

13m; higher floors setback 

13m from street 





10m 

new construction 

prohibited 


prohibited 


prohibited 

• 0-3 floors residential windows set back 

5m from lot line 

5m 


prohibited 

• 3-6 floors windows setback 3m new construction 

prohibited 

• 6-10 floors not applicable (13 m height windows setback 5m 


limit) 

prohibited 

Building Height 

privacy for adjoining 13m within 13m of street, 13m within 13m of street, with new construction 

uses, visual 

with maximum height of maximum height of 

prohibited 

compatibility with 26m 

26m, except by special permit 

surroundings 

Minimum Plot Frontage on 

street 

Minimum re quired width of 

sidewalks 

servicing, ventilation 5m 5m new construction 

prohibited 

safety, recreation, visual 2m for commercial frontage if 4m, paved; shading trees and new construction 

adequate building frontage lighting required 

prohibited 

exists. 

* Building coverage is total building footprint divided by total lot area. 

Neighborhood Preservation 

Area 

residential: 60% site area 






2m for sidewalk 

none required 

not applicable (13 m height 

limit) 


limit) 

13m; mosque minarets and 

church steeples that exceed 

the limit by special permit 

5m 

2m for commercial frontage if 

adequate building frontage 

exist s; commercial buildings 

with shading trees, canopies, 

or covered arcade 

71

….continued: Luxor City Table of Development Standards* 



Aspect Purpose Luxor City Areas outside Heritage District 

Luxor City Planned 

Development Areas: 

Outside Service Centers 

Luxor City Planned 

Development Areas: 

Service Centers 

Corniche: outside 


Open Space 


coverage 

• Minimum usable public 

space 

sunlight, air 

passive open space; 
















Remaining Areas 

of Luxor City 

residential: 70% site 

area 


commercial: 80% 

site area 

residential: 15% site 

area 


commercial: 10% 

site area 


Setback from Street sunlight, visual 4m 4m 10m 2m 

Setback from Common 

Property Line 


sunlight 

• 0-3 floors none required none required none required none required 

• 3-6 floors residential windows set back 5m 

from property line; other windows 

setback 3m 

residential windows set back 5m 

from property line; other windows 

setback 3m 

windows setback 3m residential windows 

set back 5m from 

property line; other 

windows setback 

3m 

• 6-10 floors windows setback 5m windows setback 5m windows setback 5m not applicable (13m 


privacy for adjoining 

uses, visual 

compatibility with 

surroundings 

13m within 13m of arterial street, 

with maximum height of 26m; 

13m on non-arterial streets 

13m within 13m of arterial street, 

with maximum height of 26m; 

13m on non-arterial streets 

13m within 13m of street, 

with maximum height of 

26m, except by special 

permit 

Minimum Plot Frontage servicing, ventilation 5m 5m 15m 5m 

Sidewalks, minimum safety, recreation, visual 2m paved with shading trees or 2m paved with shading trees or 4m paved with shading 

required width 

canopies 

canopies 

trees and lighting 


height limit) 

13m; mosque 

minarets and church 

steeples may exceed 

limit by special 

permit 

2m paved with 

shading trees or 

canopies 

72



Table 21: New Luxor Table of Development Standards* 

Aspect Purpose Requirements by Area 

Urban Neighborhoods: 

Outside Service Centers 

Neighborhood Center District Center City Center 

Open Space 


coverage 

sunlight, air 























Setback from Street sunlight, visual 4m 4 m 4m 4m 


Property Line 


sunlight 

• 0-3 floors none required none required none required none required 


5m from property line; other 

windows setback 3m 

windows setback 3m windows setback 3m residential windows set back 



not applicable (13 m height windows setback 5m 

• 6-10 floors windows setback 5m not applicable (13 m height 

limit) 

limit) 


privacy for adjoining 13m within 13m of arterial 13m within 13m of arterial 26m within 26m of arterial 

uses, visual compatibility street, with maximum height street, with maximum height street, with maximum height 

with surroundings of 26m; 13m on non-arterial of 26m; 13m on non-arterial of 26m; 13m on non-arterial 

streets 

streets 

streets 


Sidewalks, minimum width safety, recreation, visual 2m wide, paved with shading 

trees 


2m wide, paved; commercial 

buildings with shading trees, 

canopies, or covered arcade. 




26m within 13m of arterial 

street, with maximum height 

to be determined by special 

permit 




73

….continued: New Luxor Table of Development Standards* 




Agricultural Villages Agro-Processing Areas Light Industrial Areas Open Space Areas 

Building Coverage/ Open Space 

• Maximum Building 

Coverage 

sunlight, air 









50% site area 50% site area recreational facility: 50% 

site area 

50% site area 50% site area 


Setback from Street sunlight, visual 2m 15m 15m 


Property Line 


sunlight 

• 0-3 floors none required 10m 10m 10m 




• 6-10 floors not applicable (13m height 

limit) 

10m 10m not applicable (5m height 

limit) 


limit) 


limit) 

not applicable (5m height 

limit) 


privacy for adjoining 13m; mosque minarets and 13m height limit; taller 13m height limit; taller 5m height limit 

uses, visual compatibility 

with surroundings 

church steeples that exceed 

limit by special permit 

structures by special permit 

only 

structures by special permit 

only 


Sidewalks safety, recreation, visual 2m wide none required none required 2m wide, paved between 

recreational facilities and 

street 


74



Table 22: El Toad Table of Development Standards 


East Hotel Parcels 

(6 development plots, 

including expansion plots) 

West Hotel Parcels 



South Hotel Parcels 



El Toad Center Hotel Parcels 

(3 development plots, including 

expansion plots) 

Open Space 

• Building Coverage sunlight, air 50% site area 30% site area 30% site area 60% site area 

• Usable public passive open space; active 25% site area 35% site area 35% site area 20% site area 

space 

recreation 


Setback from Street sunlight, visual 15m 15m 15m 7m 


privacy for adjoining uses, 

visual compatibility with 

surroundings 

20 m 20 m 40 m 13 m 

servicing, ventilation 100 m 100 m 100 m 100 m 

Minimum Plot 

Frontage 

Sidewalks safety, recreation, visual 2m wide, paved, running 

along perimeter road and 

serving each unit 

2m wide, paved, running 



2m wide, paved, running 



3m wide, paved with shading 

trees, canopies, or covered 

arcade. 

Parking traffic flow 1 space/ 4 rooms 1 space/ 4 rooms 1 space/ 4 rooms 1 space/ 4 rooms 

75



….continued: El Toad Table of Development Standards 


Villa Parcels El Toad Town Center South El Toad Commercial 

Center 

Open Space 

• Building Coverage sunlight, air 50% site area civic: 60% site area 




Cruise Ship Port/Nile 

Riverfront Zone 



• Usable public space passive open space; active 

recreation 

25% site area civic: 20% site area 







Setback from Street sunlight, visual 15 m 5m 5m 10m from Cairo-Aswan 

Highway; 4m other streets 


privacy for adjoining uses, 

visual compatibility with 

surroundings 

13 m 13 m 13 m 

Minimum Plot Frontage servicing, ventilation 100 m 40 m* 40 m* 100 m* 

Sidewalks safety, recreation, visual 2m wide, paved, running 





arcade. 



arcade. 

Parking traffic flow 1 space/ 4 rooms 1 space/ 50 sq. m commercial 

space 

* Requirements may vary for commercial and support facilities as part of approved design 

1 space/ 50 sq. m commercial 

space 

76



5.4.3 Service and Facility Management 

Extending utilities and building public facilities to serve the rapidly expanding regional population of 

Luxor is a top priority of the CDCL. In order to finance and manage these services and facilities 

effectively, a Project Management and Implementation Unit (PMU), as described in Chapter 9, is 

proposed. The PMU’s role will include coordinating investments in housing, schools, and health care 

facilities. One significant public infrastructure project currently underway in the Luxor region is the 

USAID Secondary Cities project which incorporates operating agreements for wastewater systems 

throughout the region. 

5.4.4 Tourism Management 

Visitor and tourism coordination should create an environment where private investors have a partnership 

relationship with local authorities in Luxor. This relationship should present a high level of confidence 

that imple menting agencies will be able to provide planning strategies and programs to ensure a 

sustainable and environmentally sound tourism industry in Luxor. In pursuit of this goal, the PMU 

management entity described in detail in Chapter 9 will include tourism management as one of its 

responsibilities. Key CDCL initiatives to be managed by the PMU include the development of the El 

Toad Tourism Zone and the construction of visitor centers on the East and West Bank as staging points 

for tours, interpretation, and coordinated tourism services. These should involve cooperative 

relationships for financing and operations of key services, to be determined by the PMU, HCLC, and 

private entities. 

77



Chapter 6: 

The Plan for Luxor City 

6.1 Description and Existing Development Trends 

Luxor City is located on the East Bank of the Nile River, 635 kilometers south of Cairo. The densely 

populated city of nearly 200,000 residents stretches approximately 5 kilometers north-south and 1.5 

kilometers east-west. 

A strong north-south axis, established by the juxtaposition of the Luxor and Karnak temples, has been 

reinforced over time by the Corniche and by the railway. For centuries, Luxor was a relatively small 

Pharaonic settlement clustered around the two major temples, Luxor and Karnak. However, population 

growth has increased dramatically over the past few decades as a result of natural factors and inmigration. 

Presently, Luxor City is the urbanized area between Al Awamiya in the south to the area north of Karnak 

temple in the north. The city is densely populated, with an approximate average density of 35- 

persons/feddan citywide and considerably higher densities in older parts of the city. Until recently, the 

Nile River on the west and the railroad tracks on the east defined the edge of development. 

Rapid development in Luxor City over the last fifteen years has been towards the south, particularly along 

Television Street (also called Awamiya Street). The city is also expanding east, as significant 

development has occurred on former agricultural land east of the railroad tracks. Development has been 

slower to the north edge of the city, but, increasingly, settlements are encroaching on the antiquity sites 

surrounding Karnak Temple and adjacent agricultural lands. 

As Luxor City grows, agricultural lands and villages are being swallowed up by new urban development. 

The resulting urban pattern is reflected in two distinct street patterns. Older areas of the city and onceautonomous 

villages have narrow, irregular streets while newer development areas are typically strung 

along linear corridors that reflect the orientation and parcel size of former agricultural lands. As a result, 

the old and new areas of the city are not well connected to one another by roads and many developing 

areas are inadequately served by utilities. Without adequate planning, growth pressures over the next 

twenty years will further deteriorate the urban environment and threaten the city’s heritage resources. 

Classifying Luxor City’s land uses is nearly impossible, as most of the city is mixed use in character. 

Commercial, residential, office and workshops are located in nearly all neighborhoods and often even 

within the same structure. Commercial activity is concentrated in the central portion of the city, with 

tourism-oriented commercial uses, services, and hotels located along the Corniche. Public facilities and 

utilities are also concentrated along or near the Corniche. Basic public services, such as schools, are 

lacking in new development areas, particularly in areas east of the railroad tracks that have limited access 

to other parts of the city. Small parcels of agricultural land remain throughout the urbanized portions of 

Luxor City, with larger areas of agricultural land just within the northern and southern edges of the city 

boundary. 

78



6.2 The Vision for Luxor City in 2020 

Four major efforts are proposed for Luxor City. Figure 6 indicates the key action areas where 

improvements will be concentrated. Figure 7 provides an overview of the recommended plan for Luxor 

City. The following sections describe in detail the key aspects to realizing each effort: 

(1) Direct new development toward areas at the edge of the city that will become the location for new city 

growth. (Section 6.3) 

(2) Build new public facilities in conjunction with new development and extend utility services to 

improve the living environment. (Section 6.4) 

(3) Improve circulation and access to serve existing areas and support planned new development at the 

edges of the city. (Section 6.5) 

(4) Establish the Open Museum District to protect and interpret monuments and support tourist services. 

(Section 6.6) 

6.3 Planned Development Neighborhoods 

6.3.1 The Need for Planned Development Neighborhoods 

An anticipated doubling of the population in the Luxor region over the next twenty years will place 

considerable growth pressures on Luxor City. As the only major urban area in the Markhaz, Luxor City 

has always been the magnet for urban development. Even if new settlements, such as New Luxor, 

become the major centers of growth in the future, a considerable amount of new development is 

inevitable in Luxor City. 

The development challenge for Luxor City is to redirect the current trends of growth in the city. Informal 

settlements encroaching on the city’s heritage resources and surrounding agricultural lands must be 

curtailed. A more sustainable pattern of orderly development in areas with adequate facilities and utilities 

to support new growth is necessary. The following sections describe the concept of creating three 

Planned Development Neighborhoods in Luxor City, as shown in Figure 7. 

6.3.2 The Planned Development Area Concept 

The Planned Development Neighborhoods will be the centers for growth in Luxor City in the future. The 

three areas will altogether accommodate approximately 50,000 new residents by 2020, with additional 

land available for future development. Each planned development area will include neighborhoods and 

amenities that improve the Luxor City living environment for new and existing residents alike. 

Neighborhoods and service centers comprise most of the planned development area land uses. The 

following section offers an overview of the neighborhoods, while a detailed discussion of the service 

centers is in Section 6.4. 

Neighborhoods 

Attractive neighborhoods are the primary element of the planned development neighborhoods. A total of 

six neighborhoods will be built by 2020. Land areas of each center will be approximately 8 feddan, 

adequate to support 8,000-10,000 residents in each neighborhood. 

Although the form and character of each neighborhood and its services will vary, a number of shared 

principles will guide development: 

(1) Development standards will encourage buildings with a scale and style compatible with the 

architecture in adjacent existing urbanized areas. 

79



(2) Neighborhoods will be developed in phases that encourage the orderly extension of utilities and 

provision of services. 

(3) Neighborhoods will include a variety of housing types and sizes to meet the needs and preferences of 

a broad range of residents. Densities will be highest along the neighborhood edges defined by major 

streets. Along these major streets, 4-5-story buildings with a mix of commercial and residential uses 

will predominate. Within the neighborhood enclave, 1-3-story attached and detached structures, 

primarily residential, should be encouraged in housing clusters centered along open spaces. 

(4) Neighborhoods will include dedicated pedestrian and bicycle path “greenways” that connect housing 

clusters. Access by foot or bicycle will be possible to the pedestrian-oriented neighborhood 

greenways, and on to the District Service Centers. 

(5) Neighborhood housing clusters will offer convenient access to services. All homes will be within a 

500-meter radius from a Neighborhood Service Center with public facilities and commercial services. 

District service centers with a greater variety of services and facilities will be planned within a 1,000- 

meter radius of each home. 

6.3.3 Southern Development Area 

Proposed Site 

The Southern Development Area is located in largely undeveloped agricultural lands along the southern 

edge of Luxor City. Major roads, such as Television Street, have created significant development 

pressure in recent years. Informal settlements are developing along major transportation roads and to the 

south in the expanding village of Bugdadi, despite the lack of water and sanitation in these areas. 

Development Concept 

The Southern Planned Development Area is prepared to accommodate 30,000 new residents by 2020. 

Figure 7 illustrates the key features of the plan. 

An integrated streets network will provide strong local and regional connections. The Greenbelt Road 

will become the primary access between the Southern Development area and regional destinations. Both 

the Greenbelt Road and extended Television Street will become the major high-density development 

spines linking lower density neighborhood streets. 

Television Street will define the edge of urbanization in the Southern Area. The extension of Television 

Street will continue in a north-south direction south of the Greenbelt intersection before aligning in an 

east-west direction and connecting with an extension to El Awameya Road. Informal settlements beyond 

the extension of Television Street will be limited by the existing canal running parallel along the northsouth 

portion of the street, and the prohibition of new streets outside the southern side of the street as it 

runs east-west. Containing development within Television Street along its east-west orientation will 

allow for the establishment of a city boundary just outside the street that will not face development 

pressures beyond it. 

The Southern Area is centered on a District Service Center, located southeast of the intersection of the 

Greenbelt and extended Television Street. This Center would build upon the existing mosque and 

technical school, also including a full range of new services and recreational facilities. 

Within this area, densities will be highest along the Greenbelt Road and extended Television Street where 

commercial activity will concentrate. Since the neighborhoods directly north and south of the sectoral 

service center do not include existing settlements, an orderly pattern of housing clusters centered along 

open spaces should be built. In contrast, the neighborhood west of El Awameya Road will be infill in 

character and include densities and street layouts that are compatible with the existing development on the 

north and west. 

80

6.3.4 Eastern Development Area 

The Site 



Presently, the Eastern edge of the city is sparsely developed, with former villages located along the 

perimeter road separated from more urban uses by remaining agricultural lands. The area includes a 

village in the western portion of the site and continuous dense settlements along the eastern perimeter 

road. Within the site is a large village and settlements along El Sala Khana Street. Despite the significant 

population in the immediate area, very few public facilities currently serve the area. 


The Eastern Development Area is prepared to accommodate approximately 10,000 new residents by 

2020. The proposed new street network, as illustrated in Figure 8, will greatly improve access through 

the site and create a significant development opportunity. The Greenbelt Road along the eastern edge will 

provide easy connections for area residents to points north and south. The extension of New Luxor 

Highway north of the Greenbelt Road intersection will become the major spine for high-density 

development. Running along the northwestern edge of the planned development area, the New Luxor 

Highway extension will provide a development corridor where the densest new development will be 

located. 

Since existing neighborhoods in the Eastern Area are under-served by public facilities, a District Service 

Center is proposed to both accommodate new residents and provide services for existing neighborhoods. 

This will become the major activity center for Luxor City residents living east of the railroad. 

Figure 7 illustrates the form and density of the Eastern Area neighborhood. Mixed-use development will 

be encouraged along the extension of the New Luxor Road, but would be limited along the Greenbelt. 

Lower density neighborhoods will develop within the major street framework with a form that is 

compatible with the existing village architecture and density. 

6.3.5 North Karnak Development Area 

Proposed Site 

The North Karnak Development Area is within the Open Museum and Heritage District that is described 

in detail in Section 6.6. Located along the northern edge of the city, the North Karnak Area is bounded 

by a canal on the north, the railroad tracks on the east, Karnak Temple on the south, and a north-south 

railway line on the east. Two distinct areas are present. One area is a traditional neighborhood of narrow 

streets and dense residential buildings, while the other area is undergoing significant change as former 

agricultural fields give way to new informal residential development. Figure 9 identifies the existing 

features of the area. Agricultural lands and small settlements characterize the area; however, smallscattered 

settlements are beginning to encroach on the northern border of the Karnak Temple. 


Planned to accommodate approximately 10,000 new residents by 2020, the actual amount of new 

development in the North Karnak area may exceed this number, if residents living within the protected 

area surrounding Karnak Temple elect to relocate to new developments within the same general area, but 

further north. Through providing utilities, services, and open spaces, this neighborhood will be attractive 

to residents in areas along Kebash Avenue or immediately adjacent to Karnak Temple for relocation. 

A perimeter road to connect the Karnak Development Area to the Corniche extension and to the Airport 

Road in the east will be built to serve the area. By placing the road just west of the railroad corridor and 

81



just south of a major canal, the road will discourage informal settlements from occurring in agricultural 

lands outside the city boundary. Local streets will run from the perimeter road to housing areas. But 

collector system will not be developed, in order to discourage additional encroachment on the Karnak 

Temple area. Figure 10 illustrates the Development Concept. 

6.4 New Public Facilities and Extended Utilities 

6.4.1 Existing Context 

Inadequate public facilities and utility services are a serious problem in Luxor City. Existing public 

facilities are primarily located in the center of the city, with most major facilities located along or near the 

Corniche. Basic public services, such as schools, are lacking in new development areas, particularly in 

areas east of the railroad tracks that have limited access to other parts of the city. Water services are 

available to 100% of the Luxor City population, but only 25% of the population is served with a 

wastewater collection system. 

6.4.2 Service Center Concept 

An important effort in improving the quality of life for Luxor City’s residents is providing new public 

facilities and extending utility service. As illustrated in Figure 4, extensions to the water and sanitation 

system are proposed in order to serve all city residents, except for those settlements in the protected area 

immediately surrounding Karnak Temple. New Neighborhood and District Service Centers, as described 

in Chapter 4 and identified on Figure 7, are proposed to provide centers for community life in new 

development areas and to meet public facility demand. 

Neighborhood Service Centers 

A total of six Neighborhood Service Centers, each serving approximately 8,000-10,000 residents, are 

proposed in the planned development neighborhoods. Four centers will be located in the Southern Area, 

one in the Eastern Area, and one in the Karnak Area. Each service center will require approximately 2.7 

feddan of land to support facilities serving young children and the daily needs of families, as estimated in 

Table 14 of Chapter 4. Facilities in each center will include two primary schools, four nurserykindergartens, 

a neighborhood mosque, and numerous commercial shops. All of these uses would be 

served by parking as well as a centrally located park and courtyard which will serve as a center for 

neighborhood community life. Located along greenways, the neighborhood centers will be within 

convenient walking distance of no more than 500 meters from every home. 

Proposed areas to locate the local Neighborhood Service Centers are illustrated in Figure 7. Sites include 

areas in the existing urbanized portions of the city as well as areas within the three planned development 

neighborhoods. Neighborhood centers in the existing city will be on undeveloped parcels in areas 

currently under-served by basic public facilities, such as schools and mosques. In addition to the facilities 

described above, it is proposed that each service center within the already developed portions of the city 

be located in undeveloped land and be planned to include a recreational park. Other facilities included 

will vary substantially between centers, depending upon service inadequacies in the surrounding area. 

Neighborhood service centers in the new planned development neighborhoods will be more similar in size 

and use than centers in existing neighborhoods. Each center in the planned neighborhoods will have a 

relatively standard size and similar collection of facilities. Located on land set aside in each new 

neighborhood, each center will have good access to neighborhood streets and a greenway for pedestrian 

and bicycle traffic. 

82



District Service Centers 

District service centers will be located in areas between new and existing development. As illustrated in 

Figure 7, three District Centers are proposed to serve both existing neighborhoods and the planned 

development neighborhoods. These centers would be located along busy streets that offer public - 

transportation connections to existing and new neighborhoods. They would also include a variety of uses 

and landscaped areas for both active and passive recreation. 

Each District Center would contain a mix of public and commercial uses, with parking, centered around a 

park containing recreation facilities. Public facilities in the center would include a large mosque, a 

cultural center, and secondary schools. Services such as health clinics, post offices, and public safety 

offices would be clustered along major streets with commercial uses and non-industrial trade workshops. 

Additional facilities in the centers will vary by neighborhood demand. 

6.5 Improved Circulation and Access 

6.5.1 Current Situation 

An improved transportation network, is needed to serve both residents and visitors in Luxor City. Even if 

the city only experiences the modest growth estimated in Chapter 4, existing problems will only intensify 

with population and visitation increases unless circulation and access improve. 

Travel within Luxor City is primarily by foot, bicycle, horse-drawn carriage, and mini-bus. Private car 

ownership is very low, but will likely increase substantially over the next twenty years. As the number of 

cars increase, friction among pedestrians, and animal-drawn and vehicular traffic will be an increasing 

problem, particularly in the souqs and intersections in the older portions of the city. 

Public transportation in the Luxor City transit system includes local mini-buses that run along important 

streets and inter-regional rail and bus traffic. A minibus and taxi terminus located on El Mathan Street 

handles both local passenger traffic and inter-urban travel. The main rail station connects villages to the 

north and south as well as national service between Cairo and Aswan. 

Improving connections among areas of Luxor City is the project’s biggest challenge. Currently, the 

Corniche is the only major north-south through-route in the city. East-west access is equally limited, with 

the only major connection provided between the Corniche and the Airport Road. However, east-west 

access in other parts of Luxor City, particularly in the growing areas south and east, is severely 

constrained by the railroad lines that bisect the city. The existing grade crossings over the railroad are 

often congested and do not adequately link major circulation routes. One railway overpass for pedestrians 

exists north of the railroad station, but it is less convenient than the grade several hundred meters south 

and is infrequently used. 

6.5.2 Key Transportation Improvements 

Figures 8 and 12 identify proposed transportation improvements for Luxor City. Three levels of 

classification are given to existing, upgraded, and proposed roads: major arterial streets, minor arterial 

streets, and collectors. Additional transportation proposals are shown for spot improvements and public 

transportation improvements. 

Streets 

83



A Greenbelt Road – A greenbelt road that defines the eastern edge of development and improves northsouth 

access in Luxor City is proposed. The greenbelt road will run between the Corniche in the south 

and Airport Road in the north. Intersections with two major roads—the Airport Road and the New Luxor 

Highway—will provide strong regional links and offer an opportunity to create a distinctive southern 

entrance to Luxor City. The greenbelt’s design will integrate new sections with upgraded portions of an 

existing road. Limited intersections with local streets will be provided along the length of the Greenbelt, 

but dense commercial development will be discouraged. 

New Luxor Highway – New Luxor Highway will become the major inter-city connection between Luxor 

City and New Luxor, starting just north of the intersection of the proposed Greenbelt. Within the eastern 

part of Luxor City, an extension of the roadway will cross relatively undeveloped land, and will become a 

dense corridor of mixed-use development. 

Extended Television Street – This important commercial corridor in Luxor City will be extended to 

connect the existing city to the new southern development area. The street will be continued as a divided 

road similar in character to the extended New Luxor Highway. A portion of extended Television Street 

will run along a canal that separates new development areas from Bugdadi village to the south. South of 

the intersection with the Greenbelt Road, extended Television Street will curve towards the Nile and cross 

El Awameya Road. A mix of uses, including commercial and residential, will line the new street and 

make it the primary commercial corridor in the Southern Development Area. 

A Hierarchy of Streets in the Planned Development Neighborhoods – Three planned development 

neighborhoods at the north, south, and east edges of Luxor City will each have a comprehensive and 

integrated street network. As illustrated in Figure 8, major and minor streets are planned to provide 

service for the development areas and connections to the existing city street network. The Greenbelt 

Road is the major arterial that connects the southern and eastern planned development neighborhoods to 

regional destinations. Minor arterial streets will include extended Television Street in the Southern Area, 

extended New Luxor Highway in the Eastern Area, and an upgraded Perimeter Road parallel to and west 

of the railroad tracks in the Karnak Area (Selah Selim Street). Collector streets in each planned 

development will carry local traffic, located along the perimeter of neighborhood housing clusters and 

providing vehicular access to both Neighborhood and District Service Centers. Greenways will connect 

housing clusters with dedicated pedestrian and bicycle paths. 

Streets Crossing the Avenue of the Sphinxes – New Kebash Avenue will be a new street along the eastern 

perimeter of the Avenue of the Sphinxes restoration area, as shown in Figure 12. It will provide northsouth 

access between areas immediately east of Luxor Temple and the airport road extension on the 

southern edge of the Karnak Temple. Three “cross-over” bridges connecting the Corniche to New 

Kebash Avenue will provide a vehicular connection between uses on either side of the pedestrian-only 

Avenue of the Sphinxes. 

Spot Improvements 

Redeveloped Urban Intersections – Figure 8 identifies four intersections in developed portions of Luxor 

City that need improvement. Each of the areas already faces considerable congestion. Efforts in the three 

areas that intersect the rail lines should be focused on improving at-grade crossings, creating small parks 

and green spaces to mark important intersections, and managing traffic conflicts among pedestrians, 

vehicles, and other traffic. A fourth intersection improvement area is in the southeast portion of the city. 

The intersection needs to be realigned and widened to serve the increased traffic that is anticipated as 

commercial development along Television Street intensifies and additional development occurs in areas 

to the south. 

84



Major Intersections at Entrances to the City – The major Luxor City entrances are the El Awameya Road 

in the south, the Corniche in the north, and the Airport Road in the west. An additional major entrance is 

proposed at the southeastern edge of the city at the intersection of two major new roads: the Greenbelt and 

the New Luxor Highway. The New Luxor Highway entrance should be planned for a grade-separated 

crossing over the railroad similar to the recently completed Airport Road entrance intersection area. 

The entrances to the city at New Luxor Highway and Airport Road will require careful planning to 

include landscaping that helps create an attractive entrance to the City; informal settlements in the two 

intersection areas should be strictly prohibited. 

New Railroad Crossings – East-west access in areas bisected by the railroad tracks can be improved by 

constructing two additional crossings: (a) an at-grade pedestrian crossing near the city rail station, and (b) 

the grade-separated automobile and pedestrian crossing in the southern development area at the 

intersection of the Luxor City Greenbelt Road and New Luxor Highway. 

Public and Tourist Transportation Services 

Open Museum Shuttle – As described in Chapter 5, a tourist bus shuttle loop should be provided to allow 

visitors who elect to walk portions or the entirety of the Avenue of the Sphinxes to return to their point of 

origin. The shuttle should stop at Luxor Temple, Karnak Temple, the East Bank Visitor Center, and other 

sites along the Avenue of the Sphinxes and the Corniche, providing an important means for tourists to 

reach antiquities sites and other facilities and services within the city. 

A New Bus-Rail Station and Related Improvements – A transit station for inter-regional bus and rail traffic 

should be developed at the intersection of New Luxor Highway and Greenbelt Road. As illustrated in 

Figure 8, the proposed site offers ample land for parking and bus staging, as well as required related 

roadway improvements. South of this site and outside the greenbelt is an area along the rail line that 

should be reserved for spur rail lines. Over time, train storage and staging should be relocated and 

consolidated in the area along the New Luxor Highway to reduce land devoted to multiple tracks in the 

central Luxor City train station area and to facilitate pedestrian and vehicle crossing of the rail corridor 

between the east and west sides of Luxor City. 

6.6 The Open Museum and Heritage District 

6.6.1 The Need for Improvement 

Modern development has encroached on, and surrounds, some of the most signif icant antiquities sites in 

Luxor. Karnak Temple, Luxor Temple, and the Temple of Mut are surrounded by the modern city. The 

Avenue of the Sphinxes connecting these complexes is largely buried beneath the modern city. As 

magnificent as these monuments are, the setting around them detracts from the significance of these sites. 

Almost all tourists visiting Luxor experience these monuments. At the current level of tourism, these 

sites are already becoming overcrowded and the projected volume of future tour ists magnifies the 

prospects for gradual deterioration. The Open Museum and Heritage District is a concept to substantially 

expand restored areas and provide many additional venues to accommodate projected tourism growth. 

The District will also function as a vital relief valve to alleviate some of the deleterious pressures on the 

monuments that result from significant levels of tourism. 

Creation of an Open Museum and Heritage District, in coordination with restoration of the Avenue of the 

Sphinxes (the “Kebash”), has the potential to showcase the drama, art, and accomplishments of a 4,000 

85



year-old civilization. Together, the Avenue of the Sphinxes, Karnak Temple, and Luxor Temple 

comprise one of the most majestic and fascinating cultural landmarks in the world. Creating an over three 

kilometer long open museum in Luxor, thus connecting three dramatic Pharaonic antiquities sites, would 

unite the antiquities with the older sections of Luxor City as part of one extended tourist zone. The Open 

Museum and Heritage District would contain interpretive facilities to aid tourists in understanding the 

historical context and increase their appreciation for the accomplishments of the ancient civilization that 

gave rise to such monumental splendors. 

6.6.2 The Open Museum and Heritage District 

Investment Project #6: Investment Portfolio for the Creation of an Open Museum and Heritage District in 

Luxor City, Egypt 1 , offers a detailed description of the key project components and implementation 

strategy. Figures 9, 10, 11, 12, and 13 illustrate the existing condition and proposed improvements for 

the District. Key improvements to the Open Museum and Heritage District that are proposed include: 

(1) Completion of land acquisition for, and restoration of, the 2,400-meter-long Avenue of the Sphinxes. 

One-third of the Avenue of the Sphinxes has been acquired and is at some stage of restoration. The 

initial improvement will create a dedicated antiquity preservation zone and a second phase would 

provide contemporary vehicular circulation, introducing a replacement street on the East Side of the 

76-meter processional. 

(2) Acquisition of properties around Karnak Temple and the Temple of Mut to the Nile River, and 

relocation of residents from key locations on monument areas to new Development Zones (as 

described above) to the north edge of the city. 

(3) Relocation of some strategic government buildings to New Luxor, creating sites along the Corniche 

for expansion of parks, museums, an expanded convention center, performing arts venues, and 

tourism support services. 

(4) Development of a visitor center, with centralized cultural site ticketing, interpretative facilities, and 

centralized bus parking/tourist shuttle system. 

(5) Preservation and enhancement of the old section of Luxor City and traditional market areas. 

(6) Traffic/pedestrian circulation system improvements, including vehicular-restricted and pedestrianonly 

zones. 

(7) Consistent public management of development and city growth to reinforce the objectives of the 

District. 

6.6.3 Management Zones within the Open Museum and Heritage District 

Several sub-zones within the Open Museum and Heritage District are shown on Figure 13 and require 

different objectives and actions: 

(1) Monument Protection Area – This area is defined by Luxor Temple and the Karnak Temple site, and 

will include the connecting Avenue of the Sphinxes to be excavated and restored. Within this area, 

no private buildings or improvements would be allowed, and priority would be given to archeological 

and preservation efforts. Public improvements necessary to the accommodation of visitors to the 

monuments, including design of visitor improvements and facilities that can be sited and designed to 

positively contribute to the historic setting, would be allowed. 

(2) Neighborhood Preservation Area – This area is located between the Avenue of the Sphinxes and the 

Corniche, from Karnak Temple to Pola Hotel Street. The area is a traditional active neighborhood 

with an older main street, mosques, residences, and other neighborhood services, and relatively few 

tourist services or uses. Although the edge of this neighborhood may be somewhat impacted by 

restoration of the Avenue of the Sphinxes, the general form and character of the remainder of the 

neighborhood should be preserved, with new uses limited to residences and neighborhood support 

1 Six-Investment Projects were created through the CDCL project and are available under separate cover. 

86



uses of limited height and traditional character. This should not evolve into a major hotel or touristoriented 

district. 

(3) Central Luxor Area – This area consists of the districts immediately to the east and west of the 

proposed Avenue of the Sphinxes corridor, between the Airport Road and up to the southerly edge of 

Luxor Temple. These areas will be the parts of existing Luxor City to be most transformed by the 

plan and the Open Museum District. 

The area to the West Side of the Avenue of the Sphinxes contains many public sites (such as HCLC, 

the hospital, several schools, and others) that are or will be functionally obsolete. Many of these uses 

could be relocated to other regional growth locations such as New Luxor. The Luxor Museum and 

Convention Center are two important public uses within this western area that could be expanded 

and/or beautified. 

Existing substantial hotels in this area would remain, although priority would be given to new 

museums, museum expansion, and new parklands to serve as settings for the antiquities. Limited new 

hotel and tourist support activities could be encouraged in this precinct, if planned to ensure adequate 

public access and surrounding green space. 

To the east side of the Avenue of the Sphinxes, construction of the restored Avenue and the New 

Kebash Avenue will require removal of existing structures, enabling rehabilitation and new infill 

construction along these edges. The new East Bank Visitor Center would be located in this area, 

adjacent to the current inter-city bus station. New infill construction can be encouraged along the 

edges of abutting streets for retail uses, tourist developments, and visitor services. The Avenue 

project can provide an opportunity to create linkages to the traditional existing souqs, as well as 

expansion of the retail district and venues for expanded tourist activities. 

(4) Central Corniche Area – Along the Open Museum District, the green edge of the existing Corniche 

would be maintained. With the availability of the cruise ship port south of the Luxor Bridge, cruise 

ship docking should be removed from significant portions of the lower Corniche, enabling expanded 

docking for small excursion boats and the development of additional retail and restaurant uses at the 

lower level, close to the Nile. 

(5) North Karnak Development Area – Encompassing a traditional village and a largely undeveloped area 

north and northeast of Karnak Temple, the area is described in Section 6.3.5 as a planned 

development neighborhood incorporating housing for 10,000 new residents along with public 

facilities and commercial services. 

(6) North Corniche Development Area – The area is presently characterized by a largely undeveloped 

riverfront and scattered commercial development along the extended Corniche Road. Lacking any 

historic buildings, but offering a prime location close to the historic core of Luxor City, the area is to 

accommodate tourism-oriented infill development at a density and scale greater than other portions of 

the Open Museum and Heritage District. 

(7) No Utilities or Service Area – Informal residential developments are steadily encroaching on Karnak 

Temple’s eastern edge. In order to prevent additional construction, no services or utilities would be 

provided to structures in the area. 

6.6.4 Open Museum and Heritage District Illustrations 

Annex 1 contains five illustrations that characterize various settings within the Open Museum and 

Heritage District following the completion of the proposed improvements. 

(1) Figure 14: Aerial view of the Avenue of the Sphinxes towards Luxor Temple illustrates the restored 

Avenue as the centerpiece of the Open Museum and Heritage District project. With attractive bridges 

across it and a ribbon of open spaces along it, the Avenue will serve as both an attraction and 

community resource. 

87



(2) Figure 15: Ground level view of activity along the restored Avenue of the Sphinxes illustrates the 

range of activities that may develop along the Avenue. The attractive open spaces and commercial 

concessions will attract tourists and residents alike to the historic core of Luxor City. 

(3) Figure 16: Activity along the Lower Corniche in the Luxor City Open Museum and Heritage District 

illustrates the opportunity to increase the appeal of the Lower Corniche through reduced cruise ship 

docking and the introduction of commercial concessions and physical amenities, including benches 

and landscaping. 

(4) Figure 17: The Processional Way in front of the entrance to Karnak Temple illustrates the 

opportunity to create a grand west entrance and plaza for the Temple. The reflecting pool is inspired 

by the historic water connection between Karnak and the Nile. 

(5) Figure 18: View towards the Necropolis from the East Bank Visitors Center illustrates a roof deck 

on the Visitors Center that would allow visitors the opportunity to look out onto the Open Museum 

and Heritage District, a view that would include new open spaces and the restored Avenue of the 

Sphinxes. 

6.7 Phasing of Luxor City Improvements 

A summary of the proposed phasing for Luxor City improvements is provided in Chapter 9 and 10, with a 

more detailed description of the phasing proposal offered in Investment Project #6, Investment Portfolio 

for the Creation of an Open Museum and Heritage District in Luxor City, Egypt. 1 


88



Chapter 7: 

The Plan for New Luxor 

7.1 The Need for a New Town in the Luxor Region 

The fast growing Luxor region is expected to at least double in population over the next twenty years. In 

order to reduce development pressures on the historic Luxor City area and protect the agricultural zone 

from encroachment, the Egyptian Government has advocated the development of new settlements outside 

the existing urbanized area that will absorb the majority of new development over the next twenty years. 

One new town, New Thebes, has already been started 15 kilometers northeast of Luxor City and is 

expected to absorb a portion of future development. However, with the recent completion of a Luxor 

Bridge and the anticipated nearby expansion of a port for cruise ships south of Luxor City, most 

development will trend toward the south. If a new town is not planned for in the south of Luxor City, 

unplanned, informal development will occur in that area and result in negative consequences for the 

future prosperity of the region. Unfortunately, unplanned development is already occurring, with 

substantial agricultural lands being claimed by informal development to the south and east of Luxor City. 

Timely action to stem this undesirable growth is essential; an attractive new town is needed to become the 

magnet for new development in the Luxor region 

7.2 The Proposed Site 

7.2.1 Location 

The location of New Luxor is south of Luxor City, east of the Cairo-Aswan Highway and the agricultural 

belt. The site is accessible and visible from the Highway, and consists of three east-west oriented 

plateaus, separated by wadis. The site is in close proximity to the regional sewer treatment site, planned 

for substantial upgrade, and is readily accessible to the new Luxor Bridge. Inter city rail is nearby, 

parallel to the highway, and potential land reclamation efforts in the vicinity hold the promise of turning a 

portion of the desert land in the site vicinity into green cultivated property. Figure 19 identifies the 

location of New Luxor in relation to Luxor City, the Nile River and the other proposed development of El 

Toad. 

7.3 The Vision for New Luxor 

7.3.1 The Role of New Luxor in the Region 

New Luxor’s recommended site seven kilometers southeast of Luxor City takes advantage of favorable 

access, environmental conditions, and infrastructure connections. The new city will be a pleasant place to 

live and work, setting a new standard for development in the Luxor region. It will have high-quality 

infrastructure, open spaces, and public facilities. With an eventual population of approximately 200,000, 

New Luxor will become the major commercial, governmental, and residential location in the region. New 

Luxor’s attractive urban environment for an economically diverse mix of residents will make it a magnet 

for new development, thereby relieving the growth pressures on Luxor City. New Luxor has the potential 

to become a model for the region, to show how planning in advance of development can help to create a 

high-quality living environment. 

89



7.3.2 The Concept of the Plan 

The Plan for New Luxor has been developed to achieve a livable and attractive community which takes 

advantage of its regional setting, incorporating the following key features, as shown in Figure 20 and as 

described and illustrated in further detail in sections below: 

(1) The community is located east of substantial agricultural lands, ensuring an attractive greenway entry. 

(2) Major development is located on three elongated east-west plateaus, linked with major arterial streets. 

(3) The city axis and city center, on the central plateau, is oriented to the Theban Necropolis, which is the 

most characteristic landmark in the region and highly visible from this location. 

(4) Many city parks and open spaces are located on the wadis between the plateaus, providing an 

effective use of land and supporting green spaces to city activities. 

(5) Each neighborhood is conceived as a relatively independent unit, with central services, minimal 

through-traffic, and close proximity to District Service Centers. 

(6) Early connections with New Luxor can be achieved by upgrading existing roadways, while the longrange 

connection to Luxor City will be provided through a new arterial boulevard that will lead to the 

southerly growth area of the existing city. 

(7) The northwest corner of the city, in close proximity to agricultural lands and potential irrigation 

resources associated with tertiary treatment of the new wastewater plant, will be devoted to an 

agricultural village with nearby agro-processing industries, providing an initial employment base and 

investment rationale for the city’s growth. 

7.4 Primary Land Uses and Activities 

7.4.1 Needs Assessment 

Chapter 4 of the Structure Plan includes estimates of the required facilities and services to accommodate 

the forecast population of New Luxor. These forecasts are based on the anticipated population of the new 

city and upon generally agreed service standards for new communities elsewhere in Egypt. Table 6, in 

Chapter 4, provides a detailed summary of new public, commercial, recreational, and other facilities 

required to serve the new city in 2020. Included in this table is an estimate of the typical size and land 

area of each facility, and the total site requirements of approximately 3,000 feddan that will be required 

by 2020. Additionally, Tables 10 and 11 show the estimated requirements for facilities and land in the 

city center, Tables 12 and 13 show comparable requirements in each of eight (8) District Service Centers, 

and Tables 14 and 15 show the comparable requirements for each of twenty-five (25) Neighborhood 

Service Centers. 

7.4.2 Neighborhood Areas 

Twenty-five neighborhoods, with areas adequate to support a population of 8,000-10,000 each, comprise 

the largest land areas in New Luxor. A total of 2,016 feddan, or 62% of New Luxor’s total area, will be 

made up of the predominately residential neighborhoods. A typical neighborhood is illustrated in Figures 

21 and 23, showing its general shape and pattern. Although the form and character of each neighborhood 

will vary, a number of shared principles will guide development: 

(1) Neighborhoods are envisioned as building blocks that can be phased to accommodate gradual 

development. Each neighborhood will include housing clusters that are within a 500-meter radius of 

a Neighborhood Service Center, as shown in Figure 21. 

(2) The neighborhoods are envisioned to include a variety of house types and sizes, to meet the needs and 

preferences of a broad range of residents. 

(3) The economies of low-rise construction and the constraints of the desert environment influence 

dwelling design to be low in height and dense with respect to ground coverage in order to provide 

shade and minimize irrigation. Single-family attached and detached houses on small lots are 

proposed for most New Luxor neighborhoods. Average lot sizes based on income and quality of 

90



construction are consistent with new town planning standards in Egypt. The average lot sizes are 

only used to roughly estimate residential land area demands for New Luxor; further market study 

information will be necessary to guide the actual design of New Luxor’s neighborhoods. 

(4) The relatively compact residential areas in New Luxor will allow for safe access by foot or bicycle to 

the pedestrian-oriented neighborhood greenways, and from there to the Neighborhood Servic e 

Centers, where travel can continue by foot, bicycle, or bus to District Service Centers. 

7.4.3 Service Centers 

Closely associated with neighborhood areas are service centers that serve residents at the neighborhood, 

district, and city level. Collectively, the service centers will require nearly 478 feddan, or 15% of the total 

land area in New Luxor. The following passages describe the mix of services and facilities located in the 

service centers, as itemized in the Tables in Chapter 4 referred to previously. The location of each type of 

center is shown in Figure 22, and Figure 23 offers a plan for a typical district and neighborhood, while 

Figure 24 offers an illustrative view of the civic spaces within a New Luxor neighborhood center. 

Neighborhood Centers 

Each of the 25 New Luxor neighborhoods will contain a centrally located service center that is 

approximately 25 feddan in size. Focused on facilities serving young children and the daily needs of 

families, neighborhood centers will be within convenie nt walking distance of every home. Each 

neighborhood center will serve approximately 8,000 residents and contain two primary schools, four 

nursery-kindergartens, a neighborhood mosque, and numerous commercial shops. All of these uses are 

served by parking as well as a centrally located park-courtyard, which will serve as a center for 

neighborhood community life. Neighborhood centers are typically located along greenway linkages that 

connect each neighborhood to other sectors of the city. 

District Centers 

At the next scale of development are the district centers. Each District Service Center serves three 

neighborhoods, or approximately 24,000 residents, and is located within a maximum service radius of 

approximately 1,000 meters from every home in New Luxor. Located along busy arterial streets that 

offer public-transportation access throughout the city, the eight (8) planned district centers of 

approximately 20 feddan each will become major sources of activity for New Luxor residents. Each 

district center contains a mix of public and commercial uses with parking, centered on a five-feddan park 

containing recreation facilities. Public facilities in the center include a large mosque, a cultural center, 

and a secondary school, along with services such as health clinics, post offices, and public safety offices. 

Commercial uses include retail shops and non-industrial trade workshops that do not require large support 

facilities and are compatible with associated commercial, service, and related uses. 

City Center 

Centrally located with good transit access to all areas of New Luxor, the 85-feddan-city center will 

become the major activity area in New Luxor, with high-density commercial, recreation, and public 

facility development encouraged. Figure 25 indicates the proposed development of the city center area, 

while the program of land uses are summarized in Table 10, in Chapter 4. Approximately 33% of the 

city center area is to be devoted to private development, with the balance divided between public facilities 

and open space (53%) and infrastructure (14%). 

Services in the city center, as itemized in Table 11 in Chapter 4, will include major public, commercial, 

and recreation facilities. Public facilities in the center will include educational, governmental, cultural, 

and health services. In contrast to the Neighborhood or District Service Centers, these public facilities 

91



will be major ones that attract residents from throughout New Luxor and, for many services, will support 

residents of the larger region. Key public facilities include a hospital, clinic, mosque, church, and two 

large technical schools, one focused on the tourism industry and the other focusing on agriculture-related 

work. Commercial uses in the city center will also have a citywide draw and include hotels, large shops, 

and non-industrial trade workshops. 

As illustrated in Figure 25, the boulevard becomes the major ordering element for the New Luxor City 

Center, lined by public buildings and commercial uses. At the intersection between the boulevard and the 

major north-south greenway, a visual focus to the city center is created through a large park surrounded 

by an architecturally distinctive cultural center and major mosque. 

The major greenway that runs through the city center will serve as the primary connection between 

urbanized areas of New Luxor and large city center parks on the north and south perimeters of the area. 

Located in the wadis, the city scale parks will include major recreational facilities, such as sports fields 

and courts, and a stadium. 

7.4.4 Open Space Areas 

A network of lush open spaces through New Luxor will give it the character of an urban oasis on the edge 

of the desert. As illustrated in Figure 26, a total area of 157 feddan will be set aside for either active or 

passive open space. 

At the city scale, the plan takes advantage of the surrounding environmental features. Long linear wadis 

will become fingers of passive open space weaving through the urbanized portions of New Luxor. These 

same wadis will also serve to collect storm drainage during the infrequent rains, and can add to the open 

space network and become a desirable amenity for New Luxor residents. 

In addition to the passive open space created by the wadis, landscaped boulevards, and greenways, a 

system of parks at several scales will also be developed in New Luxor. These parks, provided at the 

neighborhood, district, and city level, will be used for active recreation. A detailed description of the 

sizes and planned uses for the parks is offered in a following section on service centers. 

7.4.5 Agro-Processing and Light Industrial Areas 

Lands in the northwest corner of the New Luxor plan are to be set aside for agro-processing and light 

industrial uses. In these areas, shown in Figure 20, an existing connection to irrigation canals and intercity 

road connections can support these uses as well as light-industrial workshops, such as welding and 

carpentry, that should not be mixed with commercial and public uses in the service centers. These lightindustrial 

workshops require good access and ample space to warehouse goods. An additional area in the 

northwest portion of New Luxor should be developed as an agricultural processing area. This area will 

include services and homes for workers, as well as areas nearby where agro-processing facilities can 

locate. 

7.5 Circulation Concept 

7.5.1 Strong Regional Connections 

New Luxor will offer strong connections throughout the region. The new town will offer convenient 

access to the international airport, Luxor Bridge, and the inter-regional Cairo-Aswan Highway without 

the immediate need for major new inter-city roads. As the community grows, two important inter-city 

roads will be built. The new Luxor Highway will provide a direct connection to a new southern gateway 

rail station in Luxor City. A north-south road along the edge of the agricultural belt will become an intra- 

92



regional connector linking New Luxor to the El Toad Tourism Zone to the South and strengthening the 

connection to the International Airport, northeast of the new city. 

7.5.2 A Hierarchy of Streets 

By reserving rights-of-way in advance of development, New Luxor can be planned to have a 

comprehensive and integrated street network as shown in Figure 27. Both major and minor streets will 

be planned to provide for the adequate circulation of private vehicles, buses, and other transportation 

modes. Streets in New Luxor will be classified according to function, and designed for each functional 

classification. Local streets, designed to provide access to each residence, will have very low traffic 

volume. Higher volume streets will form loops and provide the principal routes for deliveries and service 

to neighborhood centers. Collector streets run through district centers, intercept traffic from 

neighborhood streets, and feed into the arterial streets that run along the perimeter of each district center. 

The arterial streets, forming a continuous network connecting each district center to the city center as well 

as regional destinations, provide for the rapid movement of high volumes of traffic over relatively long 

distances. 

7.5.3 A Distinctive Entry Boulevard 

An east-west boulevard will be the major point of entry for traffic from the New Luxor Highway 

connecting to Luxor City. With a right-of-way to accommodate four lanes of traffic, shoulders, and a 

linear park, the boulevard will become an attractive entrance to the New Luxor City Center. Buses will 

run the length of the city center boulevard and provide the major means of public movement within the 

center while inter-connecting the city center to other citywide public transportation routes. The mallboulevard 

will become a strong axis through the center of New Luxor, offering views to the West Bank 

Necropolis to which it is aligned. Continuous pedestrian arcades along the boulevard provide a shaded 

walking environment adjacent to the mall through the city center area. As an open space feature 

connecting a series of urban spaces in the city center, the central boulevard has the potential of becoming 

a promenade for New Luxor residents, similar to the role of the Corniche in Luxor City. 

7.5.4 Dedicated Pedestrian and Bicycle Paths 

An exclusive system for pedestrians and cyclists will be provided through the local greenways that 

connect neighborhood centers. Pedestrian and bicycle traffic is also accommodated along the collector 

system roads. 

7.5.5 Limited Animal traffic 

Animal-drawn cart traffic will be minimized in New Luxor through establishing produce and livestock 

market areas in the northwestern portion of the city that intercepts traffic from the surrounding 

agricultural lands before it enters New Luxor. 

7.6 Utilities Planning for New Luxor 

In order to absorb rapid development over the next twenty years, New Luxor will need to have adequate 

infrastructure and utilities. Priorities include an adequate supply of clean water and a system of solid 

waste disposal. Infrastructure planning for New Luxor needs to be part of an integrated regional strategy 

that takes into account planning in the nearby El Toad Tourism Zone, as well as other regional efforts. 

The development of Infrastructure for the servicing of New Luxor and El Toad has been detailed in 

Investment project #4. 

93



7.6.1 Water Supply 

Luxor City currently supplies Nile River water to villages in the rural portions of the East Bank Markhaz, 

but the operation and maintenance of the distribution system is the responsibility of the Qena governorate. 

As New Luxor grows, a well-planned distribution system with necessary pumps and supporting facilities 

will need to be developed and integrated with the regional water supply network. 

Ideally, a private sector-led effort should design, finance, build, and operate a water treatment plant to 

serve both New Luxor and the El Toad Tourism Zone. Water treatment facilities will be phased in 

according to development, but sufficient land will be set aside to develop full capacity for projected 

development over the next twenty years. A build-operate-transfer (BOT) or concession agreement will 

provide for bulk water sale to New Luxor and for the setting of rates for the El Toad area. 

7.6.2 Wastewater 

Wastewater in New Luxor will come almost entirely from non-industrial sources, such as residences, 

commercial businesses, and public facilities. The waste should be collected by gravity sewers and 

conveyed to the new treatment plant located just two kilometers northeast of New Luxor. A 1996 report 

by consultants (CDM) concluded that the new plant should be sufficient to meet projected demands until 

the year of 2020, assuming a regional population of approximately one million. 

New Luxor’s location near the new waste treatment plant offers an additional benefit. The effluent, or 

grey water, from the treatment plant can be used to irrigate the New Luxor shelterbelt, while the sludge 

from the treatment ponds can be used as a soil conditioner to reclaim desert lands for agriculture. 

7.6.3 Irrigation 

The poor soil conditions and the complete dependence upon irrigation to support plant life in New Luxor 

means that planted open space must be continuously maintained. To conserve water under these 

circumstances, recycled water should be used to irrigate shelterbelts, back yards, and open spaces in New 

Luxor. Although the wastewater effluent is suitable to irrigating shelterbelts on the city edge, it is not 

suitable for irrigating parks nor other actively used open spaces. Active open space should be irrigated by 

either the city’s potable water supply or the relatively clean wastewater from sinks and showers collected 

separately from the toilet waste. 

7.6.4 Solid Waste 

A well-managed sanitary landfill operation for the disposing of solid waste should be planned to serve the 

entire East Bank, including New Luxor and El Toad. A sanitary landfill would replace the current 

practice of informal dumping in the desert south of the airport. In addition to managing the collection and 

disposal of waste, a system of composting, the biological process to decompose the waste and obtain 

usable soil conditioner, should be promoted in New Luxor. Doing so provides an opportunity to further 

enrich New Luxor’s desert setting with vegetation. 

7.6.5 Electrical/Communication Services 

A coordinated strategy should be developed to upgrade the existing communications and electrical service 

in the area. It is anticipated that a new electric sub-station and a telephone exchange will be needed to 

serve both the New Luxor and El Toad areas. Estimates have been made for 10,000 new 

telecommunications lines in the area. 

The existing utilities corridor that runs between New Luxor and El Toad offers the necessary rights-ofway 

to locate additional lines that can serve both areas as they develop. 

94



7.7 Phasing of New Luxor 

A summary of the proposed phasing for New Luxor’s development is provided in Chapter 9 and 10, with 

a more detailed description of the phasing proposal offered in Investment Project #3, Investment Portfolio 

for the Development of the New City of New Luxor, Egypt. 1 

1 Six Investment Projects were created through the CDCL project and are available under separate cover. 

95



Chapter 8: 

The Plan for the El Toad Tourism Zone 

8.1 The Need for a Tourism Zone in the Luxor Region 

The creation of a tourism zone outside Luxor City is necessary to serve the future needs of the rapidly 

growing regional tourism industry. With tourism in Luxor expected to increase from one million visitors 

to over 4,000,000 visitors in 20 years, there will be a need for an estimated 6,600 new hotel rooms in 

addition to the 2,280 rooms currently being planned. 

Existing hotel development areas are inadequate to serve future needs. Suitable areas in Luxor City are 

limited to small infill parcels along the Corniche or lands on the perimeter of the city that are reserved for 

agricultural use. Proposed hotel sites in outlying areas, such as New Thebes and Khuzam, will increase 

capacity, however the scale and location of these areas are not ideal for a major tourism zone. A large 

area with site amenities and strong regional access is needed as a major tourism zone for the Luxor 

region. Such an area not only can provide ample sites to support new hotel construction but can also 

support tourist recreational services and amenities which contemporary tourists expect. The inclusion of 

diverse mechanisms within this zone can expand the range of activities for tourists and provide some 

alternatives to relieve pressures on the monument areas. 

8.2 The Tourism Zone Site 

8.2.1 Location 

The El-Toad area is approximately 9 kilometers south of Luxor City and 2 kilometers south of New 

Luxor. The desert site overlooks the fertile Nile River valley. Nearby areas include El Toad Temple and 

a plateau area overlooking the Nile, within which are located sites of tombs. 

Existing regional links between El Toad and other East Bank activities include the inter-regional rail line 

and Cairo-Aswan Highway that run along the western edge of the site. With a location just two 

kilometers south of the Luxor Bridge, El Toad provides exceptional access to tourism attractions on the 

West Bank. The proposed cruise ship port immediately adjacent to the area will further enhance the value 

and attractiveness of El Toad. 

8.2.2 Characteristics 

El Toad is a desirable site with favorable development potential. Encompassing two large undeveloped 

plateaus, El Toad offers a dramatic setting that will support significant tourism development. North and 

westward views from the plateaus take in the Nile River Valley and distant Necropolis. In other 

directions, views take in the wadis, agriculture, and desert lands that frame the site. Local character is 

provided through the nearby villages, the infrequently visited and attractive El Toad Temple site, and 

commoner tombs. 

8.3 The Vision for the El Toad Tourism Zone 

8.3.1 The Role of El Toad in the Region 

The El Toad Tourism Zone will include both tourism accommodations and attractions with regional 

appeal. Commercial and recreational attractions will make El Toad a major tourism destination, thereby 

promoting longer stays in the Luxor region and helping to relieve the visitor volumes at area monuments. 

96



Amenities will include a golf course, theater, museum, large-scale gardens, tennis, and equestrian 

facilities. This will diversify tourism in Luxor and increase economic opportunities for local residents. 

Concentrating hotel development in a well-planned zone will also achieve economies of scale for 

provision of superior amenities, maintenance, events planning, and security, as hotels can share 

promotional programs and facilities. 

8.3.2 The Concept of the Plan: 

The plan for the El Toad Tourism Zone, as illustrated in Figure 28, has been developed to create a 

desirable area of both attractions and accommodations that serves regional tourists. Figure 29 offers an 

aerial view of the El Toad tourism zone with the mixed-use entry area in the foreground and the golf 

course in the background. Key features of the site are offered below, with further descriptions in 

following sections: 

(1) El Toad is located outside agricultural and antiquities lands. Development on the plateau can be 

oriented to capture the dramatic views of the Nile River Valley and distant Necropolis. 

(2) Development through the 2020 period should occur on the southern plateau, which can be strongly 

linked to the proposed cruise ship port. In the more distant future, assuming that monument capacity 

constraints are met, there will be the potential for future touristic zone development on the nearby 

plateau to the north. 

(3) Approximately 18 hotels, with a total of 4,500 rooms, are planned for the twenty-year period. 

Accommodations will vary in quality and type, including three-, four-, and five-star hotels and villa 

complexes. 

(4) The El Toad plan is coordinated with the new cruise ship port development in order to create an 

integrated tourism zone that promotes more joint cruise-hotel stays and improved connectivity. 

Figure 30 illustrates the connection between the proposed cruise ship port and the El Toad entry area, 

along with select street sections. 

(5) Attractions, such as an 18-hole golf course and botanical garden, are incorporated into El Toad in 

order to broaden the types of tourism experiences possible in the Luxor Region. 

(6) An inter-modal transportation facility is built at the intersection of the inter-regional highway and the 

El Toad entrance road, adjacent to the new cruise ship port. The facility becomes the primary transfer 

point between water and surface transportation in the area. 

(7) A road between El Toad and New Luxor is eventually developed to provide a direct connection that 

bypasses local area settlements. 

(8) Regular shuttle bus service is established to provide convenient access between the cruise ship port, 

destinations within El Toad, and regional destinations on the East and West Bank. 

(9) A visitor center with a museum interpreting regional local life customs is built along the formal 

entrance boulevard to El Toad. The visitor center also serves as a staging point for shuttle bus service 

within the El Toad area and tour bus traffic to regional destinations. 

8.4 Primary Land Uses and Activities: 

8.4.1 Needs Assessment 

Chapter 4 of the Structure Plan includes estimates of the demand for hotels and supporting facilities in the 

El Toad Tourism Zone. The forecast of hotel room demand is based on the anticipated level of visitation 

that can be supported by the region in 2020, and the assumption that the economies of scale for creating a 

tourism area with shared amenities will make El Toad a preferred location to concentrate hotels. 

Attractions and services provided in El Toad are consistent with general planning standards for tourism 

development, as well as the program for tourism zones elsewhere in Egypt. Table 8 in Chapter 4 

provides a detailed summary of the commercial, recreational, and support services required to serve the 

97



tourism zone in 2020, including an estimate of the total site requirements of approximately 503 feddan by 

2020. 

8.4.2 Tourism Lodging 

A collection of 18 hotels and villas with approximately 4,500 rooms will locate in the El Toad Tourism 

Zone. The hotels will comprise nearly 171 feddan of land, or 34% of the total area of the tourism zone. 

Accommodations will vary in design and scale. Hotels will cluster at the entrance and along portions of 

the loop road. The highest quality hotels will likely locate in the northwest portion of El Toad with views 

to the Nile and Necropolis. The four hotels that locate in the El Toad Center at the entrance to El Toad 

will be integrated with the surrounding shops, entertainment, and services to create an active environment 

that is distinct from the more secluded hotel developments along the golf course. Additional variety is 

offered through low-rise villa developments that locate along attractive narrow roads winding through the 

lushly landscaped golf course. 

All hotels and villa developments will offer on-site recreation and service amenities that vary in amount 

and quality among the three-, four-, and five-star developments. Shared resources within El Toad will 

include recreation, cultural and entertainment, public facilities, and transportation. Following is a 

description of the shared El Toad resources and the land use requirements. 

8.4.3 Recreation 

In addition to on-site facilities, shared recreation facilities will be located throughout the tourism zone. A 

total of 192 feddan, or 38% of the total land area will be dedicated to recreational uses. In addition to the 

167 feddan 18-hole golf course creating El Toad’s oasis atmosphere, other facilities will include horse 

stables, pools, sports courts, mini-golf, and playgrounds. 

8.4.4 Commercial 

Scattered among three areas within the tourism zone are shops, restaurants, and cafes. Commercial uses 

will be integrated with associated cultural, entertainment, and public service facilities. Approximately 35 

feddan of the tourism zone will be dedicated to commercial uses. Upon completion of the cruise ship 

port, additional commercial businesses may locate there. 

8.4.5 Cultural and Entertainment 

The El Toad Center will include facilities to serve both hotel guests and visitors. Facilities located in the 

center of the touristic zone, including a cinema, theater, nightclub, multi-purpose hall, and shops, will 

create a lively and attractive area. The El Toad Center should also include a museum with exhibits on the 

Luxor region’s history, local customs, and traditions, which could be integrated with interpretation of the 

Commoner Tombs area that is adjacent to the Center. A visitor center will offer regional information and 

serve as an entry point to the botanical garden and transfer point for bus tours of the nearby Commoner 

Tombs and El Toad Temple. Total cultural and entertainment facilities will require approximately 3 

feddan in land area. 

8.4.6 Public Service Facilities 

Also located in the El Toad Center will be public facilities, such as a post office, police station and fire 

station, that service the entire tourism zone and nearby cruise ship port. Collectively, the visitor center, 

administrative center, communications center, and security services center will require 1.8 feddan. 

98



8.4.7 Transportation Facilities 

In order to create an efficient circulation system that provides connections within the tourism zone and 

regionally, an inter-modal facility will be sited near the intersection of the El Toad entrance road and the 

Cairo-Aswan Highway. Adequate parking and staging areas should be provided for the El Toad shuttle, 

regional coaches, and rental cars. Located adjacent to the new cruise ship port, the inter-modal facility 

will also become a good transfer point between water and surface transport. Easy transfer between buses 

and shuttles to water taxis, ferries, and cruise ships will be possible. 

8.5 Circulation Concept 

8.5.1 Strong Regional Connections 

Planned transportation improvements in the area will further strengthen El Toad’s exceptional regional 

access. Tourists arriving from either the airport or port will find the location to be a convenient one to 

stay or visit. The airport is easily accessible via the Cairo-Aswan highway that runs along the edge of El 

Toad, while cruise ship traffic will arrive at a large new port that is integrated into the development, 

thereby increasing the number of tourists combining hotel/cruise tours in the region. An inter-modal 

transportation facility that serves both El Toad and the cruise ship port gives an opportunity to link the 

two areas and provide convenient transportation connections to tourists. 

Access from El Toad to attractions in Luxor City and the West Bank will also be convenient. Travelers to 

Luxor City will use the Cairo-Aswan highway and the El Awameya Road connecting to the Corniche, 

while travelers to the West Bank Necropolis will be well-served by the Luxor Bridge located just two 

kilometers from El Toad. 

8.5.2 Convenient Internal Circulation 

Within the El Toad Tourism Zone, circulation will be served through an attractively landscaped loop road 

that winds through the development. Shuttle service will be provided along the loop road to serve traffic 

going among the cruise ship port, hotels, and commercial nodes of activity throughout the El Toad Zone. 

The entry sequence into El Toad would be along an attractively landscaped road running between the 

cruise ship port, across the railroad tracks, and up a steep grade to the El Toad Center. The Center’s 

collection of shops and services includes an information center that also serves as a shuttle bus transfer 

point for reaching hotel and villa development areas and nearby attractions, such as the Commoner 

Tombs and El Toad Temple. 

The formal entry road continues on to another commercial area and golf club where at that point it 

branches into a loop road that runs around the perimeter of the golf course to reach hotel development 

areas. Villa developments will be located on minor roads winding through the golf course. 

8.6 Additional Design Aspects 

In order to broaden the appeal of the resort for older-aged people, sports enthusiasts, and long-stay 

vacationers, a few additional considerations are recommended for the design. They all contribute to the 

user-friendliness in the community’s design, and will make it more family-friendly as well. This will be a 

factor in building loyalty for the important golfing and long-stay segments of tourism. 

Pedestrian Friendly Streets: Convenient curbs and sidewalks will encourage easy pedestrian circulation. 

An extensive network of walkways and promenades will be included. 

99



Senior Friendly Streets: The design of low curbs, resting benches, shaded rest areas, and street lighting 

will offer convenience for tourists of all ages. This feature will encourage long-stay tourism and curative 

tourism. 

Bicycle Accessibility: Curb ramps, bicycle racks, and adequate road shoulders will attract tourists 

wishing to cycle their way around the community. 

Some parts of the site offer important value-enhancing view planes of the Nile River, of Armant Island, 

the Theban Mountains, and of other mountains that rim the Luxor area. Hotels and villas located to the 

center and aft of the site not having river views can be positioned to have golf-course views, wadi views, 

or mountain views to the east and south. In some of the open areas, artistic desert landscaping techniques 

requiring no irrigation can be used reflecting Arab, American Navajo, or Japanese traditional use of 

sands, stones, and woods. This will compensate for the lack of the river view from internal areas, create 

visual fascination for these areas, and raise the value of the zone’s interior sections. Lush green 

landscaping throughout the zone is not at all necessary. 

Finally, the community’s limited riverfront on the narrow bank separating the highway from the river 

presents great potential but also a design challenge. The uneven dune terrain on both sides of the corridor 

containing the road, canal, and railroad, and the eventual need to construct a bridge for the entrance 

boulevard, will require a careful design for this boulevard. It will need to efficiently carry external traffic 

to and from the zone, as well as internal traffic between the plateau and the riverfront. This internal 

linkage is functionally important to support the riverfront’s role as transport nexus and auxiliary 

entertainment/commercial focus. 

8.7 Phasing of the El Toad Tourism Zone 

A summary of the proposed phasing for El Toad is provided in Chapter 9 and 10, with a more detailed 

description of the phasing proposal offered in Investment Project #2, Investment Portfolio for the 

Redevelopment of the Destination Resort of El Toad in Luxor City, Egypt. 1 


100



Chapter 9: 

Implementation 

9.1 Project Management and Implementation Unit 

9.1.1 Objectives of the Comprehensive Development of Luxor 

The Comprehensive Development of Luxor CDCL is a far reaching, multi-faceted, long-term endeavor 

that encompasses a myriad of projects and activities at an astounding financial investment. The project 

involved in the overall improvement of Luxor through the CDCL includes: 

(1) Excavation and restoration of the 3-km-long majestic Avenue of the Sphinxes at Luxor City Center, 

and the relocation of residences and businesses atop the Avenue. 

(2) Relocation of Old Gourna residents to New El-Tarif and adaptive re-use of two of the old villages 

(one as an Artisan Village and the second as a Vernacular Village). 

(3) Development of New Luxor—a new community south of the City of Luxor—to accommodate 200,000 

inhabitants, inclusive of infrastructure and all sort of facilities; and Development of El Toad Plateau: 

a new tourism zone also south of the City of Luxor with 4,500 new 4-5-star hotel rooms and up-scale 

recreational facilities. 

(4) Restoration of 84 tombs on the West Bank for tourism visitation and development of a West Bank 

Visitor Orientation Center. 

(5) Reclamation of 25,000 feddan of desert land, with modern irrigation technology for high-value crops 

and development of agro-industries, and storage and transportation facilities. 

(6) Creation of an international antiquities fund. 

Additional long-term improvement projects could also include: 

(1) Development of a new cruise ship port south of the bridge to accommodate a fleet of nearly 300 ships. 

The development of this port is linked to the development of both New Luxor and El Toad Plateau. 

(2) Development of Khuzam: a secondary tourism center with 600 new hotel rooms. 

(3) Development of three new central agricultural communities. 

(4) Re-development of Luxor City Center into an Open Museum, with new touristic facilities, museums, a 

Visitor Orientation Center, upgrading of the old Souk, and recreational and open space facilities. 

(5) Development of infrastructure facilities and roads networks for new development areas, as well as 

upgrading of existing networks in the City of Luxor and other settlements within the Luxor area. 

The implementation of the Comprehensive Development of Luxor – through the first six projects – is a 

task that cuts across the domain of a multitude of government agencies. In addition, these development 

initiatives require extremely large private, public, and donor investments, as well as technical and 

managerial expertise on a scale probably never witnessed in Egypt to date. 

A project of this scale, which will virtually change the face of Luxor and dramatically improve the 

economic, touristic, and social landscape, will set numerous precedents. As such, it requires full 

government support and authority. 

9.1.2 Project Management 

The development of these projects will require implementing units with legislative authority and 

numerous professions with clear mandates and roles. The implementing units referred to as the Project 

Management and Implementation Units will require the following professionals: 

(1) Architects 

(2) Community developers 

(3) Egyptologists 

(4) Engineers 

(5) Environmentalists 

(6) Fund raisers 

101



(7) Lawyers 

(8) Project managers 

(9) Policy analysts 

(10)Surveyors 

(11)Urban planners 

9.1.3 The Institutional Capacity of the HCLC 

The Higher Council for Luxor City (HCLC) would be the correct institution for implementing the CDCL 

project; however, it is presently not capable of doing so. The HCLC was established by Presidential 

Decree No. 153 in 1989, in response to the increasing need for control of urban growth in the Luxor area. 

The HCLC is empowered to prepare, approve, and enforce land use plans within the area under its 

authority, replacing that which was previously vested in the Qena Governorate. It is also empowered to 

implement development projects. However, the HCLC is currently inadequately staffed to undertake a 

project such as the CDCL without significant additional assistance. For instance, the Engineering 

Department of the HCLC, in charge of preparing and implementing land use plans, has only one qualified 

architect on its staff. Furthermore, the HCLC does not employ the above-listed professionals, nor does it 

have experience in managing or implementing such a project. Finally, the HCLC has never channeled 

such sums of investment as will be required over the coming years to implement such a project. 

9.1.4 Project Management and Implementation Unit – PMU 

In order to effectively implement the Comprehensive Development of Luxor, it is recommended that a 

Project Management and Implementation Unit (PMU) be established. The Project Management and 

Implementation Unit, described in further detail below, will undertake the following two major categories 

of activities: 

Board of Directors and Structure of the PMU 

The PMU will have a Board of Directors to oversee the project. It is strongly recommended that this 

Board be chaired by Mrs. Suzanne Mubarak, and include the Minister of Housing, Utilities and Urban 

Communities, Minister of Culture, the Secretary General of the SCA, Minister of Tourism, the Head of 

the TDA, and the Governor of Luxor. 

The PMU will be directed by the Board of Directors and headed by a General Manager, assisted by 

directors of four units: 

(1) Antiquities, Development Control and Pla nning Unit, which will be responsible for all land use 

planning, its enforcement, zoning, licensing, and the issuance of building permits 

(2) Project Implementation Unit, which will be responsible for executing the physical works 

(3) Environmental Management Unit, which will be responsible for water management, solid waste 

management, and urban landscaping 

(4) Tourism Promotion Unit, which will focus on and develop tourism products to create additional 

attractions to enhance visitors' experience and motivate them to stay longer at Luxor, support 

initiatives in training services for tourism personnel, help promote Luxor, and work closely with the 

staff of the SCA and tourism police. 

Financial 

Financial issues include international and national fund-raising; channeling finance through budgetary 

agencies of the GOE; dispersing funds for executing agencies and contracts; auditing project activities, 

and executing agencies and contractors. The PMU will prepare and maintain project accounts in formats 

acceptable to the GOE as well as the donors, and have them audited each fiscal year in accordance with 

predetermined guidelines. The Unit will ensure that all audited project accounts are prepared and 

furnished for auditing within six months of the end of each fiscal year. 

102



Administrative/Legislative 

This is perhaps the most crucial role the PMU will have to perform. The Unit will have to bring the 

multitude of government agencies involved in the development of Luxor – but sometimes with conflicting 

interest – together into a concerted effort. This poses the most crucial challenge for the project and will 

have to be reflected in the manner through which the PMU will be established (see below). 

The PMU will also be in charge of contracting the various executing agencies and contractors carrying 

out the actual physical implementation of the project. The implementation of several elements of the 

CDCL Project may be done through the private sector using arrangements such as build operate and 

transfer (BOT), or build operate own and transfer (BOOT), or concessionary arrangements. On the other 

hand, additional elements will require contracting and coordinating among different agencies of 

government. For instance, the excavation of The Avenue of the Sphinxes will require coordination 

between the Ministry of Transportation and the Ministry of Culture, as well as the HCLC and the 

MHUUC. The PMU will have to be both staffed and empowered to design and execute such 

arrangements. 

The Structure will be as follows: 

Project Management and Implementation Unit 

Board of Directors 

Mrs. Suzanne Mubarak 

Ministerial membership 

Governor-HCLC 

General Manager 

and Staff 

Antiquities 


and Staff 

Physical works 

General manager 

and Staff 

Environmental Unit 


and Staff 

Tourism, and 

Tourism Promotion 

9.2 Monitoring and Evaluation 

The Project Management and Implementation Unit will be responsible for monitoring progress against 

agreed upon performance indicators. For accountability, the monitoring and evaluation of the project 

progress will be contracted to consultants. Specific training will be provided to the staff at the Project 

Management and Implementation Unit in project management and monitoring. 

The major challenge for the implementation of this project is to bring the efforts of numerous government 

agencies into concerted action. In order for the PMU to be capable of achieving this objective, and given 

the centralized governance of Egypt, the Unit will have to be empowered in such a way that places it in a 

higher authority than the agencies with which it deals; a substantial institutional and legislative 

undertaking. The organization will eventually become integrated within the Higher Council for the City 

of Luxor, and will strengthen the HCLC. 

9.3 Financing the PMU 

103

104 



Potential Financing Approaches 

The PMU will require substantial levels of funding to effectively monitor and implement the Structure 

Plan. Potential funding sources include donor agencies, various Egyptian Ministries, tourist-based fees 

and development-related taxes and fees. The revenue raised from these sources should be administered 

by the PMU; illustrated below 

Donor Support 

Obtaining donor or foundation grants for the Luxor Open Museum and Heritage District may provide 

some funding, but reliance on grants would be overly optimistic to accomplish all the recommendations 

of the Structure Plan. An Antiquities Preservation Fund should be established to solicit support for 

preservation efforts on the East and West Bank. 

Alternative Funding 

There are a number of alternatives as to how the PMU itself would be financed: 

(1) By earmarking a certain portion/percentage of raised funds for the running costs of administering the 

project (generally known as G&A: general and administrative costs). This alternative would have the 

benefit of making the Unit nearly autonomous and not susceptible to pressures from any one party. 

(2) By covering the costs of the PMU through the GOE – be it a soft loan or, a grant as part of GOE 

contribution to the project. However, this may result in the PMU being exposed to pressures, or it 

may convey the wrong message to donors of dealing with yet another government bureaucracy. 

(3) By earmarking a certain percentage of ticket sales’ revenue (of antiquity sites) to finance the PMU. 

The Unit may, however, be subject to critical ebbs if tourism declines in Luxor for any reason. On 

the other hand, this will give the Unit a stake in the development of Luxor. 

(4) Increased Hotel Tax and dedicate this increase for the HCLC towards repaying preservation loans; 

this could be called a Preservation Tax 

(5) A variation on the third alternative is to earmark a certain percentage of development revenue in 

Luxor to finance the PMU. This could come from land sales or leases, for instance, or a certain fee 

could be imposed on development application. In its initial phase, however, the Unit will have to be 

financed by other means – possibly a soft loan. 

In any of these alternatives, or others as may be agreed, the expenses of the PMU will have to be 

monitored and audited among the accounting records of the project, and documents must be furnished to 

donors and other contributors. 

Preservation Surcharge on Monument Gate Tickets 

As tourism doubles and triples in Luxor over the next 20 years, additional Preservation Surcharges will be 

received and these funds, too, could be similarly leveraged with loans periodically. The Preservation 

Surcharge would not affect revenues for Government that would normally be earned from gate ticket 

sales. It would be a surcharge paid by tourists. Most monument tickets are in the LE 20 to LE 40 range. 

Adding 25% would only increase ticket prices between LE 7.5 to LE 10 per ticket, not an unwarranted 

sum if tourists know that the additional fee is for preservation. 

Preservation Tax on Hotel Receipts 

Similar to monument ticket sales, tourists pay a Hotel Tax that amounts to 25%in Luxor. This is a 

relatively high amount, however, increasing the Hotel Tax to 30% and dedicating the increase for 

preservation may prove acceptable to tourists, especially if this tax is separately demarcated on their hotel 

or tour bills. With increased tourism and inflation in hotel room rates, over time, Preservation Tax 

revenues would grow substantially and support additional loans periodically. 

Concessions and Licenses 

Certain providers of services in support of Luxor’s tourism industry may be a source of revenue, to the 

degree that their activities could be licensed and fees would be supportable. Such services might include 

visitor transportation, tours, docking fees, information services, and others.



Transportation Taxes 

An additional source of visitor-based revenue might be a transportation tax assessed on cruise ships and 

airplanes arriving in Luxor City. 

Land Sales/Leasing 

Cross-subsidies from private sector development is a strategy that is being successfully implemented in 

other major Egyptian developments. Luxor also represents opportunities for land sales/leasing that could 

achieve surpluses that can be applied to meet development costs for public projects (e.g. museums) in the 

Open Museum and Heritage District that have less cost recovery. To be effective, cross-subsidy 

structures should be defined in the planning process so that they can be incorporated in any public tenders 

for land sales/leasing of private sector de velopment sites. As most of the major Open Museum and 

Heritage District redevelopment sites are now owned by Government, there is a distinct potential for 

initiating cross-subsidies to provide for local resident and other public concerns. An additional source of 

revenue could be a fee imposed on development applications. 

Business Improvement District 

A Corniche Business Improvement District (BID) could be organized for the Central Corniche and North 

Corniche Development sub-areas in the future. A BID is an organizing and financing mechanism that 

permits property owners and merchants to band together to assess (i.e. tax) themselves. If a BID were to 

be created within the Open Museum and Heritage District, the funds could be collected by the PDA and 

returned in entirety to the BID to be used for purchasing supplemental services (e.g. maintenance, 

sanitation, security, promotions) and capital improvements (e.g. street furniture, landscaping, lighting) 

beyond those services already provided by the PDA and HCLC. 

Although the BID is a new concept in Egypt, there are many examples in America. Commercial Bid’s in 

the U.S. are typically located in retail areas and are designed to provide services for merchants. These 

areas tend to have very few, if any, residents, and the focus is on increasing clientele by means of higher 

sanitation standards, increased security and increased marketing and promotion. Many commercial Bid’s 

in the U.S. are in downtown areas. One of the largest and most successful Bid’s in the country is the 

Center City District (CCD) in downtown Philadelphia, Pennsylvania. Before the formation of the BID, 

area merchants wanted urgently to increase the aesthetic appeal and security of the area. With insufficient 

funds to follow-through on large security and aesthetic improvements, property owners banded together 

to form a BID. Six years after its inception, the CCD enjoys a drastic decrease in crime and is 

significantly more attractive. Re-paved sidewalks, street furniture, regular street cleaning and 

maintenance have created a much-improved environment. 

Developer Impact Fees 

The HCLC should require developers to submit a development impact statement which identifies project 

impacts on city infrastructure and services. Development impacts to identify include roads, sidewalks, and 

parking, water and sanitation, and open space. 

The Preservation and Development Authority should determine the costs of these impacts. If a 

development is proposed for redeveloped public land under the control of the PDA, the impact costs 

should be factored into the lease. Private land development impact fees will be assessed by the PDA as 

an appropriate percentage of the proposed development total. 

9.3.1 Recommended Project Financing Approach 

The cost of instituting the PMU with a lifespan of 17 years has been estimated at 13,500,000 LE. 

Based on the scope of the project, the CDCL project recommends the following financing mechanism: 

105



• A Preservation District surcharge of 25% on Luxor monument receipts would be directly received by 

the PDA. This amount would be above and beyond the current charges, and would, thus, not 

diminish receipts of SCA or GoE. Computations of this revenue source have been made assuming 

current visitor volumes, gradually increasing to a total of 4 million visitor by 2020. 

• Payments to acquire lands assembled by the PDA in the Luxor Open Museum and Heritage District, 

as described in Table 6, above. As noted above, these amounts are very conservative and could be 

substantially higher. 

• Repayments of preservation loans from the loan fund described above. The repayments are assumed 

to start relatively early in the process of implementing the Plan. 

• A dedicated portion of taxes from new developments on the assembled lands identified as part of the 

Plan. The amount of such taxes have been assumed to be equivalent to 2% of the total development 

cost of such developments, an amount that would be a reduction from conventional taxes 

commensurate to the conventional “tax holiday,” but would be assigned to the PDA. It is also 

possible that a tax surcharge might be diverted to the PDA on the increment of value created by its 

work, although this has not been estimated here. 

These earnings would be used to implement significant project expenditures especially the creation of the 

Open Museum and Heritage District (Investment Project No. 6), as well as the PMU 

The table below indicates the costs to PMU over the same seventeen years. These costs have been 

distributed over the period in accordance with likely timing of implementation. It is assumed that key 

preservation and enhancement improvements to the Luxor and Karnak Temple areas start immediately, 

accompanied by early implementation of the preservation loan and grant program. Within the initial five 

years the visitor information and service center would be completed, and the work of private investors 

would have been initiated. However, given the lead time typical for private financing and the reluctance 

of the private sector to fully commit until the project shape is determined, private investments would not 

reach peak until close to the mid-point of the development period. 

106



Table 23: PMU Revenue, by year (000,000 LE) 

Years 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 

Monument 

Attendance/Revenue 

Tourists/year 

(000,000) 

1.50 1.66 1.81 1.97 2.13 2.28 2.44 2.59 2.75 2.91 3.06 3.22 3.38 3.53 3.69 3.84 4.00 

Average monument fees 

(000,000) 

PMU Revenue Sources 

112.50 124.22 135.94 147.66 159.38 171.09 182.81 194.53 206.25 217.97 229.69 241.41 253.13 264.84 276.56 288.28 300.00 

Preservation 25% 28.13 31.05 33.98 36.91 39.84 42.77 45.70 48.63 51.56 54.49 57.42 60.35 63.28 66.21 69.14 72.07 75.00 

District 

surcharge 25% 

Land Resale 259.29 25.93 25.93 51.86 51.86 51.86 25.93 25.93 

Preservation Loan 

Repayments 

Tax Increment 

(2% of TDC) 

Totals 

0.86 1.72 2.58 3.44 4.30 5.16 6.02 6.88 7.74 8.60 7.74 6.88 6.02 5.16 4.30 3.44 

20.74 2.07 4.15 6.22 8.30 10.37 12.45 14.52 16.59 18.67 20.74 20.74 20.74 20.74 

Annual Funds to 

PMU 

Cumulative Funds to 

PMU 

28.13 31.91 35.70 65.42 71.28 103.08 108.94 114.81 94.74 100.60 80.54 84.68 88.83 92.97 95.04 97.11 99.18 

28.13 60.04 95.74 161.16 232.44 335.52 444.46 559.27 654.01 754.62 835.16 919.84 1008.67 1101.64 1196.68 1293.79 1392.97 

107



Table 24: PMU Costs, by Year (000,000 LE) 

PDC Costs 

Years 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 

1 Subtotal, Luxor 1,060,000 0.21 0.21 0.21 0.21 0.21 

Temple Area 

2 Subtotal, Karnak 10,472,424 2.09 2.09 2.09 2.09 2.09 

Temple Area 

3 Subtotal, District 32,084,000 4.58 4.58 4.58 4.58 4.58 4.58 4.58 

Preservation Efforts 

Loans 30,000,000 4.29 4.29 4.29 4.29 4.29 4.29 4.29 

4 Subtotal, 

222,485,125 20 30 24.50 24.50 24.50 44.50 44.50 20 10 

Redevelopment 

Efforts 

5 Subtotal, Visitor & 68,718,000 22.91 22.91 22.91 

Touristic Services 

6 Subtotal, 

2,847,000 0.95 0.95 0.95 

Supportive 

Improvements 

7 Subtotal, Avenue 134,042,346 7.32 7.32 7.32 28.02 28.02 28.02 28.02 

of the Sphinxes 

(INV #1) 

8 Annual PMU 13,500,000 5.00 5.00 5.00 3.00 3.00 1.50 1.50 1.50 0.50 0.50 0.50 0.30 0.30 0.30 0.30 0.30 0.30 

Operations and 

Capacity-Building 

Costs 

Totals 515,208,895 

Annual Costs 39.21 53.50 71.85 90.55 90.55 82.89 82.89 25.79 10.50 0.50 0.50 0.30 0.30 0.30 0.30 0.30 0.30 

Cumulative Costs 39.21 92.71 164.55 255.10 345.65 428.54 511.42 537.21 547.71 548.21 548.71 549.01 549.31 549.61 549.91 550.21 550.51 

108



The table below indicates the annual and overall relationship between PMU costs and revenues. Assuming a cost of financing equal to the early 

year deficits, and a relatively robust response from the private sector, the PMU achieves a positive cash flow by year 5, with a substantial surplus 

thereafter. Assuming that the PMU’s operations continue for at least 17 years, the total internal rate of return for its operations would be 

approximately 26%. 

Table 25: PMU Revenue -Cost Relationships and Cash Flow 

Years 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 

PMU Annual Surplus (Deficit) (11.08) (21.58) (36.15) (25.13) (19.26) 20.19 26.06 89.02 84.24 100.10 80.04 84.38 88.53 92.67 94.74 96.81 98.88 

PMU Total Cumulative Surplus 

(Deficit) 

(11.08) (32.67) (68.81) (93.94) (113.21) (93.01) (66.96) 22.06 106.30 206.41 286.45 370.83 459.36 552.03 646.77 743.58 842.46 

Cost of Debt Service 9% (1.00) (2.94) (6.19) (8.45) (10.19) (8.37) (6.03) 1.99 

Summary 

Annual Project Cost (Deficit) (12.08) (24.52) (42.34) (33.58) (29.45) 11.82 20.03 91.01 84.24 100.10 80.04 84.38 88.53 92.67 94.74 96.81 98.88 

Project Internal 

Rate of Return 

26% 

109



The proposed PMU would have a Board of Directors composed of Madame Mubarak as its chairman, the 

Ministers of Housing, Culture, Tourism, International Cooperation, and Agriculture, and the Governor of 

Luxor. This Board of Directors would maintain a clear vision for the development of Luxor, and ensure 

the implementation of all individual investment projects in accordance with the vision as stated by the 

structure plan. 

Key ministries would implement each individual investment project. The project management and 

implementation units within each ministry would have a single director who would be responsible for 

fund raising, management, coordination among other ministries, and implementation of the project. In 

addition, the director would make a progress report to the Board of Directors. The board would therefore 

be able to prioritize funds and funding efforts, and make decisions of inter-ministerial cooperation at a 

senior level. 

This PMU structure is distinguished by including the representatives of local councils. This will allow 

increased participation from the population of Luxor. The structure outlined below included 

representatives from the HCL and the Local council. 

110



This alternative would have the following structure: 

Alternative Project Management and Implementation Unit 

Board of Directors 

Madame Mubarak (Chairman) 

Ministerial Membership 

Preservation and 

Development Authority 

(PDA) 

Investment #2 

El Toad Tourism Zone 

Investment #3 

New Luxor 

Investment #4 

Infrastructure Services 

for New Luxor and El Toad 

Investment #5 

High-Value Agric. 

Investment #1 

Ave. of the Sphinxes 

Investment #6 

Open Museum and 


HCLC/ Local Council 

MHUUC / Ministry of Tourism 

Min. of Transport 

Min. of Finance 










Ministry of Agric 

Min. of Transport. 

Min. of Education 


MoC/SCA 

MoT/TDA 

Min. of Transport/MHUUC 


MoC/SCA 

MoT/TDA 

Min. of Transport/MHUUC 

111



Rationale 

While numerous ministries continue to work in Luxor, the project team advocates the need for a PMU 

because the work done to date has proceeded in an ad-hoc manner. The importance of a planned and 

directed development cannot be understated, because of Luxor’s global significance. 

Additional alternatives 

(1) The establishment of the Higher Committee for the Development of Luxor, by a Presidential Decree: 

This will be a fixed-term Committee and will not have a structure exactly parallel to that of the 

HCLC. In fact, the HCLC will be working under the guidance and supervision of the Unit. This, 

however, may result in some conflict between the two entities unless the Presidential Decree is 

drafted clearly. Nonetheless, the Unit will be enjoying the highest political support, an element 

essential to this project. 

(2) The prime-ministerially supervised Ministerial Committee for the Development of Luxor: This option 

will call for direct and continued involvement of the Prime Minister to ensure the effectiveness of this 

Committee. Ministerial Committees have not always been very successful. 

(3) The tendering of Luxor’s development internationally under a "concession contract" for a definite 

period; i.e. to bring an international firm to take over the development of Luxor in a BOT-like 

arrangement. 

(4) The empowering of the New Urban Communities Organization (MHUUC) to be in charge of the 

development of Luxor. However, Luxor is not a “new community,” and an exception in its mandate 

may not be feasible. Furthermore, it is believed that the New Urban Communities Organization is not 

adequately staffed to face the challenges of the project. 

(5) The rewriting of the mandate to modify the structure, organization, and staffing of the HCLC - by 

another Presidential Decree – so as to be capable of taking over the project. 

Institutional Strengthening 

The establishment of the Project Management and Implementation Unit does not negate the need to build 

up the institutional capacity of the Higher Council of Luxor City, if only for the reason that HCLC will be 

one of the executing agencies of the Development Plan. Another important reason is that HCLC will 

eventually be the agency in charge of the management and development of Luxor. Therefore, technical 

assistance will be provided to the HCLC to build the technical, management, and, implementation 

capacity necessary to carry out its mandate. 

9.3.2 Preservation and Development Authority (PDA) 

A Preservation and Development Authority (PDA), reporting directly to the PMU, is proposed as the 

management entity to guide development and preservation efforts in the Luxor City Open Museum and 

Heritage District. Specific actions that the PDA would lead are summarized in Section 6.6 of this report, 

and explained in detail in Investment Project #6, The Portfolio for the Creation of an Open Museum and 

Heritage District in Luxor City, Egypt. 1 

Background 

Improvements to date in Luxor’s historic core have been done in an ad-hoc manner. Because of the city’s 

global significance, the importance of planned and directed development cannot be understated. While 

numerous ministries will continue to work in Luxor, there is a need for an independent entity accountable 

to both the HCLC and the central government that can create a more effective implementation mechanism 

than is now present in Luxor. One such entity is defined below, but other approaches that would achieve 

the same ends are also possible. 

1 Six Investment Projects were created through the CDCL project and are available under separate cover 

112

Organization 



The recommendation for the Luxor Open Museum and Heritage District would be consistent with the 

proposals to create a Project Management Unit with strong participation from both the central government 

and HCLC to provide direction to the overall implementation of the recommendations of the CDCL 

project. The PMU would provide oversight for all proposed Investment Projects 1 of the CDCL, and 

would be the entity that would ensure central government commitment to this sustained effort. 

The major public initiatives identified within the Luxor Open Museum and Heritage District would be 

managed by the PDA, reporting to the PMU. The Luxor Open Museum and Heritage District PDA will 

serve as a landlord and manager for all public properties located within the District. Remaining 

properties will continue to be owned and operated by various private interests. All buildings and open 

land within the District, regardless of ownership, will be governed by development controls and 

architectural standards to protect and preserve the traditional commercial and cultural uses of Luxor’s 

historic core. Revenues for operating the PDA will be derived through property management activities, 

taxes, and donor grants. 

The PDA will require a strong board with support from the HCLC and the GoE to guide it through the 

major activities. This sponsor would take the form of a Board of Directors, composed of senior Ministry 

and HCLC officials trained in the areas of project management, development finance, historic 

preservation, and project implementation. This Board would monitor the PDA’s activitie s to ensure a 

clear vision for the development of Luxor and make sure that the implementation of all actions in the 

Open Museum and Heritage District are done in accordance to the vision for Luxor City as stated by the 

Comprehensive Development Plan for The City of Luxor. The Board’s chief role would include project 

advocacy at a local, national, and international level, assistance in solicitation of funding, coordination 

with key ministries, selection of an executive director who would serve as the chief development 

coordinator for the Luxor Open Museum and Heritage District, and monitoring and oversight of the 

PDA’s financial commitments and activities. 

The executive director should be a senior professional with strong technical, managerial, and intergovernmental 

skills, with a professional background in urban development, historic preservation, and 

project implementation. This individual would represent the PDA’s objectives to public and private 

entities, report on progress to the Board of Directors, track projects, prioritize resources, and enforce 

decisions. 

The staff of the PDA would include project-specific hires, but may also include personnel from local and 

national agencies assigned to the PDA. Personnel that might comprise the PDA staff could be drawn 

from the following disciplines: 

(1) Architecture and urban planning 

(2) Community development 

(3) Egyptology 

(4) Engineering 

(5) Environmental science 

(6) Project finance and management 

The major functions of the PDA would include the following activities: 

(1) Antiquities, Development Control, and Planning, which will be include all land use planning, its 

enforcement, zoning, and historic preservation efforts. This unit would require enhanced capability to 


113



administer Preservation Controls and Architectural Guidelines. PDA and HCLC staff would require 

training to properly administer the controls and guidelines. 

(2) Project and Facility Development, which will include coordinating the relocation of government 

offices and public facilities, and facilitating the subsequent redevelopment. Additionally, the staff 

would review water management, solid waste management, and urban landscaping in the district. 

(3) Tourism Services Development, which would focus on and develop tourism products to create 

additional attractions to enhance visitors' experience and motivate them to stay longer at Luxor, 

support initiatives in training services for tourism personnel, help promote Luxor, and work closely 

with the staff of the SCA and tourism police. 

114



Chapter 10: 

Structure Plan Phasing 

Successful implementation of the CDCL Structure Plan and associated Investment Projects 1 requires a 

phasing strategy for the 2000-2020 planning period. A summary of the phasing for key improvements is 

illustrated in Tables 26-29 on the following pages. The eighteen-year planning period is divided into an 

initial phase of two years beginning in 2000, followed by four phases of four years each through 2020. 

The general intent of the phasing strategy is summarized below: 

• For Luxor City (Table 26), the initial emphasis would be to put in place the administrative and 

financial mechanisms for the Open Museum and Heritage District improvements, which will be the 

most complex undertaking and require significant advance planning and sequence coordination. 

Improvements to traditional neighborhoods, enhancements to the monument sites, and street 

improvements can insure that access and living conditions in the city remain workable during the 

relocation, excavation, and restoration of the Avenue of the Sphinxes. It will take several years 

before selected government buildings can be relocated to New Luxor and other private development 

activities can be initiated. Concurrent with this mobilization work, housing and services will have to 

be developed in the North Karnak area, to make new, improved neighborhoods available to residents 

who will be offered desirable living choices that will encourage them to relocate from the path of the 

restored Avenue or from protected monument areas. Rehabilitation and related development within 

the Open Museum District will continue through an extended period, during which improvements in 

other planned development neighborhoods (to the East and South) will proceed. Citywide 

improvements will need to be coordinated with the above actions, as required. 

• For New Luxor (Table 27) pre-construction activities, including tender documents for B-O-T and 

key utilities and infrastructure will occupy the initial years, with the first area of emphasis to be the 

southerly districts, including the agricultural neighbor hoods, agricultural processing facilities, and 

related district and employment support facilities. All of these facilities, including the infrastructure 

and services, will require detailed layout and design. As soon as practical, some government facilities 

that would be of immediate service to the new settlement should be relocated to the site, in 

coordination with activities in Luxor City. Over the development period, several phases of 

development can be envisioned, each comprised of several neighborhoods and support facilities, 

including, at the last phases, the start of the City Center. 

• For the El Toad Touristic Zone (Table 28), the tender and selection process for master developer 

will occupy the initial year, following by overall site infrastructure improvements. The golf course 

and key support central facilities should be put in place concurrent with the development of the initial 

hotel properties, clustered at the western end of the site. The total build-out of the El Toad project 

should be achievable in a ten-year span, assuming that tourism and the local economy continue to 

grow as predicted. 

• For the other parts of the Markhaz (Table 29), improvements should occur relatively independently, 

with an initial emphasis on improvements to the West Bank antiquity area and its supportive 

communities and services, improvements to local circulation and services, and the early emphasis on 

developing high value agriculture, in coordination with reclamation of new agricultural lands. 


115

Table 26: Luxor City Structure Plan Phasing 



116

Table 27: New Luxor Structure Plan Phasing 



117

Table 28: El Toad Structure Plan Phasing 



118

Table 29: Other Markhaz Structure Plan Phasing 



119



Annex 1: Figures 

120

Read the PDF - Abt Associates

Create successful ePaper yourself

Delete template?

Save as template?