An analysis of the role of key stakeholders in the process of preparing comprehensive urban plans based on the description of modern service approaches: A case study of Shiraz, Isfahan, Qom and Yazd

A B S T R A C T
In many developing countries, including Iran, urban planning and decision-making processes are often conducted without engaging citizens and local stakeholders. This approach frequently leads to the failure of urban projects, despite significant financial investments, and ultimately results in the non-fulfillment of their intended objectives. Ignoring the genuine needs and expectations of the public fosters widespread dissatisfaction and civic protests due to the lack of participatory mechanisms in decision-making processes. This study examines the mechanisms for identifying and prioritizing key stakeholders and their impacts on urban development programs. Four cities (Shiraz, Isfahan, Yazd, and Qom) were selected as case studies. Using a qualitative methodology and content analysis of semi-structured, in-depth interviews, the study explored comprehensive urban plans from a novel perspective, focusing on challenges related to stakeholder identification. Data analysis was conducted with MAXQDA software. Findings revealed that inefficiencies in previous plans, the absence of institutional infrastructure, and the lack of a well-defined process in the new comprehensive approach were among the most frequently cited challenges. Additionally, components such as good urban governance, participatory methods, and stakeholder identification have not been effectively realized through the scope of services provided by the new approach. The lowest scores were attributed to efficiency, competitiveness, and economic productivity, which were accompanied by definitional and explanatory ambiguities. By identifying challenges and proposing solutions to enhance the efficiency of urban development programs, this study provides a comprehensive understanding of the role of stakeholders in development processes and strategies for aligning the interests of various groups.
Extended Abstract
Introduction
Urban development in less developed countries, including Iran, has often faced challenges stemming from the disconnect between urban management practices and public desires. Large-scale urban projects, implemented at significant financial costs, frequently disregard the perspectives of citizens; the very individuals who are both the primary users and ultimate evaluators of these projects. This disregard has led to dissatisfaction and mistrust, with citizens feeling excluded from decisions that directly impact their lives. This exclusionary approach highlights a pressing issue: the need to define and recognize the role of citizens as key stakeholders in urban development planning. Urban development, particularly in contexts where governance structures are centralized, often fails to adequately engage with stakeholders. This leads to inefficiencies, misaligned priorities, and underwhelming project outcomes. In response, this study investigates the mechanisms for identifying, engaging, and prioritizing stakeholders within urban development programs. The focus is to understand the influence of these stakeholders on decision-making processes and to propose strategies to integrate their perspectives more effectively.
 
Methodology
To achieve these goals, the study employs a qualitative research methodology, with four Iranian cities (Shiraz, Isfahan, Yazd, and Qom) selected as case studies. These cities were chosen for their diverse urban planning contexts and their recent adoption of service-oriented urban master plans. Semi-structured, in-depth interviews with key informants, including urban planners, local officials, and community representatives, were conducted to gather nuanced insights. The interview questions focused on four key areas:

Perspectives on the new planning approach.
Methods for identifying, engaging, and prioritizing stakeholders in urban projects.
The role of key stakeholders in the new planning framework.
The process of incorporating public opinions and its impact on urban planning outcomes.

The data from these interviews were analyzed using MAXQDA software, which facilitated qualitative content analysis. A snowball coding technique was employed to identify recurring themes and categorize data, enabling a systematic examination of stakeholder roles and the challenges of implementing participatory urban governance
 
Results and discussion
The analysis revealed several critical insights. First, stakeholder participation was identified as the most frequently discussed theme in the interviews, accounting for 29% of the coded responses. This reflects a growing recognition of the importance of citizen engagement in urban planning. Among the methods used to engage stakeholders, snowball sampling and in-depth interviews were commonly employed across all four case study cities. Additionally, lived experiences in Isfahan and Yazd were integral to stakeholder identification, while grounded theory approaches were predominantly utilized in Qom. The second most frequently discussed theme, accounting for 26% of the responses, was urban good governance. This theme highlighted the institutional and structural challenges of fostering effective stakeholder engagement. Respondents emphasized the lack of institutional infrastructure and the absence of a well-defined process for integrating stakeholder perspectives into the planning framework. This gap underscores the need for capacity building and institutional reform to support participatory governance in Iranian cities. The third key theme, comprising 20% of the responses, focused on the challenges of urban master planning. Participants criticized the traditional, top-down approach to master planning, noting its reliance on outdated rational-comprehensive methodologies. Despite over three decades of urban planning reforms in Iran, the lack of locally tailored planning theories and clearly defined processes continues to hinder the realization of more inclusive and effective urban development. Conversely, the least frequently discussed theme (4% of the responses) was economic efficiency, competitiveness, and productivity. This low prioritization reflects a lack of clarity and consensus among stakeholders regarding the economic dimensions of urban planning. Additionally, ambiguities in defining and explaining these concepts suggest a broader need for capacity building and knowledge dissemination to align economic objectives with urban planning practices.
The findings of this study provide a nuanced understanding of stakeholder roles and their impact on urban development. The word cloud analysis of interview data revealed recurring themes of inefficacy, lack of institutional infrastructure, and ambiguities in the new urban planning approach. These themes underscore the challenges of transitioning from traditional master planning models to more participatory, service-oriented frameworks. Stakeholder participation emerged as a critical factor in improving urban planning outcomes. However, the lack of institutional support and clear processes for engagement has limited its effectiveness. This aligns with broader trends in urban governance, where the inclusion of diverse stakeholder perspectives is increasingly recognized as essential for addressing complex urban challenges. The study highlights the need for a comprehensive stakeholder management approach that prioritizes transparency, accountability, and inclusivity.
 
Conclusion
This research underscores the importance of stakeholder identification and engagement in urban development programs. By providing a detailed analysis of stakeholder roles and their implications, the study contributes to the broader discourse on participatory urban governance. Key recommendations include:

Stakeholder identification and engagement: Effective urban development requires a systematic approach to identifying and engaging stakeholders. This includes mapping stakeholder interests, capabilities, and potential contributions to align their perspectives with broader public goals.
Institutional reform: Building the capacity of urban governance institutions is essential for fostering stakeholder participation. This includes developing clear processes for engagement, enhancing transparency and accountability, and addressing structural barriers to participation.
Integrating public interests with development goals: Urban development programs must balance the interests of smaller groups with broader public objectives. This requires innovative approaches to conflict management, such as creating development packages that address the concerns of diverse stakeholder groups.
Building trust and capacity: Trust-building is critical for successful stakeholder engagement. This can be achieved through effective communication, education, and the provision of adequate resources to support participatory processes.

 
Funding
There is no funding support.
 
Authors’ Contribution
Authors contributed equally to the conceptualization and writing of the article. All of the authors approved thecontent of the manuscript and agreed on all aspects of the work declaration of competing interest none.
 
Conflict of Interest
Authors declared no conflict of interest.
 
Acknowledgments
We are grateful to all the scientific consultants of this paper.