LocationsThe Target Operating Model (TOM) is a technical framework designed to help municipalities strengthen urban planning by integrating governance, processes, technology, and human capacity. Implemented in partnership with the Ministry of Municipalities and Housing (MoMaH), TOM is one of six flagship initiatives supported by UNDP and UN-Habitat aimed at advancing spatial planning, enhancing municipal performance, and building innovation and institutional capacity.
Introducing the Target Operating Model (TOM) Initiative: A New Approach to Urban Planning in Saudi Arabia
June 30, 2025
On 30 June, MoMaH held a TOM Initiative workshop with UNDP and UN-Habitat, engaging five Amanas and representatives from across the Ministry to share field insights and shape upcoming pilot projects, planning tools, and capacity-building efforts for sustainable urban transformation.
Cities across Saudi Arabia are growing rapidly. As urban areas expand, the need for practical, inclusive, and forward-looking planning has become increasingly urgent. Municipalities navigate a complex landscape—balancing infrastructure, housing, environmental sustainability, and community engagement—while adapting to demographic shifts and accelerating technological change.
In support of Vision 2030 and the Sustainable Development Goals (SDGs), the United Nations Development Programme (UNDP) and the United Nations Human Settlement Programme (UN-Habitat) have partnered with the Ministry of Municipalities and Housing (MoMaH) to strengthen local spatial development. Among six flagship initiatives designed to modernize planning, enhance municipal performance, and foster innovation and capacity development, the Target Operating Model (TOM) Initiative is shaping how urban planning is structured, delivered, and aligned across the Kingdom.
Introducing the Target Operating Model (TOM): A Framework for Transformation
The Target Operating Model (TOM) is a flexible framework designed to help municipalities better organize their planning systems and operations. By integrating people, processes, governance, technology, and data, TOM promotes a unified yet adaptable model of local planning. Rather than applying a one-size-fits-all approach, TOM is being co-developed with local stakeholders to reflect the diversity of Saudi Arabia’s cities and towns, while contributing to national development goals.
Led by UNDP in partnership with MoMaH, the TOM Initiative is currently studying and mapping existing planning operations across a representative range of municipalities. This process includes benchmarking against international best practices, conducting a rapid gap analysis, and developing a proposed TOM framework focused on governance, institutional structure, and planning processes—tailored to Saudi Arabia’s regulatory and administrative context. The goal is not only to define the model, but also to test and refine it through real-world applications.
Insights from Municipalities
Between February and June 2025, joint site visits for both the TOM Initiative and the UN-Habitat-led Classification and Reconfiguration of Municipal Systems (CRMS) Initiative were conducted across five regions: the Eastern Region, Jazan, Madinah, Northern Borders, and Qassim. Through interviews and stakeholder workshops, municipalities shared firsthand perspectives on current planning practices and highlighted areas for improvement. Several recurring themes emerged:
Planning processes require greater clarity: Fragmented governance and dispersed regulatory texts lead to confusion, replication and lack of coherence in planning operations.
Coordination is essential: Siloed processes often hinder progress and reduce the effectiveness of planning outcomes.
Context must guide planning: Each region presents unique geographic, demographic, and institutional challenges—requiring flexible and tailored planning processes.
Digital tools need strengthening: While new platforms are being deployed, disparities in integration, usability, and training exist across regions.
Human capacity is vital: Many municipalities face shortages of qualified staff, highlighting the need for long-term investment in technical and planning skills.
Local participation is essential: Municipalities seek earlier and more meaningful engagement in planning decisions—moving beyond consultation toward active engagement.
What Comes Next: From Framework to Action
These insights are directly shaping the next phase of the TOM Initiative. In 2025, efforts are focused on finalizing a national assessment of existing planning governance and processes, deepening stakeholder engagement, and developing a standardized yet flexible TOM framework. A dedicated capacity development track is also underway to equip municipal teams with the skills, tools, and knowledge required to implement the TOM effectively.
Looking ahead, the initiative will include pilots in selected municipalities, the launch of practical guidance manuals, and training programs to support implementation. A national forum for urban planning departments is also envisioned to foster knowledge exchange and peer learning.
Building Resilient and Inclusive Cities
TOM is more than a technical framework—it is a catalyst for building cities that are resilient, responsive, and well-managed. By aligning planning functions with service delivery, and anchoring urban development in local realities, TOM strengthens municipal capacity to manage growth while supporting national development priorities.
Importantly, TOM reinforces national ownership. It is a model developed for Saudi cities, by Saudi institutions, and grounded in the everyday experiences of those shaping the country’s urban future. As the initiative evolves, it is laying the foundation for a planning system that is not only efficient and forward-looking, but also inclusive, flexible, and built to last.
Through a strong focus on capacity-building and inclusive engagement—including women, youth, and persons with disabilities—TOM aims to ensure that Saudi Arabia’s urban future reflects the full diversity and potential of its society.