Owners often want to use a plot differently from its original purpose: turning a residential house into offices, building flats on a single-dwelling plot, or developing land for commercial or industrial use. Under the Urban and Regional Planning Act No. 3 of 2015, a change in the use of land is treated as development, and it requires planning permission before it happens.

Why permission matters

Section 49 of the Act prohibits anyone from carrying out development or changing the use of land without planning permission. Doing so is an offence. The planning authority can also charge fees for the unauthorised use and order the land restored to its original use. Unauthorised use can also cause problems later, when the property is sold, mortgaged or valued.

Step 1: Check the title and the plan

Start with the certificate of title and the lease conditions. Many leases state the purpose for which the land may be used. Check, too, how the area is designated in the local plan. Where the title restricts the use, the lease conditions may also need to be varied with the Ministry of Lands, in addition to obtaining planning permission.

Step 2: Give public notice

For a change of land use, the applicant must give notice before the application is considered. Under section 53 of the Act, the planning authority cannot consider the application unless the applicant has given at least fourteen days’ notice. This gives neighbours and others who may be affected an opportunity to comment.

Step 3: Submit the application

The application is made to the planning authority, which in Lusaka is Lusaka City Council, in the prescribed form and with the prescribed fee. It will usually need to be supported by:

  • a copy of the certificate of title or other proof of ownership;
  • a site plan and, where building works are proposed, architectural drawings;
  • a description of the proposed use; and
  • evidence that public notice has been given.

Check the current requirements and fees with the Council before submitting, as they are set by regulation and can change.

Step 4: The decision

For a change of use, section 55 requires the planning authority to make a decision within ninety days of receiving the application. It may grant permission, grant it with conditions, defer the decision or refuse the application. Read any conditions carefully: they bind the use of the land from then on.

Step 5: If the application is refused

An applicant who is dissatisfied with the decision may appeal to the Planning Appeals Tribunal within thirty days of receiving it. Where the Tribunal does not decide the appeal within the time allowed, the appeal may be taken to the Minister.

Practical tips

  • Do not start building or operating the new use until permission is granted in writing.
  • Speak to neighbours early. Objections raised during the notice period can delay an application.
  • If you are buying property for a particular purpose, make the purchase conditional on the change of use being approved.

Claire & Partners handles conveyancing and applies for changes of land use on clients’ behalf. See our conveyancing and land use services.

This article is general information about Zambian law as at November 2026. It is not legal advice. For advice on your circumstances, book a consultation.