Documente Academic
Documente Profesional
Documente Cultură
This paper reflects on the lessons from seven of these: three from
Asia, three from Latin America and one from Africa. All these
initiatives combined direct action by low-income groups them-
selves, working with local NGOs, with some support negotiated
from one or more external agency in order to improve housing
and living conditions, basic services and livelihoods. Each initia-
tive sought to make limited funding go as far as possible - and
most achieved partial or total cost recovery for some (or all) of
their interventions. All used credit to allow low-income groups to
spread the cost of capital investment over a number of years.
These are conclusions drawn intermediary funds for community projects located within these
from a series of case studies cities.
and three international work-
shops on poverty reduction in
urban areas organized by the
THERE ARE MANY REMARKABLE EXAMPLES OF
International Institute for Envi- INITIATIVES TO REDUCE POVERTY IN URBAN AREAS
ronment and Development FROM WHICH LESSONS CAN BE DRAWN BY DONOR
(IIED) in collaboration with the AGENCIES
Thai Urban Community Devel-
opment Office, the Asian Coa- MOST OF THESE initiatives combine direct action by low-in-
lition for Housing Rights, IIED- come women and men working in community based organiza-
América Latina and the Peo-
ple’s Dialogue, with the sup-
tions along with local NGOs and with some support negotiated
port of the Rural and Urban from one or more external agency (local government, national
Development Department of agency, national or international donor). These initiatives in-
the Netherlands Government’s clude community based organizations and NGOs developing
Directorate General for Inter- savings and credit schemes for emergency credit or credit for
national Cooperation - with micro-enterprise and/or housing; building or housing improve-
funding from the Swedish In-
ment initiatives; installing some infrastructure; and setting up
ternational Development Co-
operation Agency (Sida) help-
and managing some basic services. Most have recognized the
ing to fund the preparation of need to act on different fronts - in response to the many differ-
some of the case studies. ent kinds of deprivation that most low-income groups face.
These conclusions were devel- This paper reflects on the lessons that can be drawn from
oped by the resource people seven such initiatives:
who took part in these work-
shops and who prepared the
• two that centre on savings and credit groups formed by low-
case studies but they also drew
on the suggestions of the par- income groups (mostly women) which, in turn, are part of
ticipants at each workshop. federations, namely the South African Homeless People’s Fed-
eration, and Mahila Milan/National Slum Dwellers Federa-
Jorge Anzorena SJ works with tion in India;
the Latin American and Asian • the Orangi Pilot Project in Karachi, the Casa Melhor and
Low Income Housing Service Mutirao programmes in Fortaleza (Brazil) and the Barrio San
(SELAVIP) (and writes and ed-
Jorge programme in Buenos Aires which, despite their great
its the Selavip newsletter: the
Journal of Low-Income Hous- dissimilarities, have pioneered new ways of working with low-
ing in Asia and the World); he income groups to improve housing and living conditions and
also teaches architecture at the basic services;
University of Tokyo. Address: • one government fund which supports the community initia-
S.J. House, 7-1 Kioicho tives of the urban poor, the Thai government’s Urban Com-
Chiyodaku, Tokyo 102, Japan, munity Development Office;
E-mail: e-anzore@hoffman.
• and one donor initiated programme - PRODEL in Nicaragua,
cc.sophia.ac.jp
funded by Sida - which encompasses community level infra-
Joel Bolnick is executive direc- structure and services, credit for house construction or up-
tor of the South African NGO, grading and support for micro-enterprise development.
People’s Dialogue for Land and
Shelter which supports the
South African Homeless Peo- THESE SEVEN INITIATIVES CHALLENGE THE
ple’s Federation’s housing pro-
gramme. Address: People’s
CONVENTIONAL SEPARATION BETWEEN THE
Dialogue, P O Box 42860, IMPROVEMENT OF HOUSING AND LIVING CONDITIONS
Philippi 7781, Cape Town, AS “POVERTY ALLEVIATION” AND SUPPORT FOR
South Africa, E-mail: joelb INCOME GENERATION AS “POVERTY REDUCTION”
@sprintlink.co.za
ALL SEVEN INITIATIVES have the improvement of housing and
Somsook Boonyabancha is living conditions and the provision of basic services as impor-
deputy director of the Thai gov- tant components - although most also have other components
ernment’s Urban Community
such as support for micro-enterprises, job creation and train-
Development Office and Sec-
retary General of the Asian ing. Improving housing conditions is often considered by do-
Coalition for Housing Rights nors to be only “poverty alleviation” since “poverty reduction” is
(ACHR). Address: ACHR, P. O. thought to be achievable only through increasing the real in-
Box 24-74, Bangkok 10240, comes of poor individuals or households. But the most impor-
Thailand.
tant reason why the initiatives considered here have given pri-
Yves Cabannes is coordinator ority to improving housing and basic services is because the
of the Urban Management Pro- poor groups themselves had identified these as their priorities.
gramme for Latin America and Their reasons for this include the following:
the Caribbean and prior to that
worked with the NGOs Cearah • Reducing the health burden: Improving housing and basic
Periferia and GRET in services can greatly reduce the tremendous health burden
Fortaleza. Address: Programa
de Gestión Urbana, Casilla 17-
that most low-income groups face owing to poor quality hous-
01-2505, Quito, Ecuador. E-mail ing and a lack of basic services - a health burden whose scale
pgu@impsat.net.ec and nature is poorly understood by external agencies.
• Increasing their asset base: For most poor women and men,
Ana Hardoy is Executive Direc- acquiring and developing their own home (usually through
tor of IIED-América Latina in self-help or mutual aid) provides them not only with a more
Buenos Aires and also directs
healthy and secure base, and the possibility of no longer hav-
its community action pro-
gramme. Address: IIED-
ing to pay rent, but also with much their most valuable and
America Latina, Av. General secure capital asset whose value can be increased through
Paz 1180, (1429) Buenos Aires, their own efforts. In many cities or areas within specific cit-
Argentina, E-mail: postmaster ies, acquiring your own home also means acquiring an asset
@iiedal.edu.ar. whose value rises in real terms over time.
• Stability and security: A home of their own is important for
Arif Hasan is an architect who
providing low-income households with stability and security
has long worked with the Pa-
kistan NGO Orangi Pilot - especially important for households with children and for
Project in Karachi and has re- the person within the household who takes most responsibil-
searched and written widely on ity for child-rearing and household management (usually the
housing and urban issues. Ad- mother). The possibility of obtaining (or building) such a house
dress: 37d Mohd Ali Society, is an important source of hope for a large proportion of low-
Karachi 75350, Pakistan. Email: income households.
arif@archtct.khi.erum.com.pk
• A recognition of the difficulties of successful “employ-
Caren Levy is Director of the ment creation”: While virtually all low-income urban house-
Gender Policy and Planning holds would consider increased incomes or better paying jobs
Programme at the Develop- as a priority, this is often not easily achieved both because of
ment Planning Unit, University the limited demand for the goods and services that new en-
College London. Address: terprises might provide and because of the competition they
Caren Levy, Development Plan- face from existing city enterprises. In many cities where a
ning Unit, 9 Endsleigh Gar-
high proportion of the population have inadequate incomes
dens, London WC1H OED, UK,
E-mail: c.levy@ucl.ac.uk and where a large, diverse informal economy exists, it is dif-
ficult to find niches for new micro-enterprises that could help
Diana Mitlin is an economist to increase income or employment for low-income groups.
working with the Human Set- This is especially so in cities with slow-growing or stagnant
tlements Programme of IIED; economies. However, several of the case studies - including
she also works on the Habitat PRODEL in Nicaragua and the Urban Community Develop-
International Coalition working
ment Office in Thailand have had successful programmes of
group on housing finance and
resoruce mobilization. Ad- support for micro-enterprises.
dress: IIED, 3 Endsleigh Street, • Increased possibilities for successful action in housing
London WC1H ODD, UK, E- and basic services: This includes not only what can be
mail: dmitlin@gn.apc.org achieved by low-income groups and their community organi-
zations but also (in most instances) possibilities for negotiat-
Denis Murphy is founder and ing support or resources from local authorities or other ex-
director of the Urban Poor As-
ternal agencies.
sociates in Manila which works
with squatter communities to
fight evictions. Address: Urban
Poor Associates, 80A Malakas EACH OF THE SEVEN INITIATIVES SOUGHT TO INCREASE
St, Brgy Pinyahan, Quezon THE OPTIONS AVAILABLE TO LOW-INCOME GROUPS
City, Philippines, E-mail
cotrain@phil.gn.apc.org
INCREASING PEOPLE’S PARTICIPATION is partly about in-
Sheela Patel is executive direc- creasing the options open to them - for instance, allowing low-
tor of the Indian NGO SPARC income households to make decisions about the location and
that has long worked with nature of their homes, the best methods of paying for their con-
pavement dwellers and the struction or improvement and for basic services, and choosing
National Slum Dwellers Fed- the best technology for providing these basic services in terms
eration in India. Address: of quality of service relative to price. So often, one of the conse-
SPARC, P. O. Box 9389, Mumbai
400 026, India, E-mail admin@
quences of being poor is that someone else or some distant in-
sparc.ilbom.ernet.in. stitution is making choices for you - where you can live, what
kind of housing and basic services are available to you, what
Marisol Saborido is director of credit, if any, you are allowed and the terms under which it
the Chilean NGO Cobijo Habi- must be repaid.
tat y Desarrollo, based in San-
tiago de Chile. Address:
Recognizing different priorities
Cobijo Habitat y Desarrollo,
Miguel Claro 2334, Nunoa, San-
tiago, Chile. E-mail cobijo Increasing people’s options involves recognizing the diversity
@huelen.reuna.cl of needs and priorities within any low-income population, not
only because of different incomes but also because of gender,
David Satterthwaite directs the age and ethnicity. This recognition helps to explain the different
Human Settlements Pro- constraints and opportunities people face and therefore the dif-
gramme at IIED and teaches at
ferences in their priorities. Thus, low-income women’s priorities
the Institute of Latin American
Studies, University College are often different to those of men. The person within a house-
London. Address: IIED, 3 hold who has the responsibility for maintaining the house and
Endsleigh Street, London for child-rearing (in most societies, predominantly women) will
WC1H ODD, UK, E-mail: generally have as a high priority reasonable quality housing that
david@iied.org is not too crowded, and basic service provision. This is hardly
surprising given how difficult it is to keep infants and children
Alfredo Stein works with
healthy in overcrowded, poor quality housing which lacks basic
PRODEL (The Local Develop-
ment Programme) supporting services. It is generally women who have to cope with the lack of
upgrading, basic services and piped water (through having to collect water from other sources,
micro-enterprises in urban often with the help of children) and the lack of provision for
centres in Nicaragua. Address: sewers, drains and garbage collection. This adds greatly to their
Altos de Santo Domingo No. work burden, particularly when they are combining domestic
23, Manuagua, Nicaragua, E- work with income-earning, as most women in low-income house-
mail alfstein@ibw.com.ni
holds do. Moreover, women may also pursue their options in a
different way from men. For instance, when the local authori-
ties threatened the pavement dwellers in Mumbai with eviction,
the women wanted to negotiate because they judged that this
would produce a better solution than confrontation; the men
favoured a more confrontational approach.
the greater the external funding, the more the external funders
will want to influence its use and the less chance low-income
groups will have to determine how best to use it. As a commu-
nity organizer in South Africa said, “...we want to avoid hand-
outs because, with handouts, someone else defines what we
have and what we can do with it.” The less subsidy a poverty
reduction programme provides and the more cost recovery it
generates, the less it is seen to be a “welfare” or “charity” pro-
gramme (and managed as such) with all the implications that
this brings on how the funding agency (and others) view the
“recipients”.
• The less the external funding, the greater the chances of sus-
taining or expanding the initiatives when external funds are
no longer available.
• The less the external funding, the less the likelihood that
wealthier groups will seek to hijack the programme.
• The less the external funding, the greater the chance of ad-
dressing dependency and of forging a new kind of relationship
between community organizations and external agencies.
or federations take on tasks for which they are not paid. For
instance, collecting the savings each day and managing the sav-
ings groups in India and in South Africa is done by an appointed
person from each savings group. In some of the initiatives, there
is a recognition of the limitations of this procedure, since elected
representatives from within low-income communities also have
inadequate incomes and limited time to devote to organization
and management.
2. Some aid programmes are giv- address such needs. Ideally, such funds should be set up in
ing their embassies more scope many cities with each drawing support from different donor
for small grants funds - but this agencies.(2) These should be set up to gauge the extent to
cannot achieve what is recom-
which such funds could implement the kind of approach to
mended here unless these funds
have staff with experience of poverty reduction that has been recommended here and pro-
working with low-income groups vide the intermediary institutions through which all official
and their organizations and who donors could channel funds to reduce urban poverty in any
remain for long periods in that city. particular city.
Funds are also needed in each
major city, not just in the capital These funds should:
city. It may also be difficult for
embassy funds to employ staff
from the city in which they are • provide loans, grants and technical and legal advice to sup-
located - and to have offices that port a great range of initiatives within the city where each
are accessible to urban poor fund is located including those linked to improving housing,
groups, and accounting systems infrastructure, many different kinds of basic services, em-
that help set new standards of ployment, income and legal rights;
accountability and transparency
• ensure, in each city, that support for community initiatives
for the inhabitants of the city
where they work.
becomes more continuous, more flexible, more responsive to
changing circumstances, on a larger scale, better linked to
on-going city activities and with a stronger emphasis on draw-
ing on local resources and on keeping down costs;
• set new standards of accountability and transparency both
to funders and to the low-income groups whose initiatives
they support.
• Develop a stronger understanding of what is possible with
regard to employment creation and micro-enterprise sup-
port in urban areas, especially where this also supports im-
proved housing and basic services and improved environ-
mental quality.
• Seek new means of supporting land acquisition and its
development for housing by low-income groups. This in-
cludes ways in which community organizations can identify
different land sites, and the possibility of acquiring them, and
ways in which credit can increase their chances of purchas-
ing land.
A. Case Studies
SPARC and its Work with the National Slum Dwellers Federation
and Mahila Milan, India - Sheela Patel, SPARC, 1996, 17 pages.