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TREATING PEOPLE AND COMMUNITIES AS ASSETS
THE ROLE OF THE
PUBLIC SECTOR IN PROMOTING AFFORDABLE HOUSING
Peter Marcuse
Two general concepts
stand out from a review of the housing practices that have been used to
address the problems of slum dwellers: one is that the provision of
appropriate land is the key to any further improvement, and that the use
of government power is essential to that provision; the other is that no
serious improvement can take place without significant costs, which can
ultimately be paid for through government resources.
The Central Question of
Land
If nitrogen is the
element which holds the key to productive agriculture, land is the key
to improving the housing of slum dwellers. The legal arrangements for
the occupancy of land are essential for ensuring the security of tenure.
The availability of land for housing construction is the key to
expanding the housing supply and limiting the growth of new slums.
Controlling the cost of land is necessary to hold down a major cost of
housing and keep it affordable. Finding well-located land is the key to
providing access to jobs, community facilities, services, and
infrastructure. Making certain that land used for housing is in
environmentally sound areas is vital to the environmental sustainability
of housing.
Virtually every example
of housing improvement for slum dwellers internationally includes
dealing with the land question as a central part of its program. The
requirements for treatment of land appropriate to meeting the needs of
slum dwellers can be easily summarized:
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environmentally supportive of healthy housing,
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accessible to work and to community and social facilities
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limited in cost
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secure in occupancy
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provided with the necessary infrastructure
The recommendations
below suggest opportunities for government action to help meet these
requirements for land.
The Unavoidable
Question of Cost
What approach should be
taken to the unavoidable question of the costs involved in improving the
housing conditions of slum dwellers?
We are cognizant of the
severe resource constraints confronting any major housing initiative
dealing directly with the physical improvement of the living conditions
of slum dwellers. The history of World Bank initiatives in this area,
for instance, shows a steady move away from "expensive" solutions to
"cheaper" ones: by one estimate, providing even a low-cost unit directly
cost US$10,000, sites and services schemes costed out at US$1-2,000 per
core housing unit, and upgrading schemes were estimated at US$38 per
household. Later studies showed costs for upgrading schemes were much
higher, and that environmental problems were at best only temporarily
remediated. In one recent program in Dar-es-Salaam an absolute cap of a
US$50 per person was placed on World Bank assistance. What can be done
with that kind of cost limitation is, while meaningful, not likely to be
very extensive.
To put the matter
bluntly: In addition to the other actions necessary to improve the
housing of slum dwellers, there are costs involved that are substantial.
Policies need to address raising the funds to cover those costs, in
addition to maximizing what can be done with limited funds. It is clear
that the true costs involved will exceed the resources of either
non-governmental organizations (NGOs) or most users, and must come from
governments.
The Complex Question of
the Public Sector’s Role
Given the availability
of some significant level of funding, what then should the role of
government be in the utilization of such funds? Four principles are
clear:
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two, that efforts are needed to make that involvement as efficient
as possible (which is the focus of UN Habitat programs designed to
improve governance);
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three, that the level of resources required is great, and efforts
must be directed to obtain their provision;
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four, that government involvement should be as democratic as
possible, with community participation at all steps of both planning
and implementation.
The questions of
implementation of these principles are multiple, and only a few are
addressed here, because the answer must depend so much on the individual
circumstances of each country, and indeed often of each city or even of
each settlement. But one assumption seems warranted: that in fact no
generalization can be or should be made, and that specifically the
generalized assumption that government’s role should be as small as
possible is wrong. An active role for government is not an alternative
to an active role for housing occupants, for communities, for NGOs or
community-based organizations (CBOs), or for profit-motivated private
businesses; an active government role is rather necessary for each of
these other actors to play their role effectively. What the
balance should be will vary with each individual case. In our
recommendations, we suggest only the general principles that should
govern that role.
Recommendations
Land
The provision of land
for housing is a key aspect of government action on housing. It can be
done in several ways, and policy choices must depend on local
conditions, but in one form or another, making land available is the key
to improving the housing conditions of slum dwellers.
The options include:
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Make publicly owned land available
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Use of eminent domain to obtain private land
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Subjecting land to social use requirements
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Land banking
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Controlling price — price control, speculation tax
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Progressive real property tax
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Legislate security of occupancy on squatted land
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Control land-use through planning and zoning to avoid wasteful or
environmentally detrimental uses
Many of these
possibilities have direct costs to government; providing the resources
to meet those costs is thus in turn a necessity for effective action.
Subsidies
Given such standards,
what level of resource allocation for housing should be expected of
governments? Should it be measured in terms of Gross National Product
(GNP) per capita, or by some other yardstick? Even among the developed
countries, the range of government expenditure varies widely; the
Netherlands is apparently at the very top end of the range. A
recommendation establishing guidelines for standards and expectations
should be developed to provide a benchmark for efforts in this area.
Further, it is
reasonable to expect that there would be a continuation, and indeed an
expansion, of international assistance from developed to less developed
countries to meet the latter’s urgent housing needs. Such assistance
may be expected both from governments and from NGOs, many of which are
of course themselves funded by governments. It may be useful (although
it may also be controversial) to establish guidelines for what might be
expected from individual richer countries for aid in this area. The
procedures of the European Union in assessing its members in order to
assist in raising conditions within its less wealthy member states might
provide some suggestions for how coordinated financing might be done.
The Role of Government
For any important
action of government to be effectively undertaken, it requires an
understanding of the role of government: that such actions are not
simply an unfortunate necessity where there are market failures, but
that, given the levels of poverty and uneven distribution of resources
prevailing in much of the world, government action is central to
ensuring improvement in the housing of slum dwellers.
Public planning,
broadly defined as setting the framework for the regulation of land uses
and the social and economic policies designed to improve people’s lives,
is necessary if the actions of governments, private entities, and
citizens are to be coordinated so as to be mutually reinforcing rather
than in conflict with each other. The planning function may be located
in a separate government agency, or part of an agency devoted to
development (not so desirable, because often the implicit goal of such
an agency is growth, with equity and social justice for slum dwellers
being a hoped for consequence rather than a primary goal), or as part of
a housing agency (again not so desirable, because it separates the
planning for housing from the planning for other aspects of urban life
essential to it, e.g. transportation, infrastructure provision, or
environmental quality). Likewise, public planning must take place at
national, regional, municipal, and community levels, and in coordinated
fashion; often a national law may provide the framework within which the
various levels of planning take place, and how differences among them
may be reconciled. At each level, the highest possible degree of
resident participation is essential for public planning to be both
effective and democratic; the balance between the inevitable delays and
contentions must be negotiated in the context of different histories and
conditions. But in all cases the provision of an institutionalized and
open public planning process is necessary if housing for slum dwellers
is to be provided both efficiently and democratically.
Examples of issues
which need to be dealt with in terms of coordinated planning:
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The balance between the use of land for housing and the set-aside of
land for environmental purposes.
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The coordination of planning for transportation and land-use for
housing.
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The provision of adequate commercial, employment, and service
facilities concurrently with housing development.
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The determination of land suitable for housing, and the
recommendation of measures to make land available for such purposes
(e.g. eminent domain, land banking, prohibition of idle use,
determination of social purpose)
Participation
Finally, it is clear
from all experiences in the field of housing that the appropriate role
of government will only be found through the active engagement of civil
society, and specifically through the activities of organizations of
housing users: organizations of slum dwellers, of the homeless, of the
landless, of community-based organizations, of federations of the poor,
of the myriad local organizations by which those in desperate need of
housing seek to protect and advance their interests. Empowerment of
such groups is necessary for many reasons:
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So that the programs and the resulting housing will in fact meet the
needs and priorities of the poor
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So that programs will be effectively implemented
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To help ensure good governance
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To make programs more efficient
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To make programs less bureaucratic (both governmental and
non-governmental)
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To ensure that government accepts its obligations, and neither go
forward nor hold back on ideological grounds; key consideration is
rather how the basic needs of slum dwellers can best be met
Thus any recommendation
for government action dealing with housing must be coupled with a call
for the empowerment of the ill-housed to help set, guide, and implement
government policies.
Peter Marcuse
is a Professor of Urban Planning at Columbia University in New York
City, and a member of the Advisory Board of Global Urban Development.
His books include
Globalizing Cities,
Of States and Cities, Missing Marx, and Rental Housing
in the City of New York. His article is adapted from a background
paper originally prepared for the UN Millennium Project Task Force on
Improving the Lives of Slum Dwellers.
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