United Nations Human Settlements Programme Programme des Nations Unies pour les établissements humains - Programa de las Naciones Unidas para los Asentamientos Humanos

GUIDELINES

ON HOW TO UNDERTAKE A

NATIONAL CAMPAIGN FOR SECURE TENURE

GLOBAL CAMPAIGN FOR SECURE TENURE

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EXECUTIVE SUMMARY

This document presents a proposed framework for undertaking the Global Campaign for Secure Tenure (GCST) at the national (or local) level. It should be read in conjunction with the concept paper of the GCST. The introductory section contains an explanation of how national campaign is situated with respect to the overall goals and objectives of the GCST. It also presents an overview of the three main stages of national implementation of the GCST – namely the preparatory phase, he launch event and the pre-implementation phase. Finally, it describes the convergence between the GCST and the Global Campaign for Urban Governance. The second section outlines the “pre National Campaign activities” that are to be conducted and the consultations to be carried out with the country counterparts with a view to reaching a common agreement on the Campaign process, goals and objectives. This inception phase will be critical in building the necessary pre-consensus with country partners on the Campaign goals. The third section contains a more detailed description of the activities that could/should be undertaken in the preparatory phase. It also presents an overview of the functions of the “National Campaign Steering Committee”, and proposed outlines for the preparation of draft national (or local) “situation analysis”, “reform proposals”, “draft action plans” and a “city protocols” for the implementation of the national (or local) Campaign. This section also includes a brief outline of an information/media strategy for national Campaign implementation. The fourth section presents a proposed outline for a national (or local) launch event, including pre launch activities and modalities for the adoption of the draft national/local Action Plan and city protocols and establishment of a “National Campaign Implementation Committee”. The fifth section contains an overview of the implementation phase of the Campaign. As the specific content of this phase depends, to a large extent, on the results of the preparatory phase and decisions made at the launch event, this section is more generic in content. This phase includes pre-implementation activities such as the refinement and finalisation of the draft “action plan”. The section also includes a more elaborate discussion of the short, medium and long term phasing of Campaign implementation. The final section presents an overview of the modalities for monitoring of national Campaign implementation. It deals with monitoring by national stakeholders and the links to the global monitoring undertaken by UN-HABITAT and other partners.

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Table of Contents I. Introduction....................................................................................................................................4

A. How to use these guidelines ....................................................................................................4 B. Objectives of the National Campaign for Secure Tenure........................................................5 C. Relationship with the Global Campaign for Secure Tenure....................................................5 D. Overview of the National Campaign: “Two phases and one Event” ......................................6 E. Convergence between the Global Campaigns for Secure Tenure and Urban Governance .....7

II. Initial consultations (modalities for undertaking pre National Campaign activities)...................8 A. Conditions favouring Campaign activities ..............................................................................8 B. Pre-consensus building............................................................................................................8 C. Decision on initiating activities ...............................................................................................9

III. Preparatory (Diagnostic) Phase...................................................................................................9 A. National actors and their role in the Campaign, including partnerships .................................9

A.1. Partnership.....................................................................................................................10 A.2. Governments and public institutions:............................................................................10 A.3. NGOs.............................................................................................................................10 A.4. Urban communities/CBOs ............................................................................................11 A.5. Other stakeholders .........................................................................................................11

B. Establishment and mandate of the National Campaign Steering Committee........................11 B.1. Composition...................................................................................................................12 B.2. Responsibilities..............................................................................................................12

C. Proposed outline of national (or local) “Situation Analysis” ................................................13 D. Proposed outline for draft Reform Proposals ........................................................................13 E. Proposed modalities for the preparation of draft “City Protocol(s)” .....................................14 F. Proposed outline of national (or local) “Draft Action Plan”..................................................14 G. Guidelines for the proposed composition of the Campaign Implementation Committee.....15 H. Proposed terms of reference for the National Campaign Implementation Committee .........15

IV. Media and Information Strategy ...............................................................................................16

V. The Launch Event ......................................................................................................................19 A. Pre-Launch Activities............................................................................................................19 B. Organization of Launch Event and issues to be discussed ....................................................20 C. Adoption of draft Action Plans..............................................................................................21 D. Adoption of City Protocol(s).................................................................................................21 E. Establishment of the Campaign Implementation Committee ................................................21

VI. Implementation Phase...............................................................................................................22 A. Finalization of Action Plan ...................................................................................................22 B. The different stages of implementation .................................................................................23

B.1. Short term (one to two years) ........................................................................................23 B.2. Medium term .................................................................................................................23 B.3. Long term ......................................................................................................................24

VII. Monitoring the implementation of the National Campaign for Secure Tenure.......................25

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I. Introduction 1. The Global Campaign for Secure Tenure (GCST) was adopted by the

Seventeenth Commission on Human Settlements in 1999 and the first Campaign launches were undertaken at regional (Latin America and Caribbean Countries as well as Europe and Africa) and local (Durban, South Africa, and Mumbai, India) levels. These launches were prepared and conducted based on different approaches, and often on an ad hoc basis. It is generally agreed that theses launches have not only contributed to giving high visibility to the Global Campaign – especially when the urban poor where massively involved – but they also offered unprecedented opportunities to raise awareness among all stakeholders on critical urban issues, especially those faced by the slum dwellers.

2. However, along with these positive outcomes, the findings of the first launches indicate that the impact and the effectiveness of forthcoming National Campaigns will be greatly enhanced if the stakeholders involved are given guidelines on how to conduct the preparation, launch and the implementation of National Campaigns. This document is prepared with a view to addressing this issue.

3. It is assumed that the principles of the Global Campaign for Secure Tenure are known to those in charge of the Campaign. A synopsis is annexed to this note, and it is recommended that the UN-HABITAT and Campaign web sites1 be consulted for thorough and updated information.

A. How to use these guidelines 4. This document is meant primarily as a practical material for the Regional

offices of UN-HABITAT to support their national partners in the process of understanding, planning and undertaking Secure Tenure Campaigns at national and Local levels. However, it could be shared with partners to discuss its adoption or adaptation to the context of the country.

5. There is no blueprint to prepare, launch and conduct a Campaign. The political, institutional, economic, cultural and social backgrounds differ greatly from one country to another and even sometimes from one state or city to another in the same country. It is therefore necessary for each case to devise an approach that takes these specificities into account. Latitude should be given to partners to devise and adopt what they see to be the most effective approach.

6. The guidelines contained in this document should thus be seen as a generic proposal only. They should not necessarily be followed step by step. Instead, they have been prepared to inspire arrangements and procedures that should be adapted to the conditions and background of each country or city where the Campaign is to be undertaken. However, a number of general principles are suggested in this document that can be considered useful in developing a methodology and ensuring that important issues are not overlooked.

7. It is therefore proposed that – whenever alternative solutions are not taking precedence – the sequence and organization proposed in this document inspire those in charge of the Campaign, at the national or local level. However, two fundamental principles should be carefully considered and kept in mind: the Campaign is a consensual initiative, and it must be a sustainable undertaking. To ensure that this is permanently kept in mind it is strongly suggested that a representative body, including all stakeholders (first among them being the

1 http://www.un-habitat.org or http://www.unhabitat.org/tenure

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urban poor representatives particularly women) is set up to conduct the different phases of the Campaign. This body (whether it is called a steering committee, implementation committee, Habitat Forum, or something else) will decide how to undertake the Campaign, using from these guidelines what is deemed relevant and useful to inspire the national/local approach.

B. Objectives of the National Campaign for Secure Tenure 8. The National Campaigns, through a preparatory process, a series of high-

visibility launches, workshops and follow-up operational activities, translate and serve as an entry point to adapt the Global Campaign objectives of improving secure tenure to the local reality. They encourage dialogue between organizations of slum dwellers and support NGOs and governments at all levels. They seek to strengthen partnerships and build upon existing local initiatives such as slum upgrading, national legislation pertaining to urban land and housing, civic education, and capacity building. National Campaigns are based on a participatory and consensus building approach that will propose necessary reforms and action plans to be carried forward and implemented, in the long term. This participatory and consensus building approach must be rooted in gender perspective.

9. What is the added value for a country to be associated with the Global Campaign for Secure Tenure with UN-HABITAT as a partner? Although some countries may elect to carry out the Campaign independently, it is obvious that the participation of the UN-HABITAT in the activities brings a number of positive contributions. In addition to increasing the visibility of the national or local campaign by exposing it to other international partners, it is expected that direct exposure of the national campaign to the normative activities of the Global Campaign will benefit and streamline the efforts at national level. From the previous campaigns it is also expected that such a joint approach (country/city and UN-HABITAT) will greatly contribute to drawing the attention of other multilateral and bilateral partners as well as providing access to technical assistance. Finally, and most importantly, in addition to its expertise and experience, UN-HABITAT can facilitate networking with all its Campaign partners at regional and international levels.

10. While it may be assumed that launches of the Campaign usually take place first at national level followed by implementation activities (with sensitization and mobilization events) at the local and city level, in some countries this may not be the natural path to follow. There may be countries where there is a willingness and interest to initiate and support the Secure Tenure Campaign at local and city levels in order to bring the message up to the central authorities. A series of local mobilization activities may lead over time to sensitization of the national government and eventually bringing them on board. Such a bottom-up, gradual process could be a strategic one as well, the choice depending on each country situation and the decision to go for an option resting ultimately on the partners within the country.

C. Relationship with the Global Campaign for Secure Tenure 11. The Global Campaign is an advocacy instrument designed to promote secure

forms of tenure for the poorest populations, especially those living in informal settlements and slums. It promotes negotiation as an alternative to forced eviction and the establishment of innovative tenure systems that minimise displacement by market forces. It also promotes the equal access to land and secure tenure for women. By focusing on security of tenure, UN-HABITAT promotes the progressive realization of housing rights and advances the implementation of the Habitat Agenda, specifically the goal of "adequate shelter for all".

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12. “There are elements and messages of the Campaign that, by definition, have to assume the status of universal standards or norms - they are, and must be, global. On the other hand, given the complexities associated with security of tenure, some of which have a cultural, religious or regional specificity, the Campaign must be designed to allow for and to encourage such expressions of regional difference. In short, the Campaign must be designed in such a manner as to reinforce necessary global norms, while allowing for the promotion of regional differences that are in conformity with such global standards.

13. “The very concept of secure tenure, for example, will itself have to be defined and benchmarked so that it is measurable, and forms of tenure that are not or only relatively secure may thus be identified. Such a definition must necessarily be seen as a universal norm, and may not be the subject of regional or national reinterpretation or negotiation. Such a standard can only be re-examined globally, and only through the mechanisms of the United Nations.

14. “Conversely, if regions and countries choose different methods of implementing such a universal norm, but satisfy the basic universal requirements and principles as specified, then this cannot be challenged at the global level. As the most obvious point of departure, the Campaign should begin identifying the existing rights-based Conventions and instruments that have relevance to the issue of secure tenure, as these already constitute global norms.”2

15. In managerial terms, this would imply that certain aspects of the Campaign need to be addressed from a global perspective, UN-HABITAT both at headquarters and regional levels and its global partners being in charge of the design and implementation of the Global Campaign. The national component of the Campaign should be managed on a decentralized basis at the country level as suggested in these Guidelines.

D. Overview of the National Campaign: “Two phases and one Event” 16. National Campaigns for Secure Tenure should be seen as more than a one-day

event in which partners meet and exchange views before going back to where they came from. National Campaigns should be carefully prepared to ensure successful, efficient and sustainable implementation of actions and programmes. The National Campaigns can briefly be summarized as consisting of two phases (Preparation and Implementation), separated by the Launch Event.

a) The objective of the Preparatory Phase is to take stock and identify what can be done, how and by whom. Its primary objective is to prepare a draft Action Plan. This plan should, however, not be drafted before a thorough situation analysis has been undertaken in collaboration with all relevant stakeholders. A set of reform proposals should then be compiled based on this analysis.

b) The objective of the Launch Event is to have a high level forum to discuss the objectives of the National Campaign, thereby building consensus among stakeholders, to advocate for the reform proposals and to adopt the proposed Action Plan.

c) The objective of the Implementation Phase is to make the objectives of the Action Plan a reality. It seeks to ensure progressive and sustained improvement of the living conditions of the urban citizens, focusing on the urban poor, slum dwellers and other

2 In: Global Campaign for Secure Tenure, Implementing the Habitat Agenda: Adequate Shelter for All.

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marginalized groups, with a specific focus on women and HIV/AIDS victims and orphans.

E. Convergence between the Global Campaigns for Secure Tenure and Urban Governance

17. Whenever possible, the two Campaigns should be conducted simultaneously. In addition to a powerful and unique mobilization this will bring, it will increase the efficiency of UN-HABITAT regional offices in the administration of the Campaigns and the support they provide. The preparation of the two campaigns will benefit from the convergence of the two Campaigns The two Campaigns share a common goal - inclusive cities for cities without slums for poverty reduction - and pursue this goal through complementary strategic entry points.

- The Global Campaign for Secure Tenure promotes negotiation as an alternative to violent forced eviction, innovative tenure systems for the urban poor, women’s equal secure tenure, tools to facilitate collaboration between the urban poor, support NGOs and government at all levels, slum upgrading frameworks, and legal and regulatory reforms.

- The Global Campaign on Urban Governance (GCUG) promotes participatory urban governance (strategies, forums, tools), women's political representation and participation in decision-making, gender budgeting, public auditing, and other mechanisms ensuring greater accountability and transparency.

At the level of individual cities, joint Campaign activities will serve to increase working relations between the primary partners of the two Campaigns, civil society organizations-led initiatives of GCST, and government-led initiatives of the GCUG.

18. The two Campaigns interact and build synergy profitable to each other. As such, and just to mention a few converging dimensions of the two Campaigns:

a) GCUG, advocating subsidiarity, will emphasise and promote urban participatory processes including the urban poor and slum dwellers in the city development, and will contribute in putting forward issues related to security of tenure and the improvement of the living conditions of the slum dwellers and the urban poor.

b) GCUG, by advocating transparency, will ensure that available resources are actually reaching target populations and that access to land and credits do not discriminate against urban poor, including women.

c) GCST, by providing the urban poor with a status and citizenship will enable them to contribute as urban citizens in the management of their city, and voice their visions and concerns.

d) GCST, by advocating non-discrimination against women and disadvantaged groups is supporting the inclusion component of the Global Campaign for Urban Governance.

19. Considering these common goals and strong interactions and synergy aspects of the two Campaigns, UN-HABITAT will favour their joint preparation, launch and implementation. In addition to the substantive advantages mentioned above, the conjunction of the Campaigns will ensure that efforts are pooled together by all stakeholders.

20. In some cases, countries may not be equally ready for the launch of the two Campaigns. In this case, however, the protagonist may still want to consider a joint

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preparation where one Campaign may take the lead and pave the way for the other. It is then expected that, by virtue of the converging objectives of the two Campaigns, a momentum will be created that will create favourable conditions for the two Campaigns to move ahead together.

II. Initial consultations (modalities for undertaking pre National Campaign activities)

A. Conditions favouring Campaign activities 21. To be successful, a Campaign requires that a number of conditions be met.

Most important among these are:

- A political will confirming the commitments expressed by the country in the implementation of the Habitat Agenda, including the commitment to adopt an inclusive and participatory approach, involving the urban poor.

- An active civil society, committed communities of urban poor and representative group leaders.

- A commitment of stakeholders to work in partnership and to resolve conflicts through dialogue.

In addition to these fundamental principles, the Campaign success will be greatly enhanced when other conditions are available, including: if and when countries commit funding for the preparation and subsequent phases of the Campaign as well as an early participation of the donors.

22. Through their country programmes, the Regional Offices of UN-HABITAT in consultation with the Campaign Secretariat will be able to identify countries that are likely to comply with these requirements. It is also expected that a number of countries will volunteer to conduct a Campaign either on their own or with the assistance of UN-HABITAT. The Regional Offices will suggest prioritisation of the countries to be selected according to the local conditions and available resources.

23. Other factors may be considered to refine the choices, including opportunities to contribute in the development/illustration of normative activities, contribution in regional programmes or expansion of networks of stakeholders.

B. Pre-consensus building 24. Once countries have been pre-selected as possible mobilisers of Campaign

activities, UN-HABITAT should engage in preliminary discussions with national partners to ensure that the principles of the Campaign are fully endorsed by all stakeholders, and that commitment to carry out the Campaign is genuine. In-country consultations should be undertaken to clarify issues, express commitments and readiness. UN-HABITAT Regional Offices and/or headquarter units should ensure that Member States officially express interest and appoint their focal point.

25. Given the political sensitivity of the issues to be addressed by the Campaign and the number and quality of stakeholders to be involved (including other UN agencies, bilateral and multilateral development partners) it is recommended that the focal point

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representing the Member States candidate for the Campaign has all the powers to commit the Government.

C. Decision on initiating activities 26. Once principles are accepted, organizational setting decided and resources to

carry out the Campaign are identified, UN-HABITAT and Campaign partners in the country should agree on sequences and a provisional agenda. One of the first activities will be to engage in consultations among stakeholders in order to set up a process conducive to an efficient preparation of the Campaign.

27. A National Campaign Steering Committee as described hereunder (see section III.B) should be put in place and entrusted with the responsibility of the preparation of the Campaign launch with clear terms of reference and responsibilities.

III. Preparatory (Diagnostic) Phase 28. The main purpose of the Preparatory Phase of National Campaigns for Secure

Tenure is to take stock and identify what can be done, how and by whom. Its primary objective is - based on the identification of issues that need to be discussed in view of improvement of the overall situation of the urban poor - to build a consensus that translates into a draft Action Plan.

29. This plan should, however, not be drafted before a thorough country/city situation analysis – through which the current shortcomings and obstacles in the housing and land delivery/access process will be analysed (see details in section III.C below) – has been undertaken, in collaboration with all relevant stakeholders. A set of reform proposals should be compiled based on this analysis (see details in section III.D below). The draft Action Plan should be submitted by the National Campaign Steering Committee (see section III.B below) for adoption during the launch event.

30. The most important component of the Preparatory Phase may, however, prove to be the process of consensus building among the main stakeholders within the areas of housing supply and secure tenure.

31. In some situations, consultation and consensus building process may be quite advanced in some countries before any situation analysis has been carried out. In this case, the analysis may still be necessary but is likely to be a brief activity that will seek to translate the consensual ideas into a document that could be a preliminary draft of an action plan highlighting the reforms and actions to be implemented. Obviously, in this case, the preparation of the Campaign could be undertaken faster and is likely to yield better results.

A. National actors and their role in the Campaign, including partnerships 32. The Campaign is a common undertaking involving all relevant stakeholders. It

should call upon the contribution and the full and active involvement of partners representing government at all levels, civil society, business, elected representatives, as well as donors and development agencies. This participation will be all the more effective, as it would have involved all stakeholders through all its phases (from the inception stage of the Campaign and the preparatory phase up to its implementation). The detailed structure of the participation will depend greatly on the existing institutional situation in the country as well as the history of the urban actors. In the next paragraphs, a number of possible actors are proposed, keeping in mind that local conditions may lead to different compositions in each country.

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A.1. Partnership

33. Before debating the various potential stakeholders, it is important to note that partnership between different actors is a central element within the GCST. It is, therefore, essential to identify existing and potential forms of partnership that are necessary for the success and sustainability of the Campaign. Different forms of partnership should be identified and analysed, including:

a) Public/private sector partnership in the production and management of infrastructures and public services.

b) Public/private/community partnership for the management and maintenance of public spaces.

c) Partnership between community associations and finance institutions for access to credit.

d) Partnership between all actors particularly women in view of poverty alleviation, fighting marginalization and promotion of revenue and employment generating activities.

e) Partnership between all actors particularly women in raising legal awareness, identifying legal reform needs and implementing adopted laws and regulations.

A.2. Governments and public institutions:

34. The main public sector partners in the national implementation of the GCST are representative of the following institutions:

a) Governments: Both at central, provincial and local levels, governments are key players and should interact actively with the National Campaign Steering Committee, both directly through their representatives and by means of periodic meetings to assess the proposals and their relevancy. It is clear that Government approval and continued support is fundamental for the success of the campaign.

b) Parliaments: Their sub-bodies in charge of issues related to this Campaign (housing, land, poverty alleviation, human rights, etc.) should be involved in the process in order to subsequently seek their contributions to the design and adoption of subsequent legal reforms.

c) Public institutions in charge of activities related to the Campaign such as urban planning, housing policy, land planning and land use, finance, cadastre, social welfare, etc. They contribute by providing the Campaign actors with updated information, contribute to the discussions and, later, will be key actors in the implementation of the Campaign

A.3. NGOs

35. NGOs represent a variety of interests and organization types (poverty alleviation, charitable organizations, faith based groups, women’s association, children protection, health, environment protection, legal aid centres, etc.). Among the major competencies of NGOs with respect to GCST are the following:

a) Depending on their organization level and their capacity to master issues related to land, housing and urban development, NGOs could play an important role in translating the needs and expectations of urban populations, particularly women, the marginalized and the poor.

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b) In addition, NGOs can act as a catalyst and can contribute to the organization of the target population as well as raising their awareness of issues at stake and sensitising them on their rights and their duties as citizens.

c) NGOs can capitalise on international experiences through their networks and, d) They are a good instrument for dissemination of such experiences among urban

communities. .

A.4. Urban communities/CBOs

36. Another major stakeholder group in the national implementation of the GCST are the urban communities themselves and their organizations. Efforts must be made to include women’s organizations since they can play a key role in the implementation of the national GCST. Among their major competencies are the following:

a) As the basic organization of urban populations, they are an excellent means for the urban poor to voice their needs.

b) They can express their concerns, needs and vision regarding the resolution of their situation directly or with the assistance of NGOs.

c) They are the single most important entity that can give a clear insight on the expectations of the urban poor and slum dwellers. They can convey to the authorities direct messages from these populations and constitute a unique link for dialogue and negotiations on sensitive issues such as relocation, access to land, etc.

d) They provide a unique opportunity for the poor to access credits (e.g., community credits), when classic forms of financing are unavailable.

e) They are generally an efficient interlocutor for the public authorities, allowing them to initiate and sustain a fruitful dialogue with the poor on proposals that need consensus and commitment of all the protagonists.

A.5. Other stakeholders

37. In addition to these main partners, and depending on the local setting, the participation of a number of other partners may be important and instrumental to the success of the Campaign. The following partners are suggested:

a) The private sector that may play a crucial role in poverty alleviation as well as contributing in the provision of adequate services and infrastructures and their maintenance.

b) UN-HABITAT, whenever requested, may bring support and guidance as well as act as a bridge together with other international partners such as UNDP, other United Nations agencies, the World Bank, regional development banks.

c) Other regional, international actors and donors. d) The media are key players at all the stages of the Campaign. They are instrumental

in creating awareness among the urban poor and other stakeholders and they are very useful as a reminder to all stakeholders of their commitments as they exert independent monitoring and assessment of the progress made.

B. Establishment and mandate of the National Campaign Steering Committee 38. The national focal point for the implementation of the GCST is the National

Campaign Steering Committee. In order to ensure that it represents the stakeholders involved, that it has the necessary clout to “carry the Campaign”, and that it has a mandate that allows

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the Campaign to move forward decisively, this Committee should be established through the following modalities:

B.1. Composition

39. It is important that the members in the National Campaign Steering Committee represent – in addition to relevant administrations and public institutions in charge of finance, housing and urban planning – members representing civil society, including urban poor associations as well as NGOs active in this domain. Identification of the representatives of the urban poor may be a sensitive issue that should be considered very carefully to avoid creating conflicts or disenchantment.

40. In many cases bottom-up processes are actively at work where dedicated NGOs and community groups play an active role at community or city level. This role should be recognized and their participation (at least at local level) will be an asset to the success of the campaign for its preparation and implementation. Different approaches may have to be considered in integrating them in the coordination process depending on their will to be part of the coordination process and their sensitivity to the campaign process.

41. It is obvious also that the quality of the participation of all members and, in fact, the quality of the preparatory phase and the success of the Campaign depends greatly on the commitment of the National Campaign Steering Committee. In fact, experience has shown that a democratic National Campaign Steering Committee encourages a participatory spirit and is a key to success.

B.2. Responsibilities

42. The responsibilities of the National Campaign Steering Committee include the following activities:

a) Preparation of terms of reference for the preparation of a “Situation Analysis” (see section III.C below), a draft “Reform Proposals” (see section III.D below), a draft “City Protocol(s)” (see section III.E below) and a draft national (or local) “Action Plan” (see section III.F below).

b) Identifying team(s) responsible for preparing draft “Situation Analysis”, “Reform Proposals”, “City Protocol(s)” and national (or local) “Action Plan”.

c) Monitoring, supervising, orienting, assessing and assisting the work of the above mentioned teams, and eventually approving the draft texts for submission to the Launch Event.

d) Preparation and organization of the Launch Event, in collaboration with other stakeholders.

e) In consultation with all relevant stakeholders, preparation of a proposal for the composition and terms of reference of the Implementation Committee, to be submitted for approval/endorsement at the Launch Event, as outlined in section III.H below.

43. It is important to note that the activities of the National Campaign Steering Committee will contribute mostly in progressively building consensus on the findings of the “Situation Analysis” and the “Action Plan”. This consensus should be built through several workshops attended by all relevant stakeholders, and foremost the urban poor. The specialists who have conducted the situation analysis may be requested to moderate these workshops. It is suggested that these discussions be held separately with each category of stakeholders (e.g., public sector, NGOs, CBOs, private sector, donors, etc.). Once these

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discussions have been held separately with each group and concluded, it will be useful to convene a workshop with all the stakeholders for a general discussion as a preparation to the launch event.

C. Proposed outline of national (or local) “Situation Analysis” 44. Although situations may vary greatly from one country to another (and even

from one city to another) it is suggested that National Campaigns are not conducted without a full appraisal of the current situation and an identification of the obstacles to a sound policy conducive to a progressive improvement of the situation of the urban poor. The following paragraphs suggest general issues to be considered that will be, necessarily, revised and adapted to reflect the needs and situation of each Campaign.

45. It is strongly recommended that the assessment is undertaken by an independent party, such as consultants or other specialized services, to ensure impartiality. Moreover, this independent party should consist of specialists of housing and land matters. This approach does not preclude an interaction between the Committee members and the consulting team. In fact, it is strongly recommended that, with a view to ensuring progressive ownership by the Committee members, they involve themselves in the monitoring of the study.

46. The Situation Analysis should, among others, address the following components that are directly related to the housing conditions of the urban poor. This list should be discussed and other items could be added by the National Campaign Steering Committee:

a) housing and tenure conditions in the country (city) and their legal basis; b) economic, social, cultural and other causes for the formation of slums and

informal settlements (and by extension substandard housing); c) obstacles that may hinder effective development of the housing sector; d) the different stakeholders actively involved in the improvement of the living

conditions of households living in substandard housing; e) land management and administration; f) shelter conditions of HIV/AIDS victims particularly women and children.

47. In annex II there is an outline of generic issues to be included (or at least assessed for inclusion) in the situation analysis. More specific terms of reference for this analysis should be drafted by the National Campaign Steering Committee. Such terms of references will, of course, be specific to each country/city.

D. Proposed outline for draft Reform Proposals 48. Reform Proposals may be among the most prominent outcomes of the

Situation Analysis and the subsequent discussions among stakeholders. These proposals should highlight measures and reforms to be undertaken with a view to improving the existing legislative, regulatory and institutional setting. Once implemented, these measures and reforms are expected to be key factors in the sustained resolution of substandard housing problems and insecurity of tenure.

49. At this stage the National Campaign Steering Committee should have reached a consensus on the broad reforms to be undertaken. The full development of these reforms should be carried out only after the conclusions of the first phase are officially endorsed and approved during the launch event. The National Campaign Steering Committee, in

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consultation with all stakeholders, should also be in position to decide which activities should be included in the Action Plan as well as other important activities to take place during the Launch Event such as, possibly, the approval and endorsement of a City Protocol.

E. Proposed modalities for the preparation of draft “City Protocol(s)” 50. The launch is a very highly visible event and will be attended by all those who

have a stake in the city’s future. It offers a unique opportunity to the stakeholders to formally express their commitments to the principles that will be adopted on a consensual basis and through the consultation process that has taken place during the preparatory phase. The launch represents the ideal sounding board for stakeholders to publicly confirm the consensus reached at this stage.

51. One of the official commitments that could be made publicly would be, for instance, a “City Protocol”: an agreement whereby the city authorities would officially affirm that they will not engage in forced evictions and will, for example, undertake, through sustained dialogue with the communities, regularisation operations leading to progressive improvement of the substandard neighbourhoods. On the other hand, mass-based organizations could commit to sensitize urban poor not to resort to land invasion. Other types of such “social contracts” could be considered depending on the existing local situations.

52. City (or National) authorities may wish to consider conducting discussions during the preparatory phase with a view to reaching agreements on such a Protocol or any other form of Social Contract they deem opportune and necessary to adopt. A document assigning the roles and responsibilities could be drafted for official signature during the launch.

F. Proposed outline of national (or local) “Draft Action Plan” 53. The reforms to be proposed should be submitted for discussion and

endorsement by the participants during the launch. Actions to be undertaken to translate these reforms in new legislative, regulatory and institutional frameworks should be spelled out as the result of the preparatory process. Projects and programmes to be carried out during the implementation phase of the Campaign need to be outlined. These items should be translated in a draft Action Plan to ensure that concrete activities will be carried out after the launch and responsibilities to implement these activities are clearly assigned.

54. The success of the Campaign is based on the quality and nature of the discussions that will materialise in such a draft action plan. This draft Action Plan should propose a strategy that is affordable, pragmatic and implementable. It should translate a consensus among different actors and reflects the commitment of the government to the MDGs and principles of the Habitat Agenda as adopted in Istanbul in 1996 to provide “adequate shelter for all”. It may include:

a) a recognition of the right to housing as recalled by the Secure Tenure Campaign principles and based on international law;

b) a recognition of women’s equal rights to land, housing and property, including through inheritance, and access to credit, as recalled by the Secure Tenure Campaign principles and based on international law;

c) a recognition of the need for urban poor to participate in the design and implementation of the actions aimed at the improvement of housing conditions;

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d) a decision to work toward the setting up of an enabling housing policy that includes the component related to the housing for the poor, including the shelter needs of HIV/AIDS victims particularly women and children;

e) a recognition of the need to set a policy that aims at ensuring security of tenure for the urban poor living in substandard or slum areas; and

f) an official recognition that there will be no use of unlawful evictions, favouring instead dialogue as a means to solve disputes about land and property.

55. It is recommended that the proposed actions be classified according to priority (e.g., short, medium and long term), by category of activities (legislative issues, institutional setting, operational activities, capacity building, human resources development, etc.). The draft Action Plan should spell out responsibilities of each stakeholder in the implementation of the action plan. It should include goals to be achieved, benchmarks to monitor the achievement of these goals and performance indicators. It is also highly desirable that funding resources be identified, possibly during separate discussions with donors.

56. The draft Action Plan should be prepared by a selected team of experts and stakeholders, and should be approved by the National Campaign Steering Committee, which will submit it for adoption by all relevant stakeholders at the Launch Event.

G. Guidelines for the proposed composition of the Campaign Implementation Committee

57. The National Campaign Steering Committee should prepare recommendations – to be submitted for approval at the Launch Event – for the composition of the organization that shall continue its functions after the Launch Event, e.g., a National Campaign Implementation Committee.

58. The composition of the National Campaign Implementation Committee should be related to the targeted objectives and the tasks required to meet these objectives. It may be a replication of the National Campaign Steering Committee, or a different composition depending on the activities that it is expected to conduct. It should be strongly recommended that civil society representatives remain in the Campaign Implementation Committee.

59. It is strongly recommended that the Campaign Implementation Committee be formally set up and endorsed during the launch event to ensure a smooth transition between the preparatory phase and the implementation phase. This will also ensure that the momentum is not lost and the spirit and the involvement of all stakeholders are kept alive.

H. Proposed terms of reference for the National Campaign Implementation Committee

60. The National Campaign Steering Committee should prepare draft terms of reference for the Campaign Implementation Committee. These terms of reference should be clear and concise, spelling out the objectives, expected outcome of the Committee’s work, the reporting lines, its responsibilities, etc.

61. The main mandate of the Campaign Implementation Committee is to co-ordinate activities and be responsible for follow-up of the decisions made at the Launch Event, as well as monitoring the implementation of the national Campaign.

62. The terms of reference could include specific suggestions for – or the authority to establish – a more articulated organization, where separate sub-committees are entrusted

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with specific tasks, such as: law reforms, institutional arrangements, partnership and dialogue, finance, capacity building and pilot projects, dissemination and networking, etc.

63. Likewise, the terms of reference could include specific suggestions for – or the authority to establish – local or municipality committees to ensure a close monitoring of the implementation of the Campaign at the city level. The choice of format will, of course, be specific to the issues confronted by each country.

IV. Media and Information Strategy 64. By definition, successful Campaigns rely heavily on a well coordinated

information and media strategies. From Mayors to slum dwellers, from Parliamentarians to ordinary people, asking citizens to change the way they manage their city requires the full persuasive powers of all the media, modern and traditional, mass and community based. Failure to design and implement a comprehensive media strategy could jeopardise a Campaign; what is worse is that, in the case of the Campaign for Secure Tenure and Campaign on Urban Governance, failure could lead to confusion amongst those the Campaign is intended to help, the urban poor.

A. Media/Information Sub-Committee

65. The centrality of information and media to this process means that the national Campaign steering committee must include information/press officers. If necessary a small sub-committee or working group should be formed of suitably qualified individuals to design and implement an information and media strategy.

B. Media/Information Strategy 66. One of the primary tasks of the working group is to map out who the main

target groups are and the kind of information that will be required by them, the times of the different stages of the Campaign process and the media that should be used to disseminate the messages. The kind of information materials which need to be produced ranges from posters and pamphlets to press kits, documentaries, public service announcements, web sites and newsletters. What is produced depends entirely on what is appropriate and what kind of budget is available.

67. It should also be noted that one of the roles of the sub-committee is to design an ongoing documentation process of the preparatory phase, the launch and the implementing phase, including slum-upgrading, so that the audio-visual material can be used subsequently. C. Resource Map

68. One of the first steps in the preparatory process is to do a resource map of what media are available, whom they reach and who is available to write and produce the media and information outputs. This includes finding out if newer computer based options, such as web sites and list-serves, are suitable for communicating the essential messages to the different target groups. Finally, this kind of resource map should also include an analysis of the most interesting people who can act as opinion leaders.

D. Target Audiences 69. At the same time, it is important to know who the target audiences are.

However obvious it may seem, it is important to have a clear idea of each target audience,

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their background, their level of sophistication, and even whether they have a vested interest in the success or failure of the Campaign.

E. Information Matrix 70. Next, it is important to map out what type of information will be required by

each target group. For example, politicians will need different kinds of information from technocrats; in turn, technocrats will need different kinds of information from slum dwellers. In some cases, the target audience will be sophisticated enough to understand social and economic arguments, others will be best persuaded by simple stories and case studies of successful slum-upgrading projects from other parts of the world. While designing this matrix it is important to find out what is available in terms of information materials from UN-HABITAT headquarters, if it is appropriate and whether it needs to be “translated and localised”.

F. Media Channels & Networks 71. Once it is clear who the main target groups are and what kind of information

they require, it is important to choose the best media channels to reach them. For example, whereas policy makers and planners may be easily reached by programmes on TV or articles in the prestige press, slum dwellers may need to be reached by different media such as local language newspapers, radio programmes, street performers or public meetings with local leaders. G. Time Line

72. One of the “final” steps is to prepare a schedule or time line of when different types of information messages will be launched, or the important events that need to be publicised. For example, during the early stages of a Campaign, it is important to prepare the citizens of a town for a general discussion about the need for secure tenure. During the launch, it is important to use the presence of the local politicians to gain attention for the overall principles and norms.

73. Much later in the process, when slums have been chosen for upgrading, it is important to launch a community based Campaign with the slum dwellers themselves. This step is very critical; though it is not always possible to predict what information is required, it is important to be prepared in order to avoid any confusion or, what is worse, disinformation by vested interests.

H. Emergencies 74. The possibility of disinformation raises questions about how best to handle

emergency issues during the process of the launch and the subsequent slum upgrading. Some emergency situations may arise such as:

a) Slum dwellers may react violently to confusing and contradictory messages. b) Landlords might react negatively and take different actors to court if they feel

threatened that they might lose their advantage. These kinds of unpredictable events require prompt response in order to diffuse tensions and misunderstandings. Therefore, it is important for the sub-committee or working group to identify who will act as spokesperson in emergencies. It is also important to make sure that clear lines of authorization are established to avoid inter-agency misunderstandings.

75. At the same time, it is important that the media sub-committee ensures that there are feedback loops built into the different phases. For example, it is important that

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during the implementation phase when slums are being upgraded that regular meetings and briefings are held to keep the planners abreast of how the slum dwellers are feeling about the process. Not to build such feedback mechanisms into the community development process could lead to long term problems.

I. Educating the Media

76. The preparation of a time line should also include the scheduling of press briefings and journalistic encounters to “educate” the leading members of the media on the issues involved. This can range from holding press briefings for senior editors to discussion groups with the journalists themselves.

J. Ongoing Documentation

77. Finally, arrangements need to be made about the ongoing process of multi-media documentation. This can be done in partnership with a broadcasting agency or by a private company or an NGO. Either way, slum dwellers should be integrated into the process as they know best what it is like to live in squalor and uncertainty and what the complexities of change are.

K. Staffing and Funding 78. Once the decisions have been made and this kind of matrix is in place, it is

important to work out how to produce the materials, to identify who will staff it and how it will be funded. Wherever possible, costs can be reduced by co-production agreements with the National broadcasting agencies and with other partners.

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V. The Launch Event 79. The main objective of the Launch Event is to have a high level forum to

discuss the objectives of the National Campaign, thereby confirming the consensus built among stakeholders, to advocate for the reform proposals and to adopt the proposed Action Plan.

80. A successful launch event is the outcome of a carefully conducted preparatory phase. Being both a crucial event for the success of the Campaign, an important political forum and a sounding board, the launch needs to take place in conditions that will allow for wide publicity of the findings and the commitments of all the participating parties.

81. The high level nature of the event, especially if there is a strong political participation and a good media coverage, will send a strong signal confirming the commitment of the highest political level to achieving the provision of secure tenure for the target population. It is also an opportunity to build consensus on the Action Plan. The following issues should therefore be considered for the organization of the launch.

A. Pre-Launch Activities 82. These activities are technically part of the preparatory phase but since they

relate specifically to the Launch Event, they will be discussed in this section. There is no blueprint for the content of the launch event, or the organization of the launch ceremonies. Each country/city should devise its own specific approach, in response to the issues to be considered. The National Campaign Steering Committee will play an important role in the definition of the framework and format of the Launch Event

83. The National Campaign Steering Committee should request selected experts and professionals to prepare statements that best illustrate salient aspects of Campaign related issues such as the provision of housing, land and security of tenure for the urban poor, within the context of the main themes identified. It should suggest the themes to be addressed by the speakers that best illustrate the findings of the “Situation Analysis” and “Reform Proposals”. These communications should highlight national practices as well as, were possible, international experiences that may suggest avenues for prospective changes/improvements.

A1. Date and timing 84. It is necessary to allow sufficient time for the preparatory phase so that all the

assessment and organization activities are conducted in an efficient manner. The date for the launch event should be decided in accordance with the capacities of the organizers to complete all the tasks of the preparatory phase way before the launch.

85. Whenever possible, the launch event could coincide with a major national or international event such as World Habitat Day, a national conference, etc.

86. Conversely, due attention should be given to national political events (e.g., elections) to avoid any undesired interaction that may contrive the launch.

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A2. Roles and responsibilities

87. The National Campaign Steering Committee has the main responsibility for the organization and convening of the Launch Event, however, the launch should be organised in close collaboration with all relevant national stakeholders, including:

a) The authority that will patron the event; b) Relevant public institutions; c) Community organizations; and d) NGOs. Moreover, the National Campaign Steering Committee should also conduct necessary

discussions to ensure the participation of: a) UN-HABITAT as coordinator of the Global Campaign for Secure Tenure, when

relevant; b) UNDP, other UN system agencies, the World Bank, Regional Development Banks; c) Other regional, international actors and donors; and d) The media

88. It should be well understood that the participation of these partners should be ensured at an early stage of the preparatory phase. For instance, the media are most likely to be very supportive of the Campaign if they are made aware of the issues at stake from the very beginning and if they also become partners in the Campaign (see section VII below). In fact, experience shows that the media have, in many cases, become part of the debate. Their capacity to translate accurately and faithfully the debates and dialogue is directly related to their degree of involvement.

B. Organization of Launch Event and issues to be discussed 89. The Launch Event should preferably be organised with plenary sessions and

multiple parallel workshops. Separate workshops related to the themes highlighted through the “Situation Analysis” and “Reform Proposals” should be organized. The workshops should focus in detail on the sections of the draft Action Plan that relate to their respective theme.

90. Although there is no blueprint for discussions, the following issues may be considered at the Launch Event:

a) different forms of land tenure and land transfer practices; b) land market characteristics (transparency, speculations, land grabbing, etc.); c) security of tenure and its relation to the enhancement of the living conditions in poor

neighbourhoods; d) forced evictions; e) access to credit for urban poor; f) women’s equal ownership rights, including through inheritance, equal access to

credit and women’s equal participation in decision-making; g) provision of infrastructures in poor neighbourhoods (financing, partnership,

participation of the poor); h) regularisation practices of informal land/settlements; and

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i) institutional and political setting for an efficient management and improvement of substandard neighbourhoods, etc.

C. Adoption of draft Action Plans 91. The draft Action Plan (see section III.F above) should be submitted to the

stakeholders at the Launch Event for their adoption. It may not be practically possible to finalise a fully-fledged Action Plan at this stage, that may more feasibly be done in the first part of the implementation phase. Yet, the adopted draft Action Plan should translate clearly and under an easily legible format the strategy recommended by the launch event. It should include benchmarks and performance indicators to be agreed upon by all stakeholders during the launch event. It is also highly desirable that funding resources be identified, possibly during separated discussions with donors (before/during or immediately after the Launch Event).

92. As most countries are committed to the Millennium Development Goals (as laid down in the United Nations Millennium Declaration), it is recommended, whenever appropriate actions and procedures have not been devised earlier, that the Campaign includes this component. Namely, it is suggested that the goal of Cities without Slums3 be included in the Action Plan as a subset of the Campaign, for further monitoring. A strategy for achieving this goal should be further developed, with, possibly, the support of UN-HABITAT.

93. The adoption of the draft Action Plan during the launch event will give it legitimacy and will facilitate efficient implementation. Yet, as suggested earlier, refinement of this Action Plan should be one of the first priorities of the Campaign Implementation Committee.

D. Adoption of City Protocol(s) 94. As indicated earlier (see section III.B), the launch event may be positively

sanctioned by an agreement between representatives of local government and urban communities as to the enhancement of informal and/or substandard neighbourhoods. This agreement could translate into a City Protocol through which local governments, in accordance with international legal instruments and commitments (such as the International Covenant on Economic, Social and Cultural Rights), would agree to cease forced evictions unless all forms of dialogue have been considered and actually used, and that no eviction could take place unless the decision is taken according to a court decision. Community representatives will engage in raising civic awareness with a view to achieving a strong community participation in the management and enhancement of their neighbourhoods and urban spaces as well as to prevent any further informal and/or illegal land invasion.

E. Establishment of the Campaign Implementation Committee 95. As one of the final actions to take place during the Launch Event, and based on

the recommendations submitted by the National Campaign Steering Committee the participants should confirm/endorse the Campaign Implementation Committee and adopt terms of reference for this body.

3 “improving the living conditions of at least 100 million slum dwellers by the year 2020”

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VI. Implementation Phase 96. The implementation of the National Campaign is a long undertaking.

However, implementation should be easier to conduct if the preparation phase has been carried out with care and precision, and if the launch event has confirmed the political will of the government and created consensus on the strategies and actions planned among all stakeholders.

97. The first tasks to be undertaken immediately after the Launch Event are the following:

a) The newly established Campaign Implementation Committee needs to meet and review the job ahead.

b) The draft Action Plan, adopted during the launch event, needs to be prepared and finalised (see section VI.A below).

c) The momentum created by the launch event has to increase building on the recent commitments of the participants. Necessary follow-up meetings could be convened to translate these commitments into agreement documentation.

98. The Implementation Phase of the National Campaign will unfold in phases (as outlined in section VI.B below) that will allow stakeholders to engage in the activities and programmes included in the action plan. These should include:

a) Discussions of and spelling out of required reforms to the existing legal, regulatory and institutional framework (as identified in the “Reform Proposals”, which were discussed at the Launch Event).

b) Advocacy for the drafting, amendment, adoption and enactment of the new legislative and regulatory framework.

c) Organization of new partnerships among stakeholders, in order to implement, through the Campaign, a sound housing policy, including its component relating to the low income households.

d) Implementation of pilot projects. e) Drawing lessons from practices and pilot projects, with a view to improving the

framework and scaling up at city and country level.

A. Finalization of Action Plan 99. As noted above, the draft Action Plan adopted during the launch event may

need some refinements and adjustments for overall consistency. The final version of the Action Plan may need to be endorsed separately by all the stakeholders so that it gets official status. A number of detailed data and information that were not available during the launch event may also need to be added to the final Action Plan before its adoption. The appropriate approach needs to be devised to ensure that the consultative process is still observed.

100. As noted in paragraph 55 above, the Action Plan should include, from the outset, indicators and benchmarks that will enable the “Campaign Implementation Committee” to assess progress made and to measure it against planned activities. Procedures for possible

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periodic revision of the Action Plan should be clearly spelled out. Where possible, it is recommended that these indicators be similar to those used by UN-HABITAT, including those proposed for monitoring the progress toward the achievement of the Millennium Development Goal.

101. If and when possible, financial resources should be identified and included in the Action Plan or as a separate Financial Plan. Memoranda and Protocols of Agreement could be signed between partners in order to confirm their commitment to the funding of the implementation of the action plan.

B. The different stages of implementation 102. The implementation of the draft Action Plan and later the final Action Plan should

follow short, medium and long term time sequences, to ensure a dynamic implementation and ensure that the various implementation stages of the Campaign are built on a solid foundation. This sequencing is a necessary condition to ensure that the Campaign is effectively implemented. The National Campaign is to be developed and implemented according to the background and situation of each country. Yet, and for an illustrative purpose only, the following is an example of sequences and matters to be handled:

B.1. Short term (one to two years)

103. At this stage, it will be necessary to seek a consolidation of the commitments made during the Launch Event, to confirm the leading vision and to carry out the actions related to the reforms of the legal, regulatory and institutional framework (as outlined in the “Reform Proposals”). Actions to be carried out could include (but are not limited to):

a) Refining the strategies and policies discussed and agreed during the launch event, e.g., finalizing the Action Plan (see section VI.A above).

b) Developing and proposing a first set of reforms to be adopted and engage necessary procedures with a view to their adoption by relevant institutions (local councils, parliaments, cabinet meeting, etc.), e.g., a first set of final Reform Proposals (based on earlier drafts from the preparatory phase).

c) Once the first set of reforms is adopted, engaging in dissemination, sensitisation and information/training activities in order to streamline the implementation of the new reforms.

d) Formalizing partnership and encouraging peer exchanges among stakeholders within the country and with foreign organizations/cities/partners.

e) Starting first pilot projects.

B.2. Medium term

104. At this stage the Campaign is at its cruising speed, first results should be registered and concrete results can be shown. During this stage reforms should be consolidated and would have become fully operational. The Campaign should be dealing with matters including:

a) New legal and institutional framework effectively put in place and operational. b) Lessons drawn from the implementation of first activities and from the functioning of

the reformed legal and institutional framework.

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c) Mechanisms in place to debate customary practices discriminating against women, as an additional activity to support legal reform and help bridge the gap between legislation and practice.

d) Mechanisms in place for increased legal aid. e) Periodic evaluation of the performances and the implementation of the agreed Action

Plan (benchmarks). f) Where necessary adjustments should be made to the ongoing process. g) Scaling up at city/nation level. h) Data base and best practices.

B.3. Long term

105. At this stage, the Campaign should have imprinted its values, visions, principles and approaches in daily practices and on a sustained basis. The long term objective of the “Cities Without Slums” initiative and its related effort of poverty alleviation should have been largely achieved. This hypothesis should be confirmed through:

a) Continued assessment programmes and the generalization of the activities to all parts of the country,

b) Dissemination of the results to and through all stakeholders, c) Where necessary, adjustments should be made to adapt the policy to new issues that

may arise at later stages.

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VII. Monitoring the implementation of the National Campaign for Secure Tenure

106. As already mentioned in paragraph 56 above, the action plan for the implementation of the campaign should include goals to be achieved, as well as benchmarks and performance indicators to measure the achievement of these goals. The goals should relate both to legal and institutional reforms as well as, of course, to the actual improvement of the living conditions of the urban poor. As such the National Campaign for Secure Tenure will directly contribute in the fulfilment of the commitment made by the country in relation to the Millennium Development Goal4 (MDG) 7 Target 11 “to achieve a significant improvement of the lives of at least 100 million slum dwellers by the year 2020”. Special arrangements may be made by the country in monitoring the MDGs, but it is clear that the Campaign Implementation Committee will have a direct and important role to play, with UN-HABITAT as a possible facilitator.

107. The role of UN-HABITAT in the monitoring of the national campaign for Secure Tenure is embedded in the monitoring of the Habitat Agenda and the monitoring of UN-HABITAT's Millennium Development Goal 7 Target 11. The latter consists of the following target: UN-HABITAT is in charge of this target which entails the preparation of annual reports and a major review every five years. UN-HABITAT prepares annual reports on progress made in achieving MDG Target 11, as well as a major review every five years, using key indicators. These are initially global and regional reports, which will become more refined to capture the national level situation. Given the nature of the target, the national level monitoring must be based on the monitoring of cities in the respective countries. (It is important to note that UN-HABITAT's target is the only one at the city level, all the other targets of the MDG are monitored at the national level and are then aggregated to regional and global totals).

108. The monitoring of the MDG must go hand in hand with interventions in cities in order to measure the impact of national and city-level policies. An inventory of all

4 For more information on the MDG consult the site: http://www.un.org/millenniumgoals

“National ownership of the MDGs is key for success. While 189 member states of the UN have signed the Millennium Declaration, not all have yet adjusted their national strategies and plans to reflect fully their commitment. The UN system is ideally placed to assist in this task.

The UN system’s participation will be geared towards supporting national efforts to achieve the MDGs by pulling together the contributions arising from the different strands of its activities, specifically to: (a) facilitate a participatory process which brings together a wide range of stakeholders to establish real ownership, a task which should benefit directly from national millennium campaigns or movements; (b) assist the Government to acquire the capacity needed to develop and assess alternative strategies for achieving the MDGs”

Excerpt from “The UN and the MDGs: A Core Strategy” May 2002.

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interventions, i.e., global, national and local, must be compiled in order to get a full picture of ongoing implementation activities in a particular city. Overall, the emergence of MD Goal 7 Target 115 in UN-HABITAT has led to a remarkable focus in the linking of normative and operational activities.

5 5 Specific indicators have been proposed to monitor MD Goal 7, Target 11. They are indicator 31: Proportion of people with secure tenure and indicator 32: Proportion of people with access to improved sanitation. Also, UN-HABITAT held an expert group meeting in November 2002 in order to advise on an international definition of “slum”. Five components were proposed in order to define the “slum”': 1) Insecure residential status; 2) Inadequate access to safe water; 3) Inadequate access to sanitation and other infrastructure; 4) Poor structural quality of housing; 5) Overcrowding. This definition has been translated by UN-HABITAT into guidelines for monitoring Target 11 at the city and urban national levels (www.unhabitat.org/guo).

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ANNEX I THE GLOBAL CAMPAIGN FOR SECURE TENURE

(a synopsis)

Quotation "Habitat’s Campaign for Secure Tenure is an advocacy instrument of the United Nations designed to promote secure forms of tenure for the poorest populations, especially those living in informal settlements and slums in cities. Indeed, security of tenure is one of the most important catalysts for attracting large scale capital necessary for comprehensive slum-upgrading but also for the urban poor themselves to invest in their own dwelling and communities’’.6.

The Global Campaign for Secure Tenure is designed to take forward the commitment of Governments to providing Adequate Shelter for All, one of the two main themes of the Habitat Agenda. It is an advocacy and capacity-building Campaign designed to promote secure forms of tenure for the urban populations, targeting especially the poor and those living in informal settlements and slums. A basic principle of the Campaign is that the urban poor should not be seen as passive, but should be considered as an active force that can and will actively contribute to the solution of their housing problems. Without the fear of forced eviction, the urban poor will volunteer in investing their time, energy and resources into improving the quality of their shelter and basic services. The Goal The Campaign identifies the provision of secure tenure as essential for a sustainable shelter strategy, and as the primary Housing Right. Security of tenure means that the right of access to and use of the land and property is underwritten by a known set of rules, and that this right is justiciable. It is therefore related to constitutional and legal frameworks, social norms, cultural values, etc. The Campaign is also a strong advocate of housing and property rights, with a particular emphasis on women's rights to land, while they are currently often excluded from owning property or inheriting land. It also strongly fights forced eviction ("a gross violation of human rights, in particular the right to adequate housing" as the UN Commission on Human Rights has made it explicit), and advocates alternative and negotiated forms for the solution of disputes related to secure tenure. It is important to note that the Campaign promotes security of tenure, not a particular form of tenure. Along with freehold or leasehold, other legally recognized forms can provide the needed security such as rent, collective forms of tenure, conditional freehold, etc.

The approach The Campaign should be seen as a long term initiative that aims at Promoting Legislative Reforms, sustainable and affordable shelter policies and the adoption of instruments that

6 Ms. A.Tibaijuka's keynote statement: "the future of our cities" World Habitat Day, October 1, 2001 Fukuoka, Japan

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include efficient and reliable methods of recording land title, cadastral systems, as well as efficient administrative mechanisms and capacity to record and update property rights.

It is expected that such affordable and practical shelter strategies will directly benefit the urban poor by effectively contributing to the provision of basic services (potable water, sanitation, accessibility) to informal and poor neighborhoods. Security of tenure is expected to enable the urban poor to access appropriate forms of credit and directly contribute to enhance their housing and living conditions. Implementation procedures In each country/city the Campaign is being designed and implemented according to the following principles:

- Decentralization is chosen wherever and whenever it is a viable and feasible option, including the devolution of major decisions to Country/City Campaign Committee.

- Partnership, to give voice to all the stakeholders including all tiers of Governments, NGOs, community groups and the private sector.

- Consensus, among stakeholders on the leading principles of the Campaign and the means to achieve them.

- Commitment to the sustained implementation of an agreed and realistic Action Plan.

The Linkages As envisaged in Habitat’s Strategic Vision, the Global Campaign should be seen as the strategic entry point for the effective implementation of the Habitat Agenda, and as a major component of Habitat’s work programme. By enabling the poor to voice their concerns and contribute directly to the decisions related to the development and management of their city, this Campaign is closely linked to the Urban Governance Campaign.

The Millennium Development Goal of “improving the living conditions of at least 100 million slum dwellers” is also directly related to the Global Campaign for Secure Tenure. It is clear that the Campaign will be instrumental in contributing to the achievement of this goal through its advocacy component as well as the policy changes that it is likely to generate. The Goal will be a major component of the Action Plan that will be adopted by the Campaign at National level.

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ANNEX II

National or Local Situation Analysis

I. Country Housing Situation Analysis I.1. National housing policy

a) Share of housing in the national development policy b) Institutional framework c) Resources (finance, human resources, building materials, technology,

etc.) d) Housing production processes e) Legal and regulatory framework: urban planning, building norms,

infrastructure and urban environment regulations (sanitation, solid waste, etc.)

f) Elements of social housing policy g) Analysis of the findings of this chapter.

I.2. Role of different stakeholders a) Role of the State: producer vs. enabling role b) Role of the private commercial sector: segment taken in charge in the

housing delivery process, incentives/disincentives, access to resources (credit, land, building materials), competition and transparency of the market, crowding out effect of the public sector, informal private sector

c) Self help construction, forms of co-operative initiatives, enabling and obstructing factors

d) Other actors e) Analysis of the findings of this chapter.

I.3. Housing finance a) Share of housing in national economy b) Existing financial mechanisms and institutions c) Savings and loan mechanisms d) Access to credit for low income households, micro savings and micro

credits, including for women e) Analysis of the findings of this chapter.

I.4. Land (management, market, affordability) a) Urban land structure: public, private, community/traditional b) Legal framework and management of urban land c) Land market and regulations d) Access to land for poor urban households, in particular women e) Informal land market f) Land grabbing g) Analysis of the findings of this chapter.

I.5. Informal, substandard housing, slums

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a) Importance of the phenomena: historic perspective, spatial localization, relation to formal housing (both in terms of population and urban space share)

b) Typology: construction materials, density, availability of basic and social services, etc.

c) Institutional framework: Public institutions in charge of substandard housing, role of NGOs, community organizations, private sector, etc.

d) Previous upgrading policies and strategies, outcomes and lessons learned

e) Analysis of the findings of this chapter. I.6. Basic services:

a) Coverage of basic infrastructure services b) Cost of basic infrastructure services c) Livelihood aspects of basic services for the poor d) Health and environmental impact of lack of basic services e) Analysis of the findings of this chapter.

II. Secure Tenure Policies II.1. Existing types of tenure and their legal basis (it is suggested that the assessment

covers the relative importance and legality of the various types, the cultural and psychological attitudes regarding the various types, the trends, etc.)

a) Freehold (both for land and housing) b) Collective ownership, including spousal co-ownership c) Rent d) Rent to buy e) Informal rent (quasi-legal and illegal types) f) Leasehold g) Other forms (including temporary tenure types, such as temporary

occupation licences) h) Analysis of the findings of this chapter.

II.2. Existing forms of security of tenure a) Existing forms of legal protection (laws and regulation that provide

protection of private property, define the relationship between the state and landowners, tenants and landlords, lessors and lessees, etc., and inheritance rights including women’s equal rights to land, housing and property, etc.)

b) Formal compliance of national legislation with international legal instruments, including formal ratification, etc., of such instruments and if appropriate transformation of these international obligations into national or “municipal” legislation

c) Practical (de facto) implementation of national legislation, e.g., to what extent is national legislation being applied, and to what extent legislation can be called upon by the disadvantaged and vulnerable groups including access to legal remedies, access to legal aid, rights awareness, etc.

d) Informal protection forms (group solidarity, tacit agreements, political "sponsorship", etc.)

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e) Situations where some categories are not protected or discriminated against

f) Analysis of the findings of this chapter. II.3. Official position vis-à-vis forced eviction

a) Legal and practical arrangements (such as formal laws, jurisprudence, written and unwritten agreements, etc.)

b) Formal compliance with international legal instruments, including formal ratification, etc., of such instruments and f appropriate transformation of these international obligations into national or “municipal” legislation

c) Eviction practices if any: in which setting do they take place, what is the size of the evicted population, who are the actors involved in the eviction process (administrative authorities, courts, private owners), negotiated forms of evictions

d) Impacts on the evicted population (loss of income, loss of shelter, social and cultural disruptions, with particular focus on the impact on women, etc.)

e) Analysis of the findings of this chapter. II.4. Women’s equal rights to land, housing and property, including through

inheritance (formal rights and actual practices) a) Place and role of women in social and economic development:

employment ratio, type of activities, access to and percentage in decision making positions, women organizations and their efficiency

b) Women’s equal land, housing and property rights: legal provisions related to the recognition and protection of women’s equal rights, and identified gaps

c) Women’s inheritance rights: extent of these rights and limitations if any d) Statutory laws, customary laws and actual practices: description of

conflicts between legal provisions and social/cultural practices when existing, and efforts made to stop gender-based discrimination

e) Analysis of the findings of this chapter.

III Previous Experiences in Slum Upgrading III.1. National experiences

a) Types of government led initiatives b) Major obstacles and measures taken to surmount them, c) Innovations and lessons learned d) Sustainability e) Analysis of the findings of this chapter.

III.2. International experiences a) Experiences with multilateral and/or bilateral development agencies, b) Major obstacles and measures taken to surmount them, c) Innovations and lessons learned, d) Analysis of the findings of this chapter.

III.3. Community led experiences

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a) Types of activities involving communities totally or partially, b) Communities organisation and capacity, c) Major obstacles and measures taken to surmount them, d) Innovations and lessons learned e) Analysis of the findings of this chapter.

III.4. Other a) Slums sociology, b) Economy of the slum upgrading processes (creation of income, relation

to the formal city, etc.) c) Analysis of the findings of this chapter.

IV. Conclusion and General Recommendations

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ANNEX III CAMPAIGN SEQUENCES FLOW-CHART

Preparatory

Phase Launch

Event Implementation Phase

Request from Government (23 – 24)

Confirmation of Partnership

(69 – 71) Setting of a National Campaign Steering

Committee (25 – 26 and 36 - 41)

country/city situation analysis (27 – 29 and 42 –

45) and consensus building (42)

Mobilization & Sensitization (64-78)

Proposal of reforms/actions

Draft Action Plan

(52 – 55)

Confirmation of Political Will (79)

Adoption of Action Plan

(76 – 78)

National Campaign Implementation Committee designated (55-61 and 93)

Follow-up, Monotoring and Revision

(91 – 93)

Different Stages of Implementation

(87 – 90)

Finalization of Action Plan

(84 – 86)

Campaigning opportunity

(20 – 22)

Draft City Protocol

(49 – 51)

Adoption of City Protocol

(79)