PRO

16 ~ust i978

-.: .. -""'-- ~

" ,
FOR INFORMATIOh"' ~
AND ACTION

TO: Field Offices

FROM: ~, Director, Programme Division

SUBJECT: REACHING THE CHILDREN OF THE URBAN POOR

The purposes of this PRO are:

(a) To relay the conclusions of the 1978 UNICEF

Executive Board for assisting programmes for
children in urban areas;

(b) for those field offices that have not already

done this, to request that they examine the
appropriateness and the opportunity for
UNICEF urban collaboration in the preparation
for their next country programme;

(c) to ask all field offices to relay the results

of this assessment in their Work Plan
for 1979 when a decision is made to work in
this area, and

(d) to request comments and suggestions that

would help UNICEF to increase its urban assist-
ance activities. The resulting information
will be compiled and circulated as part of ex~
panding the urban dialogue at all levels of the
Organization. Other activities will be based
upon the content of suggestions.

~lease see paragraphs 23 and 24 for specific inform-

do,,}, ;o6f . r e Q. u est e d .
 -2-

INTRODUCTION
i

1. This year the Executive Board considered two urban

documents, one on the situation of children in low-income
urban areas, with suggestions for overall actions 1/, and
the other on the specifics of UNICEF's cooperating-policy
and collaborations with governments. g/

2. Those documents drew on information from many sources

that included: the outcome of the 1977 Lusaka urban knowledge
network meeting; the preparation and deliberations of the
1977 Executive Board Note 3/, the "Questionnaire on Govern-
ment Policies and UNICEF Assistance for the Urban Poor"
filed late 1977 by Field Offices for 69 countries; and the
feedback growing out of the efforts by Field Offices at
urban programme exploration, development and execution over
the past seven years. The documents~ therefore, were based
on accumulated experience and are essential reading for all
of those interested in a detailed understanding of condi-
tions of the poor urban child and possible fields of action
that can be pursued as UNICEF expands its work in these
areas.

3. In the Board discussion of these documents during the

1978 EKecutive Board, delegations noted that there were signs
of a new attitude and a strong determination on the part of a
number of governments of developing countries to come to
grips with the problems of urbanization. In searching for
solutions, two factors had to be borne in mind: the rapid
population growth in urban areas, and the increasing migra-
tion to cities. Neither was likely to disappear in the fore-
seeable future. Recognition was given to the increased ex-
ploration and assistance activities by UNICEF described in
the Executive Director's Note. Yet it was noted that, given
the dimensions of the human problems involve'd, efforts to
alleviate the. situation, including those of UNICEF, had
hardly begun ~o scratch the surface. In expanding collabora-
tion,.the point was made by delegations with bilateral organ-
izations that further exploration of cooperation with bilateral
aid agencies was welcome. While the focus on the rural en-
vironment should be maintained, it was stressed that the grow-
ing urban sector should receive the attention it warranted.

1/ E/ICEF/L. 1371 - Basic services for children of the urban

poor in developing countries. A report prepared by Mary
Racelis Hollnsteiner, UNICEF Consultant.

g/ E/ICEF/L. 1372 and Corr. 1 - Reaching the Children of the

Urban Poor. Note by the Executive Director.

~/ E/ICEF/P/L. and Corr. 1 - UNICEF assistance benefiting

children of the poor in urban areas.
 -3-

4. The major conclusion, then, reached by the Board about

UNICEF urban cooperation was that, in spite of the increased
effort made by UNICEF over the past few years, more attention
is needed to the situation and to assistance f~r children in
low-income areas. It was agreed that new fields of coopera-
tion were not needed, but more emphasis should be given in
urban areas to current fields of support. The Board request-
ed the Executive Director to submit, at its 1982 session,
another major report on UNICEF's progress to date in this area.

5. In its deliberations the Board agreed with the Executive

Director on the following recommendations as the main lines of
UNICEF cooperation:

(i) In the light of the growing problems of children

in low-income urban areas, UNICEF, in cooperation with
govern! nts, should give more attention to these de-
prived areas.

(ii) All forms of cooperation should be directed to

strengthening national capacity to promote and support
community-based services.

(iii) Types of urban programmes in which UNICEF may

cooperate in the aspects benefiting children include:
slum improvement and site-and-service programmes;
social service improvement programmes; national global
or sectoral programmes that affect urban areas; and
self-initiated local assistance programmes.

(iv) Existing fields of UNICEF cooperation provide the

basis to initiate or expand urban cooperation.

(v) UNICEF can assist various types of advocacy and

promotional activities to increase assistance to the
poor ~rban child.
~

(vi) UNICEF can help mobilize additional external

assistance from the international community.

(vii) Support to UNICEF Field Offices may be needed

to save offices with little experience in this area
to develop and expand urban assistance activities.
 -4-

I. THE PROBLEMS OF CHILDREN IN LOW-INCOME URBAN AREAS -

LIVING IN A SITUATION OF URBAN POVERTY

6. The age structure of urban areas shows the low-income

group having the lowest median age and the highest number of
dependents per working adult. When families ~re large and
the family members are relatively young, th~ result is fewer
adults working at lowest wage levels supporting more children.
The highest birth rates are usually found among low-income
families. The benefits of education are directly related to
family and individual income. A sufficient amount of formal
schooling or children, and the access it provides to the next
generation to a better life, becomes inaccessible for most of
the children and results in children having to work. ~he low-
est high school enrollment is among poor families. Even though
health facilities are more available in urban than in rural
areas, they are often inaccessible or unsuited to the needs
in the crowded, unsanitary, poor urban residential neighbour-
hoods. The urban poor live within a cash economy. The formal
and inrormal sector employment the poor have access to in
order to earn an income is low-paying. Low-income cash de-
pendency and larger families can and does result in malnutrition
becoming a major problem. When vomen participate in the labour
force to increase family income, it brings with it the conse-
quences of young children being deprived of their mother's care
and of breast milk nutrients and its related long-term impact
on children's learning, productivity and earning capacity with-
out sufficient arrangements being made to compensate.

7. Over the past 25 years the developing world's cities

have absorbed more than 40% of all population increase. Over
the next twenty-five years, United Nations population projec-
tions forecast that they will have to absorb 70% of all popu-
lation increase, or some 1.3 billion people, that is twice the
projected growth o~ the rural areas. If the forecasts hold, it
will be the irst time in history that the developing world
viII grow more rapidly in the urban areas than in the rural
areas. Some analysts feel that in fact the developing world's
urban areas could not absorb such large increases, yet there
can be no doubt that urban areas will grow, and there will be
enormous absolute increases in urban population, whatever the
final magnitude. If the United Nations Year 2,000 population
forecast holds, by that time 2.1 billion people, or 42% of the
developing world's population will be urban. Most will be poor,
and UNICEF's target group, the children, adolescents and mothers,
will make up well over half of this population.
 -5-

II. PROGRAMMING FOR COMMUNITY-BASED SERVICES

8. The purpose of UNICEF's assistance to government pro-

grammes is to help resolve the problema of the urban poor who
are not receiving the level of services and resources needed
to compensate for the disadvantages they suffer from. There-
fore, getting resources to the poor, with the goal of involv-
ing people in the process o~ using those resources so that
new generations can live improved and more productive lives,
is the purpose of UNICEF assistance.

9. The main principles that have emerged from UNICEF's

limited experience so far in urban basic services are:

(i) As with other community-based programmes,

community groups and individuals should be involved
and supported by government in problem identification,
planning, establishing priorities and carrying out and
administering community level actions;

(ii) Services should be nrovided which are simple

and low-cost at the community level, with referral
services into the existing ne~vork of services avail-
able when required;

(iii) Community workers should be selected by or with

the agreement of the community, and should undergo
simple training and have the support of ~he government
personnel and services.

(iv) Services should be nlanned and carried out to

respond to s~ecial features of both the low-i~come
urban communities as well as overall urban environment.

10. Specia~ features of the low-income communities are:

high population density; dependence on cash income;
women as contributors, and many times the sole con-
tributors, to family income; under-employed and idle
youth; children left on their own or in the care of
other siblings while parents work. At the same time,
advantage should be taken of the proven capacity of
residents of low-income areas to work on the basis of
self-help if given access to technical and logistical
supportive services.
 -6-

11. Special features of the overall urban environment include

the municipal government structure, the role of non-
governmental organizations, and the concentration of re-
sources. The municipal levels of government ultimately
control much of the social and physical services pr~vided
to the urban poor. Urban programming efforts must take
into account capacities, resources and responsibilities
not only at national and provincial or state levels, but
also must carefully establish the role and ability of
the municipal governmental structure. If muni.cipal govern-
ments are not included in programme development and im-
plementation, it should be a conscious programming choice
rather than an oversight that will hinder implementation.

12. Non-Governmental Organizations have been able to playa

critical role in initiating urban social improvement pro-
grammes. They themselves are important potential collab-
orators in improvement programmes. The approaches they
use are examples that could be expanded or tried in other
urban areas. UNICEF already has collaborated with nation-
al and international NGO's in ways that have taken advant-
age of the unique degree of independence, flexibility and
acceptability of such groups to the poor and to government,
and the committed manner in which they work.

Also, urban areas are the place of great concentration of

national resources. It is here that is found more than a
proportionate share of social and economic, governmental,
NGO and private services, educational resources, industrial
and commercial enterprise, and scarce human resources of
all types, the full benefits of which seldom, if ever,
reach the poor.

The features of the low-income community all should be

taken into account in exploring and carrying out country
programm~ development.
 -7-

III. TYPES OF URBAN PROGRAMMES IN WHICH UNICEF MAY COOPERATE

13. There are four main types of programmes now used by

UNICEF that currently serve as support of urban basic services.

(i) Large-scale slum improvement and site-and-service

programmes designed ror specific communities di-
rected to their physical, economic and social
development. Slum improvement programmes are those
where existing physical conditions are upgraded
with community participation and minimal disruption
of the community. Site-and-service programmes are
either where land is cleared or vacant land is
used to provide a place for people to build new,
low-cost houses for themselves. In many cases,
both approaches are combined in one project. In
both cases, land tenure is usually granted and
basic infrastructure and services are provided, like
standpipes for water, pathways, roads and some social
service facilities, and provision of socio-economic
services. The scale and scope of these programmes
are large and could not be carried out by UNICEF
alone. These types of projects are carried out in
partnership with a large funding source, national
and international. An example of how UNICEF has
collaborated in this type of programme is the Lusaka,
Zambia site-and-service and squatter improvement
programme. (See Appendix I.l for a review of this
programme).

(ii) Social service improvement programmes of immediate

benefit to specific urban poor communities. Social
service needs are identified and an array of appro-
priate basic services are developed and provided
with the assistance and the involvement of the com-
munity and support of the government. Immediate
response to community-identified social problems is
the way these programmes begin long-term social de-
velopment. An example of how UNICEF is collaborating
in this type of programme is the Cartagena, Colombia
Slum and Shantytown Programme. (See Appendix I.2
for a review of this programme).

(iii) National global or sectoral programmes that provide

country-wide coverage. They are designed so that
social services can be extended into low-income
urban areas as part of the large-scale effort.
Implementation usually depends on existing sectoral
administrative structures. Such programmes, since
 -8-
they do not have to be designed for each low-income
area, one at a time, have the potential to reach
large numbers of beneficiaries. An example of this
is the Surinam National Immunization Programme.
(See Appendix I.3 for an example of this programme).

(iv) Self-Initiated Local Assistance Programmes under-

taken by local governmental bodies of voluntary
organizations. These programmes are a direct re-
sponse to the needs of poor urban communities.
Effective use of the capacities, contributions and
resources of both the community and loc~govern
ment,or supporting organizations, results in the
provision of social and other services. These pro-
grammes provide the opportunity to take advantage
of a local situation which is not of UNICEF or
national government's creation. They are usually
limited in scope, but could be extended with nation-
al assistance. An example of this is the Urban
Community Development Project in Hyderabad~ India.
(See Appendix I.4 for an example of this programme).

IV. FIELDS OF UNICEF COOPERATION

14. The expansion of UNICEF cooperation to meet the needs of

the urban poor can be based on fields in which UNICEF now has
experience and nov are in operation. More cooperation can be
based on a more systematic use of UNICEF's possibilities in
these fields~~ut in urban areas where they are not now generally
being used.

15. They include: (i) the young child in the low-income

environment; (ii) health, including family planning; (iii)
nutrition; (iv) water and environmental sanitation; (v) day-
care; (vi) other social welfare services; (vii) education;
(viii) play and recreation; (ix) appropriate technology;
(xl women's activities benefiting children; (xi) strengthening
the community's capacity to plan and to carry out its own
development; and (xii) social policy, programming and organi-
zational infrastructure development. (See Appendix II for
possibilities of what can be done in these fields).

16. On the basis of existing policy, UNICEF can collaborate

in the above fields. Specific collaborat~on would be undertaken
through a country programme oriented to delivering resources to
low-income communities on the basis of priorities and logically
linked actions developed through a program~e development process.
 -9-

v. ADVOCACY AND PROMOTIONAL ACTIVITIES

17. In late 1977, UNICEF Representatives answered question-

naires that included an assessment on the situation of the
urban child. The results revealed that there have been some
increases in the number of governments interested in support-
ing services for the urban poor. Yet it was clear that many
governments' attention still nowhere reflects the nature and
degree of the problem. There are a number of important ways
UNICEF can begin to increase attention to deprived areas where
little is being done. One such activity could consist of in-
itiating studies o~ needs and possible ways of improving the
situation of children when no information exists. Workshops
could be initiated that include urban materials prepared by
individuals or institutions that could play a role in develop-
ing or extending urban social services in a country. UNICEF
could assist within countries and regions with exchange of
experiences among interested and responsible officials in the
field. UNICEF could advocate consideration of the child in
studies being done by other governmental and non-governmental
organizations. In all cases, when country programme reviews
are being conducted, the situation of the urban child should
receive consideration as part of the global situational analy-
sis.

18. In some cases, due to the country situation, advocacy

and promotional activities may be, in the first instance, the
only feasible area for action by UNICEF. The International
Year of the Child provides a timely opportunity for promotion-
al work in this area.

VI. MOBILIZING ADDITIONAL RESOURCES

19. UNICEF can, in addition to the use of its own resources,

help mobilize additional external assistance from the United
Nations devel~pment Gystem, international financial institu-
tions, bilateral aid agencies, and non-governmental organiza-
tions through the preparation of joint programmes, noted pro-
jects, and by advocacy. The capacity for UNICEF to commit its
resources as counter-part funds is an important factor in
securing more resources. This is appropriate where UNICEF,
through its cooperation with a country, has acquired some
understanding of the situation and sees further opportunities
for larger financial inputs.
 -10-

VII. SUPPORT TO UNICEF FIELD OFFICES

20. Urban programming support and backstopping assistance

has been provided to Field Offices through a number of differ-
ent means. Regional Offices have been active in this area.
Field Offices have taken advantage of local resources to assist
in urban programming. Also, the Urban Advisor stationed at
Headquarters has co-ordinated and helped provide technical
assistance and backstopping.

21. Anticipating increased UNICEF urban activities, it is

expected that an expanded collaborative effort between Field
Offices, Regional Offices and the Urban Adviser in Programme
Division will be needed in establishing an exapanded set of
services to meet the new demands placed on some Country Offices
as they explore, develop and begin to assist government im-
plementation of urban assistance programmes. Areas of expanded
services already identified by some Field Offices involved in
urban assistance, and now under consideration, include:

expanded technical assistance for preparing for,

and carrying out, programme exploration, development
or implementation

systematic distribution of information on ongoing

community-based urban improvement programmes, includ-
ing case studies

information exchange with experienced people in-

volved with specific projects

exc4~nge 6f experiences through field visits within

countries and regions

regional and sub-regional urban workshops

~
papers on specific urban relevant issues of concern
to field offices

22. In order for UNICEF to increase urban collaborative efforts

with governments where justified, it is important to identify the
need and opportunity for starting or expanding urban assistance
in the countries that fall into your responsibility, if this has
not already been done. If there is a need and opportunity,
estimates of the urban programming work to be carried out should
then be established.
 -11-

23. Special attention should be given for any outside tech-

nical help you feel might be needed to assist your office in
preparing for or carrying out UNICEF's part of the work in
urban programme exploration, development and implementation
through the end of 1979. The need for new or expanded urban
programming work and what will be done should be included in
your Work Plan for 1979, which is to be included in Part II
of your Annual Report to the Executive Director. (See EXD 2754,
Para. 7). This is in addition to any information included in
Part I of the Report where information should be given on on-
going urban assistance activities. (See EXD 2754, Para. 6). If
possible, thought should also be given to the need for support
over the subsequent two years as well.

24. Please make any sug~estions that might help field offices
increase uroan assistance activities, or any request you wish to
make for outside assistance or services you feel your office
could use in carrying out the urban component of the Work Plan.
These should be relayed to the Urban Adviser, Programme Division.
Such suggestions or requests would be welcome whenever they ar-
rive. If they arrived along with the Representative's Annual
Report, it would be possible to respond to needs on a timely
basis for country programme development in 1979.

25. In making suggestions, ideas about the process as well

as the substance of support services would be most welcome. It
is expected that field offices will play the ~ajor role not only
in defining their needs, but in helping each other to satisfy
them. Every effort will be made to see that you receive the
assistance needed in a timely fashion.

26. Queries

The area of urban cooperation is one where many field

offices have l~mited programme development experiences. In
addition to the specific information requested in paras. 23 and
24 above, if there is any further information you require,
please address any queries to Urban Adviser, Programme Division,
UNICEF Headquarters, with a copy to Chief of your Programme
Section.