Professional Documents
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CREATING BETTER
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CITIES FOR MIGRANTS
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Urban policies and practices to
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January 2010
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e CREATING BETTER CITIES
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FOR MIGRANTS
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Foreword
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International and internal migrants continue to face difficulties in becoming a full part of the
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economic, cultural, social, and political lives of their adopted societies. This situation is
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undesirable both for migrants and the host community.
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e Decentralization policies, entrusting local governments with the responsibility of managing
r the impact of international migration, and their proximity to citizens make local authorities key
actors to deal with international migration and the resulting multiculturalism. Urban
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governance can play a crucial role in promoting sustainable urban development based on
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cultural diversity, social cohesion and human rights. However, local governments are seldom
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prepared to manage the proliferation of interaction between increasing migration and rapid
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urbanization and to integrate peoples of different cultural, social and religious traditions into
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the global urban society.
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By focusing on the role of local governments in promoting social and spatial inclusion of
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migrants, this brochure aims to raise awareness and empower local decision-makers on the
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necessary inclusion of migrants in urban settings. With the tool kit Creating Better Cities for
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Migrants, UNESCO and UN-HABITAT seek to promote and support urban policies and
m practices towards an inclusive, participatory and equitable city, based on a Human Rights
i and Cultural Diversity approach. The work will be carried out along the principles of the UN
g 1948 Universal Declaration on Human Rights 1 and the UNESCO Universal Declaration on
r Cultural Diversity 2 from 2001.
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The tool kit is being developed in the framework of the UN-HABITAT and UNESCO joint
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research project Urban Policies and the Right to the City: Rights, Responsibilities and
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Citizenship. In close partnership with the relevant UNESCO Chairs (UNESCO Chairs Social
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and Spatial Inclusion of International Migrants: Urban Policies and Practice at Venice
University, Urban Policies and Citizenship at the University of Lyon, Growing up in Cities at
Cornell University in New York, Landscape and Environmental Design at the University of
Montral and Population, Migrations and Development at the University of Rome),
specialized research centres, in particular those linked to UNESCO Section of International
Migrations and Multicultural Societies, international and regional organizations and
associations, NGOs, UNESCOCAT and National Commissions for UNESCO; cities will be
offered direction for building inclusive urban societies for migrants.
By the,
Director of the Division of Social Sciences, Research and Policy
Social and Human Sciences Sector, UNESCO.
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http://www.un.org/en/documents/udhr/
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2 http://portal.unesco.org/en/ev.php-URL_ID=13179&URL_DO=DO_TOPIC&URL_SECTION=201.html
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WHAT IS AT STAKE GLOBALLY AND THE CHALLENGES TO BE FACED
p4 Global context
p5 Challenges for the 21st century city
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Global Migration Flows.
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- Since 2008, more than half the worlds population lives in cities. These 3,3 billion urban
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dwellers are estimated to grow to 4,9 billion in the year 2030, reaching 60% of the world
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population. (UNDESA, World Urbanization Prospects, 2006)
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- Urban growth is higher in the South
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- Three-quarters of population growth will be concentrated in small-to-medium-sized towns.
(UN-HABITAT, State of the Worlds Cities Report, 2007)
International and internal migration is on the increase. The majority of migrants is heading
towards cities both as cause and consequence of the growing urbanization that is occurring
worldwide. Hence, cities are the main actors to deal with the proliferation of interaction
between increasing migration and rapid urbanization. While people may be attracted by the
better opportunities available in cities, rapid urban growth poses fundamental challenges to
city governments, changing the scale and scope of urban governance as well as
exacerbating polarities with a higher risk of poverty and social exclusion.
Furthermore the processes of migration and urbanization and their mutual interaction are
being influenced and challenged by climate change and the international financial and
economic crisis.
Climate change can cause mass movements of environmentally induced migrants because
of depletion of natural resources, environmental degradation or natural disasters, such as
sea level rise, tsunamis, flooding, drought, desertification and increased tropical cyclone
intensity. Poor and vulnerable populations and the developing world in general are more
likely to be affected, especially those living in island states, low-lying coastal settings or dry
areas.
Cities are on the one hand main contributors to climate change because of their high energy
demand and CO2 emissions. On the other hand, urban areas risk suffering severe effects of
climate change, such air pollution, urban water contamination and critical sanitary conditions
in general, especially in developing countries. Moreover a lot of megacities are located at the
coast and are therefore extremely vulnerable for sea level rise, flooding and tsunamis.
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a The current international financial and economic crisis is impacting migration and
t urbanization patterns around the world. The crisis is of a global and structural nature, but its
i impact is felt on local level. The exact effects of the international financial and economic
n crisis on migration and urbanization are still not clear, but the following tendencies have been
g noted or are further expected:
When people are attracted to cities because of employment opportunities, net benefits
are likely to accrue as the concentration of ideas, talent and capital lead to positive
spillovers.
(UNDP, Human Development Report; Overcoming barriers: Human mobility and development, 2009.)
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EIGHT KEY PRINCIPLES FOR SUCCESS
Why are UNESCO and UN-HABITAT doing this?
The aim of this UNESCO/ UN-HABITAT work, based on existing research, study cases and
regional or local instruments, is to promote innovative and prospective strategies and to
assist Member States and local authorities in the elaboration of urban policies and practices
that build social cohesion and spatial integration for migrants in cities.
With respect to the forthcoming socio economic and environmental challenges of cities due
to the economic crisis and the climate change, it is expected that urban conflicts, urban
poverty and insecurity (Global Report on the state of Cities 2010/2011, UN-HABITAT) would
increase very rapidly in correlation with the exponential development of urbanization all over
the world, and in particular in Asia and Africa.
To prevent these conflicts and to reduce urban poverty and insecurity, inclusive policies will
have to be planned ahead by local decision makers. Both UNESCO and UN-HABITAT are
aiming to support cities' efforts to create more inclusive urban policies, in particular for
migrants, by seminars, training and sensitization sessions, after the official launching of this
tool kit in 2010/2011.
From the existing identified study cases and research, 8 key principles for success have
been identified:
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o All migrants must be able to exercise their fundamental rights. Local governments should not
r only protect and promote migrants' rights but also inform migrant communities properly on
their rights and responsibilities. Migrants have to be enabled and encouraged to exercise
m their rights and become active citizens.
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g We need to evolve from a need-based to a rights-based approach and go even beyond, to a
r capability approach, in order to empower the migrants to enjoy their rights.
a (Binod Khadria, Jawaharlal Nehru University, New Delhi. SSIIM UNESCO Chair International
n Conference 'Migrants demand for the City', 19-20 March 2009, Venice.)
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2. Provide access to services and ensure
equal opportunities for all
For migrants to enjoy their principal rights, they need to have access to social services.
Migrant communities can face barriers to access such services, because of cultural
differences, language, lack of information, financial restrictions, discrimination or lack of legal
status. Even when accessible, services reflect mostly the needs of host populations.
Local authorities are essential for the delivery of social services and for guaranteeing equity
of access and treatment. Urban inclusive governance has to work towards overcoming
inequalities and ensuring adequate services for all users, in housing, education, health care,
employment, welfare and recreation.
Among the most important aspects of urban governance for migrants are (...) equitable pricing
policies for basic social services and utilities; the extension of services to areas where
migrants live; even-handed regulation of the informal sector; outreach and support services
(such as language classes) targeted to migrant groups.
(UNDP, Human Development Report, 'Overcoming barriers: Human mobility and development', 2009.)
Making it possible for all residents to access public services, increases the ability to
participate and become an integral part of the community.
(City of New Haven, Municipal Identification Cards Initiative, 2007.)
Across all community services, the City of Sidney will provide culturally appropriate
programming, support and activities that reflect the needs of community members. It will also
ensure its own facilities, services and programs are culturally appropriate to a multicultural
society and accessible to residents, workers and visitors regardless of their cultural, linguistic
or religious backgrounds. This includes recruitment of bilingual and bi-cultural staff and
regular collection of client ethnicity data to assist with service planning and evaluation.
(City of Sidney, Paraphrase from the Cultural Diversity Strategy 2008-2011, 'Promoting vitality and
opportunity', 2008/2009.)
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3. Representative democracy through participation
a of all communities
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g Participation of civil society in public affairs and political life is essential for cities to better
respond to the needs of migrants. Local authorities should involve migrant communities in
b decision-making processes by establishing channels for representation and participation of
e migrants and ethnic minorities, such as voting rights and own language media.
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t By involving all communities in the formulation, implementation and evaluation of policies
e and practices, urban management becomes more inclusive, adequate, transparent and
r efficient. As such city governance contributes to the creation of a democratic environment in
which all citizens may actively participate in building their own urban environment and the
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Citizen involvement
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develop a sense of
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a (City of Montreal,
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To achieve the kind of integration that is envisaged, Governments should promote active
participation by various social groups especially those historically excluded in policy and
planning processes. This requires measures to ensure that every group has an opportunity to
express its views and become engaged in decision-making that affect their lives.
(UNDESA, Final Report of Expert Group Meeting, 'Creating an inclusive society: practical strategies to
promote social integration', 10-13 September 2007, Paris.)
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4. Celebrate cultural diversity as a source of exchange
and innovation
Due to globalization, migration and urbanization; cultural diversity has become one of the
main features of our cities, bringing together cultural communities who may previously not
have had much interaction with each other.
Urban policies for migrants' inclusion have to recognize and protect cultural diversity and
seek to address the challenges and opportunities arising from it. Local authorities should
foster mutual understanding and respect and manage cultural diversity into a resource for
innovation and creativity. By respecting cultural differences inclusive policies go beyond
equality and acknowledge diversity in cultural, economic and social life.
Cities play a key role in ensuring access to local culture, support cultural activities of migrant
communities and enable cultural expression as a means to intercultural dialogue and
exchange.
Racial prejudice is a crime in Brazil since May 1997. The city of Sao Paulo created a place to
combat all kinds of racial discrimination: the Reference Center of Fight on Racism and all Kind
of Racial Discrimination. Complaints can be made at any policy station and the subject is
treated as a specific crime, punishable by arrest and fine. The Center provides psychological
support to victims and legal assistance for the pursuit of justice.
1 (Ricardo Montoro, Municipal Secretary for Participation and Partnership, Sao Paulo City Hall. High-
2 Level Roundtable The Inter-ethnic City: Management and Policies for a Better Integration of Migrants,
- 28 September 2009, UNHQ, New York)
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6. Mitigate ethnic, cultural and religious tensions and conflicts of
interest within urban communities
Cities are being challenged by the coexistence of people of different cultural, linguistic and
religious backgrounds that might lead to conflicting value systems and competition for
resources. Local authorities have to be aware of diversity as a possible source of conflict and
even violence and have to try to prevent conflicts and manage tensions in cooperation with
citizens.
Use mediation and dialogue to deal with tensions, hostilities and conflicts involving religious
communities.
(Xavier Sez, 'Interreligious dialogue in the city of Lleida', Urban policies and the right to the city,
2009.)
By addressing the lack of knowledge of cultural values and by tackling sensitive issues,
negative attitudes towards host societies and false assumptions towards migrants, inclusive
policies can reinforce safety and sense of security.
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8. Urban planning towards cities
as common goods
Housing patterns and the use of urban space reflect the various urban communities in the
city and the way they live together. Through integrated urban planning, including streets,
squares, parks and transport; cities have to address the needs of all communities and work
towards the spatial inclusion of migrants.
Public spaces are the places of contact where migrants meet the host community. Urban
policies can play a key role in improving migrants' inclusion by reinventing public spaces as
places for intercultural dialogue and exchange.
Porta Palazzo, a Turinese quarter whose traditional commercial centrality was on the wane,
was experiencing the problems of all European urban cores. The damage caused to buildings
was accompanied by a marginalization of the local society. The arrival of poor migrants from
abroad complicates matters still further. The Porta Palazzo Project has become an experiment
for an endogenous urban regeneration meant to promote the physical transformation of
buildings, of the market, of meeting places and public spaces and to revitalize the economic
and social fabric.
(City of Turin, Porta Palazzo Project.)
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t 1. Guidelines for local authorities: steps to be undertaken
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g - Analyse the situation and update the information about the various communities in
all urban neighbourhoods of the city in cooperation with research networks
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Strenghten statistical capacity for data collection and better analysis and better use of data at
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national and sub-national levels.
e (UNDESA, Final Report of Expert Group Meeting, 'Creating an inclusive society: practical strategies to
r promote social integration', 10-13 September 2007, Paris.)
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- Evaluate problems, conflicts and needs of the various communities and
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neighbourhoods
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Through partnerships and cooperation, local authorities can build upon the capacities,
expertise and knowledge of civil society organizations and migrant communities to facilitate
the inclusion of migrants.
(City of Johannesburg, Migrant Helpdesk Initiative, 2007.)
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- Establish dialogue and involve through public consultation and action research
One of the largest public involvement processes undertaken by the City is the CityPlan
initiative. From 1993-95, about 20,000 Vancouverites participated in the CityPlan process.
During that time, CityPlan contacted diverse cultural communities and as a result, there was
significant input and participation from cultural and immigrant groups in the CityPlan process.
The outreach component is part of the current CityPlan Neighbourhood Visions process.
(City of Vancouver, CityPlan Initiative, 1995)
A way of trying to get the best is to adopt special plans for the immigrant population, and
however, to build bridges towards the universalistic inclusion of migrants in the general
system of local life and services.
(European Regional and Local Authorities for the Integration of Migrants (ERLAIM), Final Report
'Immigration: Challenges and Opportunities in the ERLAIM Areas: Integration Policy at Local Level',
2008.)
Positioning the work within broader municipal agendas such as Municipal Sustainability,
Economic Development, Business Planning, Citizen Engagement, and/or Welcoming and
Retaining New Immigrants, increases efficiency as well as effectiveness.
(AUMA, Welcoming and Inclusive Communities Toolkit, 2006 Canada.)
- Exchange experiences with other cities, taking into account the situation-specific
challenges
The process of integration occurs primarily at a local level, and the policies that are
employed to promote that process must therefore be situation-specific, and take into account
the precise circumstances and characteristics of both migrants and other social groups.
(Global Commission on International Migration Report 'Migration in an interconnected world: New
directions for action', 2005.)
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research networks, universities, regional and international organizations and local policy-
b makers; and can benefit from collaboration opportunities with other cities.
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3. Useful links
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e International organizations
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UNESCO (www.unesco.org)
f UN-HABITAT (www.unhabitat.org)
o IOM: International Organization for Migration (www.iom.int)
r ILO: International Labour Organization (www.ilo.org)
GMG: Global Migration Group (www.globalmigrationgroup.org)
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UNHCR: United Nations High Commissioner for Refugees (www.unhcr.org)
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OHCHR: United Nations Office of the High Commissioner for Human Rights
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(www.ohchr.org)
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GCIM: Global Commission on International Migration (www.gcim.org)
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MRI: Migrants Rights International (www.migrantwatch.org)
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MPI: Migration Policy Institute (www.migrationpolicy.org)
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THP Foundation: The Hague Process on Refugees and Migration
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(www.thehagueprocess.org)
IAEC: International Association of Educating cities (www.bcn.es/edcities)
AIMF: International Association of French-speaking Mayors (www.aimf.asso.fr)
UCLG: United Cities and Local Governments (www.cities-localgovernments.org)
CLGF: Commonwealth Local Government Forum (www.clgf.org.uk)
Cities Alliance (www.citiesalliance.org)
December 18 (www.december18.net)
IMADR: International Movement towards All Forms of Discrimination and Racism
(www.imadr.org)
IASFM: International Association for the Study of Forced Migration (www.iasfm.org)
COHRE: Centre on Housing Rights and Evictions (www.cohre.org)
WIEGO: Women in Informal Employment Globalizing and Organizing
(www.wiego.org)
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Regional networks
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r Brigitte Colin
Programme Specialist
International Migrations and Multiculturalism Section - Architecture and Cities
l Division of Social Sciences, Research and Policy, UNESCO
o 1, rue Miollis 75015 Paris France
c Tel. + 33.1.45.68.37.54
a Fax. + 33.1.45.68.57.24
l e-mail : b.colin@unesco.org
www.unesco.org/shs/urban
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i Diana A. Lopez Caramazana
t UN-HABITAT Best Practices Barcelona Office
i Diputaci de Barcelona - Relacions Internacionals
e C/ Corsega 273 - 2 planta - 08008 - Barcelona SPAIN
Tel. +34.93.404.94.73
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Fax. +34.93.402.24.73
e-mail: diana.lopez@unhabitat.org