The Challenge of Squatters: An Assessment of Housing Provision in the Philippines in the Context of Decentralisation
Author
Olesen, Pernille Hattmann
Term
10. term
Publication year
2009
Abstract
This thesis addresses the growing global challenge of slum housing. Around 1 billion people live in slums today, and the number could rise to 3 billion by 2050 if the issue is not addressed. Asia accounts for about 60 percent of the world’s slum population. The study evaluates the Philippines’ efforts to provide adequate and legal housing for slum dwellers and squatters, who make up roughly 44 percent of the urban population. The thesis situates Philippine housing policy within a wider debate about state withdrawal, decentralisation (shifting responsibilities from national to local governments), deregulation, and private sector involvement in housing for the urban poor. Critics argue that local governments often lack resources and management capacity, and that the private sector is poorly suited to “socialised housing” (publicly supported, low-cost housing) because profit is its primary goal. The study also examines participatory approaches and the role of civil society (such as community groups and NGOs) in promoting legal and decent housing, assessing civil society’s mandate in local governance. In 1991, after the Marcos dictatorship was overthrown, the Philippines launched decentralisation through the Local Government Code, devolving housing responsibilities to local government units (LGUs) and putting greater emphasis on the private sector. The analysis concludes that the national government has not transferred sufficient resources to LGUs. Community Mortgage Programs—schemes that help communities buy the land they occupy—have achieved successes, but limited funding, weak land administration, and high land prices have prevented scaling. The government has tried to attract private investment into socialised housing, but this has not worked well because programs are not aligned with investor incentives and rules are not consistently enforced. The study argues that the Urban Development and Housing Act, under the Local Government Code, has strengthened squatters’ rights by reducing evictions without adequate compensation or relocation. Participation in slum upgrading is also increasingly built into housing programs. The analysis of civil society finds that the Philippines has a very active civil society and that the Local Government Code seeks to promote participation in local governance. However, implementation is often incomplete: in most local governments, meaningful participation and transparency in decision-making are not guaranteed. This makes it difficult for civil society to advance pro-poor initiatives that support socialised housing. The analysis suggests additional legislation is needed to ensure effective implementation. Overall, the study finds a persistent gap between legal and institutional frameworks and what happens on the ground.
Dette speciale tager afsæt i den stigende globale udfordring med slumbeboere. Omkring 1 milliard mennesker bor i slum i dag, og tallet kan stige til 3 milliarder i 2050, hvis problemet ikke håndteres. Asien rummer omkring 60 procent af verdens slumbefolkning. Studiet undersøger Filippinernes indsats for at skaffe tilstrækkelige og lovlige boliger til slumbeboere og ulovlige beboere (squatters), som udgør cirka 44 procent af den urbane befolkning. Specialet placerer Filippinernes boligpolitik i en bredere debat om statens tilbagetrækning, decentralisering af ansvar (at flytte opgaver fra staten til lokale myndigheder), deregulering og inddragelse af den private sektor i boliger til fattige i byerne. Kritikere peger på, at lokale myndigheder ofte mangler ressourcer og ledelseskapacitet, og at den private sektor sjældent er egnet til socialiseret boligbyggeri (offentligt støttede, billige boliger), fordi profit er det primære mål. Studiet ser også på betydningen af deltagende indsatser og civilsamfundets rolle (fx lokalsamfund og NGO’er) i at fremme lovlige og anstændige boliger, og vurderer civilsamfundets mandat i lokal styring. I 1991, efter at Marcos-diktaturet blev væltet, indledte Filippinerne en decentralisering gennem Local Government Code, som lagde flere boligopgaver ud til lokale myndigheder (LGU’er) og lagde større vægt på privat sektor. Analysen konkluderer, at staten ikke har fulgt op med tilstrækkelige ressourcer til LGU’erne. Community Mortgage Program(mer)—en ordning, der hjælper lokalsamfund med at købe den jord, de bor på—har haft succes, men manglende finansiering, svag jordforvaltning og høje jordpriser har forhindret indsatsen i at skalere. Regeringen har forsøgt at tiltrække private investeringer til socialiseret bolig, men det har ikke haft den ønskede effekt, dels fordi programmerne ikke passer til private investorers incitamenter, dels fordi reglerne ikke håndhæves konsekvent. Studiet argumenterer samtidig for, at Urban Development and Housing Act, under Local Government Code, har styrket squatters’ rettigheder, bl.a. ved at reducere udsættelser uden rimelig kompensation eller genhusning. Deltagelse i slumopgradering indgår desuden i stigende grad i boligprogrammer. Analysen af civilsamfundets deltagelse viser, at Filippinerne har et meget aktivt civilsamfund, og at Local Government Code søger at fremme deltagelse i lokal styring. Implementeringen er dog ofte ufuldstændig: I mange kommuner er reel deltagelse og gennemsigtighed i beslutningsprocesser ikke sikret. Det gør det vanskeligt for civilsamfundet at fremme fattigdomsorienterede initiativer, der kan styrke socialiseret bolig. Analysen peger på behov for yderligere lovgivning, der sikrer en faktisk gennemførelse. Overordnet finder studiet et gab mellem de juridiske og institutionelle rammer og den praksis, der udspiller sig på jorden.
[This apstract has been rewritten with the help of AI based on the project's original abstract]