United Nations


General Assembly

Distr. GENERAL  

20 December 1988


                                                       83rd plenary meeting
                                                       20 December 1988
             Global Strategy for Shelter to the Year 2000
     The General Assembly,
     Bearing in mind the Vancouver Declaration on Human Settlements, 1976
and the recommendations for national action adopted at Habitat:     United
Nations Conference on Human Settlements,
     Recalling its resolution 35/56 of 5 December 1980, the annex to which
contains the International Development Strategy for the Third United Nations
Development Decade, in which, inter alia, the importance of the provision of
basic shelter and infrastructure was stressed,
     Recalling also its resolution 37/221 of 20 December 1982, by which it
proclaimed the year 1987 International Year of Shelter for the Homeless,
     Recalling further its resolution 42/191 of 11 December 1987, in which it
decided that there should be a Global Strategy for Shelter to the Year 2000,
     Recalling the Nairobi Forward-looking Strategies for the Advancement of
     Recalling Commission on Human Settlements resolutions 9/9 of
16 May 1986 and 10/17 of 16 April 1987 on the participation of women in
the solution of human settlements problems,
     Recalling also Commission on Human Settlements resolution 10/16 of
16 April 1987 on the effect of the external debt of the developing
countries and their ability to raise the funds needed to solve the housing
problems of the homeless up to the year 2000,
     Taking note of Commission on Human Settlements resolution 11/7 of
11 April 1988 entitled "Co-ordination and co-operation with agencies and
organizations within the United Nations system",
     Convinced that the continuous, co-ordinated and widely based efforts of
Governments, organizations of the United Nations system, other
intergovernmental and non-governmental organizations and individuals, when
guided by an appropriate strategy, will reverse the alarming trends in the
field of human settlements and produce clear and visible improvements in the
shelter and neighbourhoods of the poor and disadvantaged by the year 2000, and
that this should be a global responsibility,
     Encouraged by action already taken or being taken in many countries to
prepare national shelter strategies and to adopt other measures that will
promote achievement of the goal of shelter for all,
     Recognizing that, despite such efforts, more than one billion people have
shelter unfit for human habitation, that this number will increase
dramatically, partly as a result of population and urbanization trends, and
that determined measures must be taken aimed at profiting from these trends,
rather than being penalized by them,
     Also recognizing that the International Year of Shelter for the Homeless
has confirmed the need to intensify national and international efforts to
produce, deliver and improve shelter for all, with specific emphasis on the
poor and disadvantaged,
     Convinced that shelter problems are universal, that no country has yet
completely met its shelter needs, and that every country can profit from the
experience of others,
     Also convinced that shelter problems are a global concern requiring
solutions that relate to other global problems and also requiring the efforts
of all countries to reach such solutions, that the demand for shelter in each
country can be met by applying a set of common principles, but that goals can
only be met by the individual efforts of each Government acting in its own
political, economic, social and cultural context,
     Recognizing that the core of the Global Strategy for Shelter to the
Year 2000 consists of integrated national shelter strategies that need to
be based on a full understanding of the scale and nature of the problem and
the national resource base available to address the problem,
     Recognizing also that national shelter strategies need to contain four
complementary parts:  clear and measurable objectives; national mobilization
and distribution of financial resources; promotion of shelter production and
improvement with special reference to the management of land, the provision of
infrastructure and encouragement of the use of appropriate building materials
and technology; and the gradual reorganization of the shelter sector,
     1.   Adopts the Global Strategy for Shelter to the Year 2000;
     2.   Decides that the main objective of the Strategy is to facilitate
adequate shelter for all by the year 2000, that the main focus should
therefore be on improving the situation of the disadvantaged and the poor, and
that the following fundamental objectives and principles should form the basis
of the Strategy:
     (a)  Enabling policies, whereby the full potential and resources of all
governmental and non-governmental actors in the field of human settlements are
utilized, must be at the heart of national and international efforts;
     (b)  Women, as income-earners, home-makers and heads of households, and
women's organizations fulfil a crucial role as contributors to the solution of
human settlements problems, which should be fully recognized and reflected in
equal participation of women in the elaboration of housing policies,
programmes and projects, and the specific interests and capabilities of women
should be adequately represented in human settlements policy formulation and
in government mechanisms employed at all levels for the implementation of
housing policies, programmes and projects;
     (c)  Shelter and development are mutually supportive and interdependent,
and policies must be developed in full recognition of the important links
between shelter and economic development;
     (d)  The concept of sustainable development implies that the provision of
shelter and urban development must be reconcilable with a sustainable
management of the environment;
     3.   Designates the Commission on Human Settlements as the United Nations
intergovernmental body responsible for co-ordinating, evaluating and
monitoring the Strategy and the United Nations Centre for Human Settlements
(Habitat) as the secretariat for the Strategy and the lead agency for
co-ordinating and monitoring the relevant programmes and activities of other
United Nations organizations and agencies concerned;
     4.   Urges Governments to develop appropriate national and sub-national
strategies for shelter in the light of the guidelines provided in the report
of the Executive Director of the United Nations Centre for Human Settlements
(Habitat) entitled "Global Strategy for Shelter to the Year 2000" and to
report regularly to the Commission on Human Settlements, beginning at its
twelfth session, on their relevant experience and on progress achieved in
implementing those strategies;
     5.   Requests the Executive Director to monitor the relevant global
experience and progress of all countries in implementing the Strategy and to
report thereon to the Commission, beginning at its thirteenth session;
     6.   Decides to review and clarify the Strategy on a biennial basis,
within regular budgetary resources, with the assistance of experts selected on
the basis of equitable geographic representation, and to revise the Strategy
in the light of global and national experience from all regions and
     7.   Requests the Commission on Human Settlements, as the body designated
to co-ordinate implementation of the Strategy, to report biennially to the
General Assembly on progress made in its implementation;
     8.   Also requests the Commission to strengthen, within existing
resources, its role in regard to the promotion of innovative measures by which
bilateral and multilateral financial institutions may support the shelter
strategies of developing countries, for example, by way of suitably devised
loan agreements that would lead to the building up of national revolving funds
for shelter;
     9.   Requests financial institutions and creditor countries to consider,
as one of the conditions for the success of the Strategy, immediate measures
to reduce the external debts by their conversion into long-term loans;
     10.  Adopts the guidelines for steps to be taken at the national and
international levels, as set out in the annex to the present resolution, in
support of the guidelines for national and international action contained in
the Global Strategy for Shelter to the Year 2000, prepared pursuant to its
resolution 42/191;
     11.  Calls upon all States and others in a position to do so to make
generous contributions to the United Nations Habitat and Human Settlements
Foundation to facilitate implementation of the Strategy.
               A.  Considerations for Governments when formulating a
                   national shelter strategy
1.   A national shelter strategy must spell out clear operational objectives
for the development of shelter conditions both in terms of the construction of
new housing and the upgrading and maintenance of existing housing stock and
infrastructure and services.
2.   In the definition of those objectives, development of shelter should be
seen as a process whereby conditions are gradually improved for both men and
women.  The objectives need to address the scale of the problem, while the
"adequate" standard aimed at should be identified on the basis of an analysis
of the standards and options affordable to the target population and society
at large.  The objectives should be based on a comprehensive view of the
magnitude and nature of the problem and of the available resource base,
including the potential contribution of men and women.  In addition to
finance, land, manpower and institutions, building materials and technology
also have to be considered irrespective of whether they are held by the public
or private, formal or informal sector.
3.   The objectives of the shelter sector need to be linked to the goals of
overall economic policy, social policy, settlement policy and environmental
4.   The strategy needs to outline the action through which the objectives can
be met.  In an enabling strategy, actions such as the provision of
infrastructure may mean the direct involvement of the public sector in shelter
construction.  The objective of "facilitating adequate shelter for all" also
implies that direct government support should mainly be allocated to the most
needy population groups.
5.   The public sector is responsible for developing and implementing measures
for national shelter policies and for the adoption of measures to stimulate
the desired action by other sectors.  This can be done through measures in
areas such as the locally based small-scale building-materials industry,
appropriate financial schemes or training programmes.
6.   Another important component is the development of administrative,
institutional and legislative tasks that are the direct responsibility of the
Government, for example, land registration and regulation of construction.
7.   An analysis of affordability will provide the criteria for defining the
right priorities and appropriate approaches and standards for public sector
involvement.  Likewise, such an analysis gives the criteria for planning the
indirect involvement of the public sector, that is, the type of activities to
be promoted and the appropriate way of going about it.
8.   The appropriate institutional framework for the implementation of a
strategy must be identified, which may require much institutional
reorganization.  Each agency involved must have a clear understanding of its
role within the overall organizational framework and of the tasks expected of
it.  Mechanisms for the co-ordination of inter- and intra-agency activities
need to be developed.  Mechanisms such as shelter coalitions are recommended
and may be developed in partnership with the private and non-governmental
sectors.  Finally, arrangements for the continuous monitoring, review and
revision of the strategy must be developed.
B. Steps to be taken by Governments when implementing a national strategy
9.   Work for the preparation of the strategy must be organized.  For
instance, a task force may be appointed for the actual work and a steering
committee ensuring high-level political commitment set up to guide its work.
Alternatively it may be possible to use existing mechanisms.  Equal
participation of women should be ensured at all levels.
10.  Needs and resources must be assessed.  Estimates are required of the
needs in housing construction and in upgrading and maintenance, including
housing-related infrastructure, as well as of the resources that can be
mobilized during the period to the year 2000 to cover those needs.
11.  Shelter options and standards that are affordable by the target groups
and society at large must be analysed, taking into account both the scale of
need and all the resources available - finance, land, manpower and
institutions, building materials and technology.
12.  Objectives must be set for the construction of new housing and for the
upgrading and maintenance of the existing housing stock in terms both of the
scale of the activities and of the housing standards to be met.
13.  Action must be identified through which those objectives can be
realistically met.  The estimated required resources for this action must not
exceed those that can be made available by society.  The action includes both
direct government involvement and measures needed to encourage, facilitate and
integrate active participation of other sectors in shelter delivery.
14.  A plan of action must be prepared in consultation and partnership with
non-governmental organizations, people and their representatives, which:
     (a)  Lists the activities that are the direct responsibility of the
public sector;
     (b)  Lists the activities to be taken to facilitate and encourage the
other actors to carry out their part of the task;
     (c)  Outlines resource allocation to the aforementioned activities;
     (d)  Outlines the institutional arrangements for the implementation,
co-ordination, monitoring and review of the strategy;
     (e)  Outlines a schedule for the activities of the various agencies.
15.  International action will be necessary to support the activities of
countries in their endeavour to improve the housing situation of their poor
and disadvantaged inhabitants.  Such assistance should support national
programmes and use know-how available locally and within the international
16.  The goal of external assistance should be to enhance and support national
capabilities to develop and implement national action components of the Global
Strategy for Shelter to the Year 2000.
17.  Mutual co-operation and exchange of information and expertise between
developing countries in human settlement work stimulate and enrich national
human settlement work.
18.  The United Nations Centre for Human Settlements (Habitat) will act as the
co-ordinating agency in the implementation of the Global Strategy for Shelter
to the Year 2000, on the basis of biennial plans to be drawn up with the
involvement of experts working with Governments and the Centre at the regional
and subregional levels.
19.  As the co-ordinating agency for the Strategy, the United Nations Centre
for Human Settlements (Habitat) will stimulate international and national
action by incorporating the Strategy in its future medium-term plans and
biennial work programmes.
20.  An inter-agency-level working arrangement will be made within the
existing budget to provide continuous co-ordination of the Strategy.
21.  The United Nations Centre for Human Settlements (Habitat) will prepare a
reporting format to facilitate monitoring by the Commission on Human
Settlements of progress achieved in the implementation of the Global Strategy.