Haiti Urban Sector Survey

Report No. 2152-HA t I Haiti rA~~FLE COpy Haiti Urban Sector Survey April 19, 1979 Country Programs Department I Latin America and the Caribbean FOR OFFICIAL USE ONLY Document of the World Bank This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized This report is based on findings of an urban sector mission which visited Haiti in November 1977. The mission was led by Friedrich Kahnert and included World Bank staff members Ulrich Thumm and Charles Goldfinger and consultants Luther Bourne, Jean Damico and Simon Fass. Currency equivalence: US$1.00 = Gourdes 5.00 Fiscal year: October 1 - September 30 FOR OFFICIAL USE ONLY HAITI URBAN SECTOR SURVEY TABLE OF CONTENTS Page No. SOCIAL INDICATORS DATA SHEET MAP IBRD 13769 LIST OF ABBREVIATIONS . ................................ . ........... * * i-ii MAJOR CONCLUSIONS AND RECOMMENDATIONS ............................... iii-xi Chapter I: THE SPATIAL DIMENSION OF HAITI's SOCIOECONOMIC SYSTEM 1 A. Demographic Features ................. s**............. 1 B. Spatial Difficulties in Socioeconomic Conditions ........ 3 C. The Spatial Impact of Government - Past Trends in Major Policy Areas ........ .. ....................... . 7 D. Regional Decentralization in the Second Plan Period ..... 14 E. Summary and Conclusions ... .. ............. ......... 16 Chapter II: URBAN EMPLOYMENT ........................................ 19 A. Overview of Employment and Unemployment ................. 19 B. Manufacturing Industry .............................. 21 C. Handicrafts . . . . . . . . . . . . . . . . . . . . . .. 27 D. Construction .. . . . *. . . . . . . . . .. .0. . . . . 29 E. The Informal Sector . .................. .......... 30 F. Summary and Conclusions ........... . ..... ....... 33 Chapter III: URBAN SERVICES ................................................. 35 A. Shelter - Port-au-Prince ... .. ... . ..... .. 35 B. Environmental Management - Port-au-Prince c.............c 46 C. Water - Port-au-Prince ................................. 56 D. Transport - Port-au-Prince ........ ................ 64 E. Urban Services in Three Provincial Towns ................ 71 F. Summary and Conclusions ................. . ........ 82 Chapter IV: URBAN MANAGEMENT ..... ........ . ........ ............. 89 A. Some General Factors Affecting Institutional Performance 89 B. Regulatory Powers and Instruments ....... 92 C. General Institutional Structure and Overall Urban Management ................. .. ..... .. 94 D. Urban Employment Promotion Institutions 101 E. Urban Service Delivery Institutions 106 F. Summary and Conclusions .115 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. -2- Page No. Chapter V: URBAN DEVELOPMENT STRATEGIES AND OPPORTUNITIES ......... . 119 A. Alternative Spatial Development Strategies ............. . 119 B. Overall Economic and Financial Implications ...... ....... 122 C. Some Factors Conditioning World Bank Involvement ........ 130 D. Urban Project Opportunities ............................. 133 E. Summary and Conclusions ....................... ........... 141 TEXT TABLES Tables Relating to Chapter I I-1 AVERAGE NATIONAL INCOME PER CAPUT, BY REGION, HAITI 1976 .. 4 I-2 INDUSTRIAL LABOR FORCE BY DEPARTEMENTS, HAITI 1950 AND 1971 ....................................... 10 I-3 SPATIAL DISTRIBUTION OF PUBLIC INVESTMENT, POPULATION AND INCOME-PERCENTAGES ............. ........................... 15 Tables Relating to Chapter II II-1 POPULATION AND LABOR FORCE, HAITI 1971 .................... 20 II-2 EMPLOYMENT BY SECTORS, HAITI 1950 and 1971 .... ............ 21 Tables Relating to Chapter III III-1 GROSS RESIDENTIAL DENSITIES IN PORT-AU-PRINCE, 1976 ....... 36 III-2 ESTIMATED HOUSING INVESTMENTS IN PORT-AU-PRINCE, 1976-1981 42 III-3 PUBLIC HOUSING PROJECTS MANAGED BY THE ONL ................. 43 III-4 STRUCTURE OF PORT-AU-PRINCE RESIDENTIAL WATER DISTRIBUTION FROM THE CAMEP SYSTEM, 1976 ..... .......................... 59 III-5 ESTIMATED STRUCTURE OF DAILY TRANSPORTATION DEMAND FOR WORK-RELATED TRIPS IN PORT-AU-PRINCE, 1975 and 1986 ....... 65 III-6 INCREASE IN MOTORIZED VEHICLES IN PORT-AU-PRINCE, 1971-1975 67 III-7 FORECAST INCREASE IN VEHICLES IN PORT-AU-PRINCE, 1975-1986 68 III-8 STRUCTURE OF FAMILY HOUSING EXPENDITURES IN PORT-AU-PRINCE AND OTHER TOWNS IN 1970 ........... ........................ 73 III-9 INVESTMENT IN THE BUILDING SUB-SECTOR, 1976 - CAP HAITIEN, GONAIVES AND LES CAYES (US$) .............................. 73 III-10 FORECAST OF SHELTER CONSTRUCTION ACTIVITY IN CAP HAITIEN, GONAIVES, AND LES CAYES, 1976-1981 .............. .......... 74 -3- Page No. Tables Relating to Chapter IV IV-1 RECEIPTS AND EXPENDITURES OF SELECTED MUNICIPALITIES IN 1975/76 ................ * *.......... . ................... 100 Tables Relating to Chapter V V-1 SUMMARY RESULTS OF POPULATION PROJECTIONS BY SPATIAL STRATEGY, HAITI 1986 and 2001 ............................. 121 V-2 TOTAL ANNUAL CAPITAL REQUIREMENTS BY REGION AND BY STRATEGY ............................ *.............**.*. 124 V-3 VOLUME AND GEOGRAPHICAL STRUCTURE OF DISCRIMINATORY SPATIAL INVESTMENT PROGRAM COMPARED TO PLANNED PATTERN OF INVESTMENT, HAITI 1976-1986 ................ o......... ... 126 V-4 PRIORITY RANKING OF SLUM-UPGRADING IN PORT-AU-PRINCE ...... 140 ANNEX TECHNICAL NOTE ON THE COMPILATION OF INCOME DISTRIBUTION STATISTICS ..................................................... 148 TECHNICAL NOTE ON ESTIMATING THE REGIONAL INCIDENCE OF THE FISCAL SYSTEM (tax revenues and fiscal expenditures) AND OF PLANNED GOVERNMENT DEVELOPMENT EXPENDITURES ................. 151 A. Tax Revenues .............. *........ ..... .0........................... 151 B. Fiscal Expenditures ......... ........... .............. ........ .... 152 C. Planned Government Development Expenditures ............ 153 Table: 1.1 POPULATION BY DEPARTEMENT AND ARRONDISSEMENT, HAITI, 1950 and 1971 .*........ a........*.......... 155 1.2 POPULATION BY DEPARTEMENT AND ARRONDISSEMENT, HAITI, 1950 and 1971 .. ..... ............... *..... 156 1.3 SIZE DISTRIBUTION OF URBAN POPULATION BY ARRONDISEMENT, HAITI, 1950, 1971, 1975 .......... 157 1.4 RESIDENT POPULATION OF DEPARTMENTAL CAPITALS, HAITI, 1976 ..................................... 158 1.5 (a) NET MIGRATION (INTERNAL AND EXTERNAL) BY DEPARTEMENT, HAITI 1973 ......................... 159 1.5 (b) CUMULATED NET MIGRATION BY DEPARTEMENT AND AREA OF RESIDENCE, HAITI 1971 ........................ 160 1.6 DISTRIBUTION OF LABOR INCOME BY INCOME CLASSES AND GEOGRAPHIC REGIONS, HAITI 1976 .............. 161 1.7 DISTRIBUTION OF NATIONAL INCOME BY CLASSES AND GEOGRAPHIC REGIONS, HAITI 1976 .................. 162 -4- Page No. Table: 1.8 MINIMUM PER-CAPITA CONSUMERS EXPENDITURE BY TOWNS AND REGIONS, HAITI 1976 ..... .............. 163 1.9 PEOPLE LIVING UNDER CONDITIONS OF ABSOLUTE POVERTY, HAITI, 1976 ....... ..................... 164 1.10 NUTRITIONAL STATUS OF CHILDREN AGED 0-6 BY REGION, HAITI 1974/77 ...... ..................... 165 1.11 REGIONAL INCIDENCE OF FISCAL SYSTEM, HAITI 1975/76 . 166 1.12 AGRICULTURAL COMMODITY PRICES, HAITI 1970 AND 1974 (MARKET PRICES AT DIFFERENT PLACES IN US$ PER METRIC TON) ...... ............. 167 1.13 AGRICULTURAL COMMODITY PRICES, HAITI 1968/74 (MARKET PRICES AT DIFFERENT PLACES, ANNUAL AVERAGES, 1968=100) ....... ....................... 168 1.14 IDAI LOANS BY DEPARTEMENT, 1972/75 (PERCENTAGES). 169 1.15 TEACHERS AND SCHOOL-AGE POPULATION PER TEACHER BY DEPARTEMENT, HAITI 1975/76 ..... .............. 170 1.16 PUBLIC DEVELOPMENT EXPENDITURES BY SECTORS, HAITI 1972-1981 ......... ........................ 171 1.17 SPATIAL DISTRIBUTION OF PUBLIC DEVELOPMENT EXPENDITURES, HAITI 1976/81 (PERCENTAGES) .... ... 172 2.1 EMPLOYMENT AND SALARIES IN THE INDUSTRIAL ENTERPRISES OF THE MODERN SECTOR IN HAITI BY INDUSTRIAL BRANCH AND ACCORDING TO REGISTRATIONS IN THE INSURANCE SYSTEM (OFATMA) IN NINE URBAN CENTERS IN 1975/76 .173 2.2 EMPLOYMENT IN PORT-AU-PRINCE, 1975 .174 2.3 EMPLOYMENT IN THE BUILDING INDUSTRY, PORT-AU- PRINCE 1976 ......... 175 3.1 COST OF CONSTRUCTION MATERIALS IN PORT-AU-PRINCE (US$1976) . ....................................... 176 3.2 WAGES IN HOUSING CONSTRUCTION (US$1976 per day) 177 3.3 STRUCTURE OF HOUSING CONSTRUCTION COSTS (US$1976 per m ) . .... 178 3.4 EVOLUTION OF COSTS OF ST. MARTIN UPGRADING PROGRAM ..... 179 3.5 EVOLUTION OF COSTS OF DROUILLARD SITES AND SERVICES PROJECT ............... 180 -5- Page No. ORGANIZATION CHART OF THE NATIONAL COUNCIL OF DEVELOPMENT AND PLANNING ............. ......................... 181 ORGANIZATION CHART OF THE DEPARTMENT OF PUBLIC WORKS, TRANSPORTATION AND COMMUNICATIONS ......... ................. 182 Table: 4.1 TAX RECEIPTS OF SELECTED MUNICIPALITIES AFTER DEDUCTIONS - GOURDES .183 5.1 DEMOGRAPHIC PROJECTIONS BY REGIONS AND SPATIAL STRATEGY, HAITI 1976-2001 ....................... 184 5.2 POPULATION GROWTH AND STRUCTURE BY URBAN AND RURAL AREAS BY SPATIAL STRATEGY, HAITI 1950-2001 .185 5.3 LABOR FORCE BY REGIONS, HAITI 1976, 1986 and 2001 .186 5.4 INCREASES IN POPULATION AND LABOR FORCE BY REGION, HAITI 1976-1986-2001 ..... ............... 187 5.5 CAPITAL STOCK, HAITI 1976 ...... ................. 188 5.6 CAPITAL REQUIREMENTS FOR ALTERNATIVE SPATIAL STRATEGIES, HAITI 1976-1986-2001 .189 MAPS IBRD 13652 IBRD 13680 IBRD 13663 PaRe I TABLE 3A HAITI - SOCIAL INDICATORS DATA SHEET HAITI REFERENCE GROUPS (ADJUSTED AVERAGES /a LAND AREA (THOUSAND SQ. KM.) M- OST RECENT ESTIMATE) TOTAL 27.8 SAME SAME NEXT HIGHER AGRICULTURAL 14.7 MDST RECENT GEOGRAPHIC INCOME INCOME 1960 Lb 1970 Lb ESTIMATE Lb REGION /c GROUP /d GROUP Le GNP PER C P_TfA (US$) 110.0 130.0 230.0 1066.7 182.9 432.3 ENERGY CONSUMPTION PER CAPITA (KILOGRAMS OF COAL EQUIVALENT) 36.0 34.0 30.0 911.1 88.9 251.7 POPULATION AND VITAL STATISTICS TOTAL POPULATION, MID-YEAR (MILLIONS) 3.6 4.2 4.7 URBAN POPULATION (PERCENT OF TOTAL) 15.0 18.7 23.1 57.9 15.0 24.2 POPULATION DENSITY PER SQ. KM. 131.0 153.0 168.0 25.6 46.8 42.7 PER SQ. KM. AGRICULTURAL LAND 303.0 306.0 319.0 77.6 254.1 95.0 POPULATION AGE STRUCTURE (PERCENT) 0-14 YRS. 42.0 41.5 41.3 42.0 43.6 44.9 15-64 YRS. 54.9 54.0 54.7 52.2 53.3 52.8 65 YRS. AND ABOVE 3.1 4.5 4.0 3.7 2.9 3.0 POPULATION GROWTH RATE (PERCENT) TOTAL 1.6 1.6 1.6 /f 2.7 2.4 2.7 URBAN 2.6 3.8 4.0 4.3 4.0 8.8 CRUDE BIRTH RATE (PER THOUSAND) 39.9 37.6 35.8 /R 35.8 44.3 42.2 CRUDE DEATH RATE (PER THOUSAND) 21.8 17.8 16.3 /g 9.1 19.7 12.4 GROSS REPRODUCTION RATE .. 3.0 2.5 2.6 2.9 3.2 FAMILY PLANNING ACCEPTORS, ANNUAL (THOUSANDS) .. .. .. USERS <PERCENT OF MARRIED WOMEN) .. .. .. 15.1 14.6 14.2 FOOD AND NUTRITION INDEX OF FOOD PRODUCTION PER CAPITA (1970-100) 102.0 100.0 102.9 102.1 96.4 104.3 PER CAPITA SUPPLY OF CALORIES (PERCENT OF REQUIREMENTS) .. .. .. 103.9 92.3 99.5 PROTEINS (GRAMS PER DAY) .. .. .. 60.3 50.0 56.8 OF WHICH ANIMAL AND PULSE .. .. .. 26.7 13.9 17.5 CHILD (AGES 1-4) MORTALITY RATE 27.0 33.0 .. 8.7 .. 7.5 HEALTH LIFE EXPECTANCY AT BIRTH (YEARS) 43.2 47.7 50.0 /a 62.6 45.8 53.3 INFANT MORTALITY RATE (PER THOUSAND) 200.0 .. 149.1 56.9 102.7 82.5 ACCESS TO SAFE WATER (PERCENT OF POPULATION) TOTAL .. .. 12.0 60.7 26.4 31.1 URBAN .. .. 46.0 78.0 63.5 68.5 RURAL .. .. 3.0 34.9 14.1 18.2 ACCESS TO EXCRETA DISPOSAL (PERCENT OF POPULATION) TOTAL .. .. .. 61.1 16.1 37.5 URBAN .. .. .. 80.3 65.9 69.5 RURAL .. .. .. 25.4 3.4 25.4 POPULATION PER PHYSICIAN 10600.0 11730.0 8510.0 1899.3 13432.7 9359.2 POPULATION PER NURSING PERSON 10310.0 7460.0 5550.0 1220.1 6983.3 2762.5 POPULATION PER HOSPITAL BED TOTAL 1790.0 1370.0 1450.0 /h 422.3 1157.6 786.5 URBAN .. .. 290.0 /h 258.2 183.3 278.4 RURAL .. .. 5270.0 /h 2281.6 1348.8 1358.4 ADMISSIONS PER HOSPITAL BED .. .. .. 25.6 19.5 19.2 HOUSING AVERAGE SIZE OF HOUSEHOLD TOTAL .. 4.6 .. 5.2 5.2 URBAN .. 4.8 .. .. 4.8 RURAL .. 4.5 .. .. 5.3 AVERAGE NUMBER OF PERSONS PER ROOM TOTAL .. 2.1 .. 2.0 URBAN .. 2.2 .. 2.1 1.8 2.3 RURAL .. 2.1 .. 2.7 ACCESS TO ELECTRICITY (PERCENT OF DWELLINGS) TOTAL .. .. 2.9 51.2 25.9 28.3 URBAN .. .. .. 77.3 RURAL .. .. .. 12.8 .. 10.3 Page 2 TABLE 3A HAITI - SOCIAL INDICATORS DATA SHEET HAITI REFERENCE GROUPS (ADJUSTED AVERAGES /a - HOST RECENT ESTIMATE) SAME SAME NEXT HIGHER HOST RECENT GEOGRAPHIC INCOME INCOME 1960 /b 1970 /b ESTIMATE /b REGION /c GROUP /d GROUP /e EDUCATION ADJUSTED ENROLLMENT RATIO! PRIMARY: TOTAL 46.0 50.0 70.0 103.5 62.9 75.8 FEMALE 42.0 43.0 .. 102.9 45.9 67.9 SECONDARY: TOTAL 4.0 6.0 8.0 37.2 14.4 17.7 FEMALE 2.0 4.0 .. 37.9 8.8 12.9 VOCATIONAL (PERCENT OF SECONDARY) 21.0 19.0 8.0 14.7 6.6 7.4 PUPIL-TEACHER RATIO PRIMARY 43.0 45.0 .. 32.8 38.5 34.3 SECONDARY 13.0 18.0 *- 17.8 19.8 23.5 ADULT LITERACY RATE (PERCENT) 10.0 20.0 .. 74.9 36.7 O3.7 CONSUMPTION PASSENGER CARS PER THOUSAND POPULATION 2.0 3.0 3.2 26.9 3.1 7.2 RADIO RECEIVERS PER THOUSAND POPULATION 5.0 17.0 20.0 173.5 31.1 71.1 TV RECEIVERS PER THOUSAND POPULATION 0.5 2.0 2.9 69.4 2.8 14.1 NEWSPAPER ("DAILY GENERAL INTEREST") CIRCULATION PER THOUSAND POPULATION 11.0 19.0 21.0 72.8 6.0 16.3 CINEMA ANNUAL ATTENDANCE PER CAPITA .. .. .. 4.3 1.4 1.6 EHPLOYMENT TOTAL LABOR FORCE (THOUSANDS) 2100.0 2150.0 2357.0 FEHALE (PERCENT) 47.4 47.4 47.2 21.4 24.2 28.0 AGRICULTURE (PERCENT) 83.0 73.7 .. 37.8 60.7 54.1 INDUSTRY (PERCENT) 6.4 7.2 .. PARTICIPATION RATE (PERCENT) TOTAL 55.8 50.6 50.5 30.8 39.8 37.8 MALE 59.7 55.2 55.1 47.2 53.3 50.3 FEMALE 52.1 46.4 46.2 13.2 19.6 20.9 ECONOMIC DEPENDENCY RATIO 0.8 0.8 .. 1.7 1.3 1.3 INCOME DISTRIBUTION PERCENT OF PRIVATE INCOME RECEIVED BY HIGHEST 5 PERCENT OF HOUSEHOLDS .. .. .. 28.9 20.3 19.5 HIGHEST 20 PERCENT OF HOUSEHOLDS .. .. .. 57.7 45.1 48.9 LOWEST 20 PERCENT OF HOUSEHOLDS .. .. .. 3.2 5.7 5.9 LOWEST 40 PERCENT OF HOUSEHOLDS .. .. .. 10.7 16.8 15.7 POVERTY TARGET GROUPS ESTIMATED ABSOLUTE POVERTY INCOME LEVEL (US5 PER CAPITA) URBAN .. .. 159.0 251.9 88.5 155.9 RURAL .. .. 135.0 200.6 71.9 97.9 ESTIMATED RELATIVE POVERTY INCOME LEVEL (US$ PER CAPITA) URBAN .. .. 189.0 403.1 100.8 143.7 RURAL .. .. 34.0 258.0 42.0 87.3 ESTIMATED POPULATION BELOW POVERTY INCOME LEVEL (PERCENT) URBAN .. .. 55.0 24.8 46.0 22.9 RURAL .. .. 78.0 65.2 48.0 36.7 Not available Not applicable. NOTES La The adjusted group averages for each indicator are population-weighted geometric means, excluding the extreme values of the indicator and the most populated country in each group. Coverage of countries among the indicators depends on availability of data and is not uniform. /b Unless otherwise noted, data for 1960 refer to any year between 1959 and 1961; for 1970, between 1969 and 1971; and for Most Recent Estimate, between 1973 and 1977. /c Latin America 6 Caribbean; /d Low Income ($280 or less per capita, 1978); /e Lower Middle Income ($281-550 per capita, 1976); /f 1970-76 growth rate is 1.8 percent: a Haitian Institute of Statistics data for crude birth and death rates and for life expectancy at birth are 36.8, 14.5 and 52.2 respectively; /h 1972. September, 1978 DEFINITIONS OF SOCIAL INDICATORS P.gei 3 5~.:The adjusted group averages fot each indicator are population-weighted geometric means, excluding the extrene values of the inuicacor ana the most populated country in each group. Coverage of countries amang the indicatora dapenda on availability of data and is not uniform. Due to lack of data, group avetages fat Capital Sutplua Oil Exporters end indicatots of accesa to watet and excrete disposal, houaing, incone distribution and povetty aet simple population-weighted geometric neana withaut the excluaion af extteme values. LAND AREA (thousand sq. kmn) Population pet hospital bed - total, urban, and total - Population (total. Total - Total surface area comprising land area and inland watara. urban, and rural) divided by their respective number of hospital beds Agricultural - Most recent estisate of agricultural area used tenporarily available in public and private general and specialized hospital and te- or permanently for crops, pastures, market and kitchen gardens or to habilitation centers. Hospitals are establishments permanently staffed by lie fallow, at least one physician. Establishments providing principally custodial care are not included. Rural hospitals, however, include health and eodi- CGN' PER CAPITA (US$) - CN4P per capita estinates at current market prices, cal centers not permanently staffed by a physician (but by a medical as- calculaetd by same conversion method as World Bank Atlas (1975-77 basis); sistant, nurse. midwife, etc.) which offer in-patient accommodation and 1960, 1970, and 1977 date, provide a limited range of medical facilities. Admissions per hospital bed - Total number of admigsions to or discharges ENERGY CONSUMPTION PER CAPITA - Annual consumption of commercial energy from hospitals divided by the number of beds. (coal and lignite, petroleum, natural gas sod hydra-, nuclear and geo- thermal electricity) in kilograms of coal equivalent per capita. HOUSING Average sine of household (persons per household) - total, urban, and rural - POPUILATION AND VITAL STATISTICS A household consists of a group of individuals who share living quarters To tal population, mid-year (millions) - As of July 1; if not available, and their main meals. A boarder or lodger may or may not be Included in average, of two end-yost estimates; 1960, 1970, and 1977 data, the household for statistical purposes. Statistical definitions of house- Urban population (percent of total) - Ratio of urban to total popula- hold vary. tion; different definitions of urban areas may affect comparability Average number of persons per room - total, urban. and rural - Average num- of data umong countries, ber of persons per room in all, urban, and rural occupied conventional Population density dwellings, respectively. Dwellings exclude non-permanent structures and Per sq. km. - Mid-year population per square kilometer (100 bectares) unoccupied parts. of total area. Access to electricity (percent of dwellings) - total, urban. and rural - Par sq. km. agriculture land - Computed as above for agricultural land Conventional dwellings with electricity in living quarters as percentage only. of total. urban, and rural dwellings respectively. Population age structure (percent) - Children (0-li years), working-ago (15-64 years). and retired (65 years and over) as percentages of mid- EDUCATION year population. Adjusted enrollment ratios Population growth rate (percent) - total. and urban - Compound annual Primary school - total, and female - Total and female enrollment of all ages growth rates of total and urban mid-year populations for 1950-60. at the primsry level as percentages of respectively primary school-age 1960-70, and 1970-75. populations; normally includes children aged 6-11 years but adjusted for Crude birth rate (per thousand) - Annual live births per thousand of different lengths of primary education; for countries with universal edu- mid-year population; ten-year arithmetic aversges ending in 1960 and cation enrollment may exceed 100 percent since some pupils are below or l'9-O and five-year average ending in 1975 for most recent estimate, above the official school age. (rude death rate (per thousand) - Annual deaths par thousand of mid- Secondary school - total, and female - Computed as above; secondary educa- year population; tan-year arithmetic averages ending in 1960 and 1970 tion requires at least four years of approved primary instruction; pro- and five-year average ending in 1975 for most recent estimate. vides general vocational, or teacher training instructions for pupils Groan reproduction rate - Average number of daughters a woman will bear usually of 12 to 17 years of age; correspondence courses are generally in her normal reproductive period if she experiences present age- excluded. specific fertility rates; usually five-year averages ending in 1960, Vocational enrollment (percent of secondary) - Vocational institutions in- 1970, and 1975. clude technical, industrial, or other programs which operate independently Family planning - acceptors, annual (thousands) - Annual number of or as departments of secondary institutions. acceptors of birth-control devices under auspices of national family Pupil-teacher ratio - primary, and secondary - Total students enrolled in planning program. primary end secondary levels divided by numbers of teachers in the torte- Family planning - users (percent of married women) - Percentage of spending levels. married women of child-besting age (15-44 years) who use birth-control Adult literacy rate (percent) - Literate adults (able to read and write) as devices to all married women in same age group. a percentage of total adult population aged 15 years and over. FOOD AND NUTRITION CONSUMPTION Index of food production per capita (1970-100) - index number of per Passenger cars (per thousand population) - Passenger cars comprise motor cars capita annual production of all food commodities, seating less than eight parsons; excludes ambulances, hearses and military Per capita supply of calories (percent of requirements), - Computed from vehicles. energy equivalent of net food supplies available in country per capita Radio receivers (per thousand population) - All types of receivers for radio per day. Available supplies comprise domestic production, imports less broadcasts to general public per thousand of population; excludes unlicensed exports, and changes in stock. Net supplies exclude animal feed, seeds, receivers in countries and in years when registration of radio sets was in quantities used in food processing, and losses in distribution. Re- effect; data for recent years may not be comparable since most countries quirements were estimated by FAO based on physiological needs for nor- abolished licensing. sal activity and health considering environmental temperature, body TV receivers (per thousand population) - TV receivers for broadcast to geneald weights, age and sex distributions of population, and allowing 10 per- public per thousand population; excludes unlicensed TV receivers in coon- cent for waste at household level. tries and in years when registration of TV sets was in effect. Per capita supply ofoprotein (grZms.per day) - Protein content of per Newspaper circulation (per thousand population) - Shows the average circula- capita oar supply of food par dy Net supply of food is defined as tion of "daily general interest newspaper", defined as a periodical publi- above Requirements for all countries established by USDA provide for uation devoted primarily to recording general news. It is considered to a minimum allowance of 60 grams of total protein per day and 20 grams be "daily" if it appears at least four tines a week. of animal and pulse protein, of which 10 grams should be animal protein. Cinema annual attendance per capita per year - Based on the number of tickets These standards are lower than those of 75 grams of total protein and sold during the year, including admissions to drive-in cioemas and mobile 23 grams of aninal protein as an average for the world, proposed by units. FAO in the Third World Food Survey. Per capita protein supply from animal and pulse - Protein supply of food EMPLOYMENT derived from animals and pulses in gr-am per day. Total labor force (thousands) - Economically active parsons, including armed Child (ages 1-4) mortality rate (per thousand) - Annual deaths per thous- forces and unemployed bat excluding housewives, students. etc. Defini- and in age group 1-4 years, to children in this age group. tions in various countries are not comparable. Female (percent) - Female labor force as percentage of total labor force. HEALTH Agriculture (portent) - Labor forte in farming, forestry. hunting and fishing Life expectancy at birth (years) - Average number of years of life as percentage of total labor force. remaining at birth; usually five-year averages ending in 1960, 1970, Industry (percent) - Labor force in mining, construction, manufacturing and and 1975. electricity, water and gas as percentage of total labor force. Infant mortality rate (per thousand) - Annual deaths of infants under Participation rate (percent) - total, male, and female - Total, male, and one year of age per thousand live birhts. female labor force as percentages of their respective populations. Access to safe water (percent of population) - total, urban. end rural - These are TLO's adjusted participation rates reflecting .,,e-se. Number of people (total, urban, and rural) with reasonable access to structure of the population, and long tine trend. safe water supply (includes treated surface waters or untreated but Economic dependency ratio - Ratio of population under 15 and 61 and ovr to uncontaminated water such as that from protected borsholes, springs, the labor force in ago group of 15-64 years. and sanitary wells) as percentages of their respective populations. Sn an urban area a public fountsin or standpost located not more INCOME DISTRIBUTION than 200 meters from a house may be considered as being within tea- Percentage of private income (both in cash and kind) received by richest 5 sonable access of that house. In rural areas reasonable access would percent, richest 20 percent, poorest 20 percent. and poorest 40 percent imply that the housewife or members of the household do not have to of households. spend a disproportionate part of the day in fetching the family's water needs. POVERTY TARGET GROUPS ACcess to excreta disposal (percent of population) - total, urban, and Estimated absolute poverty income level (US$ per capita) - urban and ru,ai - rurol - Number of people (total, urban, and rural) served by exireta Absolute poverty income level is that income level below which a minimal disposal as percentages of their respective populations. Excrete nutritionally adequate diet plus essential non-food requiramenta is not disposal may include the collection and disposal, with or without affordable. treatmenL, of human excrete and waste-water by water-borne systems Estimated relative poverty income level (US$ per capita) - urban and rural - or tho use of pit privies and similar installations. Relative poverty income level is that Income level less than one-third Population per physician - Population divided by number of practicing per capita peronal income of the country. physicians qualified from a medical school at university level. Estimated population below poverty income level (percent) - urban and rural Population per nursing person - Population divided by number of Percent of Dopulation (urban and rural) who are either "absolute poor" or practicing male and female graduate nurses, practical nurses, and "rela.tive Poor' whichever is greater. assistetnt nurses. Economic and Social Data Division Economic Analysis and Projections Dep,rt-nct (4D t Do 70° ~~~~~~~~~~~~~A T l A /V T C = 3 0 C A IVN A IA - IT I .1 )X: >^-- r ~~~ HALT RECONSTRUCTED Groudw 5>1< 9 1_ J , ~~~~~~~~~~POT-D-PAIX_ As A P L DE.- M o.. R Cn N D d;. 2 2 > > X _C - ,~~~~~~~ Pole C AR / B BF A /V F A ,,,_",,,,,,,_*,,,,,,w,,,,,,,,,,,,,, Q' ¢ H ~ for Aew Iv,=nD1bor T Ik -IEe 740d 71 737z07P30OADSr: LIST OF ABBREVIATIONS ADELA/TEC Asociacion para el Desarrollo Economico para America Latina/Technical and Management Services Co., (S.A.) BCA Bureau de Credit Agricole BDL Banque du Logement BHPI Bureau Haitien de Promotion Industrielle BNRH Banque Nationale de la Republique d'Haiti BPH Banque Populaire Haitienne CAMEP Centrale Autonome Metropolitaine d'Eau Potable CCHFP Centre Canado-Haitien de Formation Professionelle CHISS Centre Haitien d'Investigations en Sciences Sociales CONADEP Conseil National de Developpement et de Planification CONATEL Compagnie Nationale de Telecommunications COSEPA Comite Sectoriel de Politique Agricole DATPE Division de L'Amenagement du Territoire et de la Protection de l'Environment (CONADEP) DCI Department of Commerce and Industry DPPD Division de Promotion des Projets de Developpement (CONADEP) DRIPP Developpement Regional Integre de Petit-Goave a Petit Trou de Nippe DTPTC Departement des Travaux Publics, Transports et Communications FAO Food and Agriculture Organization FCH Federation for Cooperative Housing IDA International Development Association IDAI Institut de Developpement Agricole et Industriel IDB Inter-American Development Bank IHS Institut Haitien de Statistiques IICA Instituto Inter-Americano de Ciencias Agricolas - ii - ILO International Labour Office INAREM Institut National des Ressources Minerales INFP Institut National de Formation Professionnelle OAS Organisation of American States OFATMA Office d'Assurances Accidents du Travail, Maladie et Maternite OMS Organisation Mondiale de la Sante ONA Office National d'Assurance ONL Office National du Logement OPS Organisation Pan-Americaine de la Saute OTC Organization for Technical Cooperation OXFAM Oxford Committee for Famine Relief PADCO Planning and Development Collaborative International PAHO Pan-American Health Organizations PPHC Projet de Planification Physique, Habitation et Construction SAT Service Autonome des Transports SEN Societe d'Equipement National SENACA Service National de Commercialisation Agricole SEPRN National Road Maintenance Service SNEP Service National d'Eau Potable SLELC Service de Location d'Equipement Lourd de Construction SONAPI Societe Nationale des Pars Industrielle SPU Service de Planification Urbaine SU Service d'Urbanisme UNCDF United Nations Capital Development Fund UNCHBP United Nations Centre for Housing, Building and Planning UNDP United Nations Development Program UNIDO United Nations Industrial Development Organization USAID United States Agency for International Develupment WHO World Health Organization - iii - MAJOR CONCLUSIONS AND RECOMMENDATIONS i. This report pursues twin objectives. The first is to assist in the formulation of an urban strategy for the country by providing an analytical overview of the facts and problems of urban development in Haiti. The second is to identify, within this overall framework, those problems which World Bank Urban Lending can help to address, with particular emphasis on the improvement of the lot of the urban poor. Facts and arguments are summarized at the end of each chapter and only the most salient features are recalled here. ii. Haiti already has a grave urban poverty problem. Although less urbanized than the other Latin American countries, with less than a quarter of the population living in urban areas, some two-thirds of Haiti's urban popula- tion have to derive income from informal sector activities at rates that leave up to 60% of the population of the capital and up to 80% of the population in provincial towns unable to reach minimum levels of food and non-food consump- tion. As an illustration, the latest nutrition survey made in 1974/75 showed that some 83% of all children in the country suffer from different degrees of malnutrition, urban areas being slightly worse off than rural areas. Poverty is also reflected in urban service deficiencies. Over 40% of the Port-au- Prince population live in areas with residential density above 800 and in some cases more than 2,000 per ha. More than 3 out of 4 houses in the city are not connected to the water system and organized solid and liquid waste removal practically does not exist in low-income areas. (Section I-B and Chapter III.) iii. The urban poverty problem is not likely to improve rapidly. With total population growth of about 1.8% p.a. agriculture, which presently employs some three-quarters of the total labor force in the country cannot and should not be expected to absorb more labor; The incremental labor force will have to find non-agricultural sources of income, predominantly in the urban areas, where the labor force will grow by 4% p.a. in the coming years. With the small modern manufacturing sector, modern services, crafts and construc- tion all expected to absorb only a fraction of the additional labor force, the bulk of the increase will end up in informal activities. The proportion of the labor force active in the informal sector will decline only very slowly and the number of people depending on such activities will rise very rapidly in absolute terms, making it likely that average earnings in informal activi- ties will decline further relative to formal sector income earning possibi- lities. (Chapter II.) iv. Sixty percent of the urban population live in the Port-au-Prince metropolitan area. The predominance of the capital is still growing, with annual population increases of 5-6% compared to the growth of the rest of the urban population at less than 3%. Even more strikingly, the capital has a near monopoly on public administration, financial services, commerce and liberal professions and is home to some 92% of modern manufacturing employ- ment. Recent economic growth has reinforced the position of Port-au-Prince, since it has been concentrated in assembly-type industries for export which are exclusively located in the capital. Immediate prospects are good for these industries and the locational advantage of the capital is such that its weight in the modern manufacturing sector is likely to be largely main- tained. (Section II-B.) - iv - v. The importance of the city is also supported by the centralized decision-making system of the government. All decisions of substance are taken in Port-au-Prince. For example, any expenses from the meagre municipal budgets other than the bare minimum of obligatory current expenditure have to be approved and vetted by the Central Government in the capital. Within government services, even routine decisions are often made by top staff. This leads to apathy and indifference at the lower echelons and makes it particularly difficult to post staff to the provinces. Most government institutions have no provincial representative and those that have, give them very little autonomy. (Sections I-C and IV-A.) vi. The predominance of the capital is further supported by and reflec- ted in the expenditure patterns of the public sector and by sectoral policies. For example in 1975/76, some 49% of the public development expenditure af- fected the metropolitan area and although this proportion may well fall to below 30% in the 1976/81 period, this share is still well above the capital's share of the population. In many areas, policies are ill-defined and where they are not, they often favor Port-au-Prince or are at best neutral. Long- term industrial credit, for example, is practically not available outside of the capital. 1/ Educational investments have been concentrated heavily in the capital and general infrastructure provision is much better there, although still far from adequate. (Sections I-C and I-D.) vii. The government has decided to put more emphasis on rural develop- ment, and the share of agriculture in development expenditure is planned to more than double to 22% of the total from the first to the second Five-Year Plan. More emphasis than in the past will also be put on the provincial towns. The financial feasibility of such an approach depends on foreign assistance continuing to develop at the same pace as it has done recently. The demographic consequences of a successful implementation of this option could be considerable. If historical trends continue, the Port-au-Prince population would reach 2.2 million at the beginning of the next century, but if the government's two-fold strategy is successful, it might amount to only 1.6 million. The difference between the two figures is close to the present size of the Port-au-Prince population. Slowing down the growth of the capital could be important. Sometime in the future, steep rises in the marginal cost of agglomeration can be expected, in particular because the city will start encroaching on some of the best agricultural land in the country, and adequate water supply may require very heavy investments in additional supply facilities, for example long distance water transport. (Sections I-D, V-A and V-B.) viii. In line with this decentralization strategy, provincial towns should become centers for providing agricultural input and output processing facili- ties to support the key agricultural development effort. The speed with which they need to be equipped to assume this role must be tailored to the pace of present and potential development of agriculture in their hinterland, as this 1/ The Bank's First and Second Education Projects in Haiti are first steps towards correcting this bias in educational investments. -v - will be the mainstay of their prosperity for years to come. They might also be developed to become general service centers for the surrounding areas, in particular in those sectors where Port-au-Prince is now much better equipped than provincial towns, such as education and health. Diverting additional resources to the provincial towns for these purposes would probably entail very little, if any, sacrifice in national output. 1/ Port-au-Prince, however, will continue to remain for the time being the preferred location for assembly-type industrialization because of its con- siderable locational advantages for such activities and because making pro- vincial centers competitive with the capital would require extremely heavy infrastructure investments. (Section V-B.) ix. The general decentralization objective of the government, is however, far from implementation. Government services are just beginning to decentralize their services to the provinces and some with very great difficulty. The institutional and data base for effective decentralization is in fact not yet available. One key provision that would help this effort would be a strengthening and devolution of authority to the municipalities. Municipal elections are planned later in 1979 and that could provide the springboard for such devolution of authority. At the same time, those ministries that are planning to decentralize some of their staff to the provinces or have been instructed by law to do so should be encouraged to give that staff greater autonomy than in the past and to group them into technical support services for the municipalities so that a decentralized decision- making structure backed up by technical advise can gradually develop. Sec- toral policies should also be formulated with explicit regard to the de- centralization objective of the government. (Sections I-D and IV-C.) x. As was mentioned before, the present excessive centralization of decision-making in the government in Port-au-Prince has negative effects not only on the performance of local institutions in the provinces, but also on general institutional performance. This is reinforced by a series of other general factors that combine to weaken institutional effectiveness. Among these are: the low status of the civil service due to low salaries, little job security and a great deal of uncertainty regarding job responsi- bilities; the overlap and uncertainty in institutional mandates; the general lack of coordination between many institutions and the very pervasive short- age of skilled manpower. These mutually reinforcing factors combine to put institutional questions at the center of the major urban management problems in the country. (Section IV-A.) xi. Foreign assistance agencies, have tended to create separate institu- tional structures to carry out their projects, which are often only loosely attached to existing government services. As a result, they have increased the competition among various services and project units for qualified staff and the implementation of their projects has not always strengthened the regular institutions of the government as much as is desirable. Where institution-building has been the primary purpose of foreign assistance, it has often been frustrated by lack of suitable counterpart staff, by unclear 1/ See beginning of Section V-A and the last part of Section V-B. - vi - counterpart obligations and lack of enforcement of whatever obligations were laid down and by the tendency not to give the Haitian staff sufficient management responsibility. These problems have been compounded by the way many foreign assistance agencies choose their consultants, which has made it difficult to control the quality of foreign staff and the cohesiveness of assistance teams. All too often, the work carried out has been mediocre, linguistic problems have arisen and commitments to train counterparts have not been honored. When foreign assistants leave, the institutions that were assisted are frequently unable to continue the work. Experience with institution-building through foreign technical assistance has, therefore, been mixed at best and has been successful only in those cases where the projects were tailored to fit the institutional capacity of the cooperating institutions rather than the reverse and where foreign and domestic staff were carefully chosen and controlled. (Section V-C.) xii. Institutional weakness pervades all institutional levels relevant for urban development and determines the absorptive capacity for additional financial assistance. On the general urban management level, the previously unclear and partly overlapping mandates of DATPE and the SU have been clari- fied to some extent in the new organic laws of the DTPTC and the Ministry of Planning which were enacted during 1978. A similar clarification of the role of the municipalities in urban management would be helpful; some of the functions now fulfilled by the DTPTC might be given to them. The munici- palities, however, have a narrow and far from buoyant financial base and lack the technical expertise and organizational ability to carry out any signifi- cant urban planning functions. They may require substantial technical assistance to do so. This has not so far been forthcoming. (Section IV-C.) xiii. Generally speaking, the absence of a land use policy and of effective means for its implementation is one of the major gaps in the existing frame- work for urban development. Procedures for formulating a policy for land use in general and public land use in particular should be,developed as a matter of urgency. Both for the formulation of such a policy and for its effective implementation, a considerable amount of technical work is required. This involves establishing up-to-date cadastres, which are not now available, managing publicly-owned land, which is presently not even inventoried and advising on property taxation, betterment levies and land transfer taxes as means of interventions. It also involves an overhaul of the property valua- tion and tax collection procedures to make them more equitable and provide a better financial base for municipal finance. Since the Administration Gen- erale des Contributions is already active in some of the above fields, it should be charged with this technical work, but may require general technical assistance to carry it out. (Section IV-B.) xiv. While the basic town planning legislation does have some important gaps, the major problem really lies with implementation of those provisions that already exist. While it would be helpful to modernize the town planning legislation, the bulk of which dates back to the mid-thirties, it is not necessary to wait for its reformulation in order to improve institutional performance. Such improvement can be undertaken in a variety of cases identified in this report. It should proceed gradually and, initially, should tackle a small number of institutions. (Chapter IV.) - vii - xv. With a view to formulating an urban development project to be supported by the World Bank group, several key problems require attention. In shelter, for example, two institutions are or will be active in Haiti, with mandates that overlap to a significant extent, i.e., and the ONL and the BDL. The project implementation unit for the UNCDF shelter projects in Port-au-Prince, which was initially conceived as a separate institution, will now work under the umbrella of the ONL. It is important that this project unit be fully absorbed into the ONL as rapidly as possible and that the future institutional relationships between the ONL and the BDL be clearly outlined so that they can concentrate on specific parts of the shelter prob- lem. (Sections III-A and V-C.) xvi. More generally, public intervention in low-income shelter has been confined in the past to emergency relocation after disasters or major relocation requirements arising from other projects, such as the expansion of the Port-au-Prince port facilities. No more than 18,000 people have been given some public assistance in shelter since 1970, mostly through the provi- sion of sites without any services in Port-au-Prince. This is less than one year's population increase in the capital. The broadening of public low- income shelter intervention has been severely hampered in the past by the prevailing view of public officials that only houses built to certain stan- dards, such as concrete-block walls and metal sheet roofs are valid shelter for the poor. These standards are too high to be affordable by the low-income population and therefore, in parallel, many public officials consider it unrealistic to expect to recover a significant part of the cost of low-income shelter provision from beneficiaries. Given the overall shortage of financial resources and, in particular, current budget revenues in the country, this has stymied any effort to provide public shelter assistance to the bulk of the low-income population. While the UNCDF pilot projects for slum upgrading and sites and services provision in Port-au-Prince were initially expected to modify these traditional ideas by demonstrating the feasibility of an approach similar to that of the World Bank, it is unlikely that they will do so fully. In particular, standards in these projects have been raised in successive stages to a level where cost recovery appears difficult, even if it were pursued as a major project objective, which it is not. It has to be noted, however, that the attitude of public officials may now be changing, following the endorsement of the sites and services approach to low-income shelter by the President of the Republic. (Section III-A and V-C.) xvii. Any Bank intervention in slum upgrading would have to adopt lower standards than those now planned in the UNCDF slum upgrading project in St. Martin. The cost of extending the standards of the UNCDF project to the rest of the Port-au-Prince slum population would exceed US$30 million at 1976 prices, not counting the high technical assistance cost of the project, nor its needed extension to the provincial cities. It is not only required to adopt lower standards for slum-upgrading and to limit the range of interven- tions to some key service provisions, for example water supply and better access roads and pathways; massive parallel improvements in the delivery of other urban services by the relevant institutions are also essential. While area-specific slum upgrading or sites and services projects can serve to experiment with and develop appropriate site-specific techniques for delivery - Vlll - and to demonstrate the feasibility of given approaches, they cannot by them- selves do justice to the scale of the problem and cannot substitute for direct efforts aimed at the institutions involved. Actions such as the UNCDF project in St. Martin, for example, may clear the rubbish and the human waste and may reduce the flooding in that community, but will not stop the waste entering from other parts of the city, nor the effect upon the residents of the con- ditions in the central market where many spend half of each day, nor will they limit consumption by residents of food and water contaminated elsewhere in the city. (Sections III-A and IV-E.) xviii. Among the problems that require attention, the appalling drainage/ flooding/erosion and garbage removal situation in the capital is going to be addressed by a forthcoming IDB project which will cost over US$45 million. However, this project does not cover some of the worst slum areas in the city located in Boston and Brooklyn, it does not include upgrading of the human waste collection and disposal in the city, nor does it address the urban sanitation problems in the provincial towns. The three towns that were investigated in this report, i.e., Cap Haitien, Gonaives and Les Cayes all have similar problems with human waste collection and disposal, drainage, garbage removal and, in the case