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30 October 2023 Photo Bobby Shabangu
The aftermath of damage to a building in Johannesburg, after burning.
A recent fire that engulfed a downtown Johannesburg building illustrates the challenge of housing a bulging urban population in safe, dignified conditions.

Opinion article by Prof Ivan Turok, Chuma Giyose, Claudia Hitzeroth, Zama Mgwatyu and Andreas Scheba

The tragic loss of 78 lives when fire engulfed a downtown Johannesburg building illustrates the challenge of housing a bulging urban population in safe, dignified conditions.

While the apartheid government resisted urbanisation and refused to build liveable neighbourhoods for black people, the ANC government and metropolitan authorities have been ambivalent, fearing that cities would be overwhelmed.

The ‘RDP’ mass housing programme has constructed about three million small units in peripheral dormitory settlements, far from jobs and amenities. A formulaic ‘one house, one plot’ approach has produced sprawl with sparse facilities. The scheme is currently being cut back and replaced by serviced sites rather than free homes. This is bound to perpetuate urban fragmentation, instead of helping to densify and integrate cities.

More dynamic and adaptable way

Meanwhile, a more dynamic and adaptable way of providing affordable urban housing has emerged from the grassroots, beyond the formal housing system. Many poor households, small building contractors, and emerging developers are responding to the massive demand for low-cost accommodation by investing whatever resources they can muster to construct rental units in their backyards. They are countering unemployment and hardship with laudable energy, initiative, and self-reliance.

Their dwellings range in quality from simple wooden and zinc structures to solid brick-and-mortar two-storey flats with internal ablutions. Standards are improving over time as tenants demand better accommodation and builder-developers learn to design superior homes.

Small-scale rental housing (SSRH) is also stimulating township economies by raising household incomes and creating local jobs across the construction value chain via the supply of building materials, repairs and maintenance, and rental agents and other property services. It is providing a valuable shot in the arm for a struggling building industry.

These positive features and their multiplier effects make SSRH the fastest growing segment of the housing market in the country. An organic process of transforming underused land into more valuable property is being replicated over and over again across cities and towns, driven by the insatiable demand for affordable accommodation. The momentum is fuelled by the emergence of novel lending institutions, such as the Trust for Urban Housing Finance.

Yet, the very success of this phenomenon creates other challenges, including overloaded infrastructure, stretched public services, and degraded open spaces through population growth and crowding.

Dangers of SSRH

Most emerging developers and contractors are unaware of the formal rules and systems that regulate house building and urban development. The informal and unauthorised nature of SSRH poses dangers for resident communities and risks for the developers themselves.

The health and safety of tenants occupying substandard dwellings can be compromised through fires and structural failures. And the developers might never recover the value of their investments if they remain informal.

Research has shown that the costs of regulatory compliance faced by builder-developers are prohibitive. Following the formal approval procedures and paying the requisite professional fees and administrative charges would more than double the cost of developing rental units because of their onerous nature. Most developers either do not apply for permission to build — or they give up out of frustration halfway through this time-consuming process.

Despite the immense opportunities and looming threats facing SSRH, the sector is almost completely ignored by national, provincial, and municipal authorities. The tenants seem invisible to decision-makers because at least they have a roof over their heads and appear better off than people occupying informal settlements.

Finding creative ways to help upgrade and regularise backyard housing means navigating a legal and regulatory minefield that just seems too complicated to public officials, who do not know where to start.

Responding to the policy vacuum

Several grassroots intermediary organisations have begun to respond to the policy vacuum by providing practical support to builder-developers and advice to the government about what actions and reforms are most urgent and important. NGOs are rolling up their sleeves and offering direct assistance and advocacy on behalf of the sector. They believe that empowered citizens should drive local development, so they support small-scale operators looking to construct decent, affordable accommodation.

Some of these organisations have set up training courses and mentoring programmes to help nascent contractors and developers to improve their knowledge and capabilities. Hands-on technical advice and expertise are also offered to individual developers to package their project proposals professionally to help secure external funding.

NGOs have learnt from direct experience that a broad spectrum of builder-developers are engaged in township housing. The support they offer needs to be carefully tailored according to the distinctive needs and potential of different enterprises.

At one end are ‘homeowner developers’, who build in a piecemeal, intuitive, and incremental way according to whatever resources they can secure from personal savings and networks. Women are well represented among this group. They aspire to make better use of their backyards to supplement their household income and create a durable asset for future security.  

Micro-developers

At the other end of the spectrum are ‘micro-developers’ who are more proficient and strategic. They have more extensive, specialist networks and can raise longer-term loans to fund their projects. These entrepreneurs usually build larger blocks of between six and twelve units on each plot and operate across multiple sites.

Township developers do not tend to work together closely because of natural rivalry. The spirit of independence has limited their collective voice to engage with public authorities and financial institutions. Consequently, NGOs encourage developers to organise themselves and build trust so that they can learn from each other and speak with one voice about urgent regulatory reforms.

Township developer forums have been created in some places to raise their visibility and negotiating power. These bottom-up initiatives are making a meaningful contribution to reducing the affordable housing backlog and deserve to be taken seriously.

SSRH fosters urban density, enhances livelihoods, and is more sustainable financially than free government housing. The benefits extend beyond shelter to bolster township economies through new and dynamic enterprises, construction jobs, and skills.

The rich experience that NGOs have gained from working in close proximity to everyday realities provides valuable insight into how to scale up and strengthen the SSRH phenomenon. This know-how is unique and different from the mindsets and understanding available to policy makers operating at national or even municipal levels. It is vital that local and national authorities recognise and respect such hard-earned expertise.  

Novel social arrangement

Yet, initiatives from below cannot succeed without wider state support. To achieve its full potential, SSRH needs public investment in essential infrastructure and services, including clean water, sanitation, electricity, and waste collection.

The government also needs to simplify the procedures that regulate house building for emerging developers to obtain the legal compliance that will help to raise long-term finance, building insurance and protect the value of their investments when they decide to sell.

One way forward in a context of mistrust between municipalities, developers, and residents is to negotiate a novel social arrangement that will restore mutual obligations and stability. A ‘new deal for communities’ could vary in detail between different places, depending on local circumstances.

Municipalities could commit to improving the infrastructure and streamlining building approvals, in return for developers contributing to the cost of public services by paying property taxes and service charges. NGOs could play a valuable role in communicating and negotiating such arrangements at neighbourhood level.

  • Prof Ivan Turok, NRF Research Chair – University of the Free State, Distinguished Research Fellow – Human Sciences Research Council, Cape Town, ITurok@hsrc.ac.za
  • Chuma Giyose, Project Co-ordinator, Development Action Group, Cape Town, chuma@dag.org.za
  • Claudia Hitzeroth, Project Officer, Development Action Group, Cape Town, claudia@dag.org.za
  • Zama Mgwatyu, Programme Manager, Development Action Group, Cape Town, zama@dag.org.za
  • Dr Andreas Scheba, Senior Researcher, Human Sciences Research Council, Cape Town, and Senior Lecturer, University of the Free State, Bloemfontein, ascheba@hsrc.ac.za

This article was originally published in the Mail & Guardian

https://mg.co.za/thoughtleader/2023-10-24-enabling-grassroots-solutions-to-the-urban-housing-problem/

News Archive

UFS committed to transformation
2005-02-23

UFS committed to transformation

The management of the University of the Free State (UFS) takes note that plans are being made to stage a student protest at the UFS main campus on Monday 28 February 2005 .

This is in line with a concerted national campaign to highlight the issue of transformation at higher education institutions.

At this stage the UFS management has not received any application from student formations to stage such a protest at the main campus in Bloemfontein .

The UFS upholds the right of all staff and students to hold legal, non-violent protests and in this spirit encourages the student formations to apply for permission to hold their protest. However, the UFS management has been - and always will be willing to discuss the important issue of transformation of the UFS with staff unions and student formations.

Again the UFS management appeals to student formations to make use of this open door policy and not to adopt a confrontational position. In fact the management and the Senate of the UFS have come out in support of a new phase of transformation at the UFS.

In his speech at the official opening of the UFS earlier this month (on 4 February 2005 ), the Rector and Vice-Chancellor, Prof Frederick Fourie, announced that a comprehensive transformation plan for would be drafted for the UFS.

This Transformation Plan would address issues such as:

  • a new institutional culture for the UFS
  • the need for representivity in the staffing of the UFS
  • ensuring relevance of curricula for the South African and African context
  • enhancing excellence in the overall academic life of the UFS
  • ensuring greater interaction among black and white students and staff
  • addressing outstanding issues in the incorporation of the Qwaqwa and Vista campuses, among others

Concerning some of the issues that are being put forward to motivate for a protest march, the UFS would like to highlight the following facts:

  1. The situation at the Qwaqwa campus
  • It is not true that the UFS has decided to close down the Qwaqwa campus. This is a complete falsehood. The campus was incorporated into the UFS in January 2003 and since then every effort is being made to ensure the viability of the Qwaqwa campus.
  • In fact the UFS has just upgraded residences at the Qwaqwa campus – to the tune of R6,8-million.
  • In addition, another R1,4-million has been set aside for the upgrading of other facilities on the Qwaqwa campus.
  • More staff has been appointed and the library is acquiring more books etc.
  • The management of the UFS wants to assure staff at the Qwaqwa campus once again that there has been no decision to close the campus.
  • We realise that the incorporation of the campus into the UFS has given rise to certain fears and concerns, but these are being addressed, including the question of reporting lines of staff and the further delegation of powers to the head of the Qwaqwa campus, Prof Peter Mbati.
  1. The situation at the Vista campus
  • A number of processes are currently under way to address outstanding issues following the formal incorporation of the Vista campus into the UFS in January 2004.
  • This includes the integration of former Vista staff into the UFS as well as the alignment of the conditions of service of the former Vista staff with the UFS conditions of service.
  • Indeed, over the last few weeks, a climate of trust has been developing and a number of meetings have taken place in contrast to the situation that obtained at the end of 2004.
  • Just last week, the Rector reassured the Vista Task Team representing the former Vista staff that these staff members are indeed part of the UFS staff complement.
  • When the Vista campus was incorporated into the UFS, it was agreed that no new first years would be registered there, so as to avoid duplication with the main campus which is only a few kilometers away.
  • Instead, those students who were registered as Vista students at the time of incorporation (January 2004) would be allowed to complete their studies.
  • In terms of this agreement another process of consultation with key stakeholders on and off campus would be initiated to determine how the physical facilities of Vista could be used to contribute to educational and skills provision in the region and the province.
  • This process is still in its early stages and no final decision has been made regarding the long term strategic reconfiguration of the Vista campus.
  • In any case, as stated by the Rector, former Vista staff do not have to fear about their work security as this is not dependent on the future use of Vista campus – the two issues are not related.
  1. Financial aid for students at the Qwaqwa campus
  • Concerning financial aid to students at Qwaqwa, the UFS has to date (that is up to 22 February 2005 ) made available R25 000 each to 705 students.
  • That amounts to R17,6 million.
  1. Financial aid for students at the Vista campus
  • Concerning financial aid to students at Vista , the UFS has to date (that is up to 22 February 2005 ) made available R14 500 each to 104 students.
  • That amounts to R1,5 million.
  1. Registration
  • The registration processes at both these campuses are not yet completed. So final figures are not yet available.
  • What we can say so far, is that 1339 students have registered at the Qwaqwa campus and that more are expected to register. At Vista , 545 students have registered so far, and more are expected to do so.
  • In an effort to assist students during the registration process, management has put in place a structure which is called the Monitoring Committee.
  • This Monitoring Committee provides counseling on courses of study but also sorts out problems relating to academic fees, etc.
  • This is how the UFS management in a concrete way gives expression to its commitment to broadening access for academically deserving students.
  1. Alleged racism
  • There have recently been unsubstantiated allegations of racism leveled at the UFS.
  • We would like to state unequivocally, that the UFS does not and will not tolerate racism in any way.
  • There are policies and procedures in place to deal with such allegations and those who feel aggrieved should bring this to the attention of the Director of Diversity, Mr Billyboy Ramahlele.
  • The UFS also has sensitisation programmes for staff and students to assist in bringing about a truly non-racial, non-sexist, inclusive, multicultural and multilingual campus.

.

  1. Conclusion
  • The UFS management remains committed to the further transformation of the institution so that it can play its role in supporting the goal of a non-racial, democratic South Africa united in its diversity.
  • We are committed to the successful incorporation of the Vista and Qwaqwa campuses and to the speedy resolution of all outstanding issues facing staff and students on these campuses.
  • We appeal once again to staff and students on these campuses, who are indeed members of the broader UFS community, to play a constructive role in the debate about the strategic direction of the UFS and all its campuses.

 

Issued by: Mr Anton Fisher

Director: Strategic Communication

Cell: 072-207-8334

Tel: 051-401-2749

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