The Justiciability of Housing Rights
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The Justiciability of Housing Rights Scott Leckie `Nor can the law of trespass, driving the poor out of where they have squatted for long, extinguish the fires of discontent among the generation which has lost its right to a roof.'1 Introduction Should a complaint procedure under an Optional Protocol to the Covenant on Economic, Social and Cultural Rights eventually join the body of international human rights law, the Committee on Economic, Social and Cultural Rights can expect to receive a substantial number of petitions, from both individuals and groups, alleging violations of the housing rights provisions enshrined in Article 11(1) of the Covenant. Cases dealing with forced evictions, racial and other forms of discrimination in the housing sphere and various aspects of the landlord- tenant relationship will doubtlessly be submitted to the Committee for consideration. Complaints of this nature are subject to immediate justiciability in most cases, as exemplified by international jurisprudence, but in particular by State practice at the national level. The Committee should find no particular difficulties handling cases such as these, and has repeatedly dealt with these matters in its consideration of State reports. There can be no doubting the importance placed thus far by the Committee on the realization and, conversely, violation of housing rights; these rights have received considerably more attention from this body than other norms found in the Covenant.2 The question of whether the provision of domestic legal remedies is possible with regard to the right to adequate housing, has been answered affirmatively by the Committee. General Comment No. 4 on the Right to Adequate Housing, 1 Justice Krishna Iyer, Law and the Urban Poor in India, New Delhi 1988, p. xiv. 2 M.C.R. Craven, The International Covenant on Economic, Social and Cultural Rights: A Perspective on its Development (Thesis submitted for the degree of Doctor of Philosophy, University of Nottingham), Nottingham, September 1992, pp. 360-383 (The Right to Housing). SIM Special 18 identifies six areas capable of judicial scrutiny: (a) legal appeals aimed at preventing planned evictions or demolitions through the issuance of court-ordered injunctions; (b) legal procedures seeking compensation following an illegal eviction; (c) complaints against illegal actions carried out or supported by landlords (whether public or private) in relation to rent levels, dwelling maintenance, and racial or other forms of discrimination; (d) allegations of any form of discrimination in the allocation and availability of access to housing; (e) complaints against landlords concerning unhealthy or inadequate housing conditions; and (f) class action suits in situations involving significantly increased levels of homelessness.3 Even this rudimentary listing shows that many components of housing rights are justiciable within domestic legal contexts, and by inference, under international procedures as well. In addition to these six grounds, a much broader range of housing rights issues and housing components of other rights are also capable of judicial scrutiny and are considered as matters of routine by domestic courts of law throughout the world. The active assertion by people of their rights to dwell, given the existence of a functioning and independent legal system, is ultimately what makes such a right justiciable. At another level, according to Craven: `The justiciability of a particular issue depends, not upon the generality of the norm concerned, but rather upon the authority of the body making the decision. Thus it is apparent that in a number of cases, national courts have undertaken to apply constitutional provisions of an exceedingly broad and general nature.'4 While other authors have also asserted the necessity of broadly defining the term `justiciability': 3 General Comment No. 4 on the Right to Adequate Housing, paragraph 17. 4 Matthew C.R. Craven, `The Domestic Application of the International Covenant on Economic, Social and Cultural Rights', Netherlands International Law Review, Vol. XL, 1993, at p. 389. Leckie / The Justiciability of Housing Rights `Justiciability is a deceptive term because its legalistic tone can convey the impression that what is or is not justiciable inheres in the judicial function and is written in stone. In fact, the reverse is true: not only is justiciability variable from context to context, but its content varies over time. Justiciability is a contingent and fluid notion dependent on various assumptions concerning the role of the judiciary in a given place at a given time as well as on its changing character and evolving capability.'5 This paper asserts that many aspects of the right to adequate housing are already justiciable in many domestic legal systems, and that many of these core components of housing rights would consequently be capable of consideration under an Optional Protocol containing a petition procedure. It will examine the legal basis of housing rights, the evolution of these rights, examples from the growing field of housing rights jurisprudence and acts and omissions resulting in housing rights violations. Based on this analysis, the paper will conclude with an elaboration of the justiciable components of housing rights. Finally, prior to undertaking this analysis, a few words on terminology seem to be in order. In examining human rights issues relating to housing, the following terms are most frequently used within the legal sphere: (a) a right to housing; (b) a right to adequate housing; (c) a right to shelter; and (d) housing rights. While each of these terms may seem to imply the same entitlements and obligations, there are, in fact, important distinctions between them. While much can be said on this point, for our purposes, it will be important to make a distinction between rights to shelter and rights to housing or housing rights. The former is a much more restrictive term than the latter, and implies a right to temporary, emergency accommodation, and thus falls far short of the plethora of concerns associated with a full right to adequate housing. Rights to shelter, for instance, would be applicable to homeless persons demanding shelter, and would in this instance be a relevant norm. However, the much broader notion of a human right to adequate housing will include all of the corresponding rights and duties inherent within the legal provisions enshrining this right under international law. 5 Craig Scott and Patrick Macklem, `Constitutional Ropes of Sand or Justiciable Guarantees? Social Rights in a New South African Constitution', University of Pennsylvania Law Review, Vol. 141, No. 1, 1992, p. 17. SIM Special 18 Yet, even the expressions housing rights or a right to adequate housing may not be entirely appropriate for the world as a whole. As such, most housing NGOs and grassroots movements (and increasingly the UN) utilize terms such as the right to a place to live in peace and dignity, which more aptly captures the assertion of rights by the one billion persons currently denied their rights in this respect, and correspond much more accurately to the de facto housing reality in most nations. Commodified visions of housing and the physical associations of this term with a finished structure, while perhaps applicable in the west, have much limited relevance to dwellers in the developing world. 1. The Legal Basis of Housing Rights The legal basis of housing rights, both internationally and nationally, in many cases provide sufficient foundations upon which to base judicial complaints aimed at vindicating past or pending violations of these rights. The recent interpretive evolution of housing rights, particularly within the UN, have given added clarity to these rights, which in turn, has strengthened the prospects of justiciability.6 Let us briefly list the legal sources of housing rights, prior to examining in more detail the content and obligations stemming from these norms. Internationally The human right to adequate housing finds explicit recognition within an array of international legislation, including the Universal Declaration on Human Rights (Article 25(1)), the Covenant on Economic, Social and Cultural Rights (Article 11(1)), the Convention on the Elimination of All Forms of Racial Discrimination (Article 5(e)(iii)), the Convention on the Rights of the Child (Article 27); the Convention on the Elimination of All Forms of Discrimination Against Women (Article 14(2)),7 ILO 6 Scott Leckie, From Housing Needs to Housing Rights: An Analysis of the Right to Adequate Housing Under International Human Rights Law, Human Settlements Programme of the International Institute for Environment and Development, London 1992. 7 Universal Declaration on Human Rights (1948), adopted and proclaimed by UNGA resolution 217A (III) on 10 December 1948; International Covenant on Economic, Social and Cultural Rights (1966), adopted by UNGA resolution 2200A(XXI), 16 December 1966, entered into force on 3 January 1976, 129 States Parties as of 30 June 1994; the International Convention on the Elimination of All Forms of Racial Discrimination (1965), adopted by UNGA resolution 2106A(XX), entered into force on 4 January 1969; the Leckie / The Justiciability of Housing Rights Recommendation No. 115 on Workers' Housing, the UN Declaration on Social Progress and Development, the UN Declaration on the Rights of the Child, the Vancouver Declaration on Human Settlements, the UNESCO Declaration on Race and Racial Prejudice, the Declaration on