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Self-Help Housing in South Africa: Paradigms, Policy and Practice

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Self-Help Housing in South Africa: Paradigms, Policy and Practice SELF-HELP HOUSING IN SOUTH AFRICA: PARADIGMS, POLICY AND PRACTICE Lejone John Ntema May 2011 SELF-HELP HOUSING IN SOUTH AFRICA: PARADIGMS, POLICY AND PRACTICE by Lejone John Ntema Thesis submitted in accordance with the requirements for the Philosophiae Doctor degree in the Faculty of The Econodmic and Management Sciences (Centre for Development Support) University of the Free State Bloemfontein May 2011 Promoter: Prof. JGL Marais DECLARATION I declare that this thesis submitted for the Philosophiae Doctor degree at the University of the Free State is my own, independent work and has not been submitted by me to any other university/faculty. I furthermore cede copyright of the thesis in favour of the University of the Free State. LJ Ntema Bloemfontein May 2011 TO PULANE Acknowledgements This study was made possible by the generous assistance, guidance and support of certain individuals. Without the support of these persons, I would have not managed to successfully complete this study: • Particular thanks are to Prof. Lochner Marais, whose sacrifices, expert advice and insights were of great value and helped me to maintain my excitement over this study. • Prof. Engela Pretorius, for language editing. • Marisia Ruby Minnaar, for her substantial technical assistance. • Finally, my two daughters (Tshepiso, Tshepang), my three grandmothers (Mahoholi, Mamoshe, Makgetsing), my mother (Polo) and the rest of my family. TABLE OF CONTENTS PAGE Table of contents i List of Figures vii List of Tables viii List of Acronyms x CHAPTER ONE: SETTING THE SCENE 1 1.1 Background and problem statement 1 1.1.1 Research aim and objectives 4 1.1.2 Conceptualisation 5 1.2 Research methodology and study area 8 1.2.1 Philosophical assumptions of the study 9 1.2.2 Research methods and the study area 9 1.3 Research agenda 13 CHAPTER TWO: SELF-HELP HOUSING POLICIES IN DEVELOPING COUNTRIES 17 2.1 The state-housing paradigm 18 2.2 Self-help housing 20 2.2.1 The origin of self-help 21 2.2.2 Turner’s key concepts and ideas: state control versus dweller control 22 2.2.3 The influence of Turner’s work and ideas 26 2.3 Neo-Marxist perspectives on self-help housing 26 2.4 World Bank policies and Turner’s ideas on self-help housing 29 2.5 Overview in application of self-help housing in the developing countries 31 2.5.1 Aided self-help housing 31 2.5.1.1 Advantages of aided self-help housing 32 2.5.1.2 Criticism of aided self-help housing 33 2.5.2 Institutionalised self-help housing 35 2.5.2.1 The scale of institutionalised self-help housing in developing countries 36 2.5.2.2 Institutionalised self-help in socialist economies 37 2.5.2.3 A justification for housing cooperatives in self-help housing 39 2.5.2.4 Self-help housing institutions and state control 41 i 2.5.2.5 Advantages of self-help housing institutions 45 2.5.2.6 Challenges confronting self-help housing institutions 46 2.6 Conclusion 48 CHAPTER THREE: LOW-INCOME HOUSING POLICIES IN SOUTH AFRICA: A PLACE FOR SELF-HELP HOUSING? 50 3.1 History of black housing and self-help in South Africa 51 3.1.1 Historical overview of the development of low-income housing policy in South Africa 51 3.1.2 Self-help housing and the apartheid period 55 3.2 Low-income housing policies in the post-apartheid era 57 3.2.1 White Paper on Housing 57 3.2.2 Breaking New Ground (BNG) 60 3.2.2.1 Policy shifts in BNG 60 3.2.2.2 Principles of self-help entrenched in BNG 62 3.2.3 The People’s Housing Process (PHP) 64 3.2.3.1 Overview of implementation systems 64 3.2.3.2 The People’s Housing Process and Turner’s ideas on self-help 66 3.2.3.3 People’s Housing Process and state control: some criticism 68 3.2.3.4 Operational issues hampering the implementation of PHP programmes 72 3.3 Conclusion 75 CHAPTER FOUR: INSTITUTIONALISED SELF-HELP HOUSING IN SOUTH AFRICA: CASE STUDIES FROM THE FREE STATE 78 4.1 Housing Support Centres in the Free State 79 4.1.1 Housing Support Centres before 2006 79 4.1.2 Housing support centres in the post-2006 period 81 4.2 Beneficiaries’ views on the People’s Housing Process (PHP) 82 4.2.1 The role of the Provincial Housing Department 83 4.2.2 The role of housing support centres 90 4.2.3 The role of SEBRA 96 ii 4.2.4 Housing design and planning 101 4.2.5 Other related technical issues 104 4.3 Community empowerment and development 106 4.4 Conclusion 110 CHAPTER FIVE: LAISSEZ-FAIRE SELF-HELP HOUSING IN SOUTH AFRICA: CASE STUDY OF THABONG (WELKOM) 112 5.1 Welkom/Thabong’s historical background 114 5.2 The origin of the Thabong Housing Project and the role of the Provincial Housing Department 115 5.3 Socio-economic profile of the beneficiaries in Thabong 117 5.3.1 Biographical and household details 117 5.3.2 Income and employment status of beneficiaries 119 5.4 The current nature and state of housing in the Thabong Housing Project 121 5.4.1 Type of housing 121 5.4.2 Size of houses 123 5.4.3 A description of the housing construction process for the initial housing 124 5.5 Beneficiary satisfaction level with current housing in the Thabong Housing Project 128 5.5.1 Number of rooms 128 5.5.2 Quality of building materials 130 5.5.3 Layout of the house 133 5.5.4 Quality of building work 134 5.6 Housing design and planning in the Thabong Project: evidence of state interference 136 5.7 General life experience of beneficiaries in the Thabong Housing Project 139 5.7.1 Human relations and the existing social amenities in the Thabong area: beneficiaries’ perceptions 139 5.7.2 Factors responsible for the generally poor quality of life in the Thabong area: beneficiaries’ perceptions 141 5.7.3 Factors responsible for a generally improved quality of life in the Thabong area: beneficiaries’ perceptions 143 iii 5.8 Conclusion 145 CHAPTER SIX: STATE-AIDED SELF-HELP HOUSING IN SOUTH AFRICA: A CASE STUDY OF FREEDOM SQUARE IN MANGAUNG (BLOEMFONTEIN) 148 6.1 Historical background on Freedom Square and the origins of the housing project 150 6.2 Socio-economic profile of the beneficiaries in Freedom Square 152 6.2.1 Biographical and household details 153 6.2.2 Income and employment status of beneficiaries 154 6.3 The current nature and state of housing in Freedom Square 156 6.3.1 Type of housing 156 6.3.2 Current number of rooms 158 6.3.3 A description of construction processes for initial and extended housing 159 6.4 Beneficiaries’ satisfaction with current housing in the Freedom Square Project 160 6.4.1 Number of rooms 161 6.4.2 Quality of building materials 163 6.4.3 Quality of building work 164 6.4.4 Layout of the house 166 6.5 General life experience of residents in the Freedom Square Housing Project 167 6.5.1 Factors responsible for the generally poor quality of life in the Freedom Square area: beneficiaries’ perceptions 167 6.5.2 Factors responsible for perceived improved general quality of life in the Freedom Square area: beneficiaries’ perceptions 169 6.6 Conclusion 171 CHAPTER SEVEN: PRINCIPAL FINDINGS AND RECOMMENDATIONS IN RESPECT OF THE APPLICATION OF SELF-HELP HOUSING POLICY AND PROGRAMMES IN SOUTH AFRICA 174 7.1 An overview of the main findings 174 iv 7.1.1 The practice of self-help in developing countries (including South Africa) is dominated by state control rather than by dweller control 174 7.1.2 Turner’s novel idea of dweller control is being misconstrued and limited in practice to self-construction and sweat equity contributed by beneficiaries 175 7.1.3 Laissez-faire self-help projects seem to have both better housing outcomes and satisfaction levels than do aided self-help (i.e. contractor-driven) housing projects 176 7.1.4 The presence of dweller control outweighs the negative impacts of economic hardship 176 7.1.5 Self-help housing assumes a degree of informality 177 7.1.6 The self-help housing mechanism may result in conflict amongst its beneficiaries 177 7.1.7 Aided self-help with core housing by the state does not automatically promote incremental housing 178 7.1.8 Measuring housing outcomes in the short term is dangerous, while longer- term assessments provide a more reliable understanding of housing outcomes 179 7.2 Key recommendations 180 7.2.1 Government officials should become facilitators rather than dominant role players in the application of self-help 181 7.2.2 The emphasis on sweat equity in the self-help mechanism should be reconsidered 181 7.2.3 Programmes on consumer education should be emphasised and used as means to enhance community participation and empowerment 182 7.2.4 The emphasis in self-help should be on embracing housing as a process rather than a one-off activity 182 7.2.5 The self-help mechanism inherently needs to accede to a certain degree of informality 183 7.2.6 Government should ensure accountability and oversight without necessarily controlling state-funded self-help housing projects 183 7.3 Value of the research results 184 7.4 Future research topics 186 v REFERENCE LIST 188 ANNEXURES 205 SUMMARY 238 vi LIST OF FIGURES PAGES Figure 1.1: Free State Map 13 Figure 1.2: Outline of chapters 14 Figure 3.1: A comparison of policies on low-income housing in South Africa 75 Figure 4.1: Institutional structure of the PHP in the Free State Province 100 Figure 5.1: Number of rooms and the levels of satisfaction amongst beneficiaries in the Thabong Project, 1999 and 2008 129 Figure 5.2: Quality of building materials and the level of satisfaction amongst beneficiaries in the Thabong Project, 1999 and 2008 131 Figure 5.3: Layout of the house and the level of satisfaction amongst beneficiaries in the Thabong Project, 1999 and 2008 133 Figure 5.4: Quality of building work and the level of satisfaction
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