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Local contestation around a flagship urban housing project: N2
Gateway and the Joe Slovo community in Cape Town
Paper to be presented at EADI-DSA 2011 Conference 19-22 September in York, UK for the session
Reconfiguring the fast growing city: Exploring the interaction between urban governance,
megaprojects and settlement dynamics in cases from India and South Africa
David Jordhus-Lier, senior researcherNorwegian Institute for Urban and Regional Research (NIBR)
N2 Gateway: a mega-project?• Flagship project of the 2004 national government
housing policy Breaking New Ground• 22,000 housing units for people marginalised in the
housing market • Upgrading/removal of highly visible informal
settlements along the N2 highway• Link to growth objectives: The 2010 World Cup and
Cape Town’s identity as a tourist destination• Complex collaborative venture between all tiers of
government and private contractors:• ANC/DA party politics and tiers of government• Problems with contracts and responsibilities• Community resistance
Joe Slovo and the N2 Gateway Project
A political analysis from a settlement perspective
• An intensely contested and delayed process which has created a whole set of political dynamics
• Main issues: – eligibility criteria– quality of housing– lack of communication– use of local labour
TIMELINE - Joe Slovo and N2 Gateway (2004-2011)
August 2004 Breaking New Ground housing policy launched by the National Department of Housing
September 2004 N2 Gateway plans are presented to the Joe Slovo residents through the local media
15 January 2005 Shack fire in Joe Slovo renders 12000 people homeless
13 February 2005 Thubelisha Homes, a national agency, is appointed as project managers of N2 Gateway
14 February 2005 Sobambisana Consortium wins the call for proposals and becomes developers of N2 Gateway Phase I
June 2006 The City of Cape Town is removed from its implementing role in the N2 Gateway project
June 2006 N2 Gateway Phase II is launched
September 2006 People move into N2 Gateway Phase I in Joe Slovo
November 2006 Residents of Phase I form a committee
July 2007 Phase I residents march to Parliament
July 2007 Rent boycott in Phase I
3 August Joe Slovo informal settlement residents march to Parliament to protest planned forced removals
10 September 2007 Joe Slovo Task Team, Abahlali baseMjondolo and WC Anti-Eviction Campaign with residents occupy N2 highway
20 September 2007 Thubelisha secures an eviction order of Joe Slovo residents from Cape High Court
12 December 2007 Postponed hearing of the case in Cape High Court, after a series of community complaints
2007-2008 Delft residents occupy unfinished N2 Gateway houses in Delft
February 2008 Cape High court orders eviction of Delft occupants of N2 Gateway houses
March 2008 Cape High court orders eviction of Joe Slovo informal settlement dwellers in preparation for Phase II
August 2008 Hearing of the Joe Slovo case in the Constitutional Court
May 2009 The Auditor-General releases a critical report on the N2 Gateway Project
June 2009 Phase I residents march to the Premier's office to demand changes in the project's management
August 2009 Constitutional Court orders a negotiated relocation in the case of Residents, Joe Slovo Community Western Cape v Thubelisha Homes and Others
1 March 2011 N2 Gateway Phase III construction of 2886 units in Joe Slovo begins
31 March 2011 Constitutional Court discharged its own eviction order due to ‘exceptional circumstances’
Joe Slovo after 2005 shack fire
Temporary relocation area’Blikkiesdorp’
N2 highway blockade
N2 Gateway Phase I & II
Dimensions of contestation and engagement
High level of
collective
mobilization
Protests, occupations,
blockade
Community-driven
planning
Low level of
collective
mobilization
Apathy, vandalism,
patronageLegal process
Dis-engagement Engagement
Phases of contestation and engagement
Confrontational mobilisation. Resistance, occupation, illegality; staunchly autonomous; but also attempts to link to broader social movement mobilisation; creating publicity and space for engagement.
Process-oriented resistance. Legal processes (resisting evictions, fighting charges`); with legal NGO support; achieving partial victories.
Knowledge-based engagement. Based on cooperation with local and translocal support NGOs, linking up with metropolitan governance (CoCT), not related directly to N2 Gateway, creating a basis for engagement and community influence; participatory planning and empowering community knowledge.
ReferencesInterviews with CSO, NGO and City of Cape Town representatives.
Various documentation from the Constitutional Court, the City of Cape Town and the Chance2Sustain project.
Adlard, G. (2008). Are informal settlements a housing solution? Is anyone responsible or accountable for informal settlements? What is the future of informal settlements in Cape Town? And other leading questions. Paper presented to the South African International Housing Conference. Cape Town: 1-9.
Baud, I., K. Pfeffer, et al. (2011). Developing participatory 'spatial' knowledge models in metropolitan governance networks for sustainable development. Chance2Sustain Literature Review March 2011. Bonn, EADI: 1-19.
Bolnick, A. (undated). From the Politics of Protest to the Politics of Redress. The Planning of a Sanitation Unit in a South African Slum. Cape Town, Community Organisation Resource Centre: 1-14.
COHRE (2009). N2 Gateway Project: Housing Rights Violations As ‘Development’ In South Africa. Geneva, Switzerland, Centre on Housing Rights and Evictions: 1-48.
DAG (2007). Living on the edge: A study of the Delft Temporary Relocation Area. Cape Town, Development Action Group: 1-37.
Department of Housing (2004). Breaking New Ground: A comprehensive plan for the development of sustainable human settlements. Department of Housing. Pretoria: 1-28.
Eppel, S. (2007). "They come here and take our houses!": Community conflicts in Langa in the context of the housing crisis in Cape Town: 'Borners' against 'migrants'. Department of Sociology. Cape Town, University of Cape Town. MPhil in Development Studies: 1-107.
Graham, N. (2006). Informal settlement upgrading in Cape Town: Challenges, constraints and contradictions within local government. Informal settlements: A perpetual challenge. M. Huchzermeyer and A. Karam. Cape Town, UCT Press: 231-249.
Kennedy, L., G. Robbins, et al. (2011). The politics of large-scale economic and infrastructure projects in fast-growing cities of the South. Chance2Sustain Literature Review March 2011. Bonn, EADI: 1-23.
Legassick, M. (2008). Western Cape Housing Crisis: Writings on Joe Slovo and Delft. Cape Town, A Western Cape Anti-Eviction Campaign and Socialist Alternative publication: 1-47.
Millstein, M. and D. C. Jordhus-Lier (2011). Making communities work? Casual labour practices and local civil society dynamics in Delft, Cape Town. EADI Urban Governance Working Group workshop “Urban governance, vulnerability and resilience in cities in the South” Oslo 17 March 2011: 1-19.
Miraftab, F. and S. Wills (2005). "Insurgency and spaces of active citizenship: The story of Western Cape Anti-Eviction Campaign in South Africa." Journal of Planning Education and Research 25: 200-217.
Smit, W. (2008). Le grand project N2 Gateway [The N2 Gateway mega-project]. Le Cap Après L’Apartheid [Cape Town After Apartheid]. A. Dubresson and S. Jaglin. Paris, Karthala: 23-44.
Stokke, K. and D. C. Lier (2008). Contesting neoliberalism: Spaces of democracy and post-apartheid social movements in South Africa. Forthcoming.
Swilling, M. (2008). Beyond cooption and protest: Reflections on the FEDUP alternative. Consolidating Developmental Local Government. M. van Donk, M. Swilling, E. Pieterse and S. Parnell. Cape Town, UCT Press: 501-510.