The rise, fall, and rebirth of The rise, fall, and rebirth of community-centred housing community-centred housing

Built Environment Support Group Built Environment Support Group Presentation to the DAG National Presentation to the DAG National

Conference Conference October 2010October 2010

The genesisThe genesis

Established in 1983 by academics within the then Established in 1983 by academics within the then University of Natal Department of Architecture and Allied University of Natal Department of Architecture and Allied Disciplines. Pietermaritzburg branch office established Disciplines. Pietermaritzburg branch office established in 1991.in 1991.

Focus in the “struggle years” was defence campaigns Focus in the “struggle years” was defence campaigns against evictions from informal settlements in urban against evictions from informal settlements in urban areas, largely formed as a result of inter-political party areas, largely formed as a result of inter-political party violence and also natural urban migration.violence and also natural urban migration.

In the early 1990’s, BESG was a key civil society player In the early 1990’s, BESG was a key civil society player in shaping pro-poor planning and housing policies from in shaping pro-poor planning and housing policies from local to national level; participated in the PMB Low local to national level; participated in the PMB Low Income Settlement Task Team and National Housing Income Settlement Task Team and National Housing Forum (birth of the national housing subsidy scheme).Forum (birth of the national housing subsidy scheme).

The new dispensationThe new dispensation Many of the communities that BESG had Many of the communities that BESG had

supported sought our assistance in leveraging supported sought our assistance in leveraging resources for permanent settlement:resources for permanent settlement:

-- IDT site-and-service programme in the early -- IDT site-and-service programme in the early 90s90s

-- National housing subsidy scheme from 1995.-- National housing subsidy scheme from 1995. They had a poor relationship with local They had a poor relationship with local

government, and knew BESG had technical skills government, and knew BESG had technical skills to help them drive their own development. to help them drive their own development.

As a consequence, BESG became a prominent As a consequence, BESG became a prominent player in community-driven low income housing player in community-driven low income housing through the 90s and first half of this decade. through the 90s and first half of this decade.

BESG’s vision and missionBESG’s vision and mission

Vision Vision

BESG envisions a future in which all people in South Africa will live BESG envisions a future in which all people in South Africa will live in a participatory democracy with equal access to habitable and in a participatory democracy with equal access to habitable and sustainable living environments and livelihood security. sustainable living environments and livelihood security.

   Mission Mission 

BESG exists to support the poor and vulnerable to access BESG exists to support the poor and vulnerable to access resources and increasingly gain control over their lives and resources and increasingly gain control over their lives and destinies, through the promotion of sustainable livelihoods and destinies, through the promotion of sustainable livelihoods and habitable environments, achieving basic socio-economic rights and habitable environments, achieving basic socio-economic rights and capacitating local government, with added emphasis on small rural capacitating local government, with added emphasis on small rural towns. towns.  (The expansion into peri-urban and rural areas  (The expansion into peri-urban and rural areas began in 2006.) began in 2006.)

Strength in unity Strength in unity

BESG was not alone in this journey. In 1995, the European BESG was not alone in this journey. In 1995, the European Union, which had funded many rights-based NGOs in the Union, which had funded many rights-based NGOs in the struggle years, encouraged NGOs to form into sectors or struggle years, encouraged NGOs to form into sectors or clusters for ease of future funding. clusters for ease of future funding.

This led to the formation of the Urban Sector Network, a This led to the formation of the Urban Sector Network, a group of 8 NGOs located in the major cities around the group of 8 NGOs located in the major cities around the country, who shared a common agenda around urban country, who shared a common agenda around urban development, community support, and policy advocacy development, community support, and policy advocacy through a combination of research and practice. through a combination of research and practice.

There are few if any players outside the USN who engage in There are few if any players outside the USN who engage in a rights-based approach to meeting basic needs in poor a rights-based approach to meeting basic needs in poor urban communities. urban communities.

Regrettably EU funding of the NGO sector dried up in 2004 Regrettably EU funding of the NGO sector dried up in 2004 in favour of government-to-government support – one of in favour of government-to-government support – one of the negative impacts of the new dispensation, as it has the negative impacts of the new dispensation, as it has weakened the resource base of civil society and its ability weakened the resource base of civil society and its ability to engage critically with the state.to engage critically with the state.

Pioneering housing workPioneering housing work

1995-7: Completed the first “in situ” housing 1995-7: Completed the first “in situ” housing project in Happy Valley/ Ntuthukoville, Woodlandsproject in Happy Valley/ Ntuthukoville, Woodlands

1996-2004: Completed the first scale low income 1996-2004: Completed the first scale low income housing upgrade project at Glenwood 2 (1600 housing upgrade project at Glenwood 2 (1600 households)households)

1997: Established one of the two first “People’s 1997: Established one of the two first “People’s Housing Process” Support Services in KZN, in Housing Process” Support Services in KZN, in Glenwood 2. Glenwood 2.

1999: Completed the first transitional housing 1999: Completed the first transitional housing project in KZN from the former Homedene Working project in KZN from the former Homedene Working Men’s Hostel (Ubunye Housing Cooperative), PMB Men’s Hostel (Ubunye Housing Cooperative), PMB CBDCBD

2001: Completed design & construction of 320 2001: Completed design & construction of 320 social housing units at Shayamoya,Cato Manor. social housing units at Shayamoya,Cato Manor.

MethodologyMethodology

BESG typically worked in partnership with a democratically BESG typically worked in partnership with a democratically elected, community-based trust that contracted BESG to elected, community-based trust that contracted BESG to provide or procure professional services. provide or procure professional services.

We aimed to give equal weight to organisational We aimed to give equal weight to organisational development and technical support. development and technical support.

This enabled those community structures to articulate and This enabled those community structures to articulate and engage in a wide range of other activities such as savings engage in a wide range of other activities such as savings clubs, the construction and management of community clubs, the construction and management of community facilities, greening projects, community-based facilities, greening projects, community-based infrastructure maintenance and solid waste removal. infrastructure maintenance and solid waste removal.

Some critics of BESG’s methodology, particularly Some critics of BESG’s methodology, particularly stakeholders in or aligned to the social movements, claim stakeholders in or aligned to the social movements, claim that it is a “technocratic” approach. Rather, it is a process that it is a “technocratic” approach. Rather, it is a process of empowerment through knowledge, creating space for of empowerment through knowledge, creating space for critical dialogue with state organs, and very often critical dialogue with state organs, and very often mediating outcomes. mediating outcomes.

Risks and opportunities Risks and opportunities

The fragility of BESG’s intervention model was that it could be The fragility of BESG’s intervention model was that it could be easily disrupted by changes in political leadership, both easily disrupted by changes in political leadership, both internally and externally, and contestation over access to internally and externally, and contestation over access to resources. resources.

BESG often works in a given community for several years BESG often works in a given community for several years before “development” becomes the dominant agenda. This before “development” becomes the dominant agenda. This enables us to gauge the level of social stability and cohesion in enables us to gauge the level of social stability and cohesion in a community, and their ability to take ownership of, or least a community, and their ability to take ownership of, or least influence, the processes and outcomes of a development influence, the processes and outcomes of a development intervention. intervention.

Those early/intermediate interventions involve a combination Those early/intermediate interventions involve a combination of capacity building and mobilisation through engagement in of capacity building and mobilisation through engagement in less complex activities – food gardening, building a community less complex activities – food gardening, building a community hall, environmental work such as litter clean-ups and removing hall, environmental work such as litter clean-ups and removing destructive alien vegetation. This is the social capital that is destructive alien vegetation. This is the social capital that is captured in the new Enhanced People’s Housing Process policy captured in the new Enhanced People’s Housing Process policy adopted in 2008 as “community contributions.” adopted in 2008 as “community contributions.”

Public procurement --Public procurement --a gifthorse or poisoned a gifthorse or poisoned

chalice?chalice? BESG’s positioning in the sector changed fundamentally with the BESG’s positioning in the sector changed fundamentally with the

advent of the Municipal Systems Act and Public Finance Management advent of the Municipal Systems Act and Public Finance Management Act. Act.

Responsibility for development was placed with local government, and Responsibility for development was placed with local government, and access to housing subsidy became subject to a competitive tender access to housing subsidy became subject to a competitive tender process in place of an application-based system. process in place of an application-based system.

We won our first three tenders in 2001 and 2002, obtained conditional We won our first three tenders in 2001 and 2002, obtained conditional approval in 2004, and are still awaiting contracts from the local approval in 2004, and are still awaiting contracts from the local municipality to enable us to recover substantial design costs and municipality to enable us to recover substantial design costs and proceed into implementation. proceed into implementation.

The change to public procurement fundamentally altered our The change to public procurement fundamentally altered our relationship with key roleplayers. We became servants of a relationship with key roleplayers. We became servants of a dysfunctional local government, while local development committees dysfunctional local government, while local development committees were systematically intimidated and marginalised by ward Councillors were systematically intimidated and marginalised by ward Councillors and committees, and in turn by branch executive committees of the and committees, and in turn by branch executive committees of the ruling party seeking to take control of processes for which they do not ruling party seeking to take control of processes for which they do not have the requisite competencies. have the requisite competencies.

The change also exposed BESG financially. Our level of involvement in The change also exposed BESG financially. Our level of involvement in implementing housing projects has been drastically curtailed as a implementing housing projects has been drastically curtailed as a result, and a separate legal entity has been established to contain result, and a separate legal entity has been established to contain capital risk from our donor-funded work. capital risk from our donor-funded work.

New horizons?New horizons?

The adoption of the Enhanced People’s The adoption of the Enhanced People’s Housing Process (EPHP) policy saw a Housing Process (EPHP) policy saw a distinct shift from housing delivery to the distinct shift from housing delivery to the building of sustainable human settlements.building of sustainable human settlements.

Community engagement in development Community engagement in development processes helps to promote active processes helps to promote active citizenship and break the entitlement citizenship and break the entitlement culture that characterised “RDP housing.”culture that characterised “RDP housing.”

Community engagement also helps to Community engagement also helps to ensure acceptability of the end-product and ensure acceptability of the end-product and commitment to protect its functional and commitment to protect its functional and asset value.asset value.

Challenges in supporting Challenges in supporting community-centred housing community-centred housing

Long lead times Long lead times difficult to maintain community difficult to maintain community commitment and stability of leadership.commitment and stability of leadership.

Political challenges – contestation for leadership and Political challenges – contestation for leadership and conflation of political and ward committee structures.conflation of political and ward committee structures.

KZN requires projects to be allocated at provisional approval KZN requires projects to be allocated at provisional approval stage, prefers turnkey contract route stage, prefers turnkey contract route cannot disaggregate cannot disaggregate infrastructure and housing, development risk. infrastructure and housing, development risk.

Corruption and BBBEE endemic in the industry; not Corruption and BBBEE endemic in the industry; not conducive to an NGO participating in delivery (but EPHP conducive to an NGO participating in delivery (but EPHP offers a new window).offers a new window).

Fragmentation of state funding, poor horizontal alignment, Fragmentation of state funding, poor horizontal alignment, and PFMA create difficulties in delivering value-adding and PFMA create difficulties in delivering value-adding community contributions (clean-ups, maintenance, community contributions (clean-ups, maintenance, community and sports facilities, etc.)community and sports facilities, etc.)

Conditions necessary for EPHP Conditions necessary for EPHP implementationimplementation

BESG, along with other USN affiliates, has been a member of a cross-sectoral BESG, along with other USN affiliates, has been a member of a cross-sectoral reference group assisting the Department of Human Settlement to develop reference group assisting the Department of Human Settlement to develop an implementation framework and guidelines for rolling out EPHP.an implementation framework and guidelines for rolling out EPHP.

Some of the conditions necessary for effective implementation include:Some of the conditions necessary for effective implementation include: The finalisation of the implementation framework and a dedicated funding The finalisation of the implementation framework and a dedicated funding

stream being available through participating provinces.stream being available through participating provinces. The release of well-located, serviced or serviceable land; and the in situ The release of well-located, serviced or serviceable land; and the in situ

upgrading of informal settlements where technical conditions and upgrading of informal settlements where technical conditions and affordability permit.affordability permit.

Improved alignment between Integrated Development Plans and municipal Improved alignment between Integrated Development Plans and municipal budgets.budgets.

A substantial increase in sector capacity – infrastructure and housing delivery A substantial increase in sector capacity – infrastructure and housing delivery are highly complex and regulated processes, and there are insufficient are highly complex and regulated processes, and there are insufficient numbers of genuine civil society actors with adequate experience to deliver numbers of genuine civil society actors with adequate experience to deliver at scale.at scale.

Leaders within social movements need to mobilise their membership to work Leaders within social movements need to mobilise their membership to work constructively with organs of state and with professionals who demonstrate a constructively with organs of state and with professionals who demonstrate a mindset to place service before profit. mindset to place service before profit.

Municipalities and other state organs need to work in partnership with civil Municipalities and other state organs need to work in partnership with civil society, to play an enabling role in releasing well-located land and providing society, to play an enabling role in releasing well-located land and providing basic services. basic services.

Challenges in the interface Challenges in the interface with local governmentwith local government

Local government and civil society often become antagonistic as Local government and civil society often become antagonistic as a result of municipalities’ paternalistic approach to service a result of municipalities’ paternalistic approach to service delivery, and communities’ frustration at the slow pace of service delivery, and communities’ frustration at the slow pace of service delivery.delivery.

There are many institutional obstacles to local government There are many institutional obstacles to local government playing an enabling, rather than a controlling, role. playing an enabling, rather than a controlling, role. Some of the Some of the challenges in achieving true, developmental local government challenges in achieving true, developmental local government include:include:– De-politicising the Ward Committee system. Ward Committees are De-politicising the Ward Committee system. Ward Committees are

commonly used to dispense patronage and undermine genuine commonly used to dispense patronage and undermine genuine community structures that they are supposed to represent.community structures that they are supposed to represent.

– Producing empirically-based Integrated Development Plans (IDPs).Producing empirically-based Integrated Development Plans (IDPs).– Ensuring municipal budgets are aligned to the IDPs.Ensuring municipal budgets are aligned to the IDPs.– Employing or deploying staff with relevant skills into development Employing or deploying staff with relevant skills into development

support functions.support functions.– Preventing the leakage of equitable share grant, intended to provide Preventing the leakage of equitable share grant, intended to provide

basic services to indigent households, into municipal salaries.basic services to indigent households, into municipal salaries.– Developing strategies to provide basic services and dignity to Developing strategies to provide basic services and dignity to

communities caught in long housing delivery backlogs. communities caught in long housing delivery backlogs.

The new struggleThe new struggle

Evicted by order of the High CourtEvicted by order of the High Court Waiting 13 years for “fast track” developmentWaiting 13 years for “fast track” development No water, no toiletNo water, no toilet Community leadership removed by the partyCommunity leadership removed by the party

we voted forwe voted for Cannot speak to BESG Cannot speak to BESG

without a member of without a member of

the party Branch the party Branch

Executive beingExecutive being

presentpresent

ConclusionConclusion Local authority-driven development has failed Local authority-driven development has failed

many communities in need of secure tenure, many communities in need of secure tenure, basic services, and shelter. basic services, and shelter.

We have a legacy of poorly located and poorly We have a legacy of poorly located and poorly constructed “RDP housing” that has constructed “RDP housing” that has entrenched apartheid spatial planning and entrenched apartheid spatial planning and deepens poverty. deepens poverty.

Community-driven housing offers an Community-driven housing offers an alternative paradigm that creates true alternative paradigm that creates true “ownership” – active citizenship and vibrant, “ownership” – active citizenship and vibrant, sustainable communities -- instead of people sustainable communities -- instead of people being trapped in a house too far from being trapped in a house too far from amenities and work opportunities and too amenities and work opportunities and too small for the average household. small for the average household.

Contact detailsContact details

Built Environment Support Group (BESG)Built Environment Support Group (BESG)371 Jabu Ndlovu Street371 Jabu Ndlovu StreetPietermaritzburg 3201/Pietermaritzburg 3201/

P.O. Box 1369 P.O. Box 1369

Pietermaritzburg 3200Pietermaritzburg 3200

00- 27- 33- 394 498000- 27- 33- 394 4980

besgpmb@sn.apc.orgbesgpmb@sn.apc.org

www.besg.co.zawww.besg.co.za