Arenas of contested citizenship: housing policy in South Africa

Abstract

There are well-founded concerns that current South African housing policy will entrench and reinforce rather than reduce existing inequalities that are the legacy of apartheid. This study examines the processes by which attempts to formulate housing policy that would have moved the country towards egalitarian citizenship were undermined and scuttled largely through inappropriate timing of policy negotiations and shrewed manipulation of the process by forces opposed to change. The housing policy analysis is centered on the core themes of citizenship, property, and place which are pivotal to the process of post-apartheid healing and reconciliation. An introduction to these concepts in the context of housing policy in apartheid South Africa sets the background against which the proceedings of the National Housing Forum, the vehicle for policy negotiation and formulation established during the dying years of apartheid, are examined. The policy that emerged and was adopted by the post-apartheid government are then evaluated within the framework of the core themes of the study. The analysis is structured around the major place types that are the legacy of apartheied: the African “location” or township, the displaced urban settlements or dormitory towns of the African reserves, and the rural homestead. Within this structure, the form of citizenship of the inhabitants of each place type, namely, township residents, migrant workers, long distance commuters, and rural women is considered. The analysis reveals that realizing the goals of equal citizenship is contingent upon policy that will move beyond the confines of the current uniform and monetarist approach, and address the broader issues of property and place.