producing informality in a post- apartheid township theodore powers africanist doctoral fellow...

Producing Informality in a post-Producing Informality in a post-apartheid Townshipapartheid Township

Theodore PowersTheodore Powers

Africanist Doctoral FellowAfricanist Doctoral Fellow

Woodrow Wilson International Center for ScholarsWoodrow Wilson International Center for Scholars

--------------

Doctoral CandidateDoctoral Candidate

CUNY Graduate CenterCUNY Graduate Center

An investigation into the relationship between HIV/AIDS, An investigation into the relationship between HIV/AIDS, social development, and informal urban settlements social development, and informal urban settlements

in South Africain South Africa

The Challenge of HIV/AIDS LocallyThe Challenge of HIV/AIDS Locally

It seems that politics here is somehow distant from It seems that politics here is somehow distant from getting involved with the HIV/AIDS issues. And that is getting involved with the HIV/AIDS issues. And that is the challenge that you are sitting with. They receive the challenge that you are sitting with. They receive funding and we’ve approached them to say that we don’t funding and we’ve approached them to say that we don’t receive adequate funding. And it’s just like…there’s receive adequate funding. And it’s just like…there’s really a deafness. They are supposed to be part of our really a deafness. They are supposed to be part of our meetings. That is one of the challenges that we sit with. meetings. That is one of the challenges that we sit with. Some structures are supposed to be part of the MSAT Some structures are supposed to be part of the MSAT strategy. They don’t attend meetings at the sub-district strategy. They don’t attend meetings at the sub-district level. This is happening all over.level. This is happening all over.

Member of MSAT leadership, unspecified sub-districtMember of MSAT leadership, unspecified sub-district

Source: Powers, unpublished dissertation material

Structure of the PresentationStructure of the Presentation

Contextualizing the HIV epidemic in South AfricaContextualizing the HIV epidemic in South Africa

Informal Settlements in South Africa Informal Settlements in South Africa

The Public Health Crisis and Service Delivery The Public Health Crisis and Service Delivery

HIV/AIDS and Contemporary Politics in KhayelitshaHIV/AIDS and Contemporary Politics in Khayelitsha

Policy Implications for the Donor CommunityPolicy Implications for the Donor Community

Global HIV InfectionGlobal HIV Infection

Source: UNAIDS 2007

The HIV Epidemic in South AfricaThe HIV Epidemic in South Africa

5.5 million infections out of 44.7 million 5.5 million infections out of 44.7 million citizens citizens

Adults aged 15 to 49 HIV prevalence Adults aged 15 to 49 HIV prevalence rate 18.8%rate 18.8%

Percentage of HIV-infected women and Percentage of HIV-infected women and men receiving antiretroviral therapy men receiving antiretroviral therapy 21.0%21.0%

Source: UNAIDS 2006Source: UNAIDS 2006


Source: Nations Online Project


Source: SANDoH 2007

HIV Prevalence in Cape TownHIV Prevalence in Cape Town

Source: PAWC DoH 2007

HIV Prevalence in Cape TownHIV Prevalence in Cape Town

A strong correlation between the areas where informal A strong correlation between the areas where informal

settlement is concentrated (Khayelitsha, settlement is concentrated (Khayelitsha,

Gugulethu/Nyanga) and HIV prevalenceGugulethu/Nyanga) and HIV prevalence

This corresponds to national-level studies that point to a This corresponds to national-level studies that point to a

strong relationship between HIV prevalence and Informal strong relationship between HIV prevalence and Informal

SettlementsSettlements

HIV Prevalence in Informal HIV Prevalence in Informal SettlementsSettlements

Source: Thomas 2006

Informal Settlements in South AfricaInformal Settlements in South Africa

Photo: Theodore Powers


Peri-urban informal settlements defined by Davis (2006) Peri-urban informal settlements defined by Davis (2006)

as key geopolitical spaces as they will be the primary as key geopolitical spaces as they will be the primary

source of the world’s population growth in the 21source of the world’s population growth in the 21stst

centurycentury

Informal settlements were first established during Informal settlements were first established during

colonial period in South Africacolonial period in South Africa

Expansion of informal settlement with the construction of Expansion of informal settlement with the construction of

townships under apartheid in the 1950stownships under apartheid in the 1950s


Khayelitsha established in 1983Khayelitsha established in 1983

Originally planned to house 250,000 residentsOriginally planned to house 250,000 residents

Current population estimates range from 600,000 to 1 Current population estimates range from 600,000 to 1

millionmillion

Unemployment rates for informal settlements are Unemployment rates for informal settlements are

estimated at 58% - 72% (Richards et al. 2007)estimated at 58% - 72% (Richards et al. 2007)

Shift in patterns of migration / movementShift in patterns of migration / movement

Correlation between movement and HIV statusCorrelation between movement and HIV status

The Public Health CrisisThe Public Health Crisis

They wait months to be put to treatment. And I have been asked what is going on, and I have been told that we don’t have enough staff members, or enough doctors, or nurses to increase the number for the patients to be on treatment. It compromises everything. It paralyzes almost everything. You can go out and mobilize people on testing. When people go to the clinic, they don’t get tested. They take hours to be tested, just tested, for HIV. People who are sick. There is a problem.

Community Activist, Site B, Khayelitsha


The Public Health CrisisThe Public Health Crisis

““Brain drain” of doctors and nurses to developed Brain drain” of doctors and nurses to developed

countriescountries

Inadequate fundingInadequate funding

Lack of institutional capacityLack of institutional capacity

These issues are undermining the fight against These issues are undermining the fight against

HIV/AIDS in South AfricaHIV/AIDS in South Africa

Service DeliveryService Delivery

An average of 105 people per toilet in Sites B & C in An average of 105 people per toilet in Sites B & C in

Khayelitsha Khayelitsha

In Cape Town, there is an estimated housing backlog of In Cape Town, there is an estimated housing backlog of

265,000 homes that continues to grow by 16,000 265,000 homes that continues to grow by 16,000

annuallyannually It is estimated that 1/3 of Cape Town’s population lives in It is estimated that 1/3 of Cape Town’s population lives in

informal settlementsinformal settlements

Source: Isandla 2007Source: Isandla 2007

Service DeliveryService Delivery

Cost recovery model utilized by South Africa pushes the Cost recovery model utilized by South Africa pushes the

cost of infrastructural development onto the communitycost of infrastructural development onto the community

Policy input primarily technical, has the effect of reducing Policy input primarily technical, has the effect of reducing

community participation in policy (Khan 1998)community participation in policy (Khan 1998)

Heller (2003) argues that the closure of the local policy Heller (2003) argues that the closure of the local policy

process has pushed the civics movement into local process has pushed the civics movement into local

representative structuresrepresentative structures

Service Delivery and Local GovernmentService Delivery and Local Government

My research asks what effect, if any, has the shift My research asks what effect, if any, has the shift

described by Heller had on the implementation of described by Heller had on the implementation of

HIV/AIDS policies? HIV/AIDS policies?

Has the shift towards highly technical policies and loss of Has the shift towards highly technical policies and loss of

local political autonomy pushed the civics to “capture” local political autonomy pushed the civics to “capture”

local representative structures in order to maintain local representative structures in order to maintain

influence on, and control over, their communities? influence on, and control over, their communities?

And if so, what are the implications of this process for And if so, what are the implications of this process for

HIV/AIDS policy in South Africa and for the donor HIV/AIDS policy in South Africa and for the donor

community?community?

Western Cape HIV/AIDS Coordinating Western Cape HIV/AIDS Coordinating StructuresStructures

Source: Isandla 2007


MSATs, much like the City Coordinating Committee, MSATs, much like the City Coordinating Committee,

have had difficulty securing commitment from sector have had difficulty securing commitment from sector

departments, have experienced a lack of participation departments, have experienced a lack of participation

from health officials, and generally lack capacity to fulfill from health officials, and generally lack capacity to fulfill

their mandatetheir mandate Members of the Khayelitsha MSAT described a lack of Members of the Khayelitsha MSAT described a lack of

cooperation from the Khayelitsha health forumcooperation from the Khayelitsha health forum


The inability of the Khayelitsha MSAT and the The inability of the Khayelitsha MSAT and the

Khayelitsha Health Forum to work together means that Khayelitsha Health Forum to work together means that

the city and the community cannot effectively coordinate the city and the community cannot effectively coordinate

HIV/AIDS policy HIV/AIDS policy

The question that remains unresolved in this formulation The question that remains unresolved in this formulation

is why the community structure, the Khayelitsha Health is why the community structure, the Khayelitsha Health

Forum, is not working with the formal coordinating Forum, is not working with the formal coordinating

structure, the MSAT structure, the MSAT

South African National Civic South African National Civic Organization (SANCO)Organization (SANCO)

Founded in 1992 out of township-based civic structures Founded in 1992 out of township-based civic structures

6.3 million members in 43 branches in South Africa6.3 million members in 43 branches in South Africa

New structure characterized as ‘hierarchical’ and New structure characterized as ‘hierarchical’ and

‘corporatist’ (Zuern 2001, Heller 2003)‘corporatist’ (Zuern 2001, Heller 2003)

Privatization of service delivery and consequent closure Privatization of service delivery and consequent closure

of participatory policy development has pushed SANCO of participatory policy development has pushed SANCO

to “capture” local representative structures (Heller 2003)to “capture” local representative structures (Heller 2003)

Post-apartheid role of intermediary between Post-apartheid role of intermediary between

communities and the ANC (Zuern 2006)communities and the ANC (Zuern 2006)

The Treatment Action CampaignThe Treatment Action Campaign

Founded on December 10, Founded on December 10,

19981998

Successful campaigns to lower Successful campaigns to lower

prices for key pharmaceuticals prices for key pharmaceuticals

and expand access to ARTand expand access to ART

Focus on access to HIV/AIDS Focus on access to HIV/AIDS

treatment as a human righttreatment as a human right

Vocal critic of the HIV Vocal critic of the HIV

‘dissident’ position of President ‘dissident’ position of President

Thabo MbekiThabo Mbeki

Key driver of the re-structured Key driver of the re-structured

SANAC and the SANAC and the

implementation of the NSPimplementation of the NSP


Contemporary Politics in KhayelitshaContemporary Politics in Khayelitsha

Photo: Jacqueline Greene


The Treatment Action Campaign has been labeled by The Treatment Action Campaign has been labeled by

members of the ANC as a tool of pharmaceutical members of the ANC as a tool of pharmaceutical

companies companies

Members of the Treatment Action Campaign have called Members of the Treatment Action Campaign have called

for the ANC leadership to be tried for genocide due to for the ANC leadership to be tried for genocide due to

their position on HIV/AIDS their position on HIV/AIDS


The fact that SANCO’s political survival is intertwined The fact that SANCO’s political survival is intertwined

with that of the ANC has meant that the attacks on the with that of the ANC has meant that the attacks on the

ANC by the Treatment Action Campaign have caused a ANC by the Treatment Action Campaign have caused a

rift between the two key actors for community rift between the two key actors for community

organization for HIV/AIDS in Khayelitsha. organization for HIV/AIDS in Khayelitsha.

There is therefore, a split in civil society that is creating a There is therefore, a split in civil society that is creating a

huge challenge to effective coordination and huge challenge to effective coordination and

implementation of HIV/AIDS policies in Khayelitsha and implementation of HIV/AIDS policies in Khayelitsha and

throughout South Africa. throughout South Africa.


TP: So what effect does SANCO have on the TP: So what effect does SANCO have on the

community? I mean, do they have a big influence on community? I mean, do they have a big influence on

what people think and the way that they act?what people think and the way that they act?

KHAYE-001: They have a big influence on the people in KHAYE-001: They have a big influence on the people in

the community.the community.

TP: How do they have an influence?TP: How do they have an influence?

KHAYE-001: They are the one that is bringing KHAYE-001: They are the one that is bringing

development. If there is anything that is going to take development. If there is anything that is going to take

place or be built in that area, it should start through their place or be built in that area, it should start through their

meetings. meetings.


Contemporary Politics in KhayelitshaContemporary Politics in Khayelitsha TP: So it’s through SANCO?TP: So it’s through SANCO?

KHAYE-001: Ja, and they should agree as SANCO members KHAYE-001: Ja, and they should agree as SANCO members before they go, there’s an exco meeting, and they should before they go, there’s an exco meeting, and they should agree at that exco meeting before they call a general meeting agree at that exco meeting before they call a general meeting for the whole area to understand what is going on to tell the for the whole area to understand what is going on to tell the community. […] community. […]

TP: But it’s within SANCO structures that they decide that?TP: But it’s within SANCO structures that they decide that?

KHAYE-001: Ja. They don’t decide that with everyone in the KHAYE-001: Ja. They don’t decide that with everyone in the community. They will decide that. You can’t just go there and community. They will decide that. You can’t just go there and be a speaker. You have to consult uSANCO, and if uSANCO be a speaker. You have to consult uSANCO, and if uSANCO is happy with what you are going to do, they are going to say is happy with what you are going to do, they are going to say it’s fine, build it, or do it. And if they are not happy, they will it’s fine, build it, or do it. And if they are not happy, they will point you to that direction and point you to that direction and point you to that direction and point you to that direction and point you to that direction and you end up losing…point you to that direction and you end up losing…



SANCO serves as the primary community feedback SANCO serves as the primary community feedback

mechanism from the community to the local political mechanism from the community to the local political

leadership in Harareleadership in Harare

Community members who are not accepted by members Community members who are not accepted by members

of SANCO are essentially excluded from local of SANCO are essentially excluded from local

representative structures representative structures

SANCO controls local structures in Harare and it is able SANCO controls local structures in Harare and it is able

to stifle critical input from community members at the to stifle critical input from community members at the

most local of levels: the street or ward committeemost local of levels: the street or ward committee


Zones of political constituency in Harare, Khayelitsha



The larger green-outlined area to the left represents the

ANC constituency area The orange-outlined section to the left represents the

constituency zone for the Independent Democrats (ID)

The unmarked area in the middle is a contested and

mixed political zone

Uneven spatial development in HarareUneven spatial development in Harare

All the projects that came for Harare it’s only for that All the projects that came for Harare it’s only for that

area. There is a Score, there is a sports center, there’s a area. There is a Score, there is a sports center, there’s a

community hospital in that area.community hospital in that area.

Community Activist, Harare, KhayelitshaCommunity Activist, Harare, Khayelitsha



Zones of political constituency and social development projects in Harare, Khayelitsha



The yellow dots represent churches or crèches

The orange dots are income-generating projects and are

clustered at Lingilethu West Shopping Center The blue square is a police station

The cross represents a community clinic

The large S represents an elementary school

Focus on post-apartheid projects


Source: VPUU

Current distribution of businesses within the Harare and Kuyasa Safe Node Areas

Uneven spatial development in HarareUneven spatial development in Harare Harare Draft Urban Harare Draft Urban

Design (VPUU)Design (VPUU)

Connects Khayelitsha Connects Khayelitsha

Business District (iLitha Business District (iLitha

Park) to Lingilethu West Park) to Lingilethu West

Shopping Center (Harare)Shopping Center (Harare)

Includes craft markets, Includes craft markets,

sporting grounds, sporting grounds,

schools, small enterprise schools, small enterprise

centers, housingcenters, housing


Location of VPUU “Harare Draft Urban Design” superimposed on HararePolitical Constituency Areas with location of social development projects



The correlation here between the location of the Harare

draft urban design and the ANC constituency area is

quite strong


Source: VPUU

Ideal business locations for “would be” business owners in the two Safe Node Areas.


The survey work conducted by VPUU indicates that the The survey work conducted by VPUU indicates that the

social development projects initiated in ANC social development projects initiated in ANC

constituency areas will be key drivers of future constituency areas will be key drivers of future

businesses and employment in Hararebusinesses and employment in Harare

If current trends continue, there will be uneven If current trends continue, there will be uneven

development in Harare with negative effects for development in Harare with negative effects for

opposition political areas that will be driven by opposition political areas that will be driven by

entrepreneurs and market forces rather than overt entrepreneurs and market forces rather than overt

political support for constituent areaspolitical support for constituent areas


There is more jobs on those projects and if you try to There is more jobs on those projects and if you try to

understand, which area people are working in, they are understand, which area people are working in, they are

from. You will find they are from in the same area where from. You will find they are from in the same area where

there is a shopping mall, there’s a shopping center, there is a shopping mall, there’s a shopping center,

there’s a craft market. You won’t find people that are there’s a craft market. You won’t find people that are

from this area that are working there.from this area that are working there.

-Community Activist, Harare, Khayelitsha-Community Activist, Harare, Khayelitsha



1) Capacitate the existing institutional framework by

expanding the role of community in the MSAT and create

a Local Aids Council that serves the interest of civil

society, community-based organizations and

international donors Pros: Demand from the community for this approach; financial support

for civics could create greater organizational autonomy

Cons: Given the political dynamics described above, maintaining

institutional autonomy may prove to be difficult


2) Create an autonomous feedback mechanism involving civil society organizations so that the impact of these political processes and an objective needs assessment can be incorporated into the planning process for donors Pros: Donors will receive more detailed data concerning the political

realities as they exist in particular areas Cons: Selecting specific non-governmental or community-based

organizations to serve as feedback mechanisms could exacerbate existing political tensions


3) Utilization of Geographic Information Systems (GIS) as a consultative policy tool with communities could be an effective and efficient way to measure the extent to which uneven socio-spatial development is occurring with social development projects as well as the response to HIV/AIDS Pros: This would give donors the ability to track geographic Pros: This would give donors the ability to track geographic

development and counteract uneven developmentdevelopment and counteract uneven development Cons: GIS could serve to disempower communities from contributing Cons: GIS could serve to disempower communities from contributing

substantive input on local policy as it favors technical expertise over substantive input on local policy as it favors technical expertise over “local” forms of knowledge“local” forms of knowledge

A final word from KhayelitshaA final word from KhayelitshaIn South Africa, it is easy for us to challenge the government, to criticize the government, to do many things without fearing that the government is going to intimidate us, arrest us…you know? There is change, compared to before 1994. But the change, it is supposed to be felt by people on the ground. Economically speaking, it is not being felt by people on the ground. What’s the point of becoming free, or being free, when you are homeless, when you are jobless, when you are dying from AIDS?

Community Activist, Site B, Khayelitsha


For further information please contact:For further information please contact:

Theodore PowersTheodore Powers

[email protected]@gmail.com

producing informality in a post- apartheid township theodore powers africanist doctoral fellow...

Documents

hiv prevalencethis

percentage of hiv

south africasource

hiv prevalence rate

informal urban settlements

south africaphoto

south africa5

south africakhayelitsha