SUBMISSION BY TLAC
(TSHWARANANG LEGAL ADVOCACY CENTRE)
Social Housing Amendment Bill [B29 – 2007]
Tshwaranang Legal Advocacy Centre
(TLAC) is a multi-disciplinary centre that seeks to promote the rights of women
to live lives free of violence through research, advocacy, litigation and the
provision of free legal services.
TLAC has offices in Braamfontein, Johannesburg, and Acornhoek, Mpumalanga.
Introduction
TLAC welcomes this bill and
is pleased to note the recognition in the bill of the pressing need to provide
affordable housing to poor people. The
vast majority of TLAC’s clients are poor women and as such, they frequently
cannot afford to rent or own housing that meets their constitutional rights to
dignity, privacy and equality.
TLAC also notes that the bill explicitly prioritises the housing needs of,
inter alia, women and vulnerable groups.
Although TLAC welcomes this provision, it is concerned that the bill
fails to mention the specific housing needs of women in abusive
relationships. In our view, these women
form part of a particularly vulnerable group and require special attention if
their housing needs are to be met.
This submission therefore focuses on the particular needs of women in abusive
relationships and their housing needs.
Women and housing
Housing is not a “women’s issue” as it affects both
men and women. There is however a need to recognise that women are more
vulnerable than men to homelessness and insecure tenure and their needs require
specific attention.
There are both social and economic
reasons why there is a need for a specific focus on women in housing. The
Habitant Agenda state that “…The empowerment of women and their full participation on the basis of
equality in all spheres of society, whether rural or urban, are fundamental to
sustainable human settlements development[1]”.
Socially, gender division of labour has defined the interaction of both
men and women with housing. The domestic sphere which is in turn closely linked
to housing, is associated with women whereas the public is associated with men.
Women tend to spend more time in the house as compared to men. For some women
their housing is their source of identification and definition. It defines
their interaction with society and the social networks that they make, which in
turn become quite vital to women both psychologically and economically.
In addition, majority of those who bare
the brunt of deprivation are women and children. Women’s contribution to housing is often limited to value added
services whereas ownership and title vest with men (mostly in domestic
partnership such as marriage and cohabitation). Women’s access to property and
land is usually as secondary owners, they access it through partnerships and
relationships and in cases of crisis their rights are often compromised. There
are a number of both social and economic situations that render women insecure
and at times homeless, deriving from their low socio-economic status and high
levels of dependency. Access to housing can therefore be a powerful tool to
tackle women’s poverty and strengthen their security of tenure.
Domestic
violence and housing
Although reliable national statistics on domestic
violence are difficult to obtain, and those that do exist are now somewhat
dated, research suggests that South African women experience high levels of
violence in their intimate relationships. A three province study undertaken in
1997 showed that up to 28% of women had recently experienced physical violence
in their intimate relationships.
Research conducted in 2001 amongst women attending ante-natal clinics
showed that as many as 55% of women had
ever experienced physical abuse in an intimate relationship. In June
2004, the Medical Research Council estimated that 1349 women were murdered by
their intimate partners during 1999, translating into a prevalence rate of 8.8
per 100 000. This rate indicated that
South Africa has the highest rate of intimate femicide for those countries
where such research has been done.
Domestic violence not only violates women’s rights to bodily and psychological
integrity, dignity and equality, it frequently compromises their rights to
housing and shelter.
Section 26(1) of the Bill of Rights states that everyone has the right of
access to adequate housing. The 1994 White Paper, A New Housing Policy and
Strategy for South Africa, also affirms that housing is a basic human right
and states that government “is under a duty to take steps and create conditions
which will lead to an effective right to housing for all. It is also under a
duty to refrain from taking steps which promote or cause homelessness.”
The content, or entitlements, of housing rights in South Africa have not, as
yet, been spelt out in detail. In the absence of this, we have drawn on the
entitlements identified in General Comment No 4 of the United Nations Committee
on Economic, Social and Cultural Rights (ECOSOC). This framework is then
applied to the particular circumstances of abused women to show how domestic
violence denies women the right to adequate housing.
General Comment No 4 sets out seven different entitlements which constitute
adequate housing: legal security of tenure; availability of services, materials
and infrastructure; affordable housing; habitable housing; accessible housing;
location; and culturally adequate housing. Of these, domestic violence is
perhaps most likely to affect women’s legal security of tenure, and the
entitlements to affordable, habitable and accessible housing.
Legal security of tenure
Episodes of domestic violence threaten women’s
security of tenure in a variety of ways. First, women are periodically or even
permanently evicted by their partners. How frequently this occurs is unknown as
only a very few studies have explored this question. In one small study (Vetten
and Hoosain, 2006)[2], 14 out of
the 32 women interviewed had been forced to
leave the place in which they were living many times during the relationship.
This was either to escape further violence or because they had been told to
leave. Research conducted in the rural areas of the Southern Cape also recorded
women (and sometimes their children too) being chased
out of the home late at night or in cold weather (Artz, 1999)[3]
Second, women are also displaced from their homes,
having to move to shelters or other accommodation to escape their abusive
partners. In a study undertaken in Die Bos,
an informal settlement in the Western Cape, domestic violence accounted for 20%
of moves recorded[4]. An extreme
example of such displacement is offered by the case of S v Engelbrecht,
which involved a woman killing her abusive husband. This particular matter
records how Mrs Engelbrecht moved six times in the space of eighteen months to
escape her abusive husband.
Third, where women depend on their male partners for access
to housing, reporting the abuse may put the
couple at risk of being evicted. In the farming context, where men’s
accommodation is often dependent on their working for the farmer, men may be
dismissed when women report the violence to a supervisor or manager. Both
parties will then have to vacate their accommodation. Alternatively, if women
report the matter to the police and the man is arrested and unable to work for
a period of time, this too may result in the man’s dismissal and consequent
eviction from the property[5]
Affordable housing
Patterns of employment and wage-earning in South
Africa are such that women generally earn less than men and are also less
likely to be in full-time, permanent employment. As a result, women are
frequently economically dependent on men and in the absence of alternative,
affordable accommodation, effectively trapped with their abusive partners:
I always thought that if I had to leave with
this child of mine where would we go? What would my child eat? What would
become of us both? We’ll suffer, we’ll starve. This man he is the only one who
has the money. He’s the one who could feed us. He’s the one who could pay where
we live. (Quoted in Vetten and Hoosain,
2006).
Yet even when women do leave to stay in a shelter, or with family members, they
may ultimately return to their abusive partners because they have nowhere else
to go when their allotted time in the shelter has lapsed, or overcrowding in
family members’ homes becomes unbearable (Mathews and Abrahams, 2001). This is
how a police officer expressed his frustration with
this absence of alternatives:
In May we had a domestic violence case and the complainant was taken to a
shelter. But they can only stay at the shelter for three months. It is four
months since we helped the complainant and her case is still not dealt with by
the courts. It is not finalized. This woman is out of the shelter and has moved
into the home where the respondent is because she has nowhere else to go.
(Quoted in Parenzee et al 2001: 84).
Women who cannot afford any form of accommodation are at
risk of becoming homeless. The extent of abused women’s homelessness is
however, often disguised. While women are more likely to move between family,
friends and shelters in their search for accommodation, some do literally end
up sleeping on the streets. This too places women at risk of violence. Dladla
et al’s interviews (2004) with 28 homeless women living in transitional housing
schemes and the various abandoned buildings dotting inner-city Johannesburg,
found that some women had entered into relationships specifically to secure
accommodation, as well as their personal safety. While some of these women had
been moderately and even severely injured by their partners, they nonetheless
saw their partners as protecting them from other men in the homeless community.
As one participant observed, capturing this perception:
I think they [other men in Drill Hall] do this to us [swear and
threaten] because we are older women and do not have the protection of male
partners [6]
Habitable housing
Many women are not physically safe
in their homes. A 1997 community-based prevalence study conducted in
three provinces found that 27% of women in the Eastern Cape, 28% of women in
Mpumalanga and 19% of women in the Northern Province had been physically abused
in their lifetimes by a current or ex-partner[7].
The same study also investigated the prevalence of emotional and financial
abuse experienced by women in the year prior to the study. This was found to
have affected 51% of women in the Eastern Cape, 50% in Mpumalanga and 40% in
Northern Province (ibid). A study of 1 394 men working for three Cape
Town municipalities found that approximately 44% of these men were willing to
admit to the researchers that they abused their female partners. At its most
extreme, domestic violence also results in women’s deaths. Approximately half
of all South African women murdered in 1999 were killed by their intimate
partners, translating into a prevalence rate of 8.8 per 100 000 of the female
population aged 14 years and older - the highest rate yet reported by research
anywhere in the world [8]
In addition, the design of houses and housing settlements also plays an
important role in reducing violence against women and
increasing their sense of personal safety. Interviews with women in Gauteng
about their experiences of public housing highlighted the need for houses to be
designed with two doors instead of one. Women pointed out that it was made more
difficult to flee an abusive partner when there was only one door serving as
both exit and entrance.
Research on violence against women in public housing estates
in the USA suggests that how public housing developments are managed and run is
another factor affecting the occurrence of domestic violence[9].
The study conducted amongst homeless women in Johannesburg’s inner-city points
to similar conclusions. The women in this study who lived in those homeless and public housing communities characterised by
extremes of poverty, social instability, violence and tenure insecurity
reported higher levels of domestic violence and abuse than those women living
in more settled environments. The two most fragmented communities had also
acquired enough of a reputation for violence that, according to the
respondents, neither the police nor the emergency medical services were willing
to respond to calls for assistance. By contrast, in one of the transitional
housing developments, which was a much more stable residence with more security
and a structured internal management system in which residence rules were
generally enforced, respondents reported overall lower levels of inter-personal
violence. These factors, coupled to the suggestion of more economic security
amongst the households of the women respondents, could explain the lower
reported levels of domestic abuse in this particular residence (Dladla et al
2004: 35).
Accessible housing
Women generally have been subject to discrimination
on a variety of grounds including gender, race and socio-economic circumstances
(to name but a few), as well as in a range of spheres, including the workplace,
political realm and the family. Domestic violence, which causes considerable
hardship, both materially and emotionally, may further compound women’s
disadvantage – particularly where it contributes to women’s impoverishment.
small-scale, exploratory study showed how in some women’s relationships,
abusive partners took women’s money and property from them, and also prevented
women from seeking or maintaining employment[10].
Those men who refused to uphold their duty of support also effectively created
two households under one roof: one occupied by women and their children in
which they might be denied adequate shelter, nutrition and health care; and
another for the man in which he maintained himself. Such women are placed in
the invidious position of having to choose between greater personal safety,
along with homelessness and destitution, or dependence on others; or violent
and dangerous personal circumstances - but with some degree of economic and
material support for themselves and their children. Because this group of women
is effectively both destitute and homeless when displaced or forced from their
homes by domestic violence, they ought be prioritized in relation to housing
and other forms of social and material support.
South Africa’s housing policies do not discriminate against women and are
explicit in their rejection of such discrimination. However, there is some
suggestion that those tasked with applying policy may take a discriminatory
approach towards women’s property rights. The national housing subsidy database
identifies many women, along with their male partners, as having benefited from
this subsidy. However, those responsible for recording ownership of the house
have been known to record it under the name of the male partner alone. Should
the relationship come to an end, then such women will have no legal right to
the house, as well as being ineligible for any further subsidies[11]
Conclusions
It is clear that domestic violence can frequently
disrupt women’s housing and shelter needs.
Although the Domestic Violence Act does contain provisions that seek to
protect women in abusive relationships from homelessness, these are not being
effectively used and are ineffective in protecting the long term housing needs
of women in abusive relationships. The provision of social housing to these
women will go a long way to ensuring not only their housing rights, but also
protecting them from further violence.
[1] Paragraph 27, Principle 1, Habitat Agenda, 1996
[2] Vetten, L. and
Hoosain, R. (2006). Money, money, money: An exploratory study of the
economics of abuse. CSVR Gender Programme, Policy Brief No. 04, July 2006.
[3] Artz, L. (2003). Magistrates
and the Domestic Violence Act: Issues of Interpretation. Institute of
Criminology
[4] Ross, F. (1996). “
“Vat jou goed en trek…” The effects of domestic violence on domesticity
in an informal settlement” in Lorraine Glanz and Andrew Spiegel (eds). Violence
and Family Life in a Contemporary South Africa: Research and Policy Issues.
Pretoria: HSRC Publishers
[5] Parenzee, P. and
Smythe, D. (2003). Domestic Violence and Development: Looking at the Farming
Context. Institute of Criminology, University of Cape Town: South Africa.
[6] Dladla, J.,
Hargreaves, S., Greenberg, S. and Vetten, L. (2004). “That Place is
kwaMyamandawo”: Fear and Survival Startegies Among Homeless Women Living in
Inner-city Johannesburg. Johannesburg: Centre for the Study of Violence and
Reconciliation.
[7] Jewkes, R.,
Penn-Kekana, L., Levin, J., Ratsaka, M. and Schrieber, M. (1999). “He must
give me money, he mustn’t beat me”: Violence against women in three South
African Provinces. Pretoria: Medical Research Council.
[8] Mathews, S.,
Abrahams, N., Martin, LJ., Vetten, L., van der Merwe, L. and Jewkes, R. (2004).
“Every six hours a woman is killed by her intimate partner”: A National
Study of Female Homicide in South Africa. MRC Policy brief no. 5, June
2004.
[9]
Raphael, J. (2001). ‘Public Housing and Domestic
Violence’ in Violence Against Women, Volume 7, Number 6
[10] Vetten, L. and
Hoosain, R. (2006). Money, money, money: An exploratory study of the
economics of abuse. CSVR Gender Programme, Policy Brief No. 04, July 2006.
[11] Charlton, S.
(2004). An Overview of the Housing Policy and Debates, Particulalrly in
Relation to Women (Or Vulnerable Groupings). Johannesburg: Centre for the
Study of Violence and Reconciliation.