9 Principles For Social Housing

Commission Justice & Paix (“J&P”) is dedicated to the promotion of peace and justice in Mauritius. It encourages an ethical reflection on issues affecting social justice, the generic development of human beings, the progress of economic and financial systems and the utilisation of our natural resources. J&P conducted a workshop with diverse stakeholders to establish a fair and equitable social housing policy that is respectful of human rights and which instigates the long term social integration of the poorest. Nine principles have been envisaged to that effect, namely :

Principle 1 – A human right – Assistance to the poorest
Principle 2 : A home – Building a home
Principle 3 – Infrastructure – Infrastructure and amenities to create lasting communities
Principle 4 – Financial participation – Financial participation towards the cost of the house and community areas maintenance
Principle 5 – Criteria of eligibility for social housing – Eligibility of household with a monthly income not exceeding Rs10,000
Principle 6 – Social contract – An adapted and appropriate social and moral contract
Principle 7 – Social accompaniment – Consistent and sustained social accompaniment
Principle 8 – Sustainable communities – Building sustainable communities
Principle 9 – Collaborative working – Broad participation of stakeholders

Any social housing projects, falling under the corporate social responsibility funding initiative, should be guided by those principles for an integrated and constructive approach.

Foreword

In 2011, social housing and poverty eradication have been set as priority concerns by the National Empowerment Foundation (“NEF”), the governmental body regulating the national corporate social responsibility (“CSR”) programme.  The NEF released Operational Guidelines On Social Housing (2011) to that effect, exhorting all social housing projects to be compliant with those guidelines.  However, two studies performed by Commission Justice & Paix (“J&P”) and Alternet on La Valette in 2011 have identified a number of problems.

In February 2012, J&P conducted a workshop with NGOs actively involved in social housing and private sector enterprises with tailor made projects, with the aim of finding a common agreeable premise for social housing and sustainable communities.  Nine principles for social housing, which the participants felt were important criteria for social housing, emerged from the workshop.  It is imperative to ensure adequate housing conditions as they profoundly affect the daily lives and well being of the poorest.   These principles must be regarded as part of a broader social development aiming to lift the poorest and most vulnerable, placing them in a position to help themselves and their families.

At the heart of these 9 principles is a humane and a comprehensive pro-poor approach to social housing development. They set the foundation for successful social housing projects as part of CSR funding. Homeownership encourages behavioural changes and taking responsibility for one’s life and society will benefit from these behavioural changes.

For the purpose of clarity, we define the “poorest” and “vulnerable” as households earning less than Rs10,000 per month and/or having members suffering from disabilities, sickness, addiction and elderly persons. Responsible parties do not possess land and/or are squatters and/or living in slums with poor housing conditions.

 Principles for Social Housing

Principle 1 – A human right

Assistance to the poorest

Decent housing is a basic human right as stipulated in the Universal Declaration of Human Rights (Article 25.1), of which Mauritius is a signatory:

“Everyone has the right to a standard of living adequate for the health and well-being of himself and his family, including food, clothing, housing and medical care and necessary social services, and the right to security in the event of unemployment, sickness, disability, widowhood, old age or other lack of livelihood in circumstances beyond his control.”

In paragraph 9 on page 12 of Volume 1 of its Report, the Truth and Justice Commission states:

9.  Housing

The Commission recognises that successive administrations have provided low-cost housing to those who need it most.  However, it is clear that many of the citizens of Mauritius are living in degrading circumstances.  Some well-intentioned schemes have failed and some families are living in overcrowded, unkempt housing, and many in absolute squalor.

The Commission recommends that immediate plans be introduced to audit existing housing estates with a view to upgrading and, where necessary, to embarking on new decent (not low-cost) housing projects.

Many housing estates have buildings constructed with asbestos, a toxic substance which is damaging to health.  These houses should be pulled down on a phase to phase basis and other units constructed with proper material.  Many housing estates, now known as residences, are devoid of kindergarten, playgrounds and some are without community centres.  These shortcomings should be addressed.”

Providing decent houses to the most deprived, mainly composed of descendants of ex-slaves, is an act of social justice and reparation towards those who suffered the atrocities of slavery and its legacy of hardships.  The Truth and Justice Commission in paragraph 27 on page 21 of Volume 1 of its Report further states:

“27. Reparations be provided to poor individual families in terms of social reparations such as housing and education so that this community and its descendants are better able to create a more stable social and economic existence going into the future.”

Annexure 1 “Recommendations – Housing estates and cités and related issues” highlight recommendations from the Truth and Justice Commission specifically pertaining to social housing and the need for social reparation towards the poorest.

We have a duty to assist the most vulnerable in achieving their basic needs.  We need to break with the logic of leaving the poorest to their problems and sorry fate, dismissing them as being responsible for their precarious situation because of laziness.  Deprived families have legitimate rights to social protection and should not be stigmatised as ‘des assistés’. Social housing is part of the solution to the wider strategy of eradicating extreme poverty as recommended in the UN Millennium Development Goals for 2015, which has been ratified by Mauritius.

Principle 2 : A home

Building a home

A home is a basic need allowing its occupants to carry out day-to-day human activities, such as resting, preparing food, cleaning and washing, providing for sanitation, education, healthcare and a place to socialise and to fulfil their aspirations.

The rehabilitation of the most deprived starts with living in a home, a suitable place which they feel they belong to.  Good housing condition is an active lever enabling the poorest to escape from the vicious cycle of poverty and engage in the virtuous cycle of improving their standard of living and their family’s future.

The house should (1) be of sound housing construction adapted to our tropical climate and aligned with the Maurice Ile Durable (“MID”) project, (2) be of a good design respectful of the Mauritian culture, (3) allow for progressive enhancement according to the need for space and financial means and (4) accommodate family size.  This last criteria is fundamental to avoid promiscuity, overcrowding and other related social ills that currently plague families living in slums and/or poor housing conditions.  In the effort to provide not simply a house but decent living conditions, the house should be adjusted for family size as shown in Table 1. 

Table 1. Family size and house type 

Family size	House type
A couple	One bedroom
Couple with one child	Two bedrooms
Couple with more than one child	Three bedrooms where girls and boys siblings have different bedrooms

Standard house sizes should indicate the minimum area, and not the maximum, and should reflect the composition of the family.

 Principle 3 – Infrastructure

Infrastructure and amenities to create lasting communities

To promote community integration, it is imperative that community infrastructure be completed and functioning before families begin to settle in the new village.  Community infrastructure includes a communal space for community gathering and for trade (SMEs and craft), sports facilities, playgrounds, kindergartens, community centres and green spaces.  These infrastructures would trigger the process of becoming economically autonomous, enable social integration and allow creation of neighbourhood bonds.  Trading activities taking place among neighbours create relationships, a network, community cohesion and interdependence.

Escaping the poverty trap relies on the access and proximity to key regional infrastructure and services such as public transport, nursery, pre-schools, schools, shops, healthcare centres, religious institutions and leisure facilities.  The site should allow easy integration with the wider community rather than being isolated from mainstream society.

Principle 4 – Financial participation

Financial participation towards the cost of the house and community areas maintenance

“Having a stake in a home is both a privilege and a responsibility” (The Centre for Social Justice, 2008).  Families benefitting from social housing should participate towards the cost of the house and the maintenance of community areas.  This would enable the social housing occupants to value the house, to take care of it, to protect their ownership position, encourage constructive responsible citizenship and altogether to regain their dignity.

Each household income and budget should be evaluated on a qualitative instead of a quantitative basis to determine the amount of the monthly payment and the ability for timely disbursement for seasonal workers.  As a general rule, each household should contribute towards one third of the total cost (excluding the cost of land and infrastructure).  A debt collection management system should be in place to assist defaulters so that debt does not accumulate, engulfing families in arrears.

A community infrastructure contribution would allow maintenance of communal areas and amenities thus keeping the village clean and welcoming.

Principle 5 – Criteria of eligibility for social housing

Eligibility of household with a monthly income not exceeding Rs10,000

The eligibility criteria stipulating that “beneficiaries should have a monthly income not exceeding Rs.5,000 (excluding social aid)…” (National Empowerment Foundation, 2011) should be increased for Scheme 1 and Scheme 2 to reflect the composition and needs of the family and amended to remove its all or nothing aspect, i.e. a family with a monthly income of Re 1 more than the threshold gets nothing.

Beneficiaries should be identified by a committee composed of NGOs, NEF and CSR coordinators.  Each candidate household should be assessed on a qualitative and case basis for more equity.  With a more comprehensive approach, special cases can be better assessed.  For example, a household consisting of a widow with 3 children with a monthly income of Rs5,500 is not equivalent to a widow with no children with a monthly income of less than Rs5,000.

Principle 6 – Social contract

An adapted and appropriate social and moral contract

A social contract is a good way of making families aware of their citizenship responsibilities. The social contract, as a moral contract, should be designed with an empowerment approach to ensure a quality of life.  It should (1) promote initiatives and incentives, such as encouraging the practice of sports, arts and crafts, setting up SME’s, school attendance, keeping a regular job, instead of concentrating on what is not allowed, (2) encourage responsibilities instead of using prohibition (3) be reflective of the way of living and mentality of the poor, such as the sense of hospitality and sharing, instead of applying ‘a middle class’ schema, which is more individualistic and (4) be protective instead of alienating vulnerable families.

The social contract should be prepared in a participative approach involving (1) the families, (2) experienced NGOs, (3) resource persons / professionals having the relevant expertise and experience in social housing processes and programmes and (4) the NEF.  It should respect human dignity and be mindful of the values of the families.  The implementation of the social contract should be in a collaborative approach whereby a progressive rigour is applied and keeping a constant dialogue with families.

Principle 7 – Social accompaniment

Consistent and sustained social accompaniment

Families should be prepared for the life-changing event of house ownership.  A consistent and sustained social accompaniment should be provided before, during and after to assist the families.

At least 6 months prior to moving in their new home, families should follow the Life Skills Management programme to psychologically prepare and equip themselves to be actors of their own integration where the house is only an incentive for constructive behavioural changes.  As the families settle in the new village, social workers should be present to facilitate their arrival and help them to settle in.  The social workers should be working in close proximity with the families, facilitating an autonomy process for community integration.  They should follow up the work of previous NGOs to know and understand the family history so as to enable them to monitor the progress of the families and understand their difficulties.

Social accompaniment is a hand holding process whereby the families are accompanied, supported and coached during this transition period until they are rehabilitated.  For the most vulnerable families, a continuous personalised service, over a long time horizon together with coaching, is necessary.  Such accompaniment requires dedicated and properly qualified social workers to enliven and support the families.  A capacity building programme should be developed in order to empower the social workers so that the accompaniment process is accomplished in a most professional manner.

Likewise, inhabitants of villages where the social houses will be located should be accompanied to ease and encourage interaction with the new inhabitants.

Principle 8 – Sustainable communities

Building sustainable communities

Aligning with principles of urbanisation for building lasting communities, it is imperative to consider the following for neighbourhood planning:

1. Each social housing project should consists of at most 50 units
2. It should be located in a neighbourhood with diversity of income and social mix
3. It should be located in areas with existing strengths, i.e. where work, shops, market place, community services are available, rather than in an isolated area
4. It should privilege preventative measures against expulsions such as early warning mechanisms.

Principle 9 – Collaborative working

Broad participation of stakeholders

A participative approach upholds the exchange of ideas and promotes a culture of civil society participation to achieve social inclusion.  In strengthening its efforts to work with all stakeholders, namely the beneficiary families, NGOs and the private sector, the NEF can promote this participative approach and work with all stakeholders in an open collaborative dialogue.

Because the planning of the new settlement affects the lives of beneficiary families, they should be involved in the process so that they become actors of their own social development.   NGOs and the private sector should be considered as partners as they bring in social and economic solutions and expertise.  By giving stakeholders their rightful place, social housing development becomes part of a larger democratic and inclusive project.

 To achieve this, a committee specialised in social housing should be set up where all stakeholders can participate with the NEF acting as a catalyst. Additionally, NGOs and private sector projects which offer beyond the prerequisites should be taken into consideration and benefit from the CSR funds.

 

With the participation of:

Alternet	Mr Akilananda Chellapermal
Caritas	Mrs Patricia Adèle – FélicitéMrs Christiane ChowryMrs Gilberte Hauradhur
Diocèse de Port Louis	Mrs Annick André
Ene twa pou twa	Mr Francis de la Haye
Le Pont de Tamarinier	Mrs Sylvie GravilMrs Annielle Ducray
MCB Forward Foundation	Mr Dominique LapierreMrs Maddy Enouf
Mutual Aid Association	Mr Sunil Dabeesingh
Native Habitat	Mrs Maiti Chagny
Rogers	Mrs Audrey d’Hotman de Villiers

The Centre for Social Justice, Housing Poverty From Social Breakdown to Social Mobility, 2008

Truth and Justice Commission, Volume 1: Report of the Truth and Justice Commission, 2011

National Empowerment Foundation, Part 4 – Annex 1 Operational Guidelines on Social Housing, 2011

Recommendations – Housing estates and cités and related issues

Page 12

9. Housing

The Commission recognises that successive administrations have provided low-cost housing to those who need it most. However, it is clear that many of the citizens of Mauritius are living in degrading circumstances. Some well-intentioned schemes have failed and some families are living in overcrowded, unkempt housing, and many in absolute squalor.

The Commission recommends that immediate plans be introduced to audit existing housing estates with a view to upgrading and, where necessary, to embarking on new decent (not low-cost) housing projects.

Many housing estates have buildings constructed with asbestos, a toxic substance which is damaging to health. These houses should be pulled down on a phase to phase basis and other units constructed with proper material. Many housing estates, now known as residences, are devoid of kindergarten, playgrounds and some are without community centres. These shortcomings should be addressed.

Page 25

49. TO PROVIDE ASSISTANCE TO RESIDENTS OF HOUSING ESTATES BY THE RECRUITMENT OF A NEW CLASS OF PSYCHO-SOCIOLOGISTS AND SOCIAL WORKERS

(i) and in such other areas where poverty is rampant.

(ii) A special class of trainers in small business enterprises should be appointed to support an emerging class of small entrepreneurs in the management of their ventures.

50. MORE EFFORTS SHOULD BE MADE TO GIVE SOCIAL WORK ITS PROPER STANDING, INCLUDING ADEQUATE REMUNERATION, AND TO RECOGNIZE VOLUNTARY WORK AS WORTHWHILE.

Often linked with charity work, social work and psychological and sociological support are essential elements to bring about a new mind-set in people living in housing estates and in similar milieux. Voluntary work should be encouraged among Mauritian citizens, and especially among young people.

Page 27

72. A THOUROUGH STUDY OF THE CITÉS BASED ON THE TJC STUDY OF MIVOIE.

73. SOCIAL ORGANISATION

The State should ensure that every child in the housing estate enjoys the right to a standard of living adequate for his/her physical, mental, spiritual, moral and social development.

74. HOUSING CONDITIONS

(i) The Commission recommends a full environmental and medical survey in Cité La Mivoie and other housing estates to ensure that incidences of ill-health and mortality in the Cités are not asbestos-related.

75. CHILD PROTECTION

(i) When the case is reported at the Police Station, especially at night, Officers of the Child Development Unit might take approximately 1½ hours to be at the Police Station.

(ii) Some Police Officers already start questioning the victim without prior psychological assessment and support.

(iii) Children, victims of abuse (sexual/physical/gross neglect/ill-treatment) and who are placed at shelters (NGOs) are at times placed at the RYC at a very young age, given their behavioural problems – there is a need for proper assessment and psychological intervention and close follow-up at such cases so that they get the necessary caring and supportive environment to help them grow and deal with their past history.

(iv) At times, assistance is given after many hours and, in cases where sexual abuse took place much earlier, the victim unnecessarily waits at the Police Station. The P.C.P treatment which should be carried out within 72 hours may get delayed.

(v) Children-abused-parents/other family members who ask for these children – need for more guidance with parenting and coping skills.

(vi) Posting of A TRAINED OFFICER at the Ministry’s Shelter DEALING WIIH THE PROBLEM OF overcrowded shelter.

Page 29

90. THE CURRENT APPROACH OF PROVISION OF LOW-COST SOCIAL HOUSING SHOULD BE REVIEWED.

Pages 419 to 421

12. FOR OUR CITÉS

The Commission finds:

• That authorities and the private sector need to work harder in line with various international conventions, signed by Mauritian Government, concerning health, housing, education, environmental and human rights;
• Regarding housing estates, put up by the C.H.A where 19,400 householders reside – roughly 125,000 individuals – there exists a serious problem of overcrowding. For instance, a 3-room apartment can sometimes accommodate as many as 12 individuals. Besides, many of the housing estates do not provide amenities such as playgrounds, kindergarten and do not have any community hall. This is not conducive to the welfare of the young generation who tends to be idle and demotivated.
• Certain housing estates (residences) have been constructed with asbestos, a substance known as a serious health hazard. Such houses should be pulled down on a phase by phase basis, and new apartments allocated to such residents.

THE COMMISSION RECOMMENDS:

154. A thorough study of the cités based on the tjc study of mivoie.

• that the methodology used for the mivoie study be used for the study of other cités.

155. preservation of cultural heritage of mivoie inhabitants

• The sites identified in the cultural map of Cité Mivoie to be listed as constituting the natural, tangible and intangible local heritage.
• The stories of these sites, the origins of these place names and of the local traditional knowledge should be inventoried to be passed on to the future generations.
• These sites should be listed as local heritage sites as they are an integral part of the heritage of the local residents who have lived in this region for generations.

156. family patterns and gender relations

• There is need to carry an in-depth study on the impact of slavery on the contemporary family and social problems, especially gender relations and family dysfunction.
• Sex education should be mandatory but should also promote the norm that sex should take place in intimate relationships of mutual respect and gender equality.

157. land settlement

• Democratising access to property ownership through the construction of low-cost residential developments/Morcellement for the working classes. It also implies implementing measures to protect and defend the land rights of the vulnerable groups, such as women and working-class families. The land allocated should contain sufficient space for agricultural activities with the accompanying training.

158. social organisation

• The State should ensure that every child in the housing estate enjoys the right to a standard of living adequate for his/her physical, mental, spiritual, moral and social development.
• It is the State’s obligation to take appropriate measures to assist parents in the Cités and other responsible parties to implement this right and, in case of need, provide material assistance and support programmes, particularly with regard to nutrition, clothing and housing, in accordance with the set needs of Mauritian citizens.

159. housing conditions

• The Commission recommends a full environmental and medical survey in Cité La Mivoie and other housing estates to ensure that incidences of ill-health and mortality in the Cités are not asbestos-related.
• As a solution to the problem of space in the Cité, the Government should come up with a long-term affordable housing programme for working classes. These houses should be within the financial means based on the household disposable income of individuals.
• To facilitate access to long-term affordable housing, grants and subsidised loans with monthly mortgage payments and low fixed interest rates can be proposed to working class based on the household disposable income so as to avoid foreclosure.
• However these will only work if accompanied by training and integrated in the long term into educational curriculum in schools
• There is need to develop financial and money management programmes, life-skills and leadership programmes to change the residents’ mind-set and develop a culture of money management and saving and new set of attitudes.
• Based on the approach ‘Culture as Treatment’, instead of designing self- empowerment programmes based on Western models, traditional self-empowerment programmes should be designed for the residents that are culturally sensitive and that take into consideration their social and historical background.

160. land dispossession

• In line with the various United Nations treaties, Government should promote ‘effective and democratic land, property and natural resources governance, management and practices’ including decisions on access to land, natural resources and property; land and property rights, land use, and land and property development.
• It is the duty of the Government to support citizens who do not have access to land and adequate shelter. Since market forces will not naturally alleviate the situation, land reforms should be proposed to reduce the structural inequalities and medium- and long-term measures for housing and land rights need to be put in place to support social stability.

161. child protection

• When the case is reported at the Police Station, especially at night, Officers of the Child Development Unit might take approximately 11⁄2 hours to be at the Police Station.
• Some Police Officers already start questioning the victim without prior psychological assessment and support.
• Children, victims of abuse (sexual/physical/gross neglect/ill-treatment) and who are placed at shelters (NGOs) are at times placed at the RYC at a very young age, given their behavioural problems – there is a need for proper assessment and psychological intervention and close follow-up at such cases so that they get the necessary caring and supportive environment to help them grow and deal with their past history.
• At times, assistance is given after many hours and, in cases where sexual abuse took place much earlier, the victim unnecessarily waits at the Police Station. The P.C.P treatment which should be carried out within 72 hours may get delayed.
• Children-abused-parents/other family members who ask for these children – need for more guidance with parenting and coping skills.
• Posting of A TRAINED OFFICER at the Ministry’s Shelter DEALING WIIH THE PROBLEM OF overcrowded shelter.