In the nine years since the inclusive elections of 1994, the South African government has created an international precedent in the housing field. It is widely acknowledged that, in this period, it has delivered more subsidized houses than any other country in the world. South Africa’s housing program is also one of the most diverse in the world, seeking not only to provide subsidized houses for upwards of 80 percent of the population, but also to establish a viable market for low-cost housing units, and create sustainable human settlements for low-income groups. Yet, notwithstanding these successes, many players in the housing sector are frustrated and cynical. What has gone wrong? Between August and September 2002, 17 housing practitioners were asked to convey their impressions of progress in implementing the new national housing policy since its adoption in 1994.

This paper explores their responses in an effort to understand the general frustration with South Africa’s housing process, rather than the joy that the delivery statistics would suggest. While housing practitioners broadly agreed that the policy was sound, they pointed to a number of problems that had tempered their enthusiasm. The government is aware of many of these issues, and in response has allowed the policy to evolve by interpretation in several areas, resulting in a shift in emphasis from quantity to quality; a greater emphasis on beneficiary responsibility; and the recognition of new forms of secure tenure. However, by late 2002 practitioners were still dissatisfied, raising no less than 17 different ‘most consistent problems’, and 35 separate ‘key issues and challenges. This paper explores these issues and seeks to isolate the fundamental problems underpinning them. In the process, it illustrates why there are no shortcuts to progress in implementing South Africa’s housing policy.