Dire poverty and the shortage of affordable housing drive people to live in unsafe conditions. The evidence does not support the idea that criminal syndicates have “taken over” or “hijacked” occupied inner city buildings. These are two of the most significant findings of the Commission of Inquiry into Usindiso Building.
On Thursday, 4 September 2025, Premier Lesufi released the findings of Part (a)(ii), colloquially referred to as Part (ii), of the Commission of Inquiry. SERI commends both the Commission and the Premier on the release of this report. The recommendations, if implemented, have the potential to change the arduous lives and often dangerous circumstances of people who call Johannesburg’s inner-city home.
The Commission report overturns a commonly held, and widely publicised, characterisation of ‘hijacked buildings’, which criminalises people who have no other choices:
“… There appear to be undertones or innuendos that reference the bad buildings as “hijacked,” as though the occupiers are the hijackers of the buildings. To the extent that the term may connote any criminality on the part of the occupiers, it must be avoided. The City, including political office bearers, are discouraged from using the word “hijacked” in relation to these buildings, which is considered to be pejorative.” [para 1709]
In finding that the widespread assumption of large-scale “hijacking” of inner-city buildings is misplaced, the Commission reports that only 5.74% of properties show alleged rent collection by non-owners. Instead, it points to poverty and the shortage of affordable housing as the drivers leading people to live in unsafe living conditions.
“… (t)he initial presumption that all problematic inner-city buildings are "hijacked" by criminal syndicates is not entirely supported by the facts. Instead, many properties are occupied by residents driven by dire poverty, not necessarily by illegal landlords.” [para 1667]
The report highlights key lessons and makes several additional recommendations, including that the City should adopt a coherent plan to address homelessness, including a recalibrated Inner City Housing Implementation Plan (ICHIP) that incorporates positive outcomes from the Bad Buildings Strategy. It further recommends the immediate provision of basic services, including refuse collection in bad buildings, and investment in infrastructure to support the wider implementation of the Expanded Social Programme (ESP).
“There is no provision of basic services, such as water, electricity, sanitation, refuse removal. We recommend that these basic services must be provided by the City to the bad buildings immediately” [para 1684]
In addition, the Commission calls for sustained education campaigns to highlight the dangers of using flammable materials, and for budgets for Temporary Emergency Accommodation (TEA) and affordable social housing to be reviewed to ensure that resources are directed toward durable, long-term solutions.
“It is unconscionable, almost 30 years after the Constitution was made law, that the quest for proper and affordable housing is growing without any sign of abating. The City is encouraged to re-examine the budget allocated for TEA as well as affordable social housing.” [para 1692]
We believe that additional capacity from the Presidency and the Minister of Human Settlements, in addition to the Premier’s role and involvement, is essential to secure effective implementation. Without proactive intervention, we fear that these recommendations will remain unfulfilled, as has been the case with Part (i).
Sunday, 31 August 2025, marked two years since the fire at the Usindiso Building in Marshalltown. The fire claimed the lives of 76 people, including 12 children, and left dozens of people severely injured, destitute, and displaced. Several bodies are unidentified and are likely to be buried as paupers. The report and recommendations for Part (i) were made public in May 2024. That report made several key recommendations aimed at addressing these injustices. In this open letter, we want to emphasise Premier Lesufi’s announcement that a joint implementation committee would be established to ensure follow-through. We urge Premier Lesufi to set up this committee and to be inclusive regarding the composition of this committee, including organised occupier committees. As noted in the recommendations of the Commission, there is evidence that:
“… where the occupiers were able to form committees, there was greater co-operation between the City officials… Occupiers of the bad buildings should be encouraged to form a platform of dialogue and exchange to address any challenges that may arise”.
The fire struck at the heart of South Africa's housing crisis, particularly in Johannesburg's inner city. The Commission's recommendations provide a clear pathway to prevent future tragedies, but only if they are properly implemented.
- Contact details:
Edward Molopi, SERI senior communications and advocacy officer: Edward[at]seri-sa.org / 082 590 9638. - Lauren Royston, SERI director of research and advocacy: Lauren[at]seri-sa.org / 063 668 3737.
- Download the press statement here.