Usindiso tragedy: City of Joburg ignores accountability as mayor eyes site for offices

The City of Johannesburg appears poised to evade accountability for the Usindiso Building tragedy that claimed 76 lives in August 2023. Despite damning findings from the Khampepe Commission of Inquiry, which held the city and its entities responsible for the devastating fire, little has been done to implement the report’s recommendations.

Retired Constitutional Court Justice Sisi Khampepe. (Photo: Gallo Images / OJ Koloti)

Seven months after the release of the commission’s report, there has been no public acknowledgement or action – not even the demolition of the building or the erection of a commemorative plaque to honour those who perished, as recommended by the Khampepe Inquiry.

Instead, Mayor Dada Morero has reportedly scouted the Usindiso building as a potential site for his new offices. In an interview with eNCA, Morero said the move came about from a decision on the rejuvenation of the inner city.

“We thought it’s important that we, especially the executive mayor and his mayoral committee, that we occupy a building right at the centre of the problems in the inner city so that we can daily experience some of the challenges that are experienced by many there.

Johannesburg Mayor Dada Morero. (Photo: Gallo Images / Luba Lesolle)

The decision was made “with a view that our actions to ensure that we reclaim the inner city and make it a better place once more. That is why we thought we can start at Usindiso to renovate and occupy the building. Hopefully as per the indications between June and July 2025,” said Morero.

Alternative office space

In 2023, it was revealed that the City of Johannesburg sought alternative office space when the Metro Centre was temporarily closed after a fire. What was initially framed as a temporary closure has now stretched to over a year.

News24 reported that multiple reports, dating back to 2019, had been presented to the council but were ignored by previous administrations. These reports highlighted severe structural, mechanical and electrical concerns, ultimately concluding that the Metro Centre was uninhabitable.

Read more: City cuts off electricity and water to Joburg mayor’s expensive leased office — because of non-payment 

The move has drawn widespread criticism, with many questioning the ethics and priorities of the city’s leadership. Activists and political opposition alike see this as emblematic of a broader disregard for accountability and justice.

‘Lives of the poor don’t matter’

“It is part of the colourlessness of the elite and the contempt for the lives of the poor,” said Mametlwe Sebei, a member of the Marshalltown Fire Victims Justice Campaign.

“If it was well-to-do people who had died in that building, there would be consensus that you can’t just put concrete over that and move on like nothing happened. But because it’s poor, black, working-class people, their lives don’t really matter, in [the city’s] view.”

Sebei’s scathing critique underscores a pattern of systemic neglect. According to him, there has been no urgency to address the core issues that led to the fire, such as the state of dilapidated buildings across Johannesburg.

“Not only can [the city] turn it into just another office building, but the lives lost are not even worth commemorating. They won’t even erect a plaque. It’s about burying the memory and moving on,” Sebei said.

Read more: Lest we forget: lessons unlearnt, actions undone one year after the deadly Marshalltown fire

Opposition raises red flags

The Democratic Alliance (DA) has condemned Morero’s plans as “deeply disturbing”.  A party statement highlighted the mayor’s misplaced priorities:

“This will no doubt come after an extensive and expensive renovation and luxurious upgrade. This is despite the loss of 76 innocent lives in this building fire, and scathing findings in the Judge Khampepe report.

“The executive mayor and his executives have yet to act on recommendations. We believe that the mayor’s priorities are completely misplaced. The DA will reject and resist this vanity project for Morero, starting with probing questions about the plan and cost for this project.”

Ongoing struggles of survivors

Survivors of the fire have criticised the lack of support. Many of them remain displaced and live in precarious conditions. Survivors housed in temporary accommodations like the Shalazi informal settlement in Denver have faced unsafe environments and struggles to access basic services.

Others have returned to the inner city, citing proximity to work despite the risks, while their children have been out of school for months, as the Gauteng Division of the High Court in Johannesburg heard last month.

Read more: Precious little has changed, say Marshalltown fire victims one year after the deadly tragedy

Bodies lined up in the Johannesburg CBD after the Usindiso fire tragedy on 31 August 2023. (Felix Dlangamandla)

For many survivors, the trauma of the Usindiso fire persists in unimaginable ways. Mike Ngulube, who lost his wife and 15-month-old daughter in the tragedy, spent six months in intensive care. Despite learning of the repatriation of his wife’s body to Malawi, the whereabouts of his daughter’s body remains remain uncertain.

“A lot of bodies were mixed up and buried by the wrong families,” said Sebei.

“Even where DNA confirmed mismatches, the city has not taken responsibility to exhume and rectify these mistakes. It’s a long battle to fight.”

The Khampepe Commission: A toothless exercise?

Established on 13 September 2023, the Khampepe Commission was tasked with investigating the causes of the fire and making recommendations for accountability. However, the commission lacks enforcement powers, leaving its findings at the mercy of political will. Critics argue this renders the process ineffective.

“Commissions like these are not appointed to reveal the truth because the people who appoint them are often the culprits,” Sebei said.

“The city was found guilty, but guilt without liability is meaningless. We are still assisting families in pursuing legal action.”

The commission recommended the immediate demolition of the Usindiso building and the creation of a memorial to honour the victims. However, these recommendations have yet to materialize, leaving many to question whether the inquiry was merely a box-ticking exercise.

According to Thembekile Graham, the commission’s secretary: “As it stands, the provincial proclamation dated 10 July 2024 sets the commission’s final day of work as 31 January 2025. Once the commission completes its work, the immediate next steps will involve drafting an action plan to address the issues raised in the inquiry.

“The timeline for implementing these measures and other related matters are best addressed by the premier after the final report has been submitted to him and his office.”

Broader implications

The Usindiso tragedy highlights a housing crisis that extends beyond Johannesburg’s inner city. Across South Africa, thousands live in unsafe, overcrowded buildings due to a lack of affordable housing options. The government’s failure to address this crisis, coupled with slow rates of new housing development, only exacerbates the problem.

Sebei called for the implementation of a public housing emergency programme to address the underlying issues.

“The poor aren’t going to get out of this problem on their own. Most can’t afford mortgages or proper rent. The housing crisis is growing daily, and the rate of new housing construction is far from adequate.”

Read more: City of Joburg’s bid to provide emergency accommodation highlights housing crisis

Unanswered questions

Daily Maverick asked the City of Johannesburg for comment but had received no response by the time of publication. Key questions remain:

1. Why is the Usindiso Building being considered for mayoral offices despite the commission’s recommendation for its demolition?


2. What is the city’s stance on implementing the Khampepe Inquiry’s recommendations?


3. Why has the city failed to address the survivors’ housing and memorialisation needs?


4. What measures are being taken to prevent future tragedies in unsafe buildings?

Honouring the victims

As the calls for accountability and justice continue, we must also remember the 76 lives lost in the Usindiso fire. Among them were mothers, fathers, and children whose names should never be forgotten.

The victims deserve more than silence. They deserve action, justice, and the recognition of their humanity. For now, the City of Johannesburg’s inaction speaks volumes about whose lives are valued in South Africa’s urban landscapes.

Remember:

1. Lehlohonolo Pooe


2. Bandile Khethukuthula Ngcobo


3. Bizwick Kaunda


4. Lukia Mendule


5. Cecilia Lakpen


6. Melitha Mhlebhi


7. Amanda Rethabile Mathengana


8. Nkosilathi Masuku


9. Muhlethule Mtholeni Mkhize


10. Ajibu Mbwana


11. Said Mohamed Kisalazo


12. Oscar Moses


13. Mohamed Ishmil Amiri


14. Asimbonge Junior Magwaza


15. Ibrahim Mahomed Kasalazo


16. William Mbwana


17. Puseletso Thato Kekana


18. Umari Time


19. Whitiman Time


20. Sibonelo Mhlungu


21. Kendall Masego Kekana


22. Kaylene Motlotlegi Kekana


23. Mlambo George Dlamini


24. Enipher Phiri


25. Thandazani Somandla Zulu


26. Phumla Priscila Ntintili


27. Charles Elisa Mjema


28. Sinikiwe Seme


29. Wadzanai Kasu


30. Anashe Kasu


31. Kasu (First name not listed)


32. Nelisiwe Nokwethemba Ntshangase


33. Kaise Mbwana


34. Zamokuhle Xolani Khumalo


35. Ntombiyenhlanhla Ngubane


36. Nomusa Sibanda


37. Thando Sibanda


38. Kiyati Diamond


39. Esperanca Machacule Gabriel


40. Betuel Xadredre Milambo


41. Smart John


42. Juliet Moreblessing Musonza


43. Isumaela Lanjesi


44. Senzeni Sibanda


45. Dumisani Ndlovu


46. Yassin Time Ennoconent


47. Zamokuhle Khumalo


48. Joice Moffati


49. P.M. Mkhize


50. Joyce Beatrice Banda


51. Memory Banda


52. Freddy Josinto Haratio


53. Njabulo Sandiselo Gumede


54. Nokwanda Zandile Khanyile


55. Bongiwe Gloria Nkomo


56. Busisiwe Cecilia Myeza


57. Tlalane Buthelezi


58. Banele Buthelezi


59. Thabiso Nongoma


60. Loveness Mwabwanjila


61. Major Square


62. Cathy Majidu


63. Saidi Suwedu

These are the names of those who have been identified by Seri, with acknowledgement of the 12 names who are not yet known.

Daily Maverick has previously published tributes to people who lost their lives in the fire. Read our tribute to Melita Mhlebi here, Dancehall sensation DJ Snagga T here, and Tlalane and Banele Buthelezi here. DM