The South African government declared a national disaster towards the end of 2024 in response to an outbreak of food-borne illnesses. The outbreak had led to the tragic deaths of over 20 children and hospitalisation of hundreds.
Investigations by the National Institute for Communicable Diseases attributed the outbreak to hazardous pesticides such as Terbufos and Aldicarb. The pesticides, used in agriculture, have infiltrated the informal market as unregulated “street pesticides” for rat control, resulting in food contamination.
In response, the government announced several measures. One was that all food handling outlets, including informal retailers known as spaza shops, had to register with their respective municipalities. It also introduced widespread inspection of these outlets for compliance with regulations and health standards.
The measures are a step in the right direction. However, based on our research work at the Gauteng City-Region Observatory (GCRO) over the past decades, they fall short of what is required. In addition, certain aspects, such as mandatory registration and mass inspection of food outlets, may prove difficult to implement effectively.
The Gauteng City Region is a cluster of cities, towns and urban nodes that make up the economic heartland of South Africa. The Gauteng City-Region Observatory is a partnership between the Gauteng provincial government, the University of the Witwatersrand, the University of Johannesburg and Gauteng South African Local Government Association. It has been researching the development dynamics of the region since 2008, providing data-driven insights and strategic guidance to support sustainable development.
The government response to the outbreak of food-borne illnesses addresses the immediate crisis but does not address underlying factors affecting low-income settlements.
Research by GCRO has identified the underlying factors as poor infrastructure and services. Rat infestations stem from poor waste management. This is caused by inadequate public services, failing infrastructure and irregular waste collection.
Dumping, littering and burning waste worsen the public health and environmental risks, including disease transmission and pest infestations.
Based on this evidence, we conclude that the government’s response does not adequately address some of the root causes of the outbreak, due to insufficient understanding of the context. Addressing these systemic failures is not just a public health matter. It also highlights the challenges faced by these communities and emphasises the importance of supporting local economies.
Survey findings
The GCRO’s flagship Quality of Life Survey, conducted every two years since 2009, is one of South Africa’s largest social surveys. It measures various aspects such as Gauteng residents’ socio-economic dynamics, service delivery experiences, and satisfaction with government. It provides longitudinally comparable data to inform decision-making.
The survey covers various topics that have a bearing on the food-borne illnesses outbreak, like basic services, income sources and food security. According to the latest survey (2023/24), access to refuse removal and satisfaction with service delivery has declined in Gauteng.
In the 2023/24 survey, 74% of respondents reported weekly refuse removal, down from 83% in the 2020/21 period. Satisfaction with services dropped from 75% to 64% over the same period – a worrying trend since 2017/18. The survey also shows that over half (57%) of businesses in Gauteng are informal.
Household hunger has increased across ten years of the survey. More than one in ten households experience severe food insecurity: hunger, poor access to food and insufficient spending on nutritious food.
Measures to address the crisis
We now turn to the three government interventions:
Registration of spaza shops
All food handling outlets, including spaza shops, are required to register with their municipalities between November 2024 and February 2025. This is a step in the right direction, towards regulatory compliance and monitoring of the safety of goods being sold to the public. However, it might not be achievable, especially within the specified period.
There are minimum requirements for the registration of spaza shops. These include (re)zoning certificates or consent use, certificates of acceptability (health standards), approved building plans, registration with the Companies and Intellectual Property Commission, and tax clearance. However, many of these businesses operate informally and therefore lack the required documentation.
Any spaza shop that fails to register in time will be closed. This will affect livelihoods and food security, especially in low-income communities where these shops play a vital role.
Spaza shops are a way for many people to make an income, and they supply essential food items to local communities. Households buy from them for a variety of reasons: they are nearby and affordable, open for long hours and offer credit.
Inspection of food outlets
A campaign to inspect all food handling outlets, focusing on spaza shops and informal traders, is underway. Law enforcement is important to remove contaminated food from the market and prevent future outbreaks. But municipalities have limited capacity to conduct such widespread inspections and ensure compliance with health regulations and standards.
The outbreak was partly a result of municipalities’ inability to enforce the rules. If inspections had been regular and thorough, food contamination issues would have been picked up before the current crisis.
The focus on punitive measures, such as closing businesses and prosecuting owners, does not help them to register, reopen and comply. It might harm the informal economy, reflecting a broader trend of criminalising the poor.
Joint fund to support township and rural businesses
Government has set aside R500 million (US$26 million) to support township and rural enterprises, including spaza shops. The fund is intended to improve business infrastructure and build capacity.
But in our view, its eligibility criteria require reconsideration. To qualify, a business owner must be a South African citizen, their business must be registered in the municipality and they must have have valid tax registration. The majority of businesses in these settlements are informal and would not meet the requirements, so the criteria exclude many that need support.
Next steps
The government’s response to the food-borne illness outbreak focuses on the immediate crisis and related symptoms. It overlooks underlying structural factors. The formalisation and compliance of informal businesses may contribute to the solution but will not tackle the root causes.
These include essential infrastructure and services such as water, sanitation and waste management facilities.
Mamokete Modiba, Researcher, Gauteng City-Region Observatory
Samiksha Singh, Researcher, Gauteng City-Region Observatory
