ABAQULUSI MUNICIPALITY
ABAQULUSI MUNICIPAL HOUSING
PLAN
FEBRUARY 2009
FFIINNAALL RREEPPOORRTT
Prepared by:
Vuka Planning Africa Inc. PO Box 1277 Cresta, 2118
Tel: 011 – 475 3423 Fax: 011 – 475 3962
Contact: Henri Cullinan
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TABLE OF CONTENTS
ABBREVIATIONS USED IN THIS DOCUMENT...... 3 IN THIS HOUSING SECTOR PLAN … ...... 4 1. INTRODUCTION ...... 5 1.1 STATISTICAL OVERVIEW ...... 5 1.2 URBAN GROWTH TRENDS ...... 7 1.3 ABAQULUSI’S HOUSING REALITY ...... 7 1.4 ABAQULUSI’S ENGINEERING AND INFRASTRUCTURE REALITY ...... 10 2. CONTEXTUALISATION ...... 17 3. HOUSING WITHIN THE CONTEXT OF THE ABAQULUSI IDP ...... 20 3.1 ESTABLISH A HIERARCHY OF NODES ...... 20 3.2 DEVELOPMENT OF RURAL SERVICE CENTRES ...... 21 3.3 FORMALISE EMERGING URBAN SETTLEMENTS ...... 21 3.4 PROVISION AND UPGRADING OF BASIC INFRASTRUCTURE ...... 22 3.5 SUPPORT LAND REFORM PROJECTS AND SECURITY OF TENURE ...... 22 3.6 PROMOTE A VARIETY OF HOUSING TYPOLOGIES AND DENSITIES TO PROVIDE FOR ALL DEMAND CATEGORIES ...... 22 3.7 SYNTHESIS ...... 22 4. METHODOLOGY ...... 23 4.1 SETTLEMENT PATTERN ...... 23 4.2 SETTLEMENT HIERARCHY ...... 24 4.3 SETTLEMENT TYPES ...... 24 4.4 VISIONING METHODOLOGY ...... 25 4.5 STRATEGY FORMULATION METHODOLOGY ...... 25 5. THE ABAQULUSI HOUSING VISION ...... 27 5.1 PURPOSE AND PROCESS ...... 27 5.2 THEMES AND POLICY SHIFTS ...... 28 5.3 THE NATIONAL HUMAN SETTLEMENT PERSPECTIVE ...... 29 5.4 STAKEHOLDER INPUTS ...... 30 5.5 RESULTS FROM THE SOCIO-ECONOMIC SURVEY ...... 31 5.6 WATER SERVICES AND SUSTAINABLE HOUSING DELIVERY ...... 34 5.7 CONSIDERATION OF OTHER DEVELOPMENT CONSTRAINTS ...... 35 5.8 PROPOSALS TO GUIDE VISION BUILDING ...... 35
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5.9 VISION COMPONENTS ...... 36 5.10 STRATEGIC OBJECTIVES ...... 39 6. ABAQULUSI HOUSING DEVELOPMENT STRATEGY ...... 40 6.1 PURPOSE AND PROCESS ...... 41 6.2 HUMAN SETTLEMENT PROGRESSION PLANS ...... 43 6.3 STRATEGY 1: LAND IDENTIFICATION AND LAND RELEASE STRATEGY .. 45 6.4 STRATEGY 2: PLANNING AND SERVICING OF IDENTIFIED LAND ...... 48 6.5 STRATEGY 3: HOUSING DEVELOPMENT MIX ...... 53 6.6 STRATEGY 4: TENURE ALTERNATIVES ...... 56 6.7 STRATEGY 5: HOUSING FUNDING OPTIONS ...... 59 6.8 STRATEGY 6: INSTITUTIONAL PROPOSALS ...... 66 7. CONCLUSION ...... 71
LIST OF ANNEXURES
ANNEXURE A: ABAQULUSI SPATIAL DEVELOPMENT FRAMEWORK ANNEXURE B: LAND PARCEL ASSESSMENT ANNEXURE C: PLANNED PROJECTS SHEET ANNEXURE D: SPATIAL REPRESENTATION OF HOUSING PROJECTS
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ABBREVIATIONS USED IN THIS DOCUMENT
AOC - Aircraft Operating Company CBD - Central Business District CSC - Community Service Centre DBSA - Development Bank of South Africa DFP - Development Framework Plan DLTGA - Department of Local Government and Traditional Affairs DOH - Department of Housing DOT - Department of Transport DWAF - Department of Water Affairs EIA - Environmental Impact Assessment EMP - Environmental Management Procedure EXCO - Executive Committee GGP - Gross Geographical Product GIS - Geographical Information System HDMU - Housing Delivery Management Unit HIV/AIDS - Human Immunodeficiency Virus/Acquired Immunodeficiency Syndrome IDP - Integrated Development Plan KZN - KwaZulu-Natal LED - Local Economic Development LUMF - Land Use Management Framework LUMS - Land Use Management System MEC - Member of the Executive Council (Local Government and Traditional Affairs) MIG - Municipal Infrastructure Grant MTCF - Medium-term Capital Framework NHBRC - National Home Builders Registration Council PMS - Performance Management System PTO - Permission to Occupy RDP - Reconstruction and Development Plan RSC - Regional Service Centre SEA - Strategic Environmental Assessment SETAs - Sector Education and Training Authorities. SDF - Spatial Development Framework SDP - Site Development Plan SMME - Small, Medium and Micro Enterprise TLC - Transitional Local Council VIP - Ventilated Improved Pit Latrine WSA - Water Services Authority WSDP - Water Services Development Plan WTW - Water Treatment Works ZDM - Zululand District Municipality
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IN THIS HOUSING SECTOR PLAN …
This Housing Sector Plan is aimed at providing a framework within which the Abaqulusi Municipality can start with the awesome task of addressing the housing need of their communities and thereby meeting their obligation of providing shelter for those in need. This is a working document that will guide the Abaqulusi Municipality and other role-players to set in motion the process of housing delivery. By working step-by-step through the various sections of this Housing Sector Plan, the Abaqulusi Municipality will be able to:
. Define the role of the Abaqulusi Municipality in the delivery of housing. . Quantify their housing need. . Identify the structures that need to be created to effectively address their housing need. . Identify housing projects, linked to actual needs, available resources and the responsibilities of all relevant role-players. . Set in motion the process of effective housing delivery. . Identify partners and sources of funding that the Abaqulusi Municipality can utilise in their plight to address their housing need.
This Housing Sector Plan will highlight the current realities that the Abaqulusi Municipality is faced with as far as housing need and housing backlogs are concerned. This is followed by the strategies that the Municipality can use in addressing this need and backlog. Most importantly, at the end of each strategy the actions that need to be taken by the Abaqulusi Municipality to effectively implement this Housing Sector Plan are highlighted. These are presented as Strategic Recommendations at the end of each Housing Development Strategy in Chapter 6 of this document.
Remember, this is a Housing Sector Plan only, involving a step-by-step approach as indicated below. Delivery of actual houses is ultimately an action that involve the Municipality and those responsible and accountable for this overwhelming task, taking these steps.
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1. INTRODUCTION
Housing stands out as one of our government‟s great achievements. However, there is an increasing awareness of the need to build sustainable settlements and gradually moving towards integrating the concept of sustainability into housing delivery and settlement management.
Government‟s responsibility is to provide healthy, safe and enduring living environments in South Africa. The new focus of housing is on the long-term sustainability of the environments we create, particularly on:
. Delivering good quality housing. . Delivering vibrant living environments rather than seas of housing, i.e. to deliver housing that is well located and integrated with access to economic and social opportunities. . Encouraging greater private sector and individual household participation in housing delivery. . Ensuring that housing is affordable, now and in the future. . Ensuring that the living environments we create enhance the natural environment.
Housing can become the catalyst for creating sustainable human settlements. Many other and related issues and sustainability challenges can be addressed simultaneously through housing delivery and management. In effect, the housing challenge ceases to be a matter of the number of housing units delivered each year. Instead, housing delivery and habitation are translated into a vehicle to achieve multiple goals and outcomes over and above the basic requirement for shelter. Even where housing practitioners and stakeholders in South Africa readily accept this principle, the challenges to implementation, especially with regard to cost, have meant that very few have managed to start off on the sustainable housing route.
It is generally accepted that a local municipality should have a clear housing policy as a guide in the process of housing delivery. This is also a legal requirement. In addition, a municipality will not be able to achieve tangible, longer-term deliverables as long as no clear and coordinated housing approach is in place, i.e. a targeted housing vision and related strategy. The municipality should therefore manage the delivery of affordable housing and secure tenure with a strong focus on creating sustainable settlements. To do this, a municipality needs to act within the framework of its Housing Sector Plan. The Housing Sector Plan is accordingly informed by the spatial parameters and recommendations made in the SDF and by the development perspectives detailed in its IDP.
1.1 STATISTICAL OVERVIEW
The Abaqulusi Municipal area currently has an estimated population of 205 174 people1. The town of Vryheid represents the primary urban centre in the Municipal area, accommodating approximately 31 425 people (15% of the population). The Census 2001 population estimate for the Abaqulusi is 191 019 people living in 35 914 households giving an average household size of 5.32 persons per household.
The Abaqulusi Municipal area is approximately 4 185km² in extent and it constitutes 30% of the area of the ZDM area of jurisdiction. The area incorporates the whole of the Vryheid and Louwsburg Magisterial Districts as well as part of the Nquthu Magisterial District. It is constituted by the following settlements:
. Vryheid; Bhekuzulu; eMondlo . Bhekumthetho/Hlahlindlela
1 Census 2001 Data projected at a population growth rate of 1.44% per annum, and including an adjustment in growth to take reflect HIV/AIDS trends and statistics according to the Nelson Mandela/HSRC Study, 2002.
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. Coronation, Hlobane, Mnyathi, Nkongolwane, Cliffdale, Vrede . Louwsburg, Dlomodlomo . Kwakhambi, Ngenetsheni, Cibilili, eSihlengeni, Ngome and Mountain View . Glückstadt and Zwart uMfolozi.
The rural population lives in two large concentrations, namely Hlahlindlela and Khambi Tribal Areas, accommodating 52% and 9% of the total population respectively. The urban population is mainly concentrated in Vryheid, resulting in this town being the largest town in terms of services in Abaqulusi and therefore it plays an important regional role. Geographically the population is distributed as follows:
Rural-Urban Population Split Distribution of Population
140000 1%
120000 1% Hlahlindlela/eMondlo 1% Vryheid 100000 Khambi 8% 4% 80000 Mthethwa/Hlobane 10% 60000 Brakfontein Louwsburg 40000 Glückstadt Rural 20000 15% 60% Boschoek Urban 0 2001 2006
Other socio-economic realities that are of importance within the context of the IDP and the challenges it is faced with include the following:
. Hlahlindlela is the most densely populated area with an average of 11.7 people per household. . The rural population depends on nearby urban areas such as eMondlo, Vryheid and Louwsburg for services because of the lack in basic services and social services within these rural areas. This places enormous pressure on service delivery. . The Hlahlindlela area is characterised by 16% more women than men. Generally these women are acting as household heads in the absence of partners seeking employment in other urban centres. These women are more disadvantaged in terms of educations, social status and access to resources. . Half of the Abaqulusi population is children, placing pressure on the need for educational and social facilities. Many of these children will be orphaned as a result of the HIV/AIDS pandemic. . Due to the impact of HIV/AIDS, population growth is expected to decline over the next 20 years. This trend must be considered in the planning and delivery of new services. . According to the Nelson Mandela/HSRC HIV/AIDS Study in 2002, it is estimated that at least 12% of the local population (24 622 people) are already infected with HIV/AIDS. A projected 350 people can annually be added to this figure. This will severely impact on the need for health, social and welfare services over the next 20 years. This impact on the general economy also needs to be considered. . Education levels are very low, with 23% having no formal education. . Income levels are very low. 33% of households receive no income and a further 9% have an annual income of less than R4 800.00, i.e. R400.00 per month or less. . The rural areas, especially the Hlahlindlela and Khambi areas, are the most poverty stricken. . Unemployment levels are relatively high with 59% of the economically active population not being employed. It should, however, be noted that 22% of the employable population are willingly not employed (housewives, students, etc.). As a result dependency levels are extremely high and every employed person needs to support at least 9 persons of which 6 are older than over 15. . Of those employed 25% are employed as elementary workers. Service workers make up 12% of the workforce followed by technicians at 11%. Previous studies also showed that 18% of employed
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people worked in the public sector. The farming sector employs only 5% of people, indicating the decline of the agricultural sector in the economy of the area (Abaqulusi IDP, 2002).
Abaqulusi has a largely rural and tribal/traditional community of which more than half is currently of school-going age. These rural and traditional communities have lower income levels and are more severely affected by circumstances of poverty than urban communities. Dependency levels are high and low levels of education also impact on the types of job opportunities that can be obtained and therefore also potential income generation. The challenge lies in implementing appropriate community upliftment and empowerment programmes to create an environment where people can meet there basic needs and improve their quality of life. Affordable housing and security of tenure are fundamental within this context.
1.2 URBAN GROWTH TRENDS
An annual growth rate of 1.44% is predicted for the Abaqulusi area. This rate is bound to decrease to 0.96% and less over the next decade if the impact of HIV/AIDS is considered. A steady decline in the average annual population compound growth rates for KwaZulu-Natal over the next 20 years can therefore be expected. Over the next 20 years a conservative total population increase of 31 438 (16%) persons and the need for 5 910 new housing units are therefore expected. The following gives an indication of projected population growth in the Abaqulusi Municipal area for the next 20 years:
Year Census 2001 2005 2010 2015 2020 Growth rate Base year 1.44% 0.98% 0.58% 0.08% Population 191 019 202 262 213 336 220 468 222 457 Demand for 35 914 38 028 40 110 41 451 41 825 Housing2
The expected growth rate is not high, but the implications for housing delivery are paramount in the process of creating sustainable settlements.
1.3 ABAQULUSI’S HOUSING REALITY
The town of Vryheid is strategically located and considered the economic and social hub of the Abaqulusi area. The physical segregation and distortion of the Municipal area is, however, a prominent feature and evident as follows:
. eMondl was originally developed as a dormitory black township and is not located on any transportation corridor. Its physical distance form Vryheid is such that physical integration with Vryheid is near impossible. A large concentration of people from the Hlahlindlela Tribal area has settled around eMondlo, placing enormous pressure on eMondlo for the delivery of services. . During the prosperous days of the coal-mining sector the mining communities of Hlobane and Coronation settled in the area. These areas are too distant from Vryheid to be physically integrated and they will remain as separate communities in the foreseeable future. . Louwsburg, an area to the north east of Vryheid, has a weak economic base and developed mainly as a local service centre to the agricultural sector. To the south of Louwsburg lies a large concentration of people in the Tribal area of Khambi. This area is removed from other urban areas and depends on Louwsburg and Vryheid for all its social and economic services.
Several urban areas and rural population concentrations are dispersed through the Abaqulusi area. These settlements have a dormitory function and rely on Vryheid for employment, goods and services.
2 Calculated at an average of 5.32 persons per household using Census 2001 data and projections according to Section 1.2 of this Report. This excludes existing backlogs and is only indicative of additional housing requirements in direct relation to the expected growth in population.
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Vryheid therefore has a large peripheral dependency and is at the core of what is regarded as a functionally integrated, but physically segregated area. Road networks linking Vryheid and dormitory settlements are well defined, although not well developed and maintained. Based on population density, concentration and service demands, the dormitory townships are regarded as emerging settlements and are recognised as primary focus areas for new engineering and social services.
63% of the population of the Abaqulusi Municipal area live in rural areas, most of which live in scattered homesteads known as imizi in tribal areas. Homesteads are of a mixed nature including both modern dwellings and traditional thatched huts. The remainder of the population lives as tenants on farms or in towns, dormitory townships and shacks in the informal settlements around towns.
Traditional households usually include the clustering of a number of thatched roofed huts and lack basic infrastructures. Formal dwellings are houses with a solid, usually concrete, top structure that are served with basic infrastructure. Informal dwellings are made from a variety of materials, are not structurally secure and have no basic infrastructure. A large portion of the people in the Municipal area reside in traditional houses with formal and informal houses concentrated mainly in urban areas.
The classification of dwelling types for the Abaqulusi area is detailed below:
Dwelling Types
Other 0% Traditional 37%
Formal 59% Informal 4%
(Source: Census 2001)
A. Rural Housing Demand
Housing demand is defined as the number of households requiring formal housing. Traditional housing is perceived as an acceptable form of housing and the majority of the traditional population lives in this form of housing. In the Tribal Areas traditional housing is accepted as the norm. However, should the delivery of formal housing be required as the preferred replacement of traditional housing, the Tribal areas already had a backlog of 13 221 units in 2001.
It is critical that the issue of formal housing versus traditional housing and community preferences be confirmed as an important determinant of housing demands within the context of the Abaqulusi Housing Sector Plan.
There is no information available about housing backlogs or demand in the rural areas. There is, however, a high concentration of people in the Hlahlindlela Tribal area with up to 11 persons per household, indicating a great need for housing. While most of the rural areas have top structures, the population density and distance from basic services necessitate upgrading and formalisation of these areas as part of a phased approach.
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Higher population concentrations around the town of Vryheid and other urban settlements in rural areas are evident. The population densities in these areas are on the increase, placing strain on existing infrastructure and social services. These areas have been classified as emerging urban settlements in terms of population density and settlement character.
The uncontrolled granting of land through the Tribal Authority system hampers the development of housing in the formal urban areas. This form of tenure competes with the formal housing market, placing strain on the municipal infrastructure and service delivery, with informal occupants not contributing to the revenue basis of the Municipality.
B. Urban Housing Demand
The demand for housing for middle and higher income levels in the towns of Vryheid and Louwsburg is not considered a critical issue and are subject to prevailing market economies. The demand for housing remains in the emerging settlements around these urban areas and in the emerging settlement of eMondlo. The Coronation/Hlobane area is also considered within this context and specific attention to upgrading and the provision of services are required. Housing initiatives will focus on the consolidation of this area within the perspective of its relationship with Vryheid.
Geographical Area Number of Households Number of Units Vacant Lots eMondlo 3 592 3 349 557 Louwsburg 523 265 * Vryheid 5 660 7 122 357 (WSDP and Local Development Plan)
The current economic development within the Municipal area and its future growth potential may generate a greater demand for managed housing delivery. At the same time this economic growth would produce far greater financial resources and increase the ability for the public and private sector to support the housing delivery process in a sustainable manner. Careful management of the housing delivery process within this context is critical and pro-active planning the key to the success of this process.
C. Current and Recently Completed Housing Initiatives
To address the housing need and backlog in Abaqulusi a number of housing projects have been initiated in the Municipal area and include the following:
. A project linked subsidy has been approved for the development of 1 000 stands in Bhekuzulu. 500 units will form part of the development of Bhekuzulu Phase 6 with the Bhekuzulu community identified as beneficiaries. The remaining 500 units will be developed to the west of Lakeside and the beneficiary community is the existing informal settlement at the Vryheid landfill site. The community on the invaded school site in Bhekuzulu may also be considered as potential beneficiaries. . A Council initiative is currently underway to develop ±250 stands adjacent to Stretch Crescent in Bhekuzulu. This will be sub-economic/bonded housing with higher order services. . The development of low-cost housing in Louwsburg.
D. Total Housing Demand and Backlog
Census 2001 data and information extracted for the Abaqulusi IDP creates a perspective within which current and future housing demand and backlogs can be calculated. Although this is not split into urban and rural categories, there is indication that the primary focus of this demand is in the emerging settlements of eMondlo and Hlahlindlela. This creates a sense of the magnitude of the challenge the Abaqulusi Municipality faces in housing delivery and the creation of sustainable communities. Based on the this information, and assuming for now that traditional housing is not considered a critical backlog, the current and projected future housing backlogs for the Abaqulusi Municipal area are estimated as follows:
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2001 2005 No. of Households 35 914 38 028 No. of Formal Units 21 285 21 285 Housing Projects 0 8 992 * Bhekuzulu Phase 6-A (485) * Bhekuzulu Phase 6-B (1 078) * Bhekuzulu Phase 4 (229) * Coronation (1 200) * Mzamo (500) * Vryheid Ext 16 (Slum Clearance) (2 500) * Bhekumthetho (Rural Housing) (3 000) Housing Backlog 14 629 7 751
Based on the projected population growth previously and the calculated households at an average household size of 5.32 persons per household, the projected backlogs are as follows. Please note that these are based on the assumption that no new project have been completed to address these housing needs and that all traditional housing will be replaced by formal housing units:
. 2006 Backlog of 8 298 housing units . 2007 Backlog of 8 676 housing units . 2008 Backlog of 9 058 housing units . 2009 Backlog of 9 444 housing units . 2010 Backlog of 9 833 housing units
1.4 ABAQULUSI’S ENGINEERING AND INFRASTRUCTURE REALITY
The physical and economic development level of a community is often measured by the provision and quality of infrastructure, i.e. roads, electricity, water and sanitation and facilities for the social services, i.e. schools, crèches, hospitals and clinics. These are considered the social, economic and scientific barometers of the degree of development or, in many instance, under-development. A lack of infrastructure and social services facilities or even a breakdown in the appropriate maintenance of such infrastructure and facilities would therefore be indicative of higher levels of under-development, poverty and disempowerment. Infrastructure is the engine for the socio-economic functioning of any community.
In 2001 about 15 800 households, i.e. 44% of all households, received municipal services of one kind or another and the following aspects of service provision need to be highlighted:
Infrastructure Category Census 2001 Backlogs Roads . No information is provided by Census 2001 Water and Sanitation . 74% (26 560 households) of all households have access to clean water ranging from borehole water to potable water . 47% (16 997 households) of all households have access to some sanitation service of one level or another, ranging from basic VIP toilets in the rural areas to sewer-borne toilets in the urban areas . 37% (13 276 households) of all households have access to some refuse removal service. This figure reflects the reality of the urban areas Electricity . 43% (15 498 households) of all households have access to some level electricity service, ranging from lighting only to full cooking capacities
The principal IDP, supported by subsequent surveys, indicate the following realities and backlogs in respect of the provision of social infrastructure and facilities:
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A. Water Infrastructure and Service Delivery
The area is well endowed with natural water resources. Vryheid draws water from the Bloemveld, Grootgewacht and Klipfontein Dams with the Mvunyana Dam supplying eMondlo. Hlobane/Coronation receives water from the Boulder and Hlobane Dams as well as an underground storage reservoir. Big disparities do, however, exist between the urban and rural communities and the following table indicates bulk water supply source and capacity of the urban areas within Abaqulusi.
Settlement Source Type Capacity (Ml/Day) Consumption (Ml/Day) Vryheid/ Bhekuzulu Water treatment works 15.0 11.54 Louwsburg Water treatment works 0.035 0.033 Boschoek/Enyati Water treatment works 0.015 0.015 eMondlo Water treatment works 7.0 7.0 Hlobane Water treatment works 0.091 0.086 Coronation Slow sand water 1.216 0.64 treatment works Nkongolwane Coronation water N/A 0.18 treatment works
It is clear that there is only minimal or no capacity left in any of the bulk water supply systems and attention will have to be given to upgrading facilities to accommodate expansion. The situation in eMondlo is especially critical.
Access to basic services is recognised as a human right. In the Abaqulusi area access to clean water is the most important need in rural areas which are primarily served by a borehole system, formerly implemented and administered by the Zululand District Council. A typical rural water system consists of a borehole with a mono-pump extracting water into and elevated pressure tank. Villages are then served with water via standpipes within a 200m access radius. The basic shortcomings of such a system are the lack of qualified operators, improper maintenance and poor monitoring of water supply and quality.
The 66 settlements in Abaqulusi are classified as follows based on the RDP water availability system:
RDP Level of Service Number of Settlements Very high: more than 60l per day per capita 8 High: 25l - 60l per day per capita 2 RDP: 15l - 25l per day per capita 5 Intermediate: 5l - 15l per day per capita 24 Survival: 0l - 5l per day per capita 27
It is estimated that at least 23% of the population (46 520 people) of Abaqulusi have a “survival” level of water supply where basic infrastructure requirements are not met and pumps, reticulation and electrical power are in short supply. This is of particular note in the rural areas.
The settlements/communities in the Abaqulusi area with the greatest need for water services are:
Settlement Population Number of Households Sofaya 3 150 210 Ezingadini 6 000 600 Nkongolwane 5 200 540 Madresi D2 4 125 550 Engilandi 3 600 480 Qwegwe 1 4 050 270
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Settlement Population Number of Households Kwamaqweshhe 2 001 250 Mawombe 440 56 St Paul 8 100 801 Neceni 7 000 660
B. Sanitation Infrastructure
The standard for sanitation provision put forward by the RDP and the Water Supply and Sanitation Policy White Paper is a VIP, constructed to acceptable standards and properly maintained, with 1 VIP per household. This standard recognises the need to provide people with basic services to meet basic health and functional requirements, including the protection of the quality of all water resources. The larger urban areas have functioning sanitation systems whereas the rural areas are serviced by septic tanks and pit latrines. The bulk sanitation services in the urban areas are summarised below:
Settlement Type / capacity Remarks / Backlogs Vryheid/Bhekuzulu Purification system Capacity 9ML /day eMondlo Purification system Capacity: 4ML/day Hlobane Aeration activated sludge pan Can serve 6000 people at 370 cubic meters per hour Louwsburg No central sewer disposal system, pit Unacceptably high pollution of latrines and septic tanks ground water sources
Only Vryheid, eMondlo, Hlobane, Coronation, Ntumbane, Bethel Mission, Mount Gwibi and Enyathi have waterborne sewage reticulation. People in the remainder of the study area make use of pit latrines or no system at all. 78% of the rural population use no sewage system. This is obviously a matter of great concern for reasons that include:
. If infrastructure is not provided to cater for an increase in sewer waste the health and sanitation situation worsens dramatically as rural settlements grow and dwellings are built closer together. . Pit latrines and septic tanks pose a health threat where they are situated close to aquifers and water supplies used for domestic purposes. Samples taken along a stream flowing into the Ithala Game Reserve showed a faecal coli count that is double the acceptable health standards. . Rain water washes human waste into rivers and streams. Sanitation at public buildings and schools is of utmost importance to ensure good public health conditions. In addressing the sewage infrastructure backlog, priority should be given to such buildings.
C. Storm Water Drainage Infrastructure
Most of the formal town areas have storm water drainage on an internal collector system discharging directly into some of the tributaries of the regional river system. There are no developments within the 1:100 year floodlines. The following table provides a summary of the status quo in terms of storm water:
Settlement Name Storm Water Type Level of Service Vryheid 90% piped 0,4 km not served by storm water drainage, rest at level 4 Bhekuzulu Open channel 75% are currently at level 4 eMondlo Open channel System has become dysfunctional Hlobane Open channel At Level 4** Glückstadt Open channel *
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Settlement Name Storm Water Type Level of Service Enyathi Open channel * Coronation Open channel * Kromellemboog * * Hlopeni * * Mooiplaats * * Nhlazatshe * * Bethal Mission * * Ekuhlengeni * * Nkongolwane Open channel * Dwaalhoek * * Mahlone * * Louwsburg * * Khambi * * Bhekumthetho * * (Source : Abaqulusi Regional Development Plan, 2000) * Note: No information. **Level of service definition: Level 4 = On-road drainage and piped drainage in main roads
D. Transportation and Road Infrastructure
Although the Municipality is not adjacent to any of the major provincial and national transportation corridors, it has a well established regional road network allowing for relatively free movement of people and goods into and out of the area. The following highlights current realities in this regard:
. The R34 is the primary transport corridor and runs through Zululand from the N2 and Richards Bay, linking Ulundi, Vryheid and Paul Pietersburg to Mpumalanga and Gauteng. The road runs north- south through the western part of the Municipality and is in a reasonable maintained condition. It is, however, under pressure because of an increasing number of timber trucks using it. . The R69 is a secondary transport corridor with development potential and runs east-west through the northern part of the Municipal area. It is a busy route, carrying large numbers of local and regional traffic. It runs through Vryheid, Hlobane, Louwsburg, Magudu and joins the N2. . The internal road network of Vryheid is of a high standard and presently reasonably well maintained. Budget constraints may affect the present state of this network which, in turn, may impact negatively on the regional role of the town. . A different situation prevails in the smaller towns and rural areas where many roads have deteriorated to such an extent that new roads would need to be constructed. Generally roads are in need of maintenance, rehabilitation and upgrading. In the past the internal roads in smaller towns consisted of gravel roads. These roads still exist today and tend to become inaccessible with heavy rains.
The standard for roads used in the IDP to guide future development requires that all-weather access roads, specifically for public transport, must be provided within 5km of every settlement within the Abaqulusi area. The provision of road infrastructure in terms of these levels is as follows:
Settlement Area Type of Surface Level of Standard Vryheid 99,7% of roads are paved and kerbed Level 4 0,4 km unsurfaced i.e. Level 1 Bhekuzulu Bus routes :Gravel Level 3 eMondlo Main road is tarred, rest gravel Level 1 Hlobane area Vaalbank: Mostly tar roads Level 4 Thutukani: mostly gravel roads No information Hlobane : gravel roads No information
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Settlement Area Type of Surface Level of Standard Louwsburg Main road : tar No information Rest: gravel Mzamo: poor surface or no surface Rural areas No information No information Level 1: Unsurfaced tracks Level 3: Bus route paved, other roads gravel Level 2: Gravel service main road and scraped streets Level 4: All roads kerbed and paved
E. Public Transport
No reliable data on car ownership within the Municipal area is available, but low-income levels of the majority of the population suggest that car ownership will also be low. The majority of the population rely on some form of public transport to travel to and from work and other urban amenities.
A taxi and bus service serve the area, operating between Vryheid and Bhekuzulu. Busses and taxis also operate in eMondlo. KwaZulu Transport provide the major bus service between Vryheid and Empangeni and the taxi association controls the taxi service operating from one of the major taxi rank in eMondlo.
A railway line, associated with the R34 transport corridor, serves the area and connects the coal fields of Mpumalanga with the port of Richards Bay and only transport freights. The railway line passes through Abaqulusi in a north-south direction and at Vryheid it branches off to the west to serve Hlobane. It was once used for both freight and passengers, but passenger services have been discontinued.
Vryheid has a small airport which is currently not serviced by commercial airline companies as demand is too low. The airport is built to the civil aviation authority‟s standards, but is no longer licensed because of budget constraints. The airport is capable of carrying limited cargo and could provide an alternative means of transport for the agricultural and tourism sector if so required. Any travellers currently wishing to fly into the area must either fly to Ulundi or charter a private flight. No goods are exported by air.
F. Existing Electricity Infrastructure
The standard for the provision of electricity is individual house connections providing 5kVA in urban areas and 4kVA in rural areas. Currently Eskom supplies bulk electricity and Vryheid provides an electrical service to surrounding areas.
The urban areas of Vryheid, Louwsburg, eMondlo, Coronation, Hlobane, Glückstadt, Bethel Mission and Boschoek mostly have access to household electricity connections. A small number of rural settlements also have access to electricity including Enyathi, Mountgwibi, Nkongolwane, Qweqwe 2, Mvuzini, Mhlangeni, Engilandi and Amahlathi. The rest of the rural settlements have no access to electricity.
G. Existing Solid Waste Disposal
Refuse removal facilities are limited to urban areas and it has become a major problem in denser rural settlements. The extension and upgrading of facilities for Vryheid, eMondlo, and Bhekumtheto are becoming critical. The following information is relevant in this regard:
. Vryheid has its own refuse collection service and refuse is dumped at a landfill site. The site does not comply with the DWAF criteria and a new site will have to be identified. . In Hlobane industrial and domestic waste are collected by truck at disposal points. It is dumped on an existing dump, levelled by bulldozer, compacted and later covered with mine discard. The site will be rehabilitated and grassed when its capacity of 34 million tons is reached. . The Department of Works appointed a private contractor to remove refuses in eMondlo. . Louwsburg has an existing solid waste disposal site with sufficient capacity for the next 20 years. It is operated without a license, but DWAF is lenient as the impact of this operation is not considered a serious threat. The upgrading of the site and improvement of its operation are being investigated.
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The poor management of solid waste has a negative impact on the well-being of humans and the ecosystems they interact with. There are various potential negative impacts such as ccontaminated soil, surface and ground water pollution, objectionable odours, etc. Limited surface water and groundwater resources may already be impacted on by poor waste management and concerted efforts are required to increase people‟s awareness of good waste management practices and its benefits.
H. Post and Telecommunications
The Post Office and postal agencies provide postal services to the area. Although it is difficult to determine a backlog for the area, long travelling distances from the rural areas to the post offices in the urban centres indicate that additional service points in the densely populated rural areas are crucial.
Telecommunication services and infrastructure are provided by Telkom, Vodacom, MTN and Cell C. The extension of the cellular phone network has provided many people in rural areas with access to communication services. Telkom has gone a long way towards providing infrastructure in previously marginalised areas and rural areas in South Africa. It has set a standard of at least one public phone is one within 200m. This standard has not yet been met in the Abaqulusi Municipal area and can be regarded as a backlog.
I. Realities within the Respective Services Sectors
The following table provides a summary of the availability of basic services in both urban and rural communities within Abaqulusi. The data provides a broad indication of the backlog in the provision of basic services in the urban and rural areas of the Municipal area.
Settlement Population Clean Water Sanitation Electricity Type With With- Water Pit None With With- out Borne out URBAN 68 669 62 880 5 789 61 840 3 080 3 749 61 488 7 181 91,6% 8,4% 90,1% 4,5% 5,5% 89,5% 10,5% RURAL 138 735 43 826 94 910 200 30 154 108 381 0 138 735 31,6% 68,4% 0,1% 21,7% 78,1% 0 100%
The following needs to be highlighted from the above table and constitutes critical service backlogs:
. 68% of the population in rural areas depend on rivers, streams, boreholes and fountains for water. . 8% of persons in urban areas rely on water from dams and rivers. . The majority of the rural population has no electricity. . 89% of the urban population have access to electricity. . Nearly 80% of the rural population have no access to appropriate sanitation services.
The reader should further realise that there are a number of dynamic processes underway. A summary of these dynamics and complexities within the Municipality could be summarised as follows:
. Different Funding Agents with different funding streams and conditions attached to it (including different reporting requirements); . A complex sphere of local governance where roles and responsibilities are currently clarified (some powers and functions are overlapping); . Constitutional obligations of the provincial sphere of governance; . The complexities of dealing with Traditional Authority structures and protocols; . Prevalence of water borne disease being endemic in the province; and . Significant backlog in services.
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2. CONTEXTUALISATION
In terms of the Constitution, housing is a function shared by both national and provincial government. Local government has an important obligation to ensure that services are provided in a sustainable manner to the communities they govern. The role of provinces, however, has been revised in Chapter 3A of the National Housing Code to the extent that a municipality should be the first option as developer and that provinces should assist and build capacity to ensure that this role of the municipality is realized. The province may take over the developer role when a municipality cannot undertake development due to capacity or other constraints. Chapter 3A of the National Housing Code states two routes to a metropolitan, district or local government‟s contribution to the delivery of housing.
It is considered essential to contextualise the housing vision and related strategies within the legislative and policy environments. Clarity on the policy for, and legislation pertaining to, the roles of the National Department of Housing, the Zululand District and Abaqulusi Local Municipality in delivering housing is necessary to ensure the effective implementation of the housing and tenure delivery within the Abaqulusi Municipal area. In part, this is because too often it is local government that has the mandate for delivery and/or impedes delivery and/or seeks forms of delivery that run counter the objectives of national and provincial government.
The relevant policy and legislation documents affecting development and housing include those detailed below. The relevant details of these documents are elaborated on where applicable in subsequent chapters of the Abaqulusi Housing Sector Plan.
. Abaqulusi Spatial Development Framework and Land Use Management System (2006) . Housing Act (No 107 of 1997) . Rental Housing Act (No 50 of 1999) . Development Facilitation Act (No 67 of 1995) . National Integrated Rural Development Strategy . Rural Development Framework (1997) . White Paper on Local Government (1998) . Land Use Bill . Local Government: Municipal Planning and Performance Management Regulations (2001), Section 4 . Comprehensive Plan on Sustainable Human Settlements/Ground Breaking Housing Plan (2004) . White Paper on a New Housing Policy and Strategy for South Africa . Rural Housing Programme
The most notable aspects contained in the above include land use guidelines for protected areas and agricultural zones, as outlined in the newly formulated Abaqulusi SDF and LUMS, the development guidelines set by these as well as the requirements set out in the Local Government: Municipal Planning and Performance Regulations, 2001.
While the National Housing Act provides many options for the delivery of housing, there is no indication that municipalities should deliver housing. Further, most municipalities do not have the capacity to administer housing projects. The national government and provincial governments, by legislation and other means, must support and strengthen the capacity of municipalities to manage their own affairs, to exercise their powers and manage their functions.
With the approval of the Ground Breaking Housing Plan in 2004 a significant paradigm shift in housing policy occurred from the more traditional focus on providing top-structures to a new approach for the development of sustainable human settlements. This Plan provides a framework for integration and building homes in healthy and secure living environments where everyone will have access to the services and goods produced by society. It focuses on the provision of a total package of infrastructure
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The Comprehensive Plan on Sustainable Human Settlement envisions communities that are enabled to create a better life for themselves. The following elements of this Plan need to be highlighted:
. It conceptualises informal settlements upgrading that is designed to progressively improve the tenure rights and living conditions of people living in such settlements. . It provides for improved governance and moreover, for creating conditions that are necessary for the creation of a People‟s Contract between government and communities. . It gives scope for the active participation of private sector construction and finance organisations in the construction of human settlements. . Municipalities will play a much more substantial role in the delivery of sustainable human settlements and particular provision is made for the accreditation of municipalities to achieve this. This implies that housing functions are devolved and assigned to municipalities on the basis of sound funding arrangements and accountability, appropriate governance arrangements and systematic capacity development of provinces and municipalities. To achieve this specific provision has been made for new institutional arrangement which promulgates the creation of a Housing Delivery Management Unit (HDMU) within accredited municipalities. Such a HDMU will be specifically tasked with the housing function.
Within this context a Memorandum of Understanding was concluded on 30 March 2005 between the Government and the Banking Council of South Africa as part of the Financial Services Charter. Through this Memorandum of Understanding the Banks pledged to invest a target of R42 million by 2008 in the form of various options of housing finance for the lower middle income sector.
Furthermore, on 23 September 2005 the “Social Contract for Rapid Housing Delivery” was signed between Government, the private sector and various NGO partners. This Contract includes commitments towards a common goal by Government, as expressed in the Comprehensive Plan on Sustainable Human Settlement.
The Department of Housing‟s White Paper on a New Housing Policy and Strategy for South Africa defines housing as a variety of processes through which habitable, stable and sustainable public and private residential environments are created for viable households and communities. This recognises that the environment within which a house is situated is as important as the house itself in satisfying the needs and requirements of the occupants. Government strives for the establishment of viable, socially and economically integrated communities, situated in areas allowing convenient access to economic opportunities as well as health, educational and social amenities, within which all South Africa' s people will have access on a progressive basis, to:
. A permanent residential structure with secure tenure, ensuring privacy and providing adequate protection against the elements; and . Potable water, adequate sanitary facilities including waste disposal and domestic electricity supply.
Despite the constraints in the environment and the limitations of financial resources, every effort should be made to realise this vision for all South Africans whilst recognising the need for general economic growth and employment. Recognition should also be given to the efforts and contributions of individuals themselves and the providers of housing credit, as prerequisites for the realisation thereof.
In order to meet the housing challenge in the country, Government aims to establish a sustainable housing process which will eventually enable all South Africa's people to secure housing with secure tenure, within a safe and healthy environment and viable communities in a manner that will make a
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. Setting local housing delivery goals. . Identifying and designating land for housing purposes. . Regulating safety and health standards in housing provision. . Creating and maintaining a public environment conducive to viable development and healthy communities. . Mediating conflict in the development process. . Initiating, planning, coordinating, promoting and enabling appropriate housing development. . Facilitating support to housing delivery agencies. . Planning, funding and providing bulk engineering services. . Providing and maintaining revenue generating services (if not done by specialised utilities/suppliers). . Providing community and recreational facilities in residential areas. . Providing welfare housing. . Land planning in areas under their jurisdiction (in terms of laid down performance criteria, possibly at provincial and even national level). . Regulating land use and development.
The Rural Housing Programme provides for rural housing development that directly relates to creating sustainable livelihoods. Many residents in rural settlements are unemployed with no means of generating economic capacity. The challenge is to create the preconditions for the establishment of self-sufficient settlements and not merely the creation of dormitory towns, even in the case of agri-villages. Important issues to consider in this regard include food security, agricultural/horticultural opportunities, employment opportunities, trading opportunities, the enablement of an internal economy within the settlement and assistance to vulnerable groups, i.e. woman, children and people with disabilities (PWDs)). The latter group often need special and different types of housing as in the case of a large group of AIDS orphans. Any development should also be economically viable, supporting sustainable economic activity and where possible, promote activities that would enhance tourism.
The Abaqulusi Local Municipality needs to embrace this policy framework and the capacity building opportunities to address the identified housing needs as well as provide the diversity that is required for a sustainable environment. One of the strategies that will be elaborated on is the proposed institutional processes that will further this cause.
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3. HOUSING WITHIN THE CONTEXT OF THE ABAQULUSI IDP
The Abaqulusi IDP highlighted specific strategies towards housing delivery and sustainable settlements which need to be taken forward in the Abaqulusi Housing Sector Plan. The objective of developing a Housing Sector Plan for Abaqulusi is to improve the spatial structure and definition of urban functions within the Abaqulusi area, as well as to provide access to the opportunities in the urban core and surrounding rural areas as a vehicle to sustainable settlement. The following strategies and interventions are proposed by the IDP in support of this objective:
3.1 ESTABLISH A HIERARCHY OF NODES
The intention of establishing a hierarchical ranking of towns and settlements is to focus the distribution of investment in infrastructure, services and support facilities. This hierarchy also determines the most suitable locations for housing projects and recognises the current and future function of settlements. The following settlement hierarchy is proposed:
Settlement Hierarchical Functional Functions Provided Name Classification Classification Vryheid Regional Node . Urban core and . Provision of higher order goods and services; economic heart . Institutional functions and services (local . Provide for the needs authority offices, provincial and national of the broader government main offices); municipal area and . Economic services (secondary and tertiary region sector activities); . Social services (social/welfare head offices, core functions). eMondlo Town . Local node . Social and community facilities e.g.(health, . Provide in needs of education, recreation, pension payout points ; local population and and surrounding rural . Basic retail facilities for daily needs. areas Louwsburg Town . District node . Social and community facilities e.g. health, . Provide in needs of education, recreation, pension payout points; local population and and surrounding rural . Basic retail facilities for daily needs. areas Khambi Minor town District node (rural)
Hlobane Minor town District node (rural)
The concentration of activities in nodes improves efficiency and service delivery, for these reasons:
. It optimises the opportunity for exchange while minimising transaction costs; . It optimises access to urban opportunities; . It supports and promotes mixed land use development at a fine grain; . It reduces travel distances and costs; and
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. It promotes competitiveness between land uses and economic activities, thereby spiralling economic development.
The different nodes in the Municipal area need to be integrated and linked through good road links, public transport and communication infrastructure with Vryheid functioning as the economic heart and head office for social and welfare services. Satellite offices and service points must locate in the lower order nodes, creating linkages between the nodes and Vryheid whilst sharing manpower and other resources.
3.2 DEVELOPMENT OF RURAL SERVICE CENTRES
Directly linked to the establishment of a hierarchy of nodes in the Abaqulusi area and facing the challenge of providing services at grassroots level is the development of Rural Services Centres in areas with high population concentrations. This is particularly relevant for eMondlo, Khambi and Coronation/Hlobane. These emerging urban centres are where the greatest impact could be achieved in terms of sphere of influence for these Rural Service Centres. These are also the areas where the housing need is the greatest and would the primary sites for housing delivery projects.
RSCs will allow for the provision of a combination of essential services by the relevant tiers of government, according to their roles and responsibilities, at a central location accessible to the community. These services will be mutually supportive and will ensure co-ordination of services, rather than duplication or deprivation. It will therefore focus on basic services required by the public on a daily basis, ranging from health care facilities to local economic development help desks. RSCs would furthermore act as an economic injection, initiating investment into previously marginalised areas and lowering the perceived risk to private sector development. It will allow for a hierarchy in the provision of services, to ensure that existing cores are strengthened and that services become more accessible to remote sections of the population.
The Rural Service Centres will be a strong magnet in the physical environment, drawing people towards it and therefore strengthen the need for appropriate housing delivery projects in these areas. As a strong magnet, it should be realised that other uses and functions will also be drawn to this Centre. The Centre and the number of people attracted by it will make it an ideal location for small business and retail activities, due to the buying power associated with large numbers of people. It will also allow for an entry point to the formal market for small, medium and micro enterprises in a viable and affordable manner, supported by a mix of housing typology types to proved the necessary residential component.
3.3 FORMALISE EMERGING URBAN SETTLEMENTS
Settlement concentrations around formal urban areas and in rural service nodes such as eMondlo and Khambi have reached high population densities and are classified as emerging settlements based on their density, concentration, housing types and diversity of activities. These population concentrations put pressure on the number and availability of social services in the vicinity as well as the need for basic engineering services.
The densification and development of these areas occur on an ad hoc basis and without structure. The allocation of land to individuals or families by Tribal Authorities is without any form of spatial organisation and exacerbate the problem. The provision of social and infrastructure services to these areas is a high priority but is inhibited by the physical form and development of these areas.
To address this problem town-planning intervention would first be required with the formalisation of these areas and the creation of order in the settlement pattern through the formulation of Development Frameworks Plans for these areas. These DFPs form the physical and social premise on which future development and investment can be based. The formalisation of cadastral boundaries will end administration problems regarding the utilisation of land. It will also streamline the provision of engineering services. Formalisation is essential for upgrading purposes and enabling security of tenure and will ensure that these areas are functionally and physically part of the urban system.
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3.4 PROVISION AND UPGRADING OF BASIC INFRASTRUCTURE
The existing infrastructure in the urban and rural areas of Abaqulusi should be protected and improved to support the entire Municipal area and to maintain the current level of development. Of specific importance is the maintenance of access roads, water systems and pumps, sewage and electrical lines. The principle of “protect what we have and improve on it” applies.
The upgrading of existing infrastructure in the urban area is necessary to sustain expansion and better service delivery to emerging urban areas. Of particular importance is the capacity of bulk services such as water purification works and sewage purification works. This is also a key priority to accommodate the expansion of eMondlo and Bhekuzulu.
Rural service nodes and the emerging nodes should be the focus points for the provision of water, sanitation, electricity, roads, transport, social services and telecommunication infrastructure. Once the formalisation of dense settlements around the rural service nodes has been completed, the upgrading of these areas can be initiated by addressing service backlogs. The upgrading of social and community facilities in the dense settlement areas surrounding the nodes should enjoy priority, to ensure that the semi-urban and rural areas are reached. Ensuring access to clean water for every person within walking distance is a goal set by the Zululand District Municipality and it can only be achieved with the co- operation of the Abaqulusi Municipality, Tribal Authority and community.
3.5 SUPPORT LAND REFORM PROJECTS AND SECURITY OF TENURE
Pro-active measures are required to ensure access to land on an equitable basis and provide for security of tenure. The implementation of specific land reform programmes will support this strategy. The proposed Development Framework Plans for emerging urban settlements identifies land for land reform projects. This is based on the viability of the projects in the proposed location. The delivery of basic infrastructure and appropriate settlement standards to land reform projects is essential to ensure such viability.
3.6 PROMOTE A VARIETY OF HOUSING TYPOLOGIES AND DENSITIES TO PROVIDE FOR ALL DEMAND CATEGORIES
The provision of housing must take cognisance of various housing subsidy programmes to ensure that sustainable housing projects are delivered, contributing to the housing market within the Abaqulusi Municipality. It is imperative that current housing initiatives in Abaqulusi are be promoted to contribute to the much-needed sub-economic housing market and to optimise existing installed infrastructure.
Formal rural housing can be promoted around the identified nodes through accessing subsidy funds. This is not a critical need, but could contribute significantly to the sustainability of these nodes and towards creating a hierarchical pattern of development in the Abaqulusi area.
3.7 SYNTHESIS
These strategies highlight the framework within which housing needs to be provided. Various projects have been identified and initiated to give effect to these development strategies. Housing projects, specifically, were implemented within the context of the Abaqulusi IDP and its Spatial Development Framework, but this was done in the absence of a specific Housing Sector Plan which would enable the Municipality to achieve tangible, longer-term deliverables with a clear and coordinated housing approach, a targeted housing vision and related housing strategy. However, the strategies outlined in this Section form the basis for the formulation of a Housing Sector Plan for Abaqulusi for the future management and delivery of affordable housing and tenure delivery within its Municipal area.
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4. METHODOLOGY
The methodology that has been utilised in the formulation of the Abaqulusi Housing Sector Plan draws on the principles that underpin the Abaqulusi SDF. The basic approach is the clustering of developments to facilitate integration and the most efficient use of resources, thereby ensuring the development of sustainable settlements.
The methodology for this Housing Sector Plan draws on the definition of settlements both in their current state as well as their potential for development and unification. The towns and settlements within the Abaqulusi Municipal area are defined by 3 elements: the settlement pattern, the settlement hierarchy and the settlement type. These are discussed consecutively in the following paragraphs.
4.1 SETTLEMENT PATTERN
In order to plan for the future development of the Municipal Area, it is necessary to look at the historic development of its settlement pattern: where development has taken place, what type of development has taken place, and what forces have shaped its development. It is evident that various elements have shaped the development of the Municipal Area‟s settlement pattern:
. The hierarchical pattern of the Abaqulusi are is not strongly developed. Vryheid is the centre of economic and social activity and the heart of the Municipal area. Other urban areas are nothing more than dormitory areas providing little or no economic or social support to their communities. . A large rural population that depends completely on the town of Abaqulusi for services surrounds the urban area and places strain on the delivery of services. . Long travelling distances from some of the rural areas to urban activities and amenities necessitate the implementation of some sort of hierarchical pattern. A system of Rural Service Centres is proposed to strengthen the hierarchy of settlements and to improve access to services and amenities for the majority of the population. . eMondlo is a dormitory urban area 25km away from Vryheid. It has no direct link to the transport corridors through the area and is disadvantaged in terms of bulk engineering services, social services, urban amenities and economic activity. . eMondlo is furthermore surrounded by large concentrations of rural communities, placing tremendous pressure on the ability of the urban area to provide adequate services and maintain existing services. . The rural areas surrounding urban areas need to be formalised and a need for a unified system of land use control exists. . Land tenure practices of the Tribal Authorities contribute to the problem of housing delivery. . 40% of the housing stock in the tribal areas is classified as traditional dwellings and the provision of formal housing in these areas is not a priority. . A need for formal ownership and tenure exists and a number of land reform projects are underway. . The existing land tenure system of the Tribal Authorities is one of the main reasons for the retarded development in the economy of Abaqulusi and is detrimental to creating investor confidence. Proper land release opportunities will lead to increased confidence by investors.
Two provincial road corridors pass through the area namely the R34 and R69. Vryheid is strategically located at the intersection of these corridors accounting for its dominance in terms of economic and social development. Of the two corridors, the R34 is the strongest and accommodates the main stream of economic energy. Linked with this route is the “Coal Line” which also passes through Vryheid, providing potential opportunities for export of goods. The physical segregation and distortion of the Municipal area is, however, a very prominent spatial feature and is evident in terms of the following aspects:
. eMondlo, which was originally developed as a dormitory black township, is not located any transportation corridor. Its physical distance form Vryheid is such that its physically integration with
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Vryheid is near impossible. Instead a large concentration of people from the Hlahlindlela Tribal Area has settled around eMondlo, placing enormous pressure on eMondlo for the delivery of services. . During the prosperous days of the coal-mining sector the mining communities of Hlobane and Coronation settled in the area. These areas are too distant from Vryheid to be physically integrated and they will remain as separate communities in the foreseeable future. . Louwsburg, an area to the north east of Vryheid, has a week economic base and developed mainly as a local service centre to the agricultural sector. To the south of Louwsburg lies a large concentration of people in the Tribal area of Khambi. This area is removed from other urban areas and depends on Louwsburg and Vryheid for all its social and economic services.
Spatially it is therefore necessary to respond to the need for a definite hierarchy of settlements, which will rationalise the regional distribution of investment in basic infrastructure and community services. The development of a system of Rural Service Centres may go a long way in achieving a more equitable development and investment pattern. There is a need to formalise the rural settlements surrounding the urban areas and for consistency in policies, strategies, land use management and by-laws.
4.2 SETTLEMENT HIERARCHY
Several urban areas and rural population concentrations are dispersed through the Abaqulusi Municipal area. These settlements all have a dormitory function and rely on Vryheid for employment, goods and services. Vryheid is therefore subject to a large peripheral dependency and at the core of what can be regarded as a functionally integrated, but physically segregated area. The road network that provide the links between Vryheid and these dormitory settlements are well defined even though not well developed and maintained. If strengthened they do however provide opportunity that facilitate improved integration. These dormitory townships are regarded as emerging settlements based on their population density, concentration and service demands and are recognised as the primary areas of focus for the development of new engineering and social services.
Currently the Municipal area lacks structure and a clear hierarchy of nodes. To rationalise the regional distribution of investment in basic infrastructure and community services and to facilitate the appropriated planning and programming of social, infrastructural and economic development a hierarchy of nodes needs to be identified. Vryheid is the focus for economic development and job creation. The development of secondary nodes will ensure access to social and community services and need to provide local economic opportunities to serve the basic needs of the surrounding rural population, enabling access to opportunities that will improve the quality of life for most Abaqulusi inhabitants.
The concentration of activities around nodes will stimulate further development, particularly in the emerging areas around eMondlo and Louwsburg. Improved transport links between these nodes will lead to the more effective functioning of public transport and increase accessibility to economic and social opportunities, particularly for disadvantaged and poor communities. The development of RSCs in these nodes will create the stimulus for development, indicating some level of investment confidence.
One of the problems facing eMondlo is the lack of land for expansion due to the land tenure practices of the Tribal Authorities. The release of land, through land reform projects will lead to increased confidence by investors, delivery of appropriate and affordable housing and access to land.
4.3 SETTLEMENT TYPES
Four settlement types located within the Abaqulusi Municipal Area can be distinguished. These are urban settlements, tribal settlements, rural settlements and informal settlements. These settlement types are distinguished from each other in terms of the presence or absents of security of tenure and basic municipal services, such as water and electricity.
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. Urban Settlements: The first settlement type comprises strictly urban settlements. These settlements have formal township layouts, are serviced with the full range of municipal services (water, sewer, electricity and tarred roads) and the households located within these settlements have security of tenure. The Vryheid, eMondlo and Louwsburg fall into this category.
. Tribal Settlements: The second settlement type comprises settlements that are largely unique to the Zululand Region. These settlements are located on tribal land and the households have security of tenure through their association with the Tribe. This level of tenure security was enough to encourage many tribal citizens to build permanent housing structures over the years. Service provision in these tribal areas are generally poor and in dire need of upgrading. Settlements that fall within this category include Hlahlindlela and Khambi Tribal areas. In many instance, the local authority has little say in the areas and therefore it does not allocate much government resources to them.
. Rural Settlements: Rural settlements are settlements that are similar in nature to the tribal settlements with regard to the residential densities and functions, but they are not located on tribal land. These settlements often have a lack of security of tenure and they lack basic municipal services. These very densely populated rural areas are most severely affected by poverty conditions. The population in these areas has mostly women as interim household heads, low educational levels, low household income and high unemployment levels. These settlements include the Coronation, Hlobane and Glückstadt.
. Informal Settlements: Another settlement type located within the Abaqulusi Municipal area is informal settlements. These settlements are primarily found on the periphery of Vryheid and Louwsburg and include the Bhekuzulu area at Vryheid. These informal settlements are characterised by a lack of security of tenure and a lack of basic municipal services.
In summary, it can be seen from Diagram 1 that follows that the settlement focus has been used as the basis for determining the housing vision and related strategies for the Abaqulusi Local Municipality. The two sections below elaborate on the processes that were embarked on to determine the housing vision and housing strategies.
4.4 VISIONING METHODOLOGY
In determining a vision and especially a sectoral vision, it is considered essential that there be a layering approach that both focuses and adds value to intervention. The approach for the Housing Sector Plan is first to obtain direction from the latest themes and policy shifts in housing. The next step has been to layer that with National Government‟s human settlement perspective that has been adopted within the context of a broader national and international agenda.
The third layer has been to incorporate inputs from local stakeholders thereby focusing the vision at a local level. The last step has been to streamline the vision and put forward supportive strategic objectives that will serve as both implementation guidelines as well as monitoring mechanisms.
4.5 STRATEGY FORMULATION METHODOLOGY
The methodology used for the formulation of the strategies includes a number of steps, each of which are detailed below:
. Utilise the settlement approach as detailed above as the basis for the strategies;
. Build on the spatial recommendations that have been made in the Abaqulusi Spatial Development Framework;
. Provide a human settlement progression plan for each of the identified settlement types, identifying specific approaches and a generic sequence of actions that the Local Authority can embark on;
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. Elaborate on the six specific strategies as identified in the inception report, ensuring that there is a contextual reference / linkage to the settlement methodology. These six strategies are:
Land Identification and land release Planning and servicing of identified land Housing development mix Housing tenure alternatives Housing funding options Institutional structuring
Diagram 1: Methodological Approach
UnderstandingUnderstanding thethe Abaqulusi Housing Environment
• Demographic makeup • Urban, rural,rural, tribal mining, and tribal, farming • Highhostels levels and of farming poverty • LimitedAbove landaverage availability growth rate • SETTLEMENT PATTERNS PATTERNS • DispersedLimited land areas availability • SETTLEMENT HIERARCHY HIERACHY • SETTLEMENT TYPES TYPES
Urban •Hhahlindlela SettlementsSettlements •Vryheid •Khambi• •eMondlo •Louwsburg • Tribal SettlementsSettlements
Rural SettlementsSettlements •Coronation • PopoMolefe •Bhekuzulu •Hlobane • Zakhele •Other areas peripheral •Glückstadt InformalInformal to urban areas SettlementsSettlements
• Tenure IssuesIssues • Service provision,provision, maintenance maintenance and and upgrading upgrading • Integration versus versus isolation isolation • Linkages to to social social and and economic economic amenities amenities • Access to land for expansion, upgrade and infill
PROBLEM STATEMENT
HOUSING VISION Focus Strategies LinkagesLinkages // AlignmentAlignment Focus Strategies
StrategicStrategic ObjectivesObjectives Progression Plans
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5. THE ABAQULUSI HOUSING VISION
A vision can be defined as insight or speculation into the future. In developing a housing vision, it is essentially an imaginative projection into the future of housing development, in response to local growth trends and unique settlement patterns. Though this vision, the Local Authority will be able to focus its investment and achieve its strategies in a streamlined manner and to the benefit of the local inhabitants. It will be able to achieve identified national directives.
5.1 PURPOSE AND PROCESS
The purpose of this housing vision is to provide direction to housing delivery and human settlement management in the Abaqulusi Municipal area. As described in the methodology, this is considered to be a layering process, which leads to a focused vision and pertinent strategic objectives. Reference is made to Diagram 2 below, which elaborates on the visioning process.
Diagram 2: Housing Visioning Process
Problem Statement
National Themes &
Policy Shifts
s contractcontract s s throughthrough partnerships partnerships
’ ’
National Government’s
Human Settlement
TheThepeople people FastFasttracktrack deliverydelivery CapacityCapacitybuildingbuilding trainingtraining and and
Access to adequate Access housing FightFightpovertypoverty SecureSecureandand sustainablesustainable communitiescommunities JobJobcreationcreation
Perspective to adequate Access housing
• • • • • •
• • • •
• • • •
Local Stakeholder Inputs and Synthesis
RustenburgAbaqulusi Housing Vision
Strategic Objectives
Defined
IntegratedIntegratedhousinghousing managementmanagement & & delivery delivery toto creditcredit Access Access Good Good GovernanceGovernance
InformalInformalsettlementsettlement upgradingupgrading NormalizedNormalizedpropertyproperty marketmarket toto landland Access Access PolicyPolicylinkageslinkages
• • • • • • • •
• • • • • •
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5.2 THEMES AND POLICY SHIFTS
A number of intersecting themes recur through the quotes extracted from national strategic and spatial perspectives. These themes result in the housing delivery process becoming far more ambitious and, indeed, far more complex than in the past. This can be attributed to shifts in policy indicated below. These themes and resultant policy shifts need to be factored into the Abaqulusi Housing Vision.
Intersecting Themes Policy Shifts All South Africans will have . All South Africans have an opportunity to access adequate housing in well- access to adequate designed, well-serviced and well-located human settlements. Policy shifts to housing emphasise and prioritise location, access to credit and access to basic services and amenities. . Security of tenure is critical. Title deeds in all newly formalised settlements and the transfer of housing programme (TORPS) gain priority. Fight poverty and build . Improve quality of housing (from a shack to a house) with emphasis on quality. secure and sustainable . Integrated packages of socio-economic and engineering infrastructure must be communities provided with all new housing developments. Paradigm shift from homogeneous low cost housing developments on the outskirts of the Cities and Towns to infill, densification and intensification of the City structure. . Reduce the impact of travelling cost and access to basic socio-economic infrastructure on household income by developing on well-located land. Targeted investment zones and brownfields development are priorities. . Move to mixed income housing development with a range or tenure options, densities and housing typologies. Create Jobs . Rolling out learnership and internship initiatives on a massive scale through infrastructure and housing implementation projects. Particularly the Essential Services Programme to be enrolled with the Department of Public Works as part contribution to the Expanded Public Works Programme. Peoples Contract and the . The financial sector gets the government‟s commitment to a partnership, an formation of Partnerships enabling environment including incentives to lend to poor households. . The construction sector receives government‟s commitment to a partnership, creating an enabling environment with incentives to participate actively in housing delivery to the poorest of the poor. . Employer groups are encouraged to contribute through employer-assisted housing. . Popularising the concept of Letsema in housing where communities initiate their own housing solutions. Intensify and fast track the . Move from stabilising the housing environment to demand driven housing delivery. delivery of housing . Although quantity and fast tracking of Housing Delivery remain crucial in eliminating the backlogs and reaching the Millennium goals and targets, quality housing gains more prominence and is backed up with a shifts such as moving from investing in people to investing in places that is well located. . Enhance access to title by implementing measures to stimulate a renewed uptake in the Discount Benefit Scheme and establish a high priority to complete the registration of transfer of houses constructed under existing housing programme. Capacity Building . Capacitation and accreditation of Municipalities to become developers in the Housing Delivery process. . Promote integrated development planning among all tiers of Government and private sector. . Project Management Office concept is implemented to streamline a standard approach to housing in the Province. Shift from Greenfield Sites . All programmes are focused on ring-fencing informal settlements and replacing to Formalising Informal these with more adequate forms of housing. Settlements . “One shack down – one house up”. . Informal settlement inhabitants receive certainty as well as access to proper services, security, choice and formal top structures. . All informal settlements are upgraded in-situ where possible. . Implement emergency relocation strategies where in-situ upgrading is not possible.
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Intersecting Themes Policy Shifts Integrated Housing . Establish Targeted Investment Zones with main focus on Housing Delivery. Development Approaches . Renewal of the inner city areas and address the neglected lower end of the housing rental market. . Urban Renewal Programme becomes a National Housing Programme with a dedicated funding mechanism. . Identify and prioritize sparsely populated areas for housing development. . Identify areas suitable for medium density housing. . Develop social infrastructure in well-located areas. . Identify emergency relocation areas. . Identify areas of Urban Regeneration. . Social Housing Policy drafted for developing and regulating viable social housing institutions and managing largely rental housing stock for the low-end market. . Develop special Medium Density Housing Development Programme to augment the Social Housing Programme. . Create an enabling environment for partnerships with the private sector to invest in Social Housing projects. . Hostel Upgrading policy to be revisited to promote the Social Housing Concept. Access to Credit . For first-time buyers the market is normalised and the necessary facilitation with the banks created. They also will have a choice. The hard-core poor, i.e. pensioners and the indigent, access a rental home with no savings required. . Collapse the subsidy system and create a three-tier category of income groups for better targeting. . The hard core poor (income levels 0 – R1 500) receive the full housing subsidy. . The role of the private sector is enhanced through the collapsing of subsidy bands as well as the removal of blockages relating to down-payments for the indigent and pensioners, assessing beneficiaries on spousal income, developing fixed rate and other new loan products including an option to convert the capital grant, where linked to a home ownership or rental, into an annuity based grant or benefit. Normalized property . Barriers to housing trade are removed through amendments to the Housing Act, market 1997, reducing the period during which resale on the private market is prohibited from 8 years to 5 years. . Local government address the normalisation through the establishment of a current, interrelated land use management system. Access to Land . Emphasis on well located land acquisition through pro-active identification and acquisition of land via the Public Works Asset Register, State Land Register and Environmental Potential Atlas. Good Governance . Special Investigative Unit with a hot line to root out corruption. . Communication Strategy to promote Housing Delivery and inform the Public about new policies. . Mainstream the participatory development paradigm. . Housing Information centres in all townships. New Policies . The impact of HIV/AIDS on human settlements. . Rural Housing Strategy to address traditional housing and HIV consequences. . Emergency Relocation Policy. . Informal Settlements Upgrading Strategy.
The initial layer broadens the concept of housing to ensure integration and facilitative management by the local authority. The next step is to determine the national government perspective.
5.3 THE NATIONAL HUMAN SETTLEMENT PERSPECTIVE
On 1 September 2004 Cabinet approved the so-called Ground Breaking Housing Plan for the development of human settlements in the next five years. Extracts from a press statement by LN Sisulu, Minister of Housing on the public unveiling of the New Housing Plan are listed below:
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. Integration and the Building of Secure Communities: Premised on the concept of human settlements the Plan provides a framework for the integration and building of homes in healthy and secure living environments where everyone have access to the services and goods produced by society. It provides for a total package of infrastructure such as clinics, schools, police stations, community facilities and clinics within the vicinity of built homes, in facilitation of good governance.
. A Three Tier Categorization of Housing Beneficiaries3: The Plan collapses the subsidy system and creates a three-tier category of income groups for better targeting. In the categorization, the poorest of the poor (income levels R0 - R1 500) receive the full housing subsidy of R28 000. The poor (income levels R1 500 - R3 500) also receive the full subsidy. A new subsidy band is created for affordable housing targeting the poor/middle-income level (those earning R3 500 to R7 000 pm), for which government pays a deposit.
. Redefining the Role of Government in the Housing Market: The reach of housing policy is broadened to cover the entire residential property market. This necessity stems from the fact that at its inception the Housing Policy and Strategy (1994) focused on stabilizing the environment to transform the extremely fragmented, complex and racially based financial and institutional framework that was inherited from the previous government, whilst simultaneously establishing new systems to ensure delivery to address the housing backlog. Therefore, whilst government believes that the fundamentals of the policy remain relevant and sound, a new plan was required to redirect and enhance existing mechanisms to move towards a more responsive and effective delivery.
. The human settlement perspective focuses on three main areas of intervention that should be taken up by the Abaqulusi Local Municipality and these include integration, access and institutionalisation of the housing delivery process.
5.4 STAKEHOLDER INPUTS
The formulation of the Abaqulusi IDP was supported by an extensive consultation process with Ward Committees in the Abaqulusi Local Municipality area. These consultations are incorporated into the development of a housing vision, objectives and targets for the Abaqulusi Housing Sector Plan. This section of the visioning process has accordingly been divided into three sections, namely the elaboration of key findings that were raised at the consultation sessions, an analysis of the findings and proposals put forward for the inclusion into the housing vision, objectives and strategies.
During various public sessions the background to the IDP Process was given, followed by more in-depth discussions on the current situation (analysis) and the key issues that followed from this current reality.
The following emerged as the highest priority needs of the Abaqulusi communities:
. Water . Roads . Electricity . Sanitation . Social services and programmes . Education . Community gardens . Safety and security . Sport and recreation . Fencing of fields . Housing and land reform . Cemeteries
3 The current housing subsidy amounts are somewhat different. Please refer to Section 6.7 of this Report for further details and latest subsidy amounts.
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The vision, objectives and strategic interventions must be a response to the housing need in Abaqulusi Local Municipality. The key issues in terms of expectations are:
. Speedy delivery – there seems to be a brewing impatience in communities about the pace of housing delivery. The backlogs seem huge and the Municipality is expected to act fast to deal with sprawling informal settlements, overcrowding, poor quality of housing and poor services; . Recognition of variations spatially across the municipality (urban, rural, peri-urban, informal, farm etc.) with respect to housing need and affordability levels; . Provision of shelter for the poor (destitute), the emphasis being on shelter more than housing unit; . Improvement of urban quality and reduction of urban squalor; and . Access to finance by the poor.
It is important to acknowledge the following factors that may affect Municipal housing delivery:
. Land availability and particularly limited available state land; . Some of the land in existing settlements is not suitable for housing; . Farm land under private ownership and expensive; . Demographics and the resulting housing demand; . Low levels of affordability; . Influx into the urban area of Abaqulusi; . Impact of HIV/AIDS; . Availability and reliability of data that highlights exact backlogs based on qualified need i.e. the number of people who need housing and who have applied, in some one way or other, for housing; . Effective housing need in rural areas has not been quantified; . Institutional issues; . Certain tribal by-laws restricting access to housing; . Poor services in most areas despite the existence of infrastructure. This also affects provision of free basic services and payment of services. Some of the infrastructure is not within current norms and standards; . Some areas, e.g. farms and informal settlements have no access to services; . Financial arrangement and access to funding, e.g. access to credit is limited due to land ownership issues and low income levels; and . Current allocations may not cover backlog.
5.5 RESULTS FROM THE SOCIO-ECONOMIC SURVEY
The Abaqulusi Sustainable Housing Assessment Project was undertaken in 2003, focusing specifically on the eMondlo/Hlahlindlela area. The primary component of this Project involved carrying out a socio- economic survey which provided valuable data and information in respect of the demographic and economic realities within the eMondlo/Hlahlindlela and also to the Abaqulusi area in general, forming the backdrop of human settlement planning, housing delivery and redevelopment projects around potential growth nodes. This Project is strongly interrelated with the Abaqulusi IDP and IDP Review Processes with due cognisance of the Abaqulusi LUMS which is in the process of being completed.
This socio-economic survey provides further detail to the stakeholder input obtained during the IDP process. It is critical that the results from this socio-economic survey be considered and addressed in the identification and development of projects and programmes geared towards sustainable settlement and the delivery of housing in the settlements of the Abaqulusi Municipal area. The following summarises the findings of the socio-economic survey in this regard:
. The study area has an average household size of 7 persons per household. There is evidence of overcrowding and this needs to be incorporated in future housing and sustainable settlement development in the eMondlo/Hlahlindlela area.
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. The population is youthful with more than half being younger than 24 years. This young population needs to be catered for in terms of educational facilities, sports facilities, entertainment, etc. HIV/AIDS is also an issue of concern as this is the group of people most under the potential threat of HIV/AIDS infection. Health care facilities, together with appropriate training and education should also be considered as priorities in sustainable settlement in it is also this part of the population that is most under the potential threat of HIV/AIDS infection.
. Low employment levels and high dependency rates put pressure on the economically active population to support the resident population. Already tight household budgets are further stressed and this has a direct correlation with the ability to pay for basic services. Low income levels and the fact that a large percentage of the community are dependent on pensions, which does not imply wealth creation further exacerbate this. For sustainability to be achieved it is critical that the majority of the economically active population be engaged in some form of formal or informal sector activity. Under these circumstances it is unlikely that sustainability can be achieved unless economic growth and employment creation are addressed as part of a holistic approach to sustainable development and settlement.
. A large portion of the community walk or utilise taxis to get to their places of employment or to supporting social and commercial facilities. The provision of taxi facilities and associated pedestrian movements need to be acknowledged and catered for. Taxis are also unreliable and not properly managed. The utilisation of buses as a means of transport is also significant with another quarter of the workforce utilising this mode of transport. The quality and reliability of the bus service are, however, not indicated and need to be assessed as part of a holistic approach to achieving sustainable settlements and long-term sustainability.
. It is clear from the spending patterns that the communities of in the eMondlo/Hlahlindlela area are relatively balanced. It is not survival based where money is primarily spent on basic needs. Food was indicated as the highest priority spending area, followed by schooling, clothes, transport and medical. The high expenditure on transport correlates well with previous sections highlighting the eMondlo/Hlahlindlela area communities‟ reliance on taxis and buses as the primary modes of transport. Other items are generally considered as luxury items and money is only spent as and when required. The analysis of these spending patterns also indicates that expenditure on municipal services is very low and the possibility of a culture of non-payment should be considered.
. There is an equal split in formal versus mud/wood houses occupied in the eMondlo/Hlahlindlela area – 46% of the houses are formal, i.e. brick and mortar, whereas 48% are mud and wood houses. Only 5.4% of the people interviewed live in corrugated structures. The latter is likely where the need for new housing development lies. The large number of mud and wood housing structures is also indicative of traditional living in Tribal Areas. The presence of such a high percentage of mud and wooden hut clusters and corrugated structures is indicative of rural areas. These types of dwellings typically lack basic services whereas formal dwellings are usually associated with the presence of basic services such as water, sanitation and electricity.
. The majority of the population has Permission to Occupy (PTO). There is thus a reasonably high level of security of tenure within the study area. The Tribal Authority within this area owns land and families are compelled to approach the “Induna” or Chief, who allocates land to the family. This is ratified by the Tribal Authority and Department of Land Affairs in the form of a PTO Certificate. It does, however, have serious implications as far as land use and sustainable settlement is concerned. Where no framework is available to guide the issuing of PTO‟s, concerns regarding the environmental, technical and social suitability of sites for land use are raised.
. The majority of the population is not registered on any housing waiting lists. Of the 17.2% on housing lists, 98.84% of the community are on a housing waiting list for the eMondlo and the remaining 1.16% for housing waiting lists for Vryheid. This indicates that there is only a very specific portion of the population in need of housing – those who are currently not adequately housed in formal or traditional
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housing. This needs to be considered in efforts to achieve long-term sustainability within the study area.
. There are significant backlogs in the provision of engineering infrastructure and services. Close to 15% of the population still obtain their water from the local river system. This is a matter of concern as this source of water is potentially dangerous in the spread of diseases such as cholera.
. Low affordability levels and a possible culture of non-payment could seriously hamper long-term sustainability in the emerging settlements around Ulundi and need to be addressed as part of a holistic programme aimed at achieving such sustainability.
. It is clear that the eMondlo/Hlahlindlela area does not have access to electricity and that households utilise other sources of energy. Wood and coal area the primary sources of such energy. These are also the more affordable energy sources in household already living on the bread line. Apart from the environmental and pollution implications of burning of wood, consideration also needs to be given to low affordability levels and a possible culture of non-payment in a holistic approach to sustainable development in the eMondlo/Hlahlindlela area.
. The condition of the main and local roads is perceived to be poor. In many instances the roads have deteriorated to such an extent that new roads would need to be constructed. Generally roads are in need of maintenance, rehabilitation and upgrading. These roads would tend to become inaccessible with heavy rains. There is obviously a severe backlog in terms of roads, which needs to be addressed. A reliable, well-maintained road network is critical for the economy of an area and will assist in attaining sustainable settlements.
. The majority of the population indicated that they disposed of their own refuse in their own dump, probably by burning it. There is an obvious need for the provision and maintenance of a better municipal solid waste disposal system but once again could be hampered by low affordability levels and a culture of non-payment. The environmental and pollution implications of the burning of refuse, again, needs to be considered in terms of attaining long-term sustainability.
. Affordability levels are low and this has implications for the provision of basic services. Such provision needs to take into account these low income levels. Moreover, the need for creating wealth through education, training and economic development is again emphasised. This would increase the income levels of the community and therefore also affordability levels.
. Communities are not well served with community and social support services and that these services are generally located some 5km to 10km from where these communities live. For 61.6% of the community, primary schools are located within relative easy access – in this instance less than 2km from where they live. High schools, clinics, post offices, community halls, sports fields, police stations and pension pay-points are generally located between 2km and 10km from the majority of the communities, with hospitals being more than 10km away for 90.6% of the communities of the eMondlo/Hlahlindlela area. The eMondlo/Hlahlindlela area can therefore not yet be considered as a potentially sustainable settlement as far as support service infrastructure is concerned. Significant work is needed to create viable and sustainable neighbourhoods and settlement patterns where communities have easy and convenient access to basic community support services. This is particularly relevant in areas such as the eMondlo/Hlahlindlela area, where affordability levels are low and large portions of household budgets are spent on transport. Easy and convenient access to community support services would imply a lesser need to travel and particular attention needs to be given to the clustering of such facilities and services at “on-stop centres”.
. Retail and commercial uses are also located some distance away and the travel patterns indicate that for the majority of the population there are shops and markets in close proximity to fulfil their basic daily needs. However, for weekly and monthly uses (or perhaps more specialised shopping) the majority of the population needs to travel further than 5km. This clearly indicates that the eMondlo/Hlahlindlela area is currently a dormitory rural area, void of supporting urban facilities and
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infrastructure and therefore unable to cater comprehensively for the needs of the resident communities. To achieve long-term sustainable settlement development in this area the development of supportive urban uses it critical. This needs to be balance with providing appropriate and effective access to such facilities existing in close proximity.
. Overwhelmingly, formal housing was perceived to be safer than traditional housing. This relates to the perception that formal housing is less prone to destruction by severe climatic occurrences such as flooding, lightning strikes etc. Furthermore, formal housing is associated with better building materials and better building techniques. Although the majority of the community perceived formal housing to be safer, it does not perceive it to be culturally quite as acceptable. This can probably attributed to the “stigma” of social housing as well as to strong traditional ties, practices and customs. There is, however, strong contradictions between what is culturally and what is socially more acceptable. This duality needs to be acknowledged when addressing sustainable settlements through the housing channel. The communities of the emerging settlements around Ulundi, however, consider formal housing as socially more acceptable, providing for better living environments. This is clearly a more westernised community that have moved away from traditional living and traditional forms of housing so often found in rural KwaZulu-Natal. Formal housing is preferred and accepted as the “better” option by these communities.
In the quest of achieving sustainable settlements and long-term sustainability, the needs in the settlements around Abaqulusi are clearly more focussed on economic and people development than the development of housing top structures. A holistic approach is required, incorporating the principles and strategies contained and outlined in this report. But first and foremost it should be borne in mind that the overall human settlement objective in these settlements around Abaqulusi is to improve the social, economic and environmental quality of human settlements and the living and working environments of all people. Such improvement should be based on technical co-operation activities, partnerships among the public, private and community sectors and participation in the decision making process from community groups and special interest groups such as the youth, women, indigenous people, the elderly and the disabled.
5.6 WATER SERVICES AND SUSTAINABLE HOUSING DELIVERY
The Department of Housing‟s White Paper on a New Housing Policy and Strategy for South Africa defines housing as a variety of processes through which habitable, stable and sustainable public and private residential environments are created for viable households and communities. Within this housing context it is essential to acknowledge the aim of providing all communities with access potable water, adequate sanitary facilities, waste disposal and domestic electricity. Water services in particular are considered the back-bone of sustainable housing delivery.
In the Abaqulusi Municipal area the Water Services Authority function includes the responsibility of water services provision and the ZDM WSA is required by law to fulfil this function. The ZDM is thus required to not only provide equitable access to basic water services (including sanitation), but also to collect revenue, provide customer services and undertake operations and maintenance of both the bulk- and reticulation infrastructure in respect of the Abaqulusi Municipal area.
In 2000 the ZDM initiated the preparation of their Water Services Development Plan which culminated in a WSDP Viewer dated November 2001. Phase 1: Status Quo of this WSDP was completed as a draft during 2001 and included the Abaqulusi Municipal area. Subsequently, the ZDM WSA undertook further planning work and a further version of the ZDM WSDP was completed in November 2003.
As part of the development process of the ZDM WSDP priority was given to a regional planning perspective with a view on longer term planning. Consequently the regional water supply for the Abaqulusi Municipality‟s area of jurisdiction are:
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. Abaqulusi has 2 Water Treatment Works, i.e. the Mondlo WTW serving Vryheid and the Nkongolwane WTW serving the Nkongolwane area; . The eMondlo and Khambi Regional Schemes will provided for much of the needs in the emerging settlements and Tribal areas of eMondlo/Hlahlindlela and Khambi. . Rudimentary Schemes, involving drilling of new boreholes and the refurbishment and repair of existing infrastructure are introduced in all areas not served by existing WTWs or by future Regional Schemes.
The regional planning perspective and longer term planning horizon are also used for the purpose of tariff calculations ensuring regional efficiency.
Alignment of any development project proposal with the latest version of the ZDM WSDP is essential and should be a prerequisite for project approval. Access to basic water services implies that the provision of these services must accord with the priorities and objectives of the municipality. It also means that municipalities have the right to deny access to water services under certain circumstances, should the priorities and objectives adopted by the municipality not be supported by such provision.
In the municipal environment, financial sustainability depends on the ability of councillors and the municipal management to govern and administer the affairs of the municipality in such a manner that a positive and consistent income stream is ensured. It is also essential that access is gained to capital finance in order to maintain existing service provision assets and to meet future capital requirements associated with the provision of municipal services. The achievement of regional efficiency is a Constitutional and legislative obligation placed on local government and requires a reduction in capital expenditure on service provision within the area of jurisdiction of a municipality and thus lowering the overall cost of supply.
5.7 CONSIDERATION OF OTHER DEVELOPMENT CONSTRAINTS
The following typical aspects could be seen as development constraints which need to be taken into account during the planning of a project:
. Any electrical powerline servitude. . Any oil pipeline servitude. . A portion of a total development site could have topography steeper than 1:3 and therefore, considered less developable. . Any road servitude registered. . Floodlines that traverse the potential property, constrain the development through a reduction in developable land, as well as the limitations it places on multiple road access across the floodlines due to cost considerations. . Access constraints to a development area from the provincial road network could please certain restrictions on the location and spacing of the access intersections from same, due to the gradients of the topography and sight distance considerations. This can, however, be overcome through the careful sighting and geometric design of proposed access intersections. . Any obvious heritage, archaeological or ecological constraints identified during the environmental scan.
5.8 PROPOSALS TO GUIDE VISION BUILDING
A. Vision Proposals
The vision for housing and the creation of sustainable communities must capture the following:
. “Affordable” - considerate of the different income groups
. “Appropriate” - suitable for the different needs e.g. rental, ownership
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. “Quality” - spacious, good workmanship, good building materials
. “Sustainable” - localities with access to services, amenities and income sources
B. Strategic Objective Proposals
In setting strategic objectives to support the housing vision the following is proposed:
. Increase understanding of housing subsidy programme by communities. . Create sustainable rural communities in the next ten years. . Eradicate informal settlements in the next ten years. . Improve provision of services to all communities in the next five years. . Develop partnerships with mining and tribal authorities. . Cut the housing backlog by half in the next five years by providing at least 5,000 low cost housing units to by 2010.
C. Proposed Strategic Options
The following can be explored in the formulation of Abaqulusi‟s Housing Strategies:
. Building on existing stands. . Partnerships for land release, finance and housing models . . Entering into service agreements regarding municipal services provision. . Promoting people‟s housing programme. . Provide municipal infrastructure as part of the package, especially in relation to rural areas. . Farm areas: Create new localities that can also serve as municipal/government service centres and provide housing for a wider area. This should be based on local travel patterns and can in future turn into commercial centres. . Purchase suitable land and turn into residential land. . Informal settlements: Identify suitable locations and promote the locality to accommodate people from various settlements. Provide services as part of the housing package. . Urban settlements (townships): Low income houses Rental units Develop sites for those who want to build own houses.
5.9 VISION COMPONENTS
There are seven primary components to the Housing Vision. Each component of the Housing Vision has been placed within an overall political context and then taken further into strategic thrusts. These seven components have evolved out of the layered visioning methodology, with particular reference being made to the stakeholder inputs. The Abaqulusi Housing Vision therefore comprises the following:
. Adequate and affordable housing for all in the Abaqulusi Local Municipality
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS „Adequate shelter‟ measured by: Housing is: . Legal security of tenure Adequate . Adequate shelter to fulfil a basic human need . Availability of services, and . Both product & process materials, infrastructure & Affordable . A product of human endeavour & enterprise facilities Housing for . A vital part of integrated development planning . Affordability All . A key sector of the provincial economy . Habitability . Vital to the socio-economic well-being of the . Accessibility Municipality & deepening of democracy and . Location & cultural adequacy citizenship
. Provision of quality, sustainable human settlements
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POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS Sustainable settlement entails: Sustainable housing is: . Quality of life to all members . Adequate sanitation, clean water & air, good of society by providing all indoor air quality, an absence of disease people equal opportunity to a Provision of vectors & access to health care healthy, safe & productive life Quality, . A secure living environment & reduced threat & ensuring social &economic Sustainable from natural & man-made disaster development Housing . Affordable housing accessible for all, including . The interaction between a people with special needs settlement & its biophysical . Access to livelihood opportunities, education, environment where this economic resources, financing & mobility interaction continues to . Connectivity & access to pertinent information, support an adequate quality of with meaningful participation in decision- life. making & creation of one‟s living environment . The ability of the institutional . Establishing supportive communities & systems responsible for protecting natural & cultural heritage, while creating, operating and improving the environment maintaining the settlement to . Judicious use of land, water, raw materials, continue providing an energy & reduction of waste & pollutant adequate quality of life in a emissions manner that supports . Protecting vulnerable areas, threatened sustainability species & areas with an important environmental role (EIA & SEA procedures) . Access to appropriate funding mechanisms, e.g. housing subsidy and beneficiaries‟ ability to pay for services, rates & taxes . Improved cooperation between all spheres of government & access to housing info . Clear roles & responsibilities with adequately skilled human resources (officials & contractors) . Provision, operation & maintenance of physical infrastructure . Willingness to explore non-conventional solutions whilst ensuring quality
. People‟s contract and partnerships in the provision of sustainable, viable human settlements
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS The Freedom Charter Mainstreaming the participatory development prescribes: ‘There Shall be paradigm: Houses For All’. This is an . The financial sector gets the government‟s awesome task that must be Peoples commitment to a partnership & enabling done by collectively mobilising Contract and environment with incentives to lend to poor communities, business & Partnerships households professionals to enter with . The construction sector receives the government into a contract to government‟s commitment to a partnership & help build South Africa. enabling environment with incentives to Everyone must act together to participate actively in housing delivery to the achieve reconstruction & poorest of the poor development in a people's . Employer groups are encouraged to make a contract to create work & fight contribution in employer-assisted housing poverty in the context of . Popularising the concept of Letsema in Expanded Public Works housing where communities can initiate their Programmes own housing solutions . Housing Support Centres & SETA work closely to blend short-term job creation interventions with learnership initiatives
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. Job creation through the housing delivery process
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS Rolling out learnership & Expanded Public Works Programmes ensure: internship initiatives on a . Labour intensive mechanisms are utilised for massive scale through the installation of services infrastructure & housing Job Creation . The contractor limits the utilisation of implementation projects, e.g. the professional personnel for the execution of the Essential Services Programme work to key areas where expertise is not enrolled with the Department of available within the community Public Works as part . All personnel and labourers are recruited from contribution to the Expanded the local community Public Works Programme . The contractor establishes a labour desk
. Poverty alleviation so as to address the Millennium Targets within the local context
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS By 2015 (Millennium Targets) . Prioritise informal settlements for in-situ . Halve the % of people living upgrading or identify emergency relocation on less than $1 a day areas . Halve the % of people who Poverty . Improve housing with an emphasis on quality suffer from hunger Alleviation and sustainability . Ensure that all children . Integrated packages of socio-economic & complete a full course of engineering infrastructure provided with all primary schooling by 2005 new housing projects. No homogeneous low . Halt and begin to reverse the cost housing on the outskirts of cities & towns, spread of HIV/AIDS but rather go for infill and densification . Halve the % of people without . Reduce the impact of travel costs & access to sustainable access to safe basic socio-economic infrastructure on drinking water household incomes through development on . Ensure access of all well located land households to clean running . Move to mixed income housing development water and basic sanitation in with a range of tenure options, densities & the next 5 years housing typologies
. Reverse historical distorted patterns through the provision of appropriate, integrated housing development and exploring alternative tenure and typology mixes
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS . Promote and re-enforce areas . Shift from “green fields” to “brown fields” of economic growth through Reverse development & in-situ upgrading public sector CAPEX Historical . Promote integrated development planning . Shift from quantity to quality Distorted through urban renewal projects housing, investing in places Development . Promote the crowding in of public investment not people Patterns . Establish targeted investment zones . Shift from stabilising the through the . Identified & prioritised sparsely populated
housing environment to a provision of areas and suburbs focus on housing delivery appropriate . Identify areas for inner city regeneration . Shift from “green fields” to housing . Identify areas suitable for medium density “brown fields” development housing . Promote integrated . Develop social infrastructure in well located development planning among areas all tiers of government and . Identify appropriate urban edge to curb urban private sector especially in sprawl urban renewal projects
. Promote the crowding in of public investment
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. Good governance through capacity building and focused institutional structuring
POLITICAL CONTEXT KEY VISION COMPONENT STRATEGIC THRUSTS Harmonisation of the Municipal . Special investigative unit with a hot line to root IDPs & the refining the system out corruption of monitoring & evaluation to Good . Communication strategy to promote housing improve performance & the Governance delivery & inform the public of new policies quality of outputs . Housing information centres in all townships
. Implementing institutional processes to streamline housing delivery between all tiers of government & ensure proper monitoring & evaluation, including exploring accreditation for the Abaqulusi Municipality
5.10 STRATEGIC OBJECTIVES
The following serve as the strategic objectives to further guide the formulation of the Abaqulusi Housing Sector Plan:
. To reduce the housing backlog by half in the next five years through the provision of approximately 5 000 low cost housing units across the Abaqulusi Local Municipality by 2010. . To build an effective, efficient and caring government in the delivery of housing through embarking on a process to be accredited as well as being capacitated. . To facilitate, fund, manage the provision of tenure and appropriate quality services and houses. . To densify housing on well located land as well as diversification of housing stock for various markets. . To contribute to National Housing Policy processes and address gaps that hinder sustainable development. . To mainstream implementation of the Expanded Public Works Programme and labour intensive methods. . To develop working partnerships with key role-players in the area, focusing on interaction between the mining and tribal authorities. . To identify all potential land for future housing development, with the aim of encouraging integration and a mix of housing typologies. . To encourage capacity building, training and information dissemination in relation to housing subsidy programmes . To create sustainable and viable rural communities. . To eradicate informal settlements in the area over the next 10 years, in compliance with the national target. . To improved provision of services to all communities within 5 – 8 years. . To locate new housing development within a rational urban development boundary to ensure sustainable development. . To provide integrated, functional residential development that is complemented necessary social and economic amenities.
These Strategic Objectives also need to be taken into consideration when setting Internal Performance Indicators as detailed in the Housing Strategies that follow in Chapter 6 of this Abaqulusi Housing Sector Plan.
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6. ABAQULUSI HOUSING DEVELOPMENT STRATEGY
In the past, national and provincial housing departments decided that the best way to address the housing backlog was to adopt a strategy that was based on chasing numbers – a mass housing approach. Through this approach, houses were built everywhere where land could be acquired cheaply thereby perpetuating urban sprawl and segregated development areas. Houses were built further from job opportunities and social amenities, undermining economic viability and environmental sustainability. Further, the quality of the houses was compromised due to poor workmanship and the lack of integrated, quality control approaches.
During the past few years, realities in the provision of housing have brought to light that a shift in the housing strategies of provincial and national governments was necessary. The challenge now is to go beyond the simple provision of houses; and to build communities human settlements.
Further to establish sustainable human settlements that foster conditions that promote economic viability and environmental sustainability. The approach has now evolved on to build houses on well-located land that is closer to job opportunities and necessary social amenities. Such land typically is located on infill areas within cities.
The complementary approach to infill, where there is no available land internal to existing development, is to provide a range of alternatives on land immediately adjoining the existing settlements, with the aim of facilitating integration of diverse areas and capitalizing on available infrastructure.
According to the Abaqulusi Housing Sector Plan calculations (Sections 1.2. and 1.3), the total need for housing within the Abaqulusi Municipal Area up to the year 2015 is estimated at approximately 40 503 units, with the backlog in housing provision for the same period estimated at 10 226 units4. Addressing this housing need requires a tailor-made, focused approach, one that uses one or the combination of the 3 broad categories of housing delivery. Categories of housing delivery are:
. The provision of tenure: The provision of tenure basically involves a Township Establishment process, which includes designing the layout, drafting the application and submitting it to Council, an EIA process, and surveying the township.
. The supply of essential services: The supply of essential services is an engineering aspect and involves the design and implementation of engineering services (water, sanitation, electricity and roads).
. The construction of top structures: The third component of housing and tenure delivery is the construction of top structures. The construction of the top structures is done through the provision of Government subsidies and is normally constructed by private construction companies.
The above three-part housing delivery process can either be dealt with as one process or in separate stages. In other word, it is possible to only provide tenure at one stage, without necessarily having to provide services or housing directly after that. This variation of approaches also commonly distinguishes the two main focus areas of housing and tenure delivery. The first is affordable housing and tenure delivery, providing the full range (tenure, services and housing) on green-fields developments. The second is informal settlement upgrading, which basically provides tenure and services for existing informal settlements.
4 Calculated at an average of 5.32 persons per household using Census 2001 data and projections according to Sections 1.2 and 1.3 D of this Report.
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6.1 PURPOSE AND PROCESS
The purposes of the strategies detailed below that are encompassed in the Abaqulusi Housing Sector Plan are twofold. The first, which is in the form of Human Settlement Progression Plans, aims to elaborate on the various practical steps that the Local Authority needs to go through for each settlement type, in order to address the entire spectrum of housing need. The second component is the elaboration on six specific strategies that address identified delivery problems as well as institutional dilemmas.
Within the context of the above, the process is to add value to the recommendations already made in the Abaqulusi SDF, as it relates to housing. All the concepts that were referenced in the SDF will also be used in the strategies. For the spatial details, please refer to ANNEXURE A, which details the general growth patterns per cluster, as well as references the cluster.
The Strategic Development Rationale provides the overall approach to the development of Abaqulusi. This Rationale forms the premise for the Spatial Development Framework and the interventions put forward in terms of strategies, actions and projects.
The diagram below is a conceptual presentation of the Strategic Development Rationale.
The Strategic Development Rationale recognises the structural elements and aspects, which shaped Abaqulusi into its current form. These elements form the basis of the formulation of a Spatial Development Framework to deal with future physical development of the area. These structuring elements include:
. Previous planning ideologies: Apartheid planning resulted in the separation of eMondlo from Vryheid, which provided eMondlo and Bhekuzulu with the function of dormitory townships, isolated
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from economic opportunities. This created a distorted spatial structure and lead to inefficiencies and backlogs in service provision. . Tribal Authority areas (Hlahlindlela and Khambi): Dispersed settlements developed with no order. These settlements are dependent on each other and Vryheid, but operate independently. Ad hoc and unsustainable service and infrastructure development occurred. . Mining operations: Urban settlements such as Coronation and Hlobane were created purely to house mineworkers. Since the closure of mines these towns were repopulated and utilised by new inhabitants. . The alignment of the “Coal Line” between Mpumalanga and Richards Bay has played a structuring role in the development of area. . The two major provincial road corridors (R34 and R69), crossing through the area have played a part in the development of urban settlements along its alignments. . The topography of the area determined its physical linkages in the regional and national context. Only limited links are possible to the economic hub of South Africa, i.e. Gauteng.
The key objective of the Rationale is to strengthen Vryheid as the core of development and to identify secondary nodes in support of the main node and through which social service delivery to the disadvantage rural communities can take place.
Two provincial road corridors pass through the area namely the R34 and R69. Vryheid is strategically located at the intersection of these corridors accounting for its dominance in terms of economic and social development. Of the two corridors, the R34 is the strongest and accommodates the main stream of economic energy. Linked with this route is the “Coal Line” which also passes through Vryheid, providing potential opportunities for export of goods. Vryheid also has an airport, which could further strengthen its strategic importance within the region.
The physical segregation and distortion of the municipal area is evident and can be illustrated as follows:
. eMondlo, which was originally developed as a dormitory black township, is not located any transportation corridor. Its physical distance form Vryheid is such that its physically integration with Vryheid is near impossible. Instead a large concentration of people from the Hlahlindlela Tribal Area has settled around eMondlo, placing enormous pressure on eMondlo for the delivery of services. . During the prosperous days of the coal-mining sector the mining communities of Hlobane and Coronation settled in the area. These areas are too distant from Vryheid to be physically integrated and they will remain as separate communities in the foreseeable future. . Louwsburg, an area to the north east of Vryheid, has a week economic base and developed mainly as a local service centre to the agricultural sector. To the south of Louwsburg lies a large concentration of people in the Tribal area of Khambi. This area is removed from other urban areas and depends on Louwsburg and Vryheid for all its social and economic services.
Several urban areas and rural population concentrations are dispersed through the Abaqulusi Municipal area. These settlements all have a dormitory function and rely on Vryheid for employment, goods and services. Vryheid is therefore subject to a large peripheral dependency and at the core of what can be regarded as a functionally integrated, but physically segregated area. The road network that provide the links between Vryheid and these dormitory settlements are well defined even though not well developed and maintained. If strengthened they do however provide opportunity that facilitate improved integration.
In terms of population density, concentration and service demands, the dormitory townships can be regarded as emerging urban areas and recognised as the primary areas of focus for the development of new engineering and social services.
Currently the Municipal area lacks structure and a clear hierarchy of nodes. To rationalise the regional distribution of investment in basic infrastructure and community services and to facilitate the appropriated planning and programming of social, infrastructural and economic development a hierarchy of nodes need to be identified. Vryheid is as the focus for economic development and job creation. The development of the secondary nodes will ensure access to social and community services. These nodes
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The concentration of activities around nodes will stimulate further development, particularly in the emerging urban areas around eMondlo and Louwsburg. Improved transport links between these nodes will lead to the more effective functioning of public transport and increase accessibility to economic and social opportunities, particularly for disadvantaged and poor communities. The development of Regional Service Centres in these nodes will create the stimulus for development, indicating some level of investment confidence.
One of the problems facing eMondlo is the lack of land for expansion due to the land tenure practices of the Tribal Authorities. The release of land, through land reform projects will lead to increased confidence by investors, delivery of appropriate and affordable housing and access to land.
Addressing services backlogs and delivery in the emerging urban settlements around the identified nodes can be achieved through the formalisation and upgrading of these areas.
The development of the tourism sector within the Abaqulusi area can make a meaningful contribution to economic development and growth. The location of such facilities is of strategic importance. Various projects need to be implemented such as the development of a Cultural Village at the Klipfontein Dam on the R34. Projects such as this can capitalise on the locational advantages of the road corridor and the environmental resources such as regional open space.
6.2 HUMAN SETTLEMENT PROGRESSION PLANS
The Human Settlement Progression Plans are essentially practical internal mechanisms that draw from the Vision and Strategic Objectives. They will assist the Local Authority to systematically and comprehensively address each type of housing, of which there are four that have been identified in the Abaqulusi area. They include urban, rural, tribal and informal human settlements.
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6.3 STRATEGY 1: LAND IDENTIFICATION AND LAND RELEASE STRATEGY
Approximately 63% of the population of the Abaqulusi Municipal area live in rural areas and are concentrated in the Hlahlindlela and Khambi Tribal areas in scattered homesteads known as imizi. Homesteads are of a mixed nature and include both modern dwellings and traditional thatched huts. A small portion of the population lives as tenants on farms. The remainder of the population is concentrated in and around urban areas in informal settlements, particularly around Vryheid and Louwsburg and in the Coronation/Hlobane area.
The following housing types can be distinguished:
. Traditional households include a clustered number of thatched roofed huts and lack basic infrastructure; . Formal dwellings are houses with a solid top structure, made of concrete and are served with basic infrastructure; and . Informal dwellings are made from a variety of materials, are not structurally secure and are without basic infrastructure.
The composition of a sustainable human settlement is detailed in Diagram 3 below:
Diagram 3: Sustainable Human Settlement Defined
Health • Clinic Transport • Hospital • Bus facilities • Taxi ranks & stops Access • Streets • Major Roads • Pedestrian Access Open Space DWELLING • Active Recreation Education UNIT • Passive Recreation • Primary • Middle • Secondary • Tertiary Community Facilities • Community Care Center Economic Facilities • Post Office •Retail • Police Station •Offices • Emergency Service •Industrial Center
The greatest need for housing is in the eMondlo/Hlahlindlela area, the Khambi area and in Coronation/ Hlobale. Various initiatives have provided formal housing in the Bhekuzulu area outside Vryheid but there is an continuous pressure for housing in the peri-urban areas of the urban clusters of Vryheid and Louwsburg. The housing need will largely have to be addressed by the public sector. To promote a
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STRATEGIC RECOMMENDATIONS
All of the approximately 9 833 housing units needed by the year 2010 (refer to Section1.3 D) need to be supplied by the public sector as these units would cater for the low-income population groups that rely on and qualify for housing subsidies. Furthermore, and in keeping with the perspective of “human settlement” development, it is necessary to ensure that sufficient land is identified to accommodate the supporting functions.
The following actions, focusing on land identification and land release, are necessary to ensure that the Abaqulusi housing delivery targets are met:
Action 1: Land Identification and Evaluation
Undertake a detailed evaluation and assessment of all the land parcels that have been identified in the Abaqulusi SDF. This is required to prioritise and to ensure a streamlined approach to land release. The following steps are required within the context of this land identification and evaluation action:
. STEP 1: Undertake a detailed land audit with the focus on identified land parcels. This is to ensure that vacant land and potential infill areas are identified; . STEP 2: Assess all geological, geotechnical, mining and physical constraints on the land identified that has potential; . STEP 3: Determine legal constraints, land restitution issues, tribal or mining rights as well as any zoning considerations; . STEP 4: Identify land ownership of land that has been screened through the first three categories, prioritise government owned land as far as possible and then embark on a land expropriation process where required. This expropriation process needs to be budgeted for on a regular basis (annually) so as to ensure that the financial allocations are in line with the identified targeted timelines.
Due to limited financial resources, a fully fledged and scientific land identification and evaluation process is unlikely to occur immediately. It is also not within the scope of this Housing Sector Plan to undertake this specific task. However, as an interim measure, land parcels for potential housing settlement projects can be identified and evaluated by pooling the internal knowledge and expertise of Council officials and other stakeholders in a workshop situation.
This workshop would address the housing demand as outlined in this Report and more specifically how to address this demand over the next five years. The identification and planning of projects should focus on the following aspects of housing delivery:
. Types of projects; . Location of projects; . Number of beneficiaries; . Estimated project value; . Estimated budget per financial year; . Timeframes for projects; . Availability of infrastructure aligned to district municipality infrastructure programmes; and
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. Strategies for these projects which could include using housing delivery to alleviate poverty, create jobs and involve women in the housing construction process.
The land identification and evolution process can be done in accordance with the Land Parcel Assessment Matrix attached as ANNEXURE B. This Matrix provides the appropriate guidelines for the identification of land and the evaluation of such land specifically for housing and human settlement projects. It takes into account all the relevant criteria that need to be considered in land identification and evaluation with a specific focus on the long-term sustainability of settlements and the optimisation of investment, i.e. gaining the most for every Rand invested and sustaining that positive impact/spin-off for the greatest period of time.
Housing priority issue within the Abaqulusi Municipality need to be outlined in terms of urban, rural, rental, etc. The Planning Template (ANNEXURE C) can be used in this regard.
Once the projects have been identified and evaluated with budgets and timeframes being allocated, the Abaqulusi Municipality can submit the information to the KwaZulu-Natal Department of Housing for the motivation and allocation of funding in accordance with Strategy 5 of this Housing Sector Plan.
Action 2: Land Release
Once the land identification process has been undertaken as detailed in Action 1 above with an actioned land release strategy in place, the other strategies will come into play. Accordingly, there is a need to focus on the following:
. Densities and densification, especially in relation to both infill and informal settlement upgrading. Reference is made to the Backyard Dwelling Unit issue that is raised in a further Strategy; . Urban renewal and changes in land uses can be an option although there has not been that intensity of development in the Abaqulusi area to warrant this in many cases; . Prioritisation of land parcels that facilitate integration and the linkage between the Abaqulusi urban areas and their peri-urban areas, as well as the emerging settlements; . Land release partnerships with tribal and farming communities of the area; and . Introducing housing mix and alternative housing tenure options in order to capitalize on existing infrastructure and local facilities and amenities.
Action 3: Preliminary Cost Estimate, Programme and Projected Cash Flow
A preliminary cost estimate should be prepared for each project based on industry average rates. The estimate should indicate the cost of developing the project up to the completion of all engineering services, bulk services and subsidised housing. It should also provide a cost apportionment to indicate the contribution required from the respective funding institutions.
The main requirement for the the pre-planning stage is the conclusion of the memorandum of understanding. A preliminary cash flow must indicate bridging finance requirements in the period leading up to the availability of institutional funding and should be based on the following assumptions:
. That the various institutional funding parties will approve and budget for the required funding according to the cash flow requirements. The joint development agreement signed between the major stakeholders will describe the funding requirement that is expected from each party as well as the other funding sources, e.g. MIG or DMEA, that they will be required to access. . That the rate of sales will realise.
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6.4 STRATEGY 2: PLANNING AND SERVICING OF IDENTIFIED LAND
The housing strategy shift of Provincial and National Government places the accent for housing development on the location of affordable housing projects. Such housing projects can no longer be located according to the widest and most simple criteria, but should now adhere to very specific criteria, even if it implies sacrificing certain advantages. For example, housing should rather aim at infill development, which often implies allocating expensive land rather than allocating cheap land on the outskirts of the city. Based on this new approach, the following criteria for the location of affordable housing projects are presented:
. Availability of Bulk Services: Affordable housing projects are reliant on access to bulk municipal services. These include water as the highest priority, followed by sanitation and electricity bulk infrastructure. Usually bulk municipal services are available in or next to existing urban areas. This favours infill development as the primary option for affordable housing development and opposes urban sprawl as a form of urban development. The Abaqulusi IDP Review process identified the eMondlo/Hlahlindlela area as the first priority in this regard. Needs in areas such as Khambi and Coronation/Hlobane follow as subsequent priorities.
. Linking the IDP: The Housing Sector Plan does not stand on its own, but forms an integral part of the Abaqulusi IDP process. Within this context the IDP identified numerous projects that would directly impact on the delivery of housing. These need to be acknowledged and incorporated into this Housing Sector Plan. At the same time the Housing Sector Plan must inform the IDP in its review stage to ensure the alignment of IDP projects and budgets with that of this Housing Sector Plan. Only if such alignment has been achieved can the speedy and appropriate servicing and release of land for the delivery of housing and the creation of sustainable communities be guaranteed.
. Ownership of Land: The ownership of land determines the timeframe and cost of the development of affordable housing projects. Land already in ownership of the Municipality avoids the tedious and expensive purchase and transfer of privately owned land for affordable housing development.
. Access to Social Amenities and Economic Opportunities: Affordable housing projects should be located in a manner that will ensure that the households living in those developments have reasonable access to social amenities and economic opportunities. This will imply that affordable housing projects should be located close to existing social and economic nodes, such as the town of Vryheid or close to the proposed Rural Services Centres at eMondlo, Khambi and Coronation/ Hlobane .
. Integration of Urban Structure: When locating new housing developments, the chosen areas should always be measured against the extent in which it contributes to the establishment of integrated, economically viable and sustainable communities. This involves promoting infill development, instead of allowing urban sprawl to continue unabated. This was the aim of the SDF development concept, to integrate the fragmented urban structure through strengthened corridor development. The affordable housing projects for the Municipal area should adhere to the principles of the development concept.
. Access to Public Transportation: Households that typically live in affordable housing are largely dependant of public transport and walking as their modes of transport. It is therefore imperative that affordable housing project be located next to public transport routes (bus, train and taxi). This enables people to obtain more convenient access to the social amenities and economic opportunities within the spatially fragmented Abaqulusi Municipal area.
As an example, affordable housing can be placed in a strip along public transport routes, with a mix of land uses and housing typologies preferably located at the intersections of such roads. The aim is to place higher-density land uses, such as affordable housing, in a strip abutting these public transport routes, in so doing, increasing access to these public transportation systems. Housing densities can be lowered with increasing distance from such roads as indicated in the following figure.
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MIXED-USE LOWER DENSITY
HIGHER DENSITY
PUBLIC TRANSPORT ROUTE
. Located within Urban Edge: This criterion is closely related to the aforementioned criteria proposing urban integration. To obtain urban integration and to limit sprawl, it will be necessary to adhere to the delineated urban edge. No affordable housing projects must be developed outside the boundaries of the urban edge.
As estimated in the land use budget, the focus of affordable housing development projects will be in eMondlo/Hlahlindlela, Khambi, Coronation/Hlobane and the peri-urban areas of Vryheid and Louwsburg. Broadly speaking, these areas satisfy the criteria set out above to different and often opposing degrees. These areas have access to public transport as well as the social and economic opportunities afforded by Vryheid. Land ownership may, however, be an issue of concern. eMondlo and Khambi are considered as emerging settlement and the Abaqulusi SDF gives recognition to this. These areas need to be properly planned and the preparation of Development Framework Plans and the consolidation of the land within these areas will significantly promote the effective utilisation of engineering infrastructure, infill development, urban integration and achieving sustainable human settlements.
STRATEGIC RECOMMENDATIONS
Planning and servicing of identified land is a complex process that requires a more appropriate and focused approach. The first recommendation is to establish a focused Housing Delivery Management Unit under the auspices of the Municipal Manager. Refer to Strategy 6 (Section 6.8 of this document) for further detail and information in this regard.
This HDMU should be internally resourced as far as possible but it can outsource some of the specialized functions. It can also have a capacitation and handover programme as the needs require. The HDMU will be required to deal with the entire housing delivery process from land identification through planning, service delivery, development, project management, site handover and long term management. Reference is made to Diagram 4 below, which elaborates on the composite functions that the proposed HDMU would have.
Further, should the Local Authority opt for accreditation, as detailed in Strategy 6, the HDMU would form the basis of the long term institutional structure and will be able to initiate the processes and business plan for the accreditation.
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Diagram 4: The Proposed Housing Delivery Management Unit
Interdisciplinary teams Land identification and release Assessment, expropriation Land audit and land management
Planning and design Environmental management Design, standards, regulations
Housing typologies Tenure alternatives Sustainable human settlements
Coordination and recommend for service provision and planning
Property management THE ABAQULUSI HOUSING ABAQULUSI THE HOUSING
THE RUSTENBURG HOUSING HOUSING RUSTENBURG THE Explore alternative funding options DELIVERY MANAGEMENT UNIT MANAGEMENT DELIVERY DELIVERY MANAGEMENT UNIT MANAGEMENT DELIVERY Budgetary allocations Project management Site handover
Consultation and raise awareness Capacitation and training Communication, information Research, statistics, M&V
Business planning and commitment by the Council to the accreditation process Accreditation
The following issues also need to be addressed in relation to planning and service delivery:
Action 1: Preparing Development Framework Plans
Settlement concentrations around certain formal urban areas and in rural service nodes such as eMondlo and Khambi have reached high population densities and may be classified as emerging settlements in terms of their density, concentration, housing types and diversity of activities. The densification and development of these areas occur on an ad hoc basis and without structure. The allocation of land to individuals or families by Tribal Authorities is without any form of spatial organisation and exacerbate the problem. The provision of social and infrastructure services to these areas are however of high priority but is inhibited by the physical form and development of these areas.
In addressing this problem town planning intervention would first be required. This would involve formalisation of these areas and creating order in the settlement pattern through the formulation of DFPs for these areas. These DFPs will establish a “footprint” for these areas, with surveyed erven, a formal road layout and hierarchy and land use allocation for non-residential purposes and social services. This will ensure that these areas are functionally and physically part of the urban system.
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It is also important that the formalisation of settlement areas through the preparation of a DFP take into account the existing formal and informal structures, infrastructure services, functional linkages, road hierarchy and future/possible extensions within context of the Abaqulusi SDF and the over-arching Abaqulusi IDP. The preparation of these DFPs will benefit the design and delivery of cost effective services.
Action 2: Plan for Growth
Once the urban edge has been refined as a management tool, there is a need to redesign and plan for the growth in terms of bulk service pre-planning and budgeting. The elements that need consideration here include:
. Reassessment of the bulk service provision long term delivery targets and alignment with the housing priority areas. This includes water, sewer, electricity, and roads development; . Redesign the bulk service contribution mechanism in line with the urban edge objectives and the densification objectives; . Identification of spare capacity areas in high growth corridors that were identified in the SDF; . Linkage between the densification strategy and the provision of infrastructure and social amenities.
Action 3: Upgrading and Renewal
The third component of this strategy focuses on upgrading and renewal. The upgrading of informal settlements should be in line with the following project management process:
Project Phase 1: Feasibility Phase: This phase would involve the following activities:
. Identify an informal settlement upgrade . Draw in participation through the ward committees . Receive Council resolution . Forward letter of intent to interested departments . Establish a Development Forum . Appoint consultants . Appoint professional team . Provide beneficiary education . Appoint steering committee . Introduce consultants . Conduct socio-economic survey . Conduct structural Integrity Survey . Present and issue reports to the local government . Present surveys feedback to the Development Forum . Present surveys feedback to the community/stakeholders
Project Phase 2: Detail Planning and Design Phase: This following activities need to be undertaken:
. Develop and obtain approval for a design brief . Confirm appointment of professional team members . Develop a concept design . Develop a detailed design . Develop relocation and displacement plan . Develop funding options and get commitments . Received Municipal approvals . Receive approval by Council . Present to the Development Forum . Present to the community . Develop business plan . Submit business plan to the relevant department for approval, including a budget and timelines
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. Sign funding agreement . Ensure procurement of contractor services
Project Phase 3: Implementation: This phase would involve the following activities:
. Implement relocation plan . Construction management
Project Phase 4: Handover: This is the final phase involving the following:
. Ensure property management in place . Close project financials . Submit outcomes report
All planning must take into account the needs and affordability of the end-users or clients as determined by socio-economic surveys. Such surveys should not be construed by developers as necessary appendage for project approval, but must form the basis of planning. The surveys should therefore be conducted against a backdrop of a basic knowledge by residents of these policy parameters.
Action 4: Provision of Engineering Services and Infrastructure
It is of paramount importance that the correct identification of capital needs, priorities, targets and schedules be included in the capital programme. The Municipality‟s entire financial strategy, tariff policy and cost recovery strategies are dependant on such capital needs. The identification of capital needs, priorities, targets and schedules is part of the integrated planning process and is controlled by the Municipal Systems Act. One of the outcomes of the integrated development planning process, of which the Water Services Sector Plan forms an integral part, is a list of capital needs, priorities, targets and schedules for the Municipality. This forms an integral part of the Abaqulusi Housing Strategy as housing is essentially dependant on the provision of engineering infrastructure and services.
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6.5 STRATEGY 3: HOUSING DEVELOPMENT MIX
Of concern is the fact that the Abaqulusi Municipal area is characterised by the grouping and concentration of housing units according the housing typologies, i.e. distinctively separate urban centres, informal areas, emerging settlements and tribal areas. To address this, a greater mix of housing typologies should be strived at, specifically in the emerging settlements of eMondlo and Khambi, some of the primary areas for future housing development.
The town of Vryheid will have to find ways to cater for wider range of income groups and their associated housing needs. The emerging settlements of eMondlo and Khambi will have to accommodate a greater number of affordable housing units in order to align itself with the aims of the national housing policy. Of importance is the location of these different housing typologies within the different settlement clusters. Its location in each cluster should take into account the location needs of the households living in those housing types, as well as other factors such as property values and accessibility to public transport services where applicable.
The Abaqulusi Municipal area is characterised by predominantly rural homesteads in tribal areas. These homesteads are of a mixed nature and include both modern dwellings and traditional thatched huts. The remainder of the population lives as tenants on farms or in the informal settlement areas within the Abaqulusi area.
The housing typologies for the Abaqulusi Municipal area are indicated as follows:
0%
37%
Formal Informal 59% Traditional Other 4%
Abaqulusi Housing Typologies (Source: Census 2001)
This chart illustrates the prevalence of traditional dwellings, which, should these be formalised, new housing projects would mostly consist of affordable government-subsidized housing, while the dominant single housing type in Abaqulusi will be middle to low income housing. This socio-economic distinction should be addressed, not only in the entire Abaqulusi area, but specifically also in the emerging settlements.
When focusing on land use mix, there is also a need to address densification and integration. Sustainability is usually dependent on drawing on the interrelationships that go alongside land use mix. Further, the concept of human settlements focuses on these complex interrelationships.
Densification and mixing land uses next to public transport routes have various advantages. For example, higher-density residential areas within public transport corridors establishes larger commuter markets in close proximity of public transport systems, which increases public transport patronage and
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The key to successful land use and transportation integration is obtaining higher land use densities and a greater mix of land uses at public transportation stops, such as bus stops and taxi ranks. These are the points where access is obtained to the public transport systems and attempts should thus be made to optimally use these strategic locations. This can be done by locating a mix of work, social and residential uses at these stops, thus creating a one-stop service area for commuters. The collector roads of urban areas should also be designed to intersect logically with these stops, thus increasing accessibility to the public transportation systems and allowing modal transfer.
STRATEGIC RECOMMENDATIONS
Various strategies can be implemented to formalise emerging settlements and densify settlements within the boundaries of the proposed residential concentrations. One necessary strategy would be to utilise vacant areas within the corridors for residential infilling. Another strategy would be to densify the core areas within these corridors through the subdivision of residential stands by formalising townships layouts. Thus, residential densification can be achieved through two actions: residential infill and subdivision.
Action 1: Residential Densification Through Infill
Most international and local literature on urbanistion tends to agree that higher residential densities should be encouraged and that infilling of vacant land between urban areas is a means of doing this. Higher densities obtained through infilling have various advantages, for example, infilling of vacant areas close to the urban core areas can absorb pressures for residential expansion and so limit urban sprawl. One of the most significant advantages of higher densities through infilling is that they allow the cost- effective provision of infrastructure, as opposed to lower residential areas, simply because the same bulk infrastructure network serves a larger population in a given geographical area. Furthermore, the densification of residential areas will promote the efficient use of a public transport system because it places a larger number of people within walking distance of the public transportation systems.
Infill should be focused in Vryheid and its peri-urban areas in order to prevent uncontrolled urban sprawl and with the overall aim of integrating these areas. To a lesser extent this approach should be applied in and around Louwsburg and in the Coronation/Hlobane area.
Action 2: Proposed Residential Expansion
Residential expansion proposed for the Abaqulusi Municipal area is aimed at strengthening the emerging settlements of eMondlo and Khambi and consolidating the settlement within the Vryheid and Louwsburg peri-urban areas and the Coronation/Hlobane area. The aim of this proposal is to establish land use and transportation integration by having residential areas expand along public transport routes.
The expected growth would concentrate around Vryheid due to the perceived opportunities for a “better life” presented by this town through job opportunities and better social amenities. Such growth need to be managed properly to prevent uncontrolled urban sprawl and ensuring the optimisation of infrastructure investment programmes.
In the emerging settlements it would be necessary to focus residential expansion around the proposed Rural Service Centres, again with the aim of ensuring the optimisation of infrastructure investment programmes. Due to the high dependency on public transport in these areas specific attention needs to be given to the integration of land use and transportation. Critical to this land use and transportation integration is the understanding of the road structure and hierarchy, i.e. the regional R34 and R69 and the
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Other than the strategic actions that have been highlighted above, there is also a need to reference the human settlement progression plans. These progression plans elaborate on the focus areas per settlement type.
. It is considered essential that there be a detailed capacitation and training process regarding mixed use development, housing typologies, the housing subsidy process and financial ramifications to decision makers, officials, developers, stakeholders in the area and the community. This process has not only been requested at the consultation for a, but it is also considered essential in ultimately achieving the synergy that is aimed for in the Housing Sector Plan.
. There is a need to involve the private sector housing sector in the promotion of mixed use development in the Abaqulusi area. This also relates to encouraging and incentivising densification, even at the high income level.
. There is a need to embark on an energy efficient, sustainable housing strategy for the Abaqulusi Local Municipality. This can be incorporated at all income levels and through all housing typologies.
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6.6 STRATEGY 4: TENURE ALTERNATIVES
According to the Zululand Regional Plan, land in the Zululand is occupied under two different systems. The areas that formed part of the former KwaZulu homeland are largely under tribal ownership, belonging to the Zulu King. These area are now under the jurisdiction of the Ingonyama Trust Act. The remainder of the land is subject to the conventional market in terms of freehold title.
Land tenure practices in large parts of the Abaqulusi Municipality relates to the Ingonyama Trust and land is allocated in terms of a “a permission to occupy” certificate granted by the relevant tribal authority. This is a formal approval protected in the Constitution as a form of ownership. There are two prominent Tribal Areas located within the Abaqulusi area, namely Hlahlindlela abd Khambi and each Tribal area is administered through an Inkosi (chief) and his Tribal Council. Each Tribal Area is divided into Isigodi areas, and ruled by Indunas (deputies). Families are compelled to approach the Induna, who allocates land to the family. This is ratified by the Tribal Authority and Department of Land Affairs in the form of a PTO certificate. The PTO certificate is regarded as a form of ownership and this system of land ownership has a direct impact on land use. No framework is however available to guide the issuing of PTO‟s. This raises some concerns regarding the environmental, technical and social suitability of sites for land use.
Housing and tenure delivery is the responsibility of National, Provincial and Local Government. It therefore requires an approach that enables a synergy of ideas and coordinated planning as contained in the Abaqulusi IDP, the Abaqulusi SDF and the Abaqulusi LUMS. National and Provincial housing policies and programmes also need to be taken into account.
STRATEGIC RECOMMENDATIONS
Current initiatives in the land tenure system include the transfer of land from the Ingonyama Trust to the local council. This will result in a more secure form of tenure and will enable land use control, which could attract large investment opportunities. This is however a highly contentious issue.
When discussing and dealing with changes in tenure, there are always resistances. This is primarily due to people being resistant to change, there being a lack of understanding of associated benefits with alternatives and the local authority opting for the “known option”. Nearly 45% of the dwelling units are within tribal areas where tenure issues and land use management are the most problematic. In terms of this, the following interventions are proposed:
Action 1: Undertake a detailed survey through community consultation and research, on the location of the backyard dwellings, property ownership, usage, payment processes, use of services etc.
Action 2: Begin a negotiation process to reduce the size and configuration of sites so as to optimize the provision and cost of infrastructure. This will in turn free up additional funds from the housing subsidy for the top structure.
Action 3: Explore options to subdivide properties where there are backyard sacks and flats, so as to formalize service provision, property management and to eradicate the “landlord exploitation” scenario.
Action 4: Research and assess the costs and benefits of alternative housing type options and explore incentivised alternatives to encourage densification and the take up of these alternatives. The focus should be on the following and should relate to all income groups:
Housing Typologies Assessment Criteria ▪ Flat ▪ Land Cost ▪ Townhouse ▪ Stand Configuration ▪ Cluster ▪ Service provision and cost
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▪ Semi detached units ▪ Safety and security ▪ Free standing houses ▪ Rental, leasehold and ownership ▪ Maintenance cost ▪ Energy efficiency ▪ Legal ramification
Action 5: Review the land management system that is currently in operation across the Abaqulusi Local Municipality and determine its response to alternative housing types and land use mixes. Appropriate changes should be made in accordance with the findings of the research detailed previously.
Action 6: Establish linkages with the Land Reform Programme of the Department of Land Affairs. Ensure that any Land Reform Projects are considered and incorporated into this Housing Sector Plan and that processes is monitored with specific reference to labour tenants and Restitution of Land Rights.
A Specific Note for Consideration in the Upgrading of Informal Settlements:
There is a need to assess the various options for all tenure alternatives. The table below gives an example for tenure related issues as far as the in-situ upgrading of informal settlement are concerned.
Individual Cooperative/ Tenure DFA Initial Permissions Freehold Group Rental Eviction Option Ownership to Occupy Ownership ownership Children Rights held by Rights held by Rights held by No contractual Rights held by Not guardian or in guardian or in guardian or in capacity. guardian or in recommended trust trust trust Subsidized trust for human rights rentals necessary considerations Single Recommended Yes Yes Yes. Normal Yes Not persons without rentals to be paid recommended. without restriction. No Constitutionality dependents consolidation of evictions is subsidy likely to be challenged People who If own property Yes If own property Yes. Normal Yes Eviction not currently own ownership of ownership of rentals to be paid recommended. immovable purchase site purchase site Social, political, property given at given at financial and development development economic costs cost cost are likely to outweigh the benefits. Generally not a substantial problem People who Ownership if Yes. No Initial Yes. Normal Yes Eviction not have purchase site additional ownership if rentals to be paid recommended. previously given at restrictions or purchase site Social, political, received development conditions given at financial and housing cost imposed development economic costs assistance cost are likely to outweigh the benefits. Generally not a substantial problem Households Ownership Yes. Ownership Yes. Normal Yes Not with income granted if Ownership granted if rentals to be paid recommended. exceeding purchased at granted if purchased at Eviction of R3500 per development purchased at development higher income month cost development cost residents cost enhances the impoverishment of settlements
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Individual Cooperative/ Tenure DFA Initial Permissions Freehold Group Rental Eviction Option Ownership to Occupy Ownership ownership Illegal Not possible. Not possible. Not possible. Not possible. Not possible. Illegal immigrants Legal Legal Legal Legal restrictions Legal immigrants most restrictions restrictions restrictions restrictions likely to leave area if faced with eviction. Repatriation undertaken by the Department of Home Affairs General Individual Cooperative/ Interim Rental ownership PTO confer Has substantial comment freehold title group ownership is confers limited limited use social, political confers ownership relatively fast use rights subject rights. In and financial maximum confers limited and cheap. to the payment of general no implications. rights but may use rights. Rights are rentals. Admin rentals are Often not be expensive Generally upgradeable to costs payable. Initial successful due and slow. insufficient full ownership. considerable and admin costs to community Freehold collateral for Initial occur over the arise but are resistance and potentially loans. Group ownership not entire life of the lower than with reoccupation of provide ownership sufficient agreement. The rentals. land collateral for attract group collateral for enforcement of Officially loans. liability for loans. Very rental payments perceived as a Freehold also rates and taxes inclusive form is often difficult second-class attracts rates of tenure. form of tenure and taxes Department of in SA Context. Land Affairs is Very inclusive considering the form of tenure retail of the and available DFA which for upgrading created this of informal form of tenure settlements
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6.7 STRATEGY 5: HOUSING FUNDING OPTIONS
The successful implementation of a project requires the provision of funding from a variety of sources, and more critically, the provision of funding at the required point in time.
The project funding requirements can be divided into the three main components of the development, i.e. (a) external bulk services, (b) provision of services stands and (c) construction of top structures. The funding arrangements of each of these are as follows:
A. External Bulk Services
According to applicable legislation the provision of bulk services is the responsibility of the Local Authority. The Municipality can apply to the Department of Local Government and Traditional Affairs for funding under the Municipal Infrastructure Grant (MIG) to upgrade the additional bulk services required for a project. In the event that funding cannot be secured or approved timeously, the developer should provide bridging/debt finance to the Municipality until such a time that the Local Authority/MIG funding becomes available.
B. Provision of Serviced Stands
The provision of serviced stands fall into two categories, i.e.:
. Stands serviced under the Housing Subsidy Scheme and including freehold stands and institutional housing stands. The cost of servicing these stands is funded from subsidies secured from the KwaZulu-Natal Department of Housing (Civil Engineering Services) and from the Department of Mineral and Energy Affairs (Electrical Engineering Services). The Municipality will be required to provide top-up funding from their own where the subsidy funding is not sufficient to provide the required level of service. . Serviced stands are associated with bonded housing, which normally will be funded entirely by the developer.
C. Construction of Top Structures
The construction of housing structures as part of the project is limited to housing associated with subsidised and institutional housing. The subsidised housing will be financed through the housing subsidies provided by the KwaZulu-Natal Department of Housing.
In the case of institutional housing, the rental market is targeted and the level of service required for these units are generally higher than can be provided with the subsidy funding. The additional top up funding required for the higher level of service must be secured by the Housing Association responsible for the development of the units. The additional cost is recovered from the tenants through monthly levies.
For 2005/6, the National Department of Housing received a total amount of R3 739 624 billion to finance national and provincial housing programmes. The allocation is made annually on the basis of a formula that takes into account the backlog in each province, the number of households in various income categories of the subsidy scheme, the ratio between urban and rural housing, and the performance of the relevant provincial government.
The table below shows the new (2008/2009) subsidy amount for which households of the different income categories are eligible, depending on the subsidy mechanism.
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New Subsidy Contribution Product Price Income Category Amount INDIVIDUAL, PROJECT LINKED AND RELOCATION ASSISTANCE SUBSIDIES R0 - R1 500 R43 506,00 None R43 506,00 R1 501 – R3 500 R41 027,00 R2 479,00 R43 506,00 Indigent: Aged, disabled or health R43 506,00 None R43 506,00 stricken: R1 501 – R3 500 INSTITUTIONAL SUBSIDIES Institution must add R0 - R3 500 R41 027,00 At least R43 506,00 Capital CONSOLIDATION SUBSIDIES R0 – R1 500 R43 506,00 None R43 506,00 R1 501 – R3 500 R41 027,00 R2 479,00 R43 506,00 Consolidation Subsidy for Aged, disabled or health stricken: R1 501 – R43 506,00 None R43 506,00 R3 500 RURAL SUBSIDIES R0 - R3 500 R43 506,00 None R43 506,00 PEOPLE’S HOUSING PROCESS R0 – R3 500 R43 506,00 None R43 506,00 EMERGENCY PROGRAMME Temporary assistance R37 941.00 None R37 941.00 REPAIR EXISTING STOCK Services R17 847.00 None R17 847.00 Houses R25 527.00 None R25 527.00 Municipal engineering services are to be funded from other Government resources but as a last resort it may also be funded from the annual housing funding allocations to Province, and must be motivated.
In view of the above the following will be applicable:
Stand cost = R17847.00 House size = 30m² @ R43 506,00 The new product price TOTAL = R43 506,00 (Cost of 30m² = R1 450.20/m²) PHP, Institutional, Rural subsidies and Indigent, i.e. Income of R0.00 – R3 Exempt from contribution 500.00 and who are aged, disabled or health stricken Geotechnical allowance to be (R43 506,00= R17847.00+ R25 659.00) calculated in all cases except with R6 525.90 MAX = R43 506,00X 15% Consolidation Subsidies Consolidation Subsidy geotechnical 15% Variation allowance
To qualify for this subsidy a beneficiary must:
. Have a household income not exceeding R3 500.00 per month; . Be a South African citizen; . Be legally competent to contract, i.e. be over 21 years of age and be of sound mind; . Have dependents; . Be a first time homeowner, except for relocation subsidy; and . Have not received the subsidy before.
Although the initial IDP 2005/6 contained a Capital Investment Framework project list that was comprehensive and relayed a wish list, it is the objective of the review process to ensure that a more realistic Financial Plan is presented within the financial means of the local municipality. The above
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The table below depicts a summary of the capital budget for the financial year 2006/2007:
Appropriations Funding Function Infrastructure Tools of Trade Total Capital Own Source External Funding Executive & Council 0 0 0 0 0 0 Finance & Admin 50 000 589 750 639 750 639 750 0 639 750 Planning & Development 1 834 000 0 1 834 000 510 000 1 324 000 1 834 000 Health 0 0 0 0 0 0 Community & Social Services 150 000 25 000 175 000 175 000 0 175 000 Housing 36 000 000 0 36 000 000 0 36 000 000 36 000 000 Public Safety 0 215 000 215 000 215 000 0 215 000 Sport & Recreation 95 000 0 95 000 95 000 0 95 000 Environmental Protection 0 0 0 0 0 0 Waste Management 0 75 000 75 000 75 000 0 75 000 Waste Water Management 0 0 0 0 0 0 Road Transport 650 000 18 000 668 000 18 000 650 000 668 000 Water 370 000 0 370 000 370 000 0 370 000 Electricity 610 000 17 250 627 250 627 250 0 627 250 Other - DME 3 500 000 0 3 500 000 0 3 500 000 3 500 000 Other – Rural/Ward Projects 675 000 0 675 000 675 000 0 675 000 Other - MIG 6 614 000 0 6 614 000 0 6 614 000 6 614 000 Total 50 548 000 940 000 51 488 000 3 400 000 48 088 000 51 488 000
The Capital Investment Framework depicts a project list with total budgets, responsible departments, possible source of funding and project type projected over a five-year period. The capital project needed for 2006/7, amounts to R1 336 410 611. It should be noted that the public needs are increasing year by year and the question remains is “what Council can afford”.
Included in the Capital Investment Framework, as well as the Financial Plan 2006/7 for Abaqulusi IDP is a total amount budgeted for projects identified and listed by the Zululand District Municipality and other service providers active in the Abaqulusi jurisdictional area.
The Financial Plan clearly depicts the relation between internal and external sources of finance, which once again proves that the need lies outside the competency of the Local Municipality, but with the various Service Providers. Closer interaction between the Housing Strategy, the IDP and the multi-year Budget is recommended to ensure that service provision and housing delivery is aligned and complementary.
The diagram below depicts the relationship between Internal and External sources of funding.
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Sources of Funding
7% 7% 13%
4% Internal Housing DBSA - Planning MIG Funds DME Funds
69%
Other than going through the normal housing subsidy channels, there are also potential funding organisation from the private sector and via the international community, as detailed in the table below:
Strategic Priorities
Donor Name Donor Type Website
Youth
Health
Welfare
Housing
HIV/AIDS Research
Education
Democracy
Community Community
Environment
Job Job Creation
Land Reform Land
Development
Human Rights Human
Disaster Relief Disaster
Rural Development Rural
Water & Sanitation, & Water Infrastructure Projects Infrastructure 3M South Africa Private Sector ABSA Foundation Private Sector Accenture Private Sector AECI Private Sector African Life Private Sector Assurance African Oxygen Private Sector Alexander Forbes Private Sector Alpha Cement Private Sector Anglo American Private Sector Chairmans' Fund Anglovaal Mining Private Sector Aquachlor Private Sector Australian Agency for International International Development Barlow Private Sector Barloworld Private Sector Bayer Private Sector Beckman Coulter Private Sector Billiton Develop- www.bhpbillit Private Sector ment Trust on.com www.bmw.co BMW (SA) Private Sector .za www.boe.co. BOE Bank Private Sector za
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Strategic Priorities
Donor Name Donor Type Website
Youth
Health
Welfare
Housing
HIV/AIDS Research
Education
Democracy
Community Community
Environment
Job Job Creation
Land Reform Land
Development
Human Rights Human
Disaster Relief Disaster
Rural Development Rural
Water & Sanitation, & Water Infrastructure Projects Infrastructure British American Private Sector Tobacco Cadiz Investment Private Sector Bank www.caltex.c Caltex Oil SA Private Sector o.za Canadian Inter- www.canada. national Develop- International co.za ment Agency Canon SA Private Sector Cargo Carriers Private Sector Clicks Group Private Sector Coca-Cola Southern Private Sector Africa Colgate-Palmolive Private Sector Foundation Consol Limited Private Sector Corpcapital Bank Private Sector Dairybelle Corp Private Sector De Beers Fund Private Sector Deutsche Bank Private Sector Securities Digital Planet Private Sector Dimension Data Private Sector Network Services Du Pont Southern Private Sector Africa Edcon Private Sector Private Sector www.engen.c Engen donor o.za Eveready SA Private Sector First Rand Private Sector Foundation www.fordfoun Ford Foundation Private Sector dation.org Frame Group Private Sector Gallo (Africa) Private Sector General Electric SA Private Sector Genop Health Care Private Sector Glaxo SmithKline Private Sector Glenrand MIB Private Sector Limited Goldfields Private Sector Grant Thornton www.gt.co.za Private Sector Kessel Feinstein Grintek Group Private Sector Hollard Insurance Private Sector www.ibm.co IBM South Africa Private Sector m/za Illovo Sugar Private Sector Impala Platinum Private Sector Independent Private Sector Newspapers Investec Private Sector Irvin and Johnson Private Sector Iscor Foundation Private Sector
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Strategic Priorities
Donor Name Donor Type Website
Youth
Health
Welfare
Housing
HIV/AIDS Research
Education
Democracy
Community Community
Environment
Job Job Creation
Land Reform Land
Development
Human Rights Human
Disaster Relief Disaster
Rural Development Rural
Water & Sanitation, & Water Infrastructure Projects Infrastructure ITEC Group of Private Sector Companies Janssen-Cilag Private Sector Japan Inter-national International Coope-ration Agency Johnnic Limited Private Sector Johnson Wax Private Sector www.kpmg.c KPMG Private Sector o.za Masonite (Africa) Private Sector Metropolitan Life Private Sector Microsoft SA Private Sector Mobil Oil SA Private Sector Mondi Private Sector www.mtn.co. MTN Private Sector za Murray and Roberts Private Sector Mutual and Federal Private Sector Insurance Nampak Manage- Private Sector ment Services Nedcor Foundation Private Sector Nestlé SA Private Sector New Zealand High International Commission Oceana Fishing Private Sector Group Private Sector www.omam.c Old Mutual donor om Parmalat SA Private Sector Pfizer South Africa Private Sector Pick and Pay Stores Private Sector Polifin Private Sector PPC Cement Private Sector Price-Waterhouse www.pwc.co Private Sector Coopers m Richards Bay Private Sector Minerals Rockefeller Brothers www.rbf.org Private Sector Fund Programme Royal Norwegian International Embassy Sage Foundation Private Sector Samancor Private Sector Foundation Santam Private Sector Saudi Arabia Agency International Siemans Private Sector Standard Bank Private Sector Foundation Swiss Agency for Development and International Cooperation www.telkom. Telkom Foundation Private Sector co.za Tongaat-Hulett Private Sector
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Strategic Priorities
Donor Name Donor Type Website
Youth
Health
Welfare
Housing
HIV/AIDS Research
Education
Democracy
Community Community
Environment
Job Job Creation
Land Reform Land
Development
Human Rights Human
Disaster Relief Disaster
Rural Development Rural
Water & Sanitation, & Water Infrastructure Projects Infrastructure Group Total South Africa Private Sector Transnet Private Sector www.unileve. Unilever Foundation Private Sector co.za Vodacom Private Sector Foundation Woolworths Private Sector Zenex Foundation Private Sector Data Source: PIMMS Centre Funding Database; Department of Provincial and Local Government (DPLG); (www.pimss.net)
STRATEGIC RECOMMENDATIONS
It is recommended that the Housing Delivery Management Unit (HDMU), which has been proposed in Strategy 2, be tasked with exploring alternative funding options and the appropriate sources. It should be noted that the international community is currently particularly interested in the themes detailed below, each of which can be linked to a major housing initiative. Further, there is no longer interest in pilot projects but rather large scale, meaningful implementation with tangible outcomes. These funding avenues should therefore be explored to their optimum as alternatives to the normal channels of funding for housing.
Theme 1: HIV/AIDS
The impact of HIV/AIDS and possible solutions on the human settlement environment need to be considered. This is a Millennium Goal and therefore, if one of the projects/identified housing development corridors can address this issue in terms of design, housing typology alternatives and access to facilities, funds should be easily sourced. Specific attention in this regard need to be given to institutional funding for a HIV/AIDS orphanage, catering for the housing needs for one of the most vulnerable groups within Abaqulusi communities. This would also directly link to the Provincial Housing AIDS Policy.
Theme 2: Energy Efficiency
The Kyoto Protocol, which deals with climate change, was signed and came into effect on 16 February 2005 and South Africa is one of the countries that have adopted the Protocol. This opens up numerous opportunities in relation to the reduction of carbon emissions and sustainable, energy efficient development for the benefit of the local communities. The issue of energy efficiency in the development of sustainable communities and the development of housing specifically need to be considered in all Abaqulusi projects.
A large, energy efficient project that puts forward energy saving and renewable technologies such as solar systems for water heating and energy saving building technology could access at least top-up funding. The natural surrounds of the Abaqulusi area will complement such an initiative.
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6.8 STRATEGY 6: INSTITUTIONAL PROPOSALS
There is a need for a Council decision as to whether the Abaqulusi Local Municipality would be interested in pursuing the accreditation option. As was recommended earlier in Strategy 2, a Housing Delivery Management Unit (HDMU) should be established as a priority. This structure can then make recommendations on the accreditation process and the proposed level. The process of accreditation has been elaborated on below for consideration.
One of the critical elements in ensuring that the above criteria are achieved is through the accreditation process, as detailed in the Housing Code. Some of the most relevant elements as detailed in the Housing Code have been elaborated on below. There are two levels of accreditation that exist in respect of the Housing Subsidy Scheme, namely:
. Level One Accreditation involves the administration of non-credit linked individual subsidies. This is the simplest form of accreditation as subsidies are dealt with in a straightforward manner on an individual basis.
. Level Two Accreditation may be obtained in respect of non-credit linked individual subsidies, project- linked subsidies, project-linked and individual consolidation subsidies, institutional subsidies, and the management of payouts of residual amounts of non-credit linked subsidies and individual consolidated subsidies. This form of accreditation requires more sophisticated administrative systems to deal with the complexities of the various subsidy mechanisms.
When applying for accreditation, a municipality specifies the level of accreditation for which it is applying. If a municipality is awarded Level Two Accreditation, this also includes accreditation for Level One. Once accredited, a municipality administers National Housing Programmes and may receive, evaluate and approve or deny applications for subsidies on the basis of its level of accreditation, in its area of jurisdiction. In this regard, it must carry out all the duties assigned to the Provincial Housing Development Board in its administration of National Housing Programmes. The aim of this institutional framework is to ensure that through decentralisation, both the quantum and quality of housing delivery is achieved in terms of identified targets and demand.
Taking into account the complexities of this process, it is considered essential that the institutional framework is able to implement the strategic plan and in turn inform the process, through monitoring and evaluation, of progress, achievements and problems. It is important is to ensure that the institutional component is supporting the electronic system.
The process of accreditation of the local authorities is essentially the backbone to the decentralization process as accreditation enables the local authority and the Provincial Administration completes a “checklist” of issues that need to be complied with. The criteria for accreditation are detailed below, as taken from the National Housing Code.
6.8.1 Criteria for Accreditation
The MEC approves an application for accreditation if the municipality complies with the accreditation criteria determined by the Minister of Housing. Until amended or substituted, the following criteria as determined by the Minister of Housing and detailed in the Housing Code, Section 11B (2) of the Housing Arrangements Act, 1993, apply:
Criteria Description Municipality The applicant must be a municipality as defined in section 10B of the Local Government Transition Act, 1993 (Act No. 209 of 1993) Capacity The municipality should have financial, administrative, professional and technological capacity to fulfil its housing responsibilities and to administer the National Housing Programmes
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Criteria Description Commitment and Track Record The Council should demonstrate its total commitment to administering National Housing Programmes in such away that it meets the housing needs of all the homeless inhabitants of its area of jurisdiction. In this regard, the Council‟s proven track record of initiatives and involvement in housing provision and/or community development in its area of jurisdiction will be a recommendation. Furthermore, the Council must give a commitment that its members and officials shall participate in any national or provincial training programme Appropriateness The particular level of the municipality should be appropriate for the administration of the National Housing Programme, as opposed to some other level of government Jurisdiction There must be a clearly defined area of jurisdiction. Municipalities that have concurrent areas of jurisdiction must, before one of them applies for accreditation, conclude an agreement with the other in which it is specified which local authority will apply for accreditation and at what level Administration The applicant must have a separate accounting system and bank account for housing funds, transferred in terms of the accreditation agreement Directives The applicant must comply with any other directives that the MEC may determine, which are not inconsistent with National Housing Policy, as determined by the Minister of Housing Integrated Development The applicant must demonstrate that it promotes integrated development. In this regard, the applicant must have approved land development objectives as set out in Section 28 of the Development Facilitation Act, 1995, or a MEC approved business plan and programme for land development which is consistent with Chapter One of the DFA
In addition, the Provincial MEC for Housing must be satisfied that in the case of Level One Accreditation applications, the municipality has:
. Computer linkage to the national housing database and to various Deeds Offices in the Republic of South Africa; . A designated housing office, accessible to the general public, from which it will give advice and receive non-credit linked individual subsidy applications; . A sufficient number of staff members who are fully conversant with the Housing Subsidy Scheme to enable compliance with administrative functions and obligations; . A housing sub-committee of the Council to attend to matters in an effective and expeditious manner; . Financial control mechanisms that are adequate and ensure the integrity of funds that are received and disbursed by the municipality; . Reporting mechanisms required to monitor and evaluate the activities of the municipality.
In the case of Level Two Accreditation, the Provincial MEC must be satisfied that the municipality:
. Complies with level one accreditation; . Has prepared the land development objectives envisaged in Section 28 of the development Facilitation Act, or a business plan or programme for housing development, and that it has obtained the approval of the relevant MEC in respect of those objectives or business plan and programme; . Has access to the appropriate professional expertise required to: . Evaluate town planning of any of the proposed projects; . Evaluate the engineering designs and specifications in respect of any proposed project and to inspect and supervise the progress made by the developer in implementing any particular project; . Evaluate designs, specifications and cost of any particular top structures to be constructed (in the case of a project-linked subsidy), or of any particular upgrading or improvement work to be done (In the case of an institutional subsidy application or a consolidation project) and to inspect and supervise the progress made by the developer in implementing the required work;
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. Ensure that the required agreements between the local authority and the developer are prepared and signed; . Handle the management of the housing funds allocated to it and evaluate both the feasibility of a project and the financial capacity of the developer.
Should the Abaqulusi Local Municipality opt for accreditation, a procedural continuum has been drawn up to show the various steps that the Local Authority needs to embark on for the devolution process. This is detailed in Diagram 5 below:
Diagram 5: This process of decentralization will result Procedural Continuum of the Accreditation Process in a fully functional accredited Sub-PMO. This can only be achieved on compliance with the business plan process
100% 70% Confirm status of the fully fledged Accredited Body Implement Systems
50% Monitoring & Evaluation Devolution of Functions ESTABLISHED Establish Management ESTABLISHED Capacitation, Training Accreditation 30% Financial Systems 0% Business and Office Establishment Reporting
Interaction/Communication PMOs
Plan & Determine Credibility & Testing PMOs
- - Structure Accreditation Plan
NATIONAL/PROVINCE RETAINS FUNCTIONS
COMMENCE DEVOLUTION OF FUNCTIONS WITH
THE SUPPORT OF THE TECHNCIAL / CONSULTANTS SUPPORT
FULLY FLEDGED SUB SUB FULLYFULLY FLEDGED FLEDGED
FULL DEVOLUTION OF FUNCTIONSTO THE LOCAL AUTHORITY & HANDOVER Establish the Housing Delivery Management Unit Management Delivery Housing the Establish Establish the Housing Delivery Management Unit Management Delivery Housing the Establish GO LIVE ON THE TECHNICAL IT SUPPORT SYSTEM AND IMPLEMENT THE MONITORING AND EVALUATION PROCESS TO BE MANAGED BY PROVINCE
CREDIBILITY CAPACITY SUSTAINABILITY FINA NCIAL VIABILITY ACCOUNTABILITY
The decentralisation process is essentially the transfer of authority for housing delivery to the implementation arm of government, namely local government. It is, however, considered essential that the most appropriate and efficient structures are put in place prior to decentralisation so as to ensure that delivery remains the priority and that there is appropriate financial management.
The administration of national housing programmes is a complex process and it is considered essential that the time is taken to formalize the institutional structure. As was determined in the previous sections of the institutional assessment of local authorities, there is a long way to go in this process of capacitation, training and institutional restructuring. This section aims to use a systematic, stepped approach as detailed in Diagram 6 referenced below.
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BEGIN WITH BEGIN
IN MINDIN Diagram 6: The Systems Approach – Supporting Delivery THEEND
INPUTS PROCESS OUTPUTS OUTCOMES
Funds Services
People Materials Support
Policy Products
MEASURES MEASURES MEASURES MEASURES On-time assessment Process documentation On-time delivery Satisfaction Policy, Strategy, BP’s etc. Task cycle time Payment completeness Quality assurance Housing Types Internal rework Final Product/ Services Appropriate location Stakeholder Involvement Scope, programme, etc. Total cost / quality Value for money Etc. Cost per unit & training hours Surveys, etc. Future demand
FEEDBACK
The main components that need to be addressed in the business planning include the inputs, process and outputs of the housing delivery process. Essentially, an accredited municipality will be given the power to consider, approve and finance the relevant dimensions of the Housing Subsidy Scheme. It is therefore essential that there is a common housing delivery approach and inter-governmental liaison strategy so as to ensure streamlined coordination and monitoring.
It is therefore recommended when drafting the accreditation business plan, that the systems approach as detailed above needs to be used. This approach supports delivery and streamlined approaches. This can be seen in the Diagram 5 above.
6.8.2 Parameters for Decentralization
The analysis will use existing criteria and measures of institutional capacity where these exist. These will be used as a benchmark against which capacity in municipalities to perform existing or new functions will be measured. The content and source of such measures is addressed for each sector. Where criteria and measures are not presently developed the data established through the research will be used by the Department in on-going work to establish workable norms.
The process of subsidy administration may be devolved to accredited municipalities. Municipalities wishing to take up accreditation must be able to perform the functions listed below. The performance measures used by the Department are indicated for each function.
. Receive and process application; . Verification and checking of information; . Capture applications; . Verify information; . Pre-screening on the national database, population register and deeds registry;
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. Issue approval letter (the agreement); . IT function, management of hardware and software and management of data records; . Developer claims administration; . Certification of technical issues: engineering services engineering design and top structure inspections, and for town planning functions; . Project management for each project identified; . A budget compilation management and approval of commitments and payments.
STRATEGIC RECOMMENDATIONS
Action 1: Establishment of the Abaqulusi Housing Delivery Management Unit (HDMU)
Action 2: Undertake the process to achieve accreditation for the Abaqulusi Local Municipality
Action 3: Implement the Housing Sector Plan according to the Strategic Recommendations contained in the 6 Strategies detailed previously
Action 4: Set Internal Performance Measures in respect of this Housing Plan and the achievements required to measure and monitor its impact and the effectiveness of the HDMU in achieving its goals in housing delivery and sustainable community development.
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7. CONCLUSION
There are numerous facets to this Abaqulusi Housing Sector Plan. Following on from the foundations that were established by the Abaqulusi SDF, this Housing Sector Plan has delved into the implementation steps that are required to address the demand and at the same time achieve the vision and strategic objectives that focus on the provision of sustainable and viable human settlements throughout the Abaqulusi area.
It is recommended that the first step is to establish a solid and functional institutional framework in the form of the proposed Housing Delivery Management Unit. This will then enable the actioning of all the other components. The Housing Delivery Process would then entail the following 8 Step Process:
Diagram 7: The 8 Step Housing Delivery Process
In terms of the implementation of housing delivery projects, the main role-players normally include the following and their functions in the project are described below. The roles of the various parties normally range from that of being a pure funding agent to both funding agent and role-player in the physical implementation process.
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Roleplayer Function The Developer Project Developer and Implementing Agent National Department of Housing Project Custodian KwaZulu-Natal Department of Housing Provision of subsidy funding The Municipality (or relevant authority depending on Provision of bulk infrastructure powers and functions) Top-up funding for internal services KwaZulu-Natal Department of Land Affairs Land cost subsidies KwaZulu-Natal Department of Local Government and Bulk infrastructure funding through MIG Traditional Affairs Department of Mineral and Energy Affairs & Local Electrical subsidy funding Government
The developmental priorities related to streamlined housing delivery and functional communities need to focus on the land parcels that will facilitate a coordinated and integrated development approach for the future sustainability of all settlements in the Abaqulusi Municipality, i.e. Vryheid and Louwsburg and their peri-urban areas, the emerging settlements of eMondlo and Khambi and the Coronation/Hlobane concentration. Specific attention is also required in respect of the Tribal areas of Hlahlindlela and Khambi. The entire housing process needs to be a multi-dimensional initiative that facilitates an alternative tenure and typology mix in all of these areas.
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