IMPENDLE LOCAL MUNICIPALITY
MUNICIPAL HOUSING SECTOR PLAN
February 2009
Prepared for: Prepared by:
Mr. B.S. Duma Makhosi Nyoka & Associates Municipal Manager Impendle Local Municipality
Tel: 033 996 0771 Tel: 031 305 3878 Fax: 033 996 0852 Fax: 031 307 2484 E-mail: [email protected]
IMPENDLE MUNICIPAL HOUSING PLAN
CONTENTS Page
1. INTRODUCTION 5
2. POLICY AND LEGISLATIVE ENVIRONMENT 6
Introduction 6 Vision, Goal, Framework and Guiding Principles of the National Housing Policy 6 Municipal Responsibility 6 The Comprehensive Plan for the Development of Sustainable Human Settlements 7
3. IDP OVERVIEW 8
Alignment of Municipal Housing Plan with Integrated Development Plan 9 District and Local Context 9 Demographic Profile 10 Spatial Analysis 14 Availability of Infrastructure 16 Roads and Stormwater Drainage 17 Water and Sanitation 18 Sewage Treatment 19 Electricity 20 Refuse Removal 21 Free Basic Services 21 Summary on Engineering Services 21
4. SPATIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT SYSTEM 21
Reviewed Spatial Development Framework 21 The Link Between Land Use Management and Spatial Development 21 Impendle Spatial Development Framework 22 Objectives 22 Strategies 22 Alignment with District SDF 22 Conclusions 23 Guidelines for a Land Use Management System 24 4.5 Land Use Management System 24
5. CURRENT HOUSING STATUS 25
Legal Status (Formal and Informal Settlements) 25 Functional Status 25 Project Status (Progress) 26
2 6. HOUSING NEEDS ASSESSMENT 26
Quantification of Housing Need 26 Geographical Distribution 28 Land Reform Initiatives 28 Farm Worker Housing 28 Rural Housing 28 Worker Housing 29 Rental Housing 29 Special Needs Housing (Housing for Victims of HIV/AIDS) 29 6.9 Overall Assessment of Housing Need 29
7. LAND IDENTIFICATION 30
8. PLANNED AND ANTICIPATED FUTURE PROJECTS 31
National and Provincial Priorities 31 Project Categorisation 32 Housing Subsidy Scheme 32 Discount Benefit Scheme 32 Public Sector Hostels Redevelopment Programme 32 Municipal Owned Houses 32 Rental / Social Housing 33 Worker Housing 33 Other 33 8.10 Engagement with the Private Sector 33
9. INTEGRATION WITH OTHER SECTORS 34
10. HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK 35
10.1 Housing Administration 35 10.2 Institutional Framework 35 10.3 Capacity Building 36
11. PERFORMANCE MEASUREMENT 37
12. HOUSING DELIVERY PROGRAMME 38
13. CONCLUSIONS 39
REFERENCES 40
3 ANNEXURES
Annexure A: Projects Substantially Complete but Not Closed Out
Annexure B: Active Projects
Annexure C: Projects in Preparation
Annexure D: Identified Future Projects
Annexure E: Proposed Housing Delivery Programme
Annexure F: Financial Projection for Housing Delivery Programme
Annexure G: Photographic Record of Sites Selected For Various Projects
Annexure H: Project Locations in Relation to Main Spatial Framework Elements
4 IMPENDLE LOCAL MUNICIPALITY
MUNICIPAL HOUSING PLAN
1. INTRODUCTION
In terms of the Municipal Systems Act, the Impendle Local Municipality manages the Integrated Development Planning (IDP) Process for its area of jurisdiction. The Municipality has therefore, in previous financial years, included a housing perspective as part of its IDP documentation, and the related annual review process.
In respect of the current financial year (2008/2009), Impendle Municipality has acquired funding support from the Provincial Department of Housing, KwaZulu-Natal to appoint a service provider to prepare a Municipal Housing Plan as a specific sector plan or chapter of the IDP for the Municipality, and has appointed Makhosi Nyoka & Associates to undertake this initiative.
The process of preparing the Impendle Municipal Housing Plan has been undertaken in accordance with the following national and provincial policy documents, and manual:
National Housing Programme for Housing Sections of Integrated Development Plans: National Department of Housing
Guidelines to Assist Municipalities in the Preparation of Municipal Housing Plans: Department of Housing KwaZulu-Natal
Municipal Housing Sector Plan Manual (Funded by USAID): Project Preparation Trust of KZN and Department of Housing, KZN.
The methodology for the preparation of the Impendle MHP included the following:
A best practice analysis of existing MHPs in other municipalities. Consultations with interested and affected stakeholders including officials of the Municipality, the provincial Department of Housing, uMgungundlovu District Municipality and with developers. Review of national and provincial policy environment. Review of existing documentation, including the Municipality’s Integrated Development Plan, Land Use Management System, Strategic Environmental Assessment and draft Spatial Development Framework, provincial records, and district sector plans. Primary research and survey where information was lacking. Input requested from Councillors and officials. Public comment was invited through advertisement in local media, and was considered in finalising the plan.
5 It is noted that in general, statistical information has been drawn from the most recent Census (2001) and the Community Survey of 2007. The Community Survey does not however provide a comprehensive sampling frame, and so statistics from this survey should be used with circumspection. For greater detail on the limitations of the survey the reader is referred to www.statssa.gov.za.
2. POLICY AND LEGISLATIVE ENVIRONMENT
Introduction
All housing-related activities take place within the context of the relevant planning and housing statutes and policies. It is beyond the scope of this assignment to provide an exhaustive analysis of this legislative environment. However, the following key considerations are germane to the Municipal Housing Plan:
2.2 Vision, Goal, Framework and Guiding Principles of the National Housing Policy:
South Africa’s housing vision comprises the overall goal to which all implementers of housing policy should work. The vision is outlined in the definition for “housing development”, contained within the Housing Act, 1997 (No. 107 of 1997):
“…the establishment and maintenance of habitable, stable and sustainable public and private residential environments to ensure viable households and communities, in areas allowing convenient access to economic opportunities and to health, educational and social amenities, in which all citizens and permanent residents of the Republic will, on a progressive basis have access to -
(a) permanent residential structures with secure tenure, ensuring internal and external privacy and providing adequate protection against the elements; and
(b) potable water, adequate sanitary facilities and domestic energy supply.”
The vision is reinforced in both the Urban and Rural Development Frameworks which extend the vision to focus on improving the standard of living of all South Africans, with a particular emphasis on the poor and those who have been previously disadvantaged.
2.3 Municipal Responsibility
The primary role of municipalities is to take all reasonable and necessary steps within the framework of national and provincial legislation and policy to ensure that the inhabitants within their jurisdictional areas have access to adequate housing on a progressive basis. To achieve this the functions of municipalities are:
6 To initiate, plan, coordinate and facilitate appropriate housing development within its boundaries. Prepare a local housing strategy and set housing delivery goals (the MHP). Set aside, plan and manage land for housing development. Create a financial and socially viable environment conducive to housing development. Facilitate the resolution of conflicts. Provide bulk engineering services where there are no other service providers. Administer any national housing programme in respect of its area of jurisdiction if accredited to do so. Expropriate land for housing development if the land cannot be acquired through other means.
2.4 The Comprehensive Plan for the Development of Sustainable Human Settlements
In addition, the Comprehensive Plan for the Development of Sustainable Human Settlements (August 2004) and the Guidelines for the Implementation of Labour- Intensive Infrastructure Projects under the Expanded Public Works Programme (EPWP) should be considered in formulating the MHP. The Comprehensive Plan promotes the achievement of a non-racial, integrated society through the development of sustainable human settlements and quality housing. Housing is to be utilized as an instrument for the development of sustainable human settlements in support of spatial restructuring. The aim of the plan is to move beyond the provision of basic shelter towards achieving the broader vision of sustainable human settlements and more efficient towns, cities and regions. The following factors must be taken into consideration in order to achieve this vision:
Progressive Informal Settlement Eradication: these settlements must be integrated into the broader urban fabric to overcome spatial, social and economic exclusion. The human settlement plan supports the eradication of informal settlements through in-situ upgrading in desired locations coupled with the relocation of households where development is not possible or desirable.
Promoting Densification and Integration: the objective is to integrate previously excluded groups into the city and the benefits it offers and to ensure the development of more integrated, functional and environmentally sustainable human settlements, towns and cities.
Enhancing Spatial Planning: greater coordination and alignment of various planning instruments and economic policies lies at the heart of sustainable human settlements. This requires more than mere coordination between departments but there should be a single overarching planning authority and/or instrument to provide macro-level guidance to support the development of sustainable human settlements.
Enhancing the Location of New Housing Projects: the location of housing projects has been criticized as reinforcing apartheid spatial settlement patterns. The objective of spatial restructuring demands a more decisive intervention in
7 land markets. Interventions are envisaged in respect of accessing well located state-owned and parastatal land, acquisition of well-located private land for housing development, funding for land acquisition and fiscal incentives.
Supporting Urban Renewal and Inner City Regeneration: urban renewal and inner city regeneration often result in the current inhabitants being excluded as a result of the construction of dwelling units they cannot afford. Some municipalities are striving to avoid this by promoting affordable inner city housing. The human settlement plan will support this by encouraging social housing.
Developing Social and Economic Infrastructure: there is a need to move away from a housing–only approach towards the more holistic development of human settlements including the provision of social and economic infrastructure.
Enhancing the Housing Product: there is a need to develop more appropriate settlement designs and housing products and to ensure appropriate housing quality.
The Expanded Public Works Programme (EPWP) is aimed at reducing unemployment by the provision of work opportunities through labour intensive methods in all government funded development projects. In respect of housing projects specifically, this can be achieved through the use of unskilled local labour and use of the Peoples Housing Process (PHP) methodology. This policy focuses on poor families in both urban and rural areas, using capital subsidies to allow people to build their own homes. It also assists people to obtain access to technical, financial, logistical and administrative support to build their own homes, on either an individual or collective basis. It would also be valuable to involve the Department of Labour in housing forum meetings, as this can combine skills development with the employment opportunities for specific projects.
The principles mentioned above should be incorporated when housing projects are being prepared and packaged.
3 IDP OVERVIEW
An IDP has once been defined as participatory approach to integrate sectoral and fiscal strategies to support the optimal allocation of scarce resources between sectors and geographical areas across the population in a manner that provides sustainable growth, equity and the empowerment of the poor and marginalized. It is at this juncture that an IDP is referred to as council’s living document to which citizens must use to debate development issues of the municipality. The purpose of the IDP is to: assess service delivery
8 make adjustments and amendments feed new information into budget ensure relevance of the plan as the Municipal Strategic Plan and assess changing internal and external circumstances
This section includes relevant information obtained from the references listed at the end of this document. Only sufficient information is provided here to contextualise the MHP. For greater detail, the reader is referred to the source documents.
3.1 Alignment of Municipal Housing Plan with IDP This being the first time that the municipality is preparing a MHP as a specific sector plan in its IDP, the preparation process is essentially independent of the IDP process. In future years however these processes should run concurrently, as illustrated in the flow diagram below:
Compiling existing Data Meetings with Community Compiling existing Data and StakeholderMeetings with Representatives Community and Stakeholder Representatives Identifying housing demand 1A Identifying housing demand 1A Identifying housing demand 1B Identifying housing demand 1B Analysing the Context Agreeing on Agreeing on Analysingof Priority theIssues Context Priority Priority 1C of Priority Issues Issues Defining housing Issues 1C Specifying housing demand 1D Definingdemand housing PHASE 1: ANALYSIS 1: PHASE Specifying housing demand 1D demand PHASE 1: ANALYSIS 1: PHASE 1E 1E
Agreeing on a vision Considering the relevance and Agreeing on a vision Considering the relevance and & on objectives Debate decision-making application of policy guidelines in & on objectives Debate decision-making applicationthe local of policy context guidelines in Negotiating supply On appropriate strategies the local context Negotiating supply On appropriate strategies objectives Negotiating supply Understanding the objectives 2 B Negotiating supply Understanding the PHASE 2: PHASE 2 B strategy 2 C conditions of supply options 2 A
STRATEGIES PHASE 2: PHASE strategy 2 C conditions of supply options 2 A
STRATEGIES
Negotiating projects Formulation of project proposals Negotiating projects Formulation of project proposals
PHASE 3: 3: PHASE 3 A PROJECTS
PHASE 3: 3: PHASE 3 A PROJECTS Documenting a housing Screening, adjusting, Compilation of chapterDocumenting & accommodating a housing Confirming/ Screening, adjusting, Compilation of Confirming/ consolidating and agreeing on Integrated implicationschapter & accommodating of housing amending projects consolidating and agreeing on Integrated implications of housing 4 B amending projects project proposals programmes projects and municipal 4 B 4 A project proposals programmes projects and municipal 4 A roles in the integrated
PHASE 4: PHASE rolessector in plansthe integrated and PHASE 4: PHASE INTEGRATION sector plans and
INTEGRATION programmes programmes Inviting and incorporating Adoption by Adoption by Invitingcomments and incorporating Council IDP comments Council IDP Confirming/ 5 A Consolidation of the housing amendingConfirming/ housing chapter 5 A Consolidation of the housing 5 B PHASE 5: PHASE chapter into sector plan that APPROVAL amending housing chapter 5 B
PHASE 5: PHASE chapter into sector plan that APPROVAL includes relevant IDP sections includes relevant IDP sections
Figure 1: Alignment of MHP with IDP
3.2 District and Local Context
9 Impendle Local Municipality is one of the seven category B municipalities comprising Umgungundlovu District Municipality established in terms of Section 155(1)(b) of the Constitution of the Republic of South Africa (1996) following the local government elections in 2000. Impendle Local Municipality is located within the western portion of Umgungundlovu District Municipality, which in turn is situated in the west of KwaZulu- Natal Province. It adjoins uMngeni Municipality to the north east, Msunduzi to the east, Ingwe and KwaSani to the south and KZDMA43 to the west.
Impendle is characterised on its eastern side by rolling hills and agriculture, and in the central portion by higher mountains, which result in settlements along roads and rivers. On the western side the topography becomes progressively steeper and less suitable for settlement.
The town of Impendle is centrally situated within the local municipality, and about 50 kilometres from central Msunduzi. The town represents a primary node within the district spatial development framework and is situated on a primary development corridor, which traverses the local municipal area. Boston, which is a secondary node, is also situated on the development corridor, about 35 kilometres from Msundusi.
The municipality is displaying a decreasing population and is not attractive to industrial development. Through its Integrated Development Plan it is therefore targeting basic social, infrastructural and skills development at present, with a view to exploiting mainly tourism and agricultural development, together with some local economic development.
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3.3 Demographic Profile
This section outlines the demographic profile of the municipality, with reference to district, provincial and natonal trends. The 2001 Census, together with the more recent uMgungundlovu Client Satisfaction and Quality of Life Surveys, has been used by the municipality as a base for current and future planning.
The total population of Impendle decreased from 33 948 persons in 1996 to 33 569 in 2001. The black South African group comprises 99% of the total Impendle population and there was a decrease in the white and coloured population groups. The decrease in the total population could be attributed to an increase in the number of deaths and the outward migration of people to other areas/towns in search of better opportunities.
The projected population figure for the Impendle area in 2004 was estimated at 33288 and was extrapolated using a growth rate of -0.06% per annum from the following table. An overall population growth rate of -0.06% per annum for the Impendle area is considerably less than the estimated overall population growth rate for South Africa of 1.0% per annum over the period 2000 to 2010.
The population of Impendle is 33 208 people, representing 3.6% of the population of the district municipality.
It is reasonable to conclude that the trend of a slight decline in population is likely to continue for the foreseeable future.
District Population Trends
70 59.7 59.6 60
50
40 1996 % 30 2001
20 13.111.6 10 8 8 5.3 6.3 7.1 6.8 2.8 3.9 3.8 3.6 0
Umngeni Mpofana Impendle Msunduzi uMshwathi Richmond Mkhambathini
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Age Distribution
40 36.2 37 35 30 25.4 24.7 25 22.7 22.1 2001 % 20 1996 15 10.7 11.4 10 4.7 4.6 5 0 0 to4 4 to 14 15 to 34 35 to 64 Over 65
Impact of HIV/AIDS
It should be noted however that while the national population is expected to increase, the growth rates will be declining, due to high HIV infection rates, from approximately 1,53% in 2001, to 0,6% in 2005 and only 0,1% in 2007, at which point the population will begin to decline. It should also be noted, that as KwaZulu-Natal has the highest incidence of HIV infection, the decline in population will be greater here than in the country as a whole.
HIV infection rates in KwaZulu-Natal have been projected to peak in 2007 at 19,2%, and AIDS related deaths will peak in 2009 at 194 690 (25,6% of the national total for that year). By 2010, life expectancy in KwaZulu-Natal is projected at only 37 years, from a life expectancy of 59 in 2000. This compares with a national life expectancy of 41 in 2010, declining from 56 in 2000.
In addition, it can be anticipated that Impendle will also be affected by migration to larger urban centres, as a result of economic pressures and work opportunities.
12 HIV/AIDS Infection Per Age Distribution KZN
45 40 38.5 35.4 34.4 35 30.8 30.3 30.9 30 25.8 24.5 23.4 25 2004 % 20 17.5 2003 16.1 15.8 15 10 5 0 <20 20-24 25-29 30-34 35-39 40-44
The following table indicates the household size distribution within the municipality.
Household Size % Of total 1 7.27 2 7.88 3 7.88 4 21.21 5 12.73 6 9.70 7 9.70 8 7.27 9 16.36
The uMgungundlovu Client Satisfaction and Quality of Life Surveys (2007) confirm the 2001 census data, which indicated that 72.3% of the total population is below 34 years of age with the majority being of school going age (5 to 24 years of age). There has been no remarkable change in population since 2001. Most households are dominated by women. This is common in predominantly rural municipalities such as Mkhambathini, uMshwathi and Impendle.
The mean household size is approximately 4 in Impendle. Relatively high representation of small households indicate the extent of social change, marked by an increase in nuclear families and the concomitant decline in the representation of extended and compounded families. This has become a common phenomenon in the
13 rural areas, and can be ascribed to changes in the economic system at a household level. Previously, households served as reliable sources of labour to work on the fields. However, as households become less dependent on agriculture for subsistence, bigger families have become too expensive to maintain hence the employed increasingly opt to take responsibility for their immediate families only.
Population density distribution is represented in the plan below, which generally shows higher densities on Ingonyama Trust land and lower densities on commercial farmland.
3.4 Spatial Analysis
Impendle is situated on the south western boundary of the uMgungundlovu District, and shares a boundary with the Sisonke District to the south, and the KwaSani Local Municipality which includes such towns as Underberg and Himeville. To the north is the uMngeni Local Municipality which is closely tied to the Impendle Municipality in terms of agriculture and potential tourism (Midlands Meander), and to the east The Msunduzi Local Municipality which is the capital of the province and economic hub of the District. To the west are District Management Areas of the Drakensberg that fall under the Transfrontier Development Initiative related to the World Heritage Site.
Impendle comprises four wards:
Ward 1
This ward is located on the Western portion of the Municipality with the western boundary of the Municipality falling adjacent to the Drakensberg Mountains. This ward is by far the largest ward in terms of geographical area and consists of scattered rural
14 settlements, which have encroached onto Nature Reserve areas. Small pockets of traditional settlement are also located along roads and rivers. There are three main settlements, namely:
(a) Nzinga, which comprises: Nxamalala Clinic HIV/Aids drop in centre Nxamalala Traditional Administration Centre (Traditional Court) 2 Primary Schools 1 High school General Dealer
(b) Stoffelton, comprising: Isiminsa Traditional Court Community Hall 1 Primary School 1 High School Library / Resource Centre General Dealer Church
(c) Lower Loteni, which has a scattered structure in term of settlement and related public services. In the North are the communities such as: Maitland Nkathini Hlateni Lotheni
Further south are: Mahlutshini Police Stock Theft unit General Dealer
To the South on the road to Underberg just outside the boundary of Impendle in the KwaSani Municipality is a large settlement called Stepmore. This settlement is regarded as an important service hub for the Lower Loteni area as it is physically separated from the rest of the Municipality by rugged mountains and rivers. The physical separation is best noted when heavy rains fall making roads impassible due to rising rivers as in the case of the Mkhomazi and slippery and wet passes such as the Road Past Nzinga to Lower Loteni. The condition of these roads effectively isolates the communities on the western side of the Impendle Municipality from the eastern and central parts.
Ward 2
East of Ward 1 is Ward 2, which has as its western boundary the Nzinga River while the eastern boundary is the Impendle Mountain. This Ward comprises the following settlements, namely:
15 Come and See Sithunjwana Ukukhanya Compensation Mgodi Shayabantu 1 and 2, also known as Shellfish Enguga 3, 5, 6, 8 and 9
Compensation was established using township establishment processes. It is also the only settlement in the Impendle Municipality with a combined school.
Ward 3
The western boundary of Ward 3 runs along the Impendle Mountain while the eastern boundary falls roughly along the road from Boston to Impendle Town to Howick. This ward includes the town of Impendle together with the following settlements:-
In the North:
Novuka 1-4 Nthsini, just north of Impendle town
In the West:
Enguga 4 and 10 located on the western side of Impendle town
In the South:
Ga keta Kwakhetha 1 and 2 Ntshosweni Fikesuthi Similobha 1 & 2 Sithunjwana 1
Ward 4
This ward consists mainly of the farming community of Boston and the settlements of:
Gomane 1-7 Nhlambamkhosi
3.5 Availability of Infrastructure
The feasibility of any housing development is to a large extent governed by the availability of engineering services, specifically road access, water supply, sanitation
16 and electricity. If bulk services have to be provided from a considerable distance to any proposed housing development, this can render the housing development to be unviable.
The number of households without access to potable water within at least the family yard in 2001 was 2536 (35%); those without access to electricity, 2857 (39%); those without access to at least a VIP (ventilated improved pit latrine) 4223 (57%), and those without access to municipal waste removal 7156 (97%).
3.5.1 Roads and Stormwater Drainage
Impendle is peripheral to the National Road system. Main Roads that connect Impendle to the National Road are not direct routes. This has contributed to Impendle being marginalized in an economic sense.
Much of the Provincial Road system within Impendle is gravel surfaced. In addition, residents lack local road access. The map below shows the Provincial Road system in Impendle. The District 2007/08 IDP indicates that in 2001, only 20% of households had direct access to at least a graded road. The level of access had increased to 40% by 2004. The National target is to reach 100% by 2010.
A Business survey formed part of the District LED Plan. Road access was listed as the third most important factor for the success of a business, the most important being the provision of electricity, followed by telephones and potable water. The provision and upgrading of access paves the way for the provision of these other services, and hence the opportunity for economic development to occur is increased.
Of the approximately 1500 km of roads in Impendle Municipality, only 16 km is an all weather road. Some of the main through roads are of higher gravel standard but are not passable in wet weather. The majority of the roads servicing the communities are very poor, dusty and not passable in wet weather conditions.
17 Substantial resources need to be found to upgrade the feeder roads and local service roads to a reasonable standard and make provision to maintain these roads in order that the investment in road upgrading is not lost.
The state of this infrastructure can be attributed to a shortage of funding, technical capacity and a maintenance program.
Impendle is made up of predominantly rough hilly and mountainous terrain. Many stream and river crossings are a necessity for the future of road travel in this municipality. Most of these river and stream crossings are substandard and in many cases dangerous in wet weather. In wet conditions many crossings are inundated and some have been destroyed. Some lives have been lost as a result of the inadequate existing crossings and a high priority must be placed in making these crossings safe and or passable.
The quality of access roads and stormwater management had been identified as a major problem to all of the four wards. Most communities have indicated that the maintenance and upgrade of feeder roads and accesses roads should be given very high priority
It is noted, however that the Department of Transport has agreed to fund a five year project to provide a bituminous surface to P171 from Gomani to Lotheni, a distance of some 50 kms. This road will join the P127-2 to the P252 and P27-2 (the P27-2 connects Nottingham Road to Underberg). This will contribute to a major improvement to major access routes within the Municipality.
3.5.2 Water and Sanitation 1.1.1 Access to Water HOUSEHOLDS 2001 1996 Dwelling 417 482 Inside Yard 3829 2411 Community Stand 562 553 Community Stand Over 200m 830 - Borehole 317 759 Spring 559 1607 Rain tanks 36 19 Dam/Pool/Stagnant Water 81 - River/Stream 571 - Water Vendor 8 - Other 134 8
The table above indicates that access to water has improved i.e. more households have access to water connections. However this service is intermittent and much of it still comprises local spring, borehole and stream capture, which is not reliable in winter.
Much of the infrastructure is home made (low pressure agricultural piping) and leaves a lot to be desired in terms of water quality, storage facilities and distribution network.
18 The municipality has a large backlog in terms of sustainable potable water provision. (estimated at being over 50%).
Much of the backlog and substandard infrastructure is as a result of the vast area on which habitation has taken place. Large distances between housing units is not cost effective in terms of infrastructure as well as maintenance, and has lead to communities installing their own infrastructure which has now to be upgraded and or renewed.
Water supply is a function of Umgungundlovu District Municipality. The whole area will ultimately be serviced with water through Impendle MIG funding at 6kl per household per month distributed via public stand pipes situated less then 250m from each homestead. The following schemes were implemented in 2007/2008 financial year:
KwaNovuka Water Supply The four villages of KwaNovuka presently obtain water from a combination of streams and springs, some of which are linked to an informal reticulation system, which was implemented by the local church. This project aims to formalise water supply requirements for the community using production boreholes. The proposed new infrastructure consists of two production boreholes, protection of two springs, rising mains from boreholes, reservoirs, 14.5 km of reticulation pipelines and 36 standpipes. The total number of population to be served is 3048 comprising 508 households.
Enguga, Entshayabantu & Macksam Water Supply The proposed project falls within the Impendle Local Municipality, covering approximately 53.2km square and will serve 15 120 beneficiaries residing in 1 890 households. Currently, distant traditional resources utilized to obtain water are either from unreliable boreholes, rivers or streams. In order to alleviate the existing circumstances, water will be abstracted from the Nzinga River and two boreholes will act as backup or supplementary supply.
3.5.3 Sewage Treatment 1.1.2 Access to Sanitation Households 2001 1996 Flush Toilet 280 228 Flush Septic Tank 219 - Chemical Toilet 146 - VIP 2475 - Pit Latrine 3874 5521 Bucket Latrine 172 13 None 177 78
Most of the households have had a below basic level of service (below RDP level) in terms of sanitation i.e. relying on pit latrines and bucket latrines. The sanitation backlog in the municipality is estimated at being 57.52%.
19 No water borne sanitation infrastructure exists within the Impendle Local Municipality. All areas depend upon site-based systems. (septic tank / pit latrines) The District has carried out some projects in a number of areas but the majority of the areas have still to be addressed.
3.5.4 Electricity
Source 2001 1996 % change Electricity 4486 1142 3344 Gas 6 51 -45 Paraffin 33 220 -187 Candles 2748 4394 -1646 Solar 22 - 22 Other 48 0 48
The provision of electricity in the municipal area has increased dramatically. The number of households with access to electricity has increased from 1142 in 1996 to 4486 in 2001. A positive aspect with respect to the increase in electricity provision is the decrease in the reliance of households on scarce local firewood resources and other energy such as paraffin and gas.
Good progress has been made in the grid and connection programmes. However the grid extensions have not yet been extended into some areas and connections to individual sites is leading to some frustrations. Major concerns were found where schools and community facilities have not been serviced.
3.5.5 Access to Refuse Removal HOUSEHOLDS 2001 1996 Municipality weekly 152 21 Municipality Other 34 14 Communal dump 16 168 On site refuse handling 6810 5372 No disposal 330 194
Most of the households do not have access to municipal services and dispose of waste in refuse pits on site and burning. This has a negative impact on the surrounding environment leading to pollution of land, water, etc. The refuse removal backlog in the municipal area is estimated at being 97.47%.
The state of this infrastructure and service delivery can be attributed to a lack of funding, technical capacity and a maintenance program. Strategies have been put in place to deal with some of the challenges however the balance of the Municipality’s refuse removal / handling still needs to be addressed.
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3.5.6 Free Basic Services
As a result of the high level of unemployment and subsequent poverty within the Impendle municipal area, there are households which are unable to pay for normal municipal services.
The Municipality has therefore adopted an indigent management policy to ensure that these households have access to at least basic municipal services. The Municipality has been guided by the national government’s policy in this regard.
It is noted that households where verified total gross monthly income of all occupants over 18 years of age does not exceed R2000, or such other amount as the Council may from time to time determine, qualify for indigent support.
3.5.7 Summary on Engineering Infrastructure
Appearing as a challenge in the municipality is low revenue base, which emanates from the high rate of unemployment. The majority of people in the area cannot pay for services rendered and it becomes difficult for the municipality to provide and maintain services. It is preferable that consumers do pay for services rendered so that the municipality is able to maintain the standard of services. However, the high unemployment rate remains an obstacle.
4 SPATIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT SYSTEM
4.1 Reviewed Spatial Development Framework
Impendle Municipality has reviewed its Spatial Development Framework and a detailed document is available. For the purpose of the MHP a brief summary of the SDF is included here. Based on the development strategies identified in Impendle’s IDP, the Spatial Development Framework has taken into account the following critical areas to be developed spatially:
Agricultural Development and Tourism Development
4.2 The link between Land Use Management and Spatial Development
It is important to note that the IDP Spatial Development Framework is intended to form the basis for the Land Use Management System for the municipal area (Land Use Management referring in this instance to a) the control of development and b) the facilitation of development). These two aspects place different requirements on the Spatial Development Framework - one the one hand it must be detailed enough to guide the implementation of land use rights (by means of Planning Schemes), while on the other hand it must identify measures to stimulate development.
It is noted that the Land Use Management System for Impendle has yet to be finalised.
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4.3 Impendle Spatial Development Framework
4.3.1 Objectives
Flowing from the IDP’s overview of the municipality, National and Provincial policies, and the Frameworks of the District and adjacent local municipalities, the following objectives have been established for the spatial development of Impendle:
Improve accessibility within the municipality Promote linkages with the adjacent local municipalities Stimulate local economic development through agriculture and tourism Provide and maintain services to the local communities To achieve a balance between the developmental needs of the local communities, the demands of tourism and agriculture, and sound environmental management principles.
4.3.2 Strategies
The following strategies were proposed to achieve the objectives set out above:
Identify a hierarchy of access corridors that aligns with the District SDF and indicate where upgrading should be focused Identify a system of development nodes to serve the community and to implement developmental strategies Retain land with high agricultural potential for agricultural use only Identify land for promotion of small scale commercial agriculture Promote cultural tourism and communal agriculture in traditional authority areas Identify formally conserved areas in and around the municipality Protect the strategic water production area at the Mgeni River headlands and the surrounding vlei Identify areas where tourism could be promoted and the type of tourism, bearing in mind that the agricultural and natural landscapes must not be compromised Ensure that tourism proposals benefit the local community Ensure that environmental objectives are taken into account in the formulation and adjudication of development proposals
4.3.3 Alignment with the District Spatial Development Framework
Alignment of the SDF should be coordinated at a District level through its IDP Alignment Program. The IDP Program for Alignment is identified as a critical area in particular as far as it relates to those projects, which have a cross-border influence such as tourism and infrastructure projects.
The District Spatial Development Framework includes a hierarchy of nodes consisting of a primary node, secondary nodes, tertiary nodes, rural nodes and a tourism node.
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The town of Impendle is identified at District level as a Rural Node, which fulfils the function of a rural service centre to the surrounding area. At the local level this becomes the primary node. Other nodes are then identified according to the function they play.
Development Corridors at district level range from the Provincial Priority Corridor (PC2) which is identified in terms of the Provincial Spatial Economic Development Strategy, Primary Corridors, Secondary Corridors and Tourism Link Route Upgrades.
A Primary Corridor run through the eastern part of Impendle, and have been brought through into the SDF proposals. Impendle is traversed by Tourism Link Route upgrades that have also been brought through to the local level.
High potential agricultural land is designated on the District SDF as Agricultural Priority Areas. One instance of this category occurs around Boston, which has been designated at local level as an area for Agricultural Development Only.
A Strategic Water Production Area is located within Impendle at the headwaters of the Mgeni River. This District level priority area has been brought through to the local level.
Also reflected on the District SDF are the Traditional Authority areas.
4.3.4 Conclusions
The Impendle Spatial Development Framework (SDF) provides a broad indication of where different types of development should take place within the municipal area. As such it provides general direction to guide decision-making (and thereby contribute towards the creation of integrated and habitable towns and residential areas), a framework for the formulation of an appropriate land use management system for the municipal area and a framework for public and private sector investment.
In respect of housing development, there is a reasonable correlation in respect of both the existing and potential new housing projects with the main spatial framework elements. In that most of the municipal area is rural in nature, the majority of both existing and planned housing projects are rural projects. Other projects are centred around the rural node at Impendle Village. (See attached plan showing an overlay of housing projects in relation to the main spatial framework elements, at the back of this document).
4.4 Guidelines for a Land Use Management System
Research into guidelines for Land Use Management Systems has been undertaken under the auspices of the KwaZulu-Natal Planning and Development Commission.
In light of the rural nature of the Impendle Municipality, it is likely that a Rural Scheme Policy would be the most appropriate method of approach to land use management.
23 Tools to land use management include town planning schemes, by-laws, licensing, general property information, valuation rolls.
Local Area Development Plans have been used as a means of coordinating and promoting development, particularly in identified development nodes.
A Town Planning Scheme exists for the Impendle Village. This lies outside of, but surrounded by the Tribal Area boundary, and is administered in terms of the Town Planning Ordinance, No. 27 of 1949, as amended. This will need to be reviewed from time to time.
4.4.1 Land Use Management System
As at this time, Impendle Municipality has not yet established its Land Use Management System (LUMS).
It is important that the Municipality prioritises this, in order to both control and facilitate development in the future.
This will also allow co-ordinated and harmonious development that will tend to promote health, safety, order, amenity convenience and general welfare as well as economic development. This will also achieve a pattern and distribution of land uses which generally:
Retains and enhances established residential neighbourhoods, industrial districts, open space and amenities. Allows for flexibility and the introduction of compatible uses in residential neighbourhoods. Allows for flexibility in the commercial area by permitting a combination of commercial uses and residential uses. Promotes the development and expansion of the tourism potential area.
This will identify suitable zones for the management of land in the municipal area based upon the principles of the LUMS guidelines. The purpose of this Policy is to promote co- ordinated and harmonious development of the municipal area in such a way as will most effectively tend to promote health, safety, order, amenity, convenience and general welfare, as well as efficiency and economy in the process of development, and the improvement of communications. The purpose generally is to ensure that the principles of sustainability, efficiency and integration are achieved. In furtherance of this purpose the Impendle Municipality can achieve a pattern and distribution of land uses, which would generally provide for the following:
Accommodate desirable land uses. Provide a framework to resolve conflict between different land uses. Promote certainty of land use. Promote the efficient use of land. Promote the efficient movement of persons and goods.
24 Promote economic activity. Promote the amenity of adjacent land uses. Protect natural resources, including prime agricultural resources. Protect cultural resources giving due consideration to the diversity of communities. Protect and enhance unique areas or features of environmental significance and biodiversity. Manage land generally, including change of land use and sub-division.
5 CURRENT HOUSING STATUS
Impendle Village and Boston, together with their surrounding areas, account for the bulk of existing formal housing. In addition, Swampo, a rural village with in situ housing development is about 90% complete. In these centres, land is generally privately owned by the residents.
Outside of these nodes, population densities are relatively low, and generally comprise rural communities and farm workers and their dependants.
Existing settlements and housing projects can be categorised from various perspectives.
5.1 Legal Status (Formal and Informal Settlements)
Formal Settlements Formal Settlements are planned settlements approved by the municipality and relevant government departments including the Department of Housing. Formal settlements are planned in such a way that service delivery such as water, sanitation, electricity and roads become part of planning and implementation phases. The municipality acknowledges the challenge of servicing unplanned and scattered development and should therefore promote densification by developing suitable vacant land. Planned and dense settlements are easier to service in terms of engineering, economic and social services.
Informal Settlements
Informal settlements are housing developments, which have not been planned and approved by the municipality or Housing Department, are caused by illegal occupation of land, and development is not accompanied by housing infrastructure such as roads, electricity, sanitation, water and social services. Informal settlements are generally located in areas that are not suitable for low-income housing. They lack spatial logic, making it is difficult and costly to service them.
5.2 Functional Status
The functional status refers to the particular type of housing need addressed. These priorities or categories include urban development and slum clearance, rural housing,
25 rental housing, hostels redevelopment, and meeting special needs e.g. victims of HIV/AIDS, and orphans.
To date the emphasis in Impendle has been on housing around Impendle Village and the preparation of rural housing initiatives. It is anticipated that this focus is generally appropriate and will continue in the future.
Existing and proposed new housing projects are described, together with their functional classifications, in Annexures A to E.
5.3 Project Status (Progress)
Housing initiatives are generally undertaken on a project basis. Assessing the project status provides an indication of progress with any particular initiative. The project status can nominally be categorised as follows:
Future Project: a potential new project has been identified In Preparation: feasibility study, risk assessment and project packaging are underway In Implementation: funding is approved, and final design and construction are underway Substantially Complete: construction is finished and houses occupied Closed Out: all administrative processes and financial reconciliation are finalised
Of particular importance in government funded housing initiatives is the necessity of closing out substantially completed projects. This is important firstly from an accountability perspective, to ensure that the public funds allocated have been utilised effectively, and for the purpose approved, and secondly to enable funding to be allocated to new or future projects. The provincial Department of Housing is reluctant to approve new housing initiatives in any given municipality, where older initiatives have not been finally closed out. The Compensation project will be discussed in this context.
In terms of establishing a multi year programme for the implementation of housing delivery, it is essential to ensure that sufficient initiatives are being identified as potential future projects, and that sufficient projects are in preparation. This is also important to ensure that the municipality will receive an adequate share of the Provincial Housing Fund, and that funds which could be utilised in Impendle, are not allocated elsewhere.
6 HOUSING NEEDS ASSESSMENT
6.1 Quantification of the Housing Need
Quantifying the housing need can be undertaken in a number of ways.
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Firstly is the information for existing dwellings, provided by Census 2001:
Dwelling Type
House or brick structure on a separate stand or yard 2 602
Traditional dwelling/hut/structure made of traditional materials 4 369
Flat in block of flats 215
Town/cluster/semi-detached house (simplex;duplex;triplex) 44
House/flat/room in backyard 29
Informal dwelling/shack in backyard 19
Informal dwelling/shack NOT in backyard 37
Room/flatlet not in backyard but on shared property 21
Caravan or tent 7
Not applicable (institution) 120
Total 7 463
The census information is now seven years old, and must be interpreted in that context. It can be assumed that a small proportion of conventional housing (2602 units) is inadequate, and needs to be upgraded or replaced. The traditional dwellings (4369) are mainly in rural areas, and constitute a priority for the provision of adequate housing. The census does not indicate a substantial number of informal dwellings (56), or people occupying temporary shelter (7). From the census information therefore a need for about 4800 houses can be deduced.
This can be categorised as follows:
Housing Category Housing Need (number of units)
Slum Clearance 300
Rural Housing 4500
Total 4800
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A second means of determining the need would be information contained in a housing waiting list, maintained by the municipality. Impendle Municipality has not, in the past, kept a housing waiting list. This cannot therefore be taken into account for this municipal housing plan. In any event, experience both here and elsewhere has exposed the inaccuracy of waiting lists and the difficulties experienced in keeping such lists current.
A third mechanism would be to compile information from ward committees. This has not been undertaken as yet within Impendle, but is viewed as a potentially useful tool for the future. It is noted however that housing has been given as a high priority by the community in the recent Client Satisfaction Survey.
A fourth method would be a specific survey at a given point in time within the municipality. No such survey has been undertaken in Impendle.
6.2 Geographical distribution
The bulk of the housing need is situated in the rural areas, and particularly on Ingonyama Trust land. In addition, some new housing is required around Impendle Village.
6.3 Land Reform Initiatives
According to the Land Claims Commission, there are some 18 outstanding land claims in Impendle. It is noted that these relate entirely to commercially owned farmland. As such, they have no immediate relevance to the supply of housing in terms of Impendle’s current programme for housing delivery.
6.4 Farm Worker Housing
Although a significant portion of Impendle is commercial farmland, no projects have as yet been identified to house farm workers on these farms. It is important that the municipality guards against a process of “decanting” these workers and their families from the farmland and into township-like housing projects, which although contrary to legislation, has occurred elsewhere.
6.5 Rural Housing
A significant feature of Impendle is that approximately 20% of land is under traditional authority, and held in the name of the Ngonyama Trust. Settlements on such land represent a significant development priority to the Department of Housing, and can be implemented relatively quickly. Most of the current housing initiatives in Impendle occur in this category. This is appropriate as it represents the greatest need.
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6.6 Worker Housing
No demand has been identified for worker housing at this time. Impendle is quite limited in respect of industrial activity. This is however an area that the municipality could investigate for the future, should it become appropriate.
6.7 Rental Housing
The municipality has identified a small need for rental housing, mainly to accommodate workers who retain their family homes elsewhere. This group includes educational and health workers, as well as employees of various industries and businesses, mainly around Impendle Village.
6.8 Special Needs Housing (Housing for victims of HIV/AIDS)
The full extent of the impact of HIV/AIDS within the municipality has been difficult to quantify. However it is known that it is significant. This has substantial impacts on the determination of housing need. From one perspective it is limiting the actual growth of population as described and quantified in Section 3.3 above. From a different perspective it presents the challenge of how shelter should be provided for the elderly and for orphans, who have lost the support of economically active family members. It also presents the challenge of providing shelter for the sick. Experience elsewhere indicates that institutionalisation is not going to be a practical solution, given the extent of the pandemic. There is significant support for the concept of caring for people within their own communities and within their family structures as far as possible. This proposition is to a large extent also supported by cultural values.
Only one known facility is currently operating within the municipality in support of victims of HIV/AIDS, namely the drop-in centre for orphans at Nzinga. It will be important however for the municipality to quantify the extent of the need in this sector, and to establish strategies to address the challenge.
6.9 Overall Assessment of Housing Need
The overall scale of housing need in Impendle at present approximates to 4800 units.
As a result of projects currently in preparation and being packaged, 2949 houses will be provided. An additional 2000 will be supplied as a result of identified future projects.
This indicates that the planned supply of housing will be adequate for the foreseeable future (notwithstanding the fact that it will take 5 to 6 years to deliver this housing, assuming all projects run according to plan.
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7 LAND IDENTIFICATION
Impendle is in the process of establishing policies for its Spatial Development Framework and Land Use Management System. It has therefore, until recently not been well placed to direct and manage development within its area of jurisdiction. However, it now has identified the housing need, both in terms of the housing demand in various geographical locations, as well as certain functional requirements such as urban development, rental housing, rural housing, etc.
In respect of housing development in particular, the municipality is in the process of identifying particular areas or parcels of land on which various housing developments could take place. Only when specific parcels of land have been identified, and through land audit found to be suitable for development, can specific projects be taken forward. This in turn, initiates the whole process of project feasibility study, risk assessment, preparation and packaging, as illustrated in the project preparation cycle flow diagram below.
Project Preparation Cycle
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This process of land identification and audit has commenced for some land in the vicinity of Impendle Village.
Within Impendle itself, there is a potential for limited densification. This is the process, which occurs through the development of vacant land, the result of which is an increase in city, town or urban density. It can also occur through compaction i.e. an increase in net residential density through the addition of new units or people into an area through the subdivision of land or through the expansion of floor space of existing buildings.
It is noted, however, that as the bulk of housing delivery in Impendle will be of an in situ rural nature, the issue of land identification is of less relevance than in typical urban greenfields development.
It is further noted that the Municipality has valid concerns with the issue of its own affordability in almost exclusively supplying subsidy housing targeting the poorest of the poor. While this is highly desirable in terms of meeting the Municipality’s responsibilities, it will inevitably increase the financial burden on the Municipality in terms of supplying a free supply of water and other services, particularly in terms of its own indigent policy, and in supporting a populace, which is generally unable to afford the payment of rates. There is therefore a clear need for the Municipality to target more middle income housing development, in order to support its initiatives for the poorest sector of the population.
8. PLANNED AND ANTICIPATED FUTURE PROJECTS
In Impendle, there is a need for a limited variety of housing types.
8.1 National and Provincial Priorities
The national and provincial Departments of Housing have established the following priorities in respect of the provision of housing:
Finalisation of existing projects Removal of slums/informal settlements Rural housing Provision of Rental Stock Accommodating victims of HIV/AIDS Hostels redevelopment
In respect of the finalisation of existing projects undertaken in terms of the government’s housing subsidy scheme, Impendle has no projects completed and closed out, and one project (Compensation) substantially completed but not yet closed out. It will be important therefore that municipal officials engage with the provincial Department of Housing to ensure that this project is closed out timeously. The provincial department has established target dates by which this should be achieved (see Annexure A).
31 Rural housing development has been the municipality’s main priority to date, and will continue to be the main priority for the foreseeable future. This is evidenced in the rural projects currently being packaged as well as the projects identified for future development.
Housing delivery in Impendle has generally been slow, mainly as a result of a lack of capacity in the municipality. However a reasonable spread of projects now exists, both in terms of projects currently in preparation, and new projects envisioned for the future.
It would appear that the major gap in respect of planned housing delivery in Impendle is the provision of shelter for victims of HIV/AIDS, and accommodation for the wider impact of this pandemic, where the economically active members of society are hardest hit, leaving behind the elderly and children, the latter often in child-headed households. It is important therefore that the municipality prioritise this category for future attention.
Attention should also be given to farm worker housing on commercial farmland.
8.2 Project Categorisation
Planned and anticipated future projects can be categorised under various programmes. The Housing Act, 1997 defines “National Housing Programme” as any national policy framework that achieves the following objectives:
Assistance to persons who cannot independently provide for their own housing needs Facilitation of housing delivery Rehabilitation or upgrading of existing housing stock
These programmes to facilitate housing development, include, but are not limited to, the following:
The Housing Subsidy Scheme The Discount Benefit Scheme to promote home ownership The Public Sector Hostels Redevelopment Programme
8.3 Housing Subsidy Scheme
All of the planned and identified housing projects for Impendle are applicable to the Housing Subsidy Scheme.
Such projects require considerable time for preparation and approval, and it is important therefore to plan far enough ahead to ensure continuity of delivery. This is addressed later in this report.
8.4 Discount Benefit Scheme
The municipality has no houses to which the Discount Benefit Scheme would apply.
32 8.5 Public Sector Hostels Redevelopment Programme
There are no hostels in Impendle.
8.6 Rental / Social Housing
A limited demand for rental housing has been identified in the vicinity of Impendle Village, mainly to accommodate workers who retain family homes elsewhere. This group includes educational and health workers, as well as employees of various industries and businesses, mainly around Impendle Village.
A project is currently being conceptualised to address this demand. The size of this project has not yet been determined.
8.8 Worker Housing
No projects have as yet been identified with large employers in the area. It is believed that a considerable potential does exist for farm worker housing on commercial farms.
8.10 Engagement with the Private Sector
Arising out of the Provincial Housing Summit 2006, municipalities are to engage companies in their areas with a view to exploring and ensuring the provision of employee housing and company-assisted housing. No initiatives have been taken in this regard in Impendle.
9 INTEGRATION WITH OTHER SECTORS
Integrated development is a cornerstone of the national Department of Housing’s policy, the “Comprehensive Plan for the Development of Sustainable Human Settlements”, which recognises the inadequacy of existing apartheid settlement patterns, and housing development as is has been taking place under the new dispensation to date. This policy is described in Section 2.4 above.
Integrated development itself is an essential condition for the successful evolution of society, and for individuals to reach their potential. Integration across different sectors is the central objective of the IDP process. However, integration must be addressed both at the IDP level, and at the project level.
At the IDP level, projects first need to be prioritised. Then the various departments can be informed, so that the various support services can be budgeted for and provided on a timeline which is consistent with the provision of housing.
At the project level, this can include, but is not necessarily limited to physical infrastructure such as: Road Access Water and Sanitation Infrastructure
33 Energy supply (Electricity) Access to telecommunications
It also includes social infrastructure such as: Education Health Care Creches Provision of facilities for special needs groups e.g. HIV/AIDS, the aged, orphans Sites for religious activity
In urban type development, the town planning layout for the development should make provision for all of the above, as appropriate.
Provision should also be made for economic opportunity, and where appropriate, food security. This provision can be addressed at either the IDP level or project level, depending on the specific circumstances, and the provisions of the municipality’s Spatial Development Framework (SDF), and Land Use Management System (LUMS), and could include:
Facilities for micro-enterprises Commercial development Agriculture or community gardens
A major concern, already identified by the municipality, is a lack of poverty alleviation programmes. At this stage there is little evidence to indicate that there will be sufficient LED projects to support the development of sustainable human settlements, particularly at a scale to match the housing need. This issue is relevant to housing projects already substantially completed, as well as new projects.
Although the municipality has identified two potential economic growth pillars, namely agriculture and tourism, the strategy has yet to be realised in the creation of sufficient, sustainable employment opportunities. It is anticipated that this will remain a challenge for the foreseeable future, and will impact negatively on the sustainability of existing and future housing projects.
Therefore, coordination must take place between departments to ensure integration of development activities. It will be the responsibility of those municipal officials entrusted with housing to ensure that all other functional components or departments are informed timeously. This will enable budgetary allocations to be addressed, and the actual service provision to take place concurrently with the housing development.
For the engineering infrastructure, funding provision will be made through the MIG programme. It is important to understand that MIG funds can be committed up to five years in advance. Therefore adequate forward planning must take place for all housing development, in order to ensure timeous provision of the bulk and connector engineering services.
In the Province of KwaZulu-Natal there are two types of forum, which can be utilised to facilitate better coordination for integrated development. The first is the municipal
34 housing forum, which usually takes place on a monthly basis in each municipality, and where the issues affecting each actual and potential new housing project can be discussed and resolved. The other is the District Service Provider Forum (SPF).
Although mentioned under Section 7. Land Identification, it is important also to note here, that in the case of urban development, integration with other sectors can usually only be taken forward when specific land parcels have been identified on which the developments can take place. This land identification therefore needs to take place at an early stage, in order to allow other sector departments to plan and budget for the provision of their particular service as it relates to the specific housing development under consideration.
It is noted, however, that as the bulk of housing delivery in Impendle will be of an in situ rural nature, the issue of land identification is of less relevance than in a typical urban greenfields development.
10 HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK
10.1 Housing Administration
Administration in respect of housing is an important aspect of the municipality’s responsibility, and includes the following:
Planning of new housing development Project management Property inspection and valuation Setting of, and collecting rates, and service charges Rental of municipal housing stock, and the maintenance thereof Management, maintenance and administration of municipal-owned hostels Community liaison Record keeping
In addition to the above, changes in both functions and property ownership between the three spheres of government, and inaccurate or inadequate record keeping, have increased the responsibilities of local government in the housing sector.
10.2 Institutional Framework
Impendle Municipality has recently been developing a new organogram. The current structure for the Infrastructure and Planning Services Department is depicted below:
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36 It can be seen that this new structure incorporates three new posts for housing administration, as well as a design and construction project management unit, and a building inspector (this post reporting to the planning officer). This is an appropriate response to the Municipality’s housing responsibilities, taking cognisance of budgetary constraints.
It is noted, however that funding will have to be sourced for these new posts, and that the Municipality is currently in negotiation with various governments, Eskom, MIG, and other service providers in this regard.
10.3 Capacity Building
The municipality will have to assess the adequacy of the capacity of this component to manage the workload associated with the multi-year housing programme presented in this plan, and adjust the component accordingly.
It can be anticipated that additional project management and professional engineering skills will be necessary to drive housing development on the scale required. These skills are in short supply nationally, as well as at the local level. If the municipality is unable to recruit sufficient capacity as staff, then it will have to consider outsourcing, either on a programme or project basis, in order to ensure delivery of housing at the required rate.
With regard to the existing staff, the municipality has a skills development policy, in terms of which each staff member is required to have a current skills development programme. At present this requires to be updated in respect of the housing component. However, staff from this component regularly attend provincial workshops to keep abreast of current housing initiatives and policy developments.
In the preparation of this municipal housing plan, municipal staff, particularly those of the planning component have played an active and participatory role, particularly in undertaking primary research, where important information was not readily available. This has undoubtedly contributed to a greater understanding of the municipal housing planning process, and will stand the municipality in good stead, when updating this plan in future years. It has also added value to this document as a planning tool for the future.
11. PERFORMANCE MEASUREMENT
A variety of measures can be utilised in the assessment of performance for housing delivery. These can include, but are not limited to:
Number of units delivered (per annum) Funding utilised (per annum) Size of housing backlog Progress against milestones for specific projects
37 These measures can be used to assess the quantity of housing delivery. Some measures could also be introduced to assess the quality of housing delivery, such as:
Technical construction standards: compliance with National Building Regulations and National Home Builders Registration Council requirements Housing Consumer Satisfaction Surveys
For the purposes of this Municipal Housing Plan, it is recommended that the number of units delivered per annum be utilised as the primary performance measure. This will have a direct relationship to the funding utilised, particularly in respect of the subsidy housing scheme. It is suggested that a target of between 800 and 1000 units per annum could be adopted for the future, taking into consideration the scale of the housing demand.
It will also be important for the municipality to monitor the size of the housing backlog, and to strive ultimately for a housing backlog of zero. It should be noted that from a national perspective, an unanticipated increase in the national housing backlog in recent years was revealed. This was attributed largely to a smaller family size than anticipated i.e. the number of people per house, and the ongoing trend towards urbanisation. Only recently has a decrease in the national housing backlog been reported.
The other measures suggested above, can best be applied on a project specific basis.
12. HOUSING DELIVERY PROGRAMME
The proposed housing delivery programme is attached as Annexure G.
The following considerations and assumptions have been utilised in preparing this programme:
A typical housing project will take a minimum of 3 years from inception to completion, assuming it runs smoothly.
Approximately 18 months will be required for preparation and approval and 18 months for implementation.
Large or complex projects will take longer.
Unforeseen issues or difficulties will increase the project duration.
The actual rate of delivery will be governed by the following:
o The capacity of the municipality to manage the programme.
o The capacity of the construction industry to deliver.
o The funding available.
38 A detailed programme will be established for each project at the appropriate time, which will guide project specific performance and delivery. Each project specific programme will have to be kept current, as appropriate. These project-specific programmes will then feed back into the overall municipal programme of delivery, as contained in this Municipal Housing Sector Plan.
13. CONCLUSIONS
The following conclusions, containing observations and recommendations, can be drawn from the compilation of the Municipal Housing Plan for Impendle:
The overall scale of housing need in Impendle at present amounts to approximately 4800 units. As a result of projects currently in preparation and being packaged, 2949 houses will be provided. An additional 2000 will be supplied as a result of identified future projects. This indicates that the planned supply of housing will be adequate for the foreseeable future (notwithstanding the fact that it will take 5 to 6 years to deliver this housing, assuming all projects run according to plan).
The bulk of this need is in the rural areas under traditional authority.
The Municipality is in the process of establishing the necessary planning frameworks to take housing development forward in a planned and orderly manner. These include the municipality’s Integrated Development Plan (existing), Land Use Management System, Spatial Development Framework (existing), and now the Municipal Housing Plan.
Projects in preparation and identified future projects generally represent a pragmatic and appropriate response to housing delivery in terms of the needs as presented, with the exception of farm worker housing.
Impendle has at present only one existing project - Compensation. This project has yet to be closed out.
The Municipality should initiate engagement with the private sector, particularly large employers and the commercial agriculture sector, in terms of housing delivery.
The Municipality should prioritise the needs of HIV/AIDS victims, especially orphans.
The availability of bulk infrastructure, particularly upgrading of roads and water supply should be treated as a high priority.
The municipal capacity to deliver and the need to establish a housing component represents a challenge, as a result of the scale of delivery required.
Of concern is the level and growth of economic activity to support new housing developments, and to enable them to function as sustainable human settlements.
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REFERENCES
1. Impendle Integrated Development Plan (IDP) 2007/2008
2. Impendle Draft Land Use Management System (LUMS):
3. Impendle Strategic Development Framework (SDF) Review: Udidi Environmental, Planning and Development Consultants
4. National Housing Programme for Housing Sections of Integrated Development Plans: National Department of Housing
5. Guidelines to Assist Municipalities in the Preparation of Municipal Housing Plans: Department of Housing KwaZulu-Natal
6. Municipal Housing Sector Plan Manual (Funded by USAID): Project Preparation Trust of KZN
7. Statistics South Africa http://www.statssa.gov.za/default.asp
8. The Department of Housing http://www.housing.gov.za/default.htm
9. Department of Housing KwaZulu-Natal http://www.kznhousing.gov.za/
10. The National Housing Code
11. The Housing Act, 1997 (Act No. 107 of 1997)
12. The Comprehensive Plan for Sustainable Human Settlements, National Department of Housing
14. Trade and Investment KwaZulu-Natal http://www.tikzn.co.za/uMgungundlovuMunicipality337.aspx
15. Umgungundlovu District Municipality Integrated Development Plan (IDP)
16. Umgungundlovu District Municipality Strategic Development Framework (SDF): Udidi Environmental, Planning and Development Consultants
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