CAPE AGULHAS MUNICIPALITY SPATIAL DEVELOPMENT FRAMEWORK

2017-2022

Final Report July 2017

Client Contact Professional Team

Town and Regional Planning JSA Architects and Urban Designers

Cape Agulhas Municipality Jac Snyman

Bertus Hayward [email protected]

021 788 1413

Email

[email protected] Built Environment Partnership

Tel Stephen Boshoff

028 425 5500 [email protected]

Office

Cape Agulhas Municipal Offices

1 Dirkie Uys Street Infinity Environmental

Bredasdorp Jeremy Rose

[email protected]

STATUS AND PURPOSE OF THIS DOCUMENT

This Spatial Development Framework was approved by the Cape Agulhas Municipality on 30 May 2017.

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Cape Agulhas Spatial Development Framework 2017-2022 Abbreviations NEMA National Environmental Management Act, 1998 CAM Cape Agulhas Municipality NEMBA National Environmental CBA Critical Biodiversity Area Management: Biodiversity Act, 2004 DEA&DP Department of Environmental Affairs and Development NGO Non-government Organisation Planning NDP National Development Plan DRDLR Department of Rural ODM Overberg District Municipality Development and Land Reform ONA Other Natural Area EIA Environmental Impact PLAS Pro-active Land Acquisition Assessment Strategy ESA Ecological Support Area PPP Public Private Partnership IAP Invasive Alien Plant PSDF Provincial Spatial Development Framework IDP Integrated Development Plan RO Reverse Osmosis LED Local Economic Development SDF Spatial Development LUPA Land Use Planning Act, 3 of Framework 2014 SOEs State Owned Enterprises MIG Municipal Infrastructure Grant SPLUMA Spatial Planning and Land Use MSA Municipal Systems Act, 32 of Management Act, 2013 2000 WCBSP Biodiversity MSDF Municipal Spatial Spatial Plan, 2017 Development Framework WCG Western Cape Government MTEF Medium Term Expenditure Framework WWTW Waste Water Treatment Works

Cape Agulhas Spatial Development Framework 2017-2022 3

EXECUTIVE SUMMARY Proposals entail three types of actions or undertaken to achieve the vision and initiatives: spatial concept. This document presents the Cape Agulhas  Protective actions – things to be As part of the IDP review and preparation Municipality (CAM) Spatial Development protected and maintained to achieve cycle, it is envisaged that the CAM SDF with Framework (SDF), prepared in parallel to the the vision and spatial concept. undergo annual review and further development of the CAM 2017-2022  Change actions – things that need to be development as the need arise (within the Integrated Development Plan (IDP). changed, transformed, or enhanced to context of the 5-year IDP and this SDF), with a achieve the vision and spatial concept. The SDF is a statutory requirement of all major re-assessment and review following in  New development actions – new municipalities. Its purpose is to structure and 2022. development or initiatives to be direct – as far as it is possible – the distribution and management of activities and supporting infrastructure in space in a manner which best serves the interest of citizens, today and into the future.

In general terms, the SDF outlines:

 The spatial challenges, opportunities (and implications) of CAM.  Strategies, policies, and proposals to meet the challenges and opportunities for CAM and individual settlements.  The roles and opportunities for different agents in implementing the SDF, further work, and priority projects.

Broadly, the SDF is organised around three themes: the bio-physical environment, socio- economic environment, and built ` environment (including infrastructure).

4 Cape Agulhas Spatial Development Framework 2017-2022 Contents 2.4.2 Issues ...... 30 3.2.2 Developable Land Areas and 2.4.3 Implications and opportunities 30 Densities ...... 63 1...... BACKGROUND AND PURPOSE SOCIO-ECONOMIC ENVIRONMENT 34 THE COMPOSITE AND SETTLEMENT ...... 7 AREA SDF FOCUS AND STRUCTURE ...... 65 2.5.1 Municipal overview ...... 34 PURPOSE ...... 7 THE COMPOSITE SDF ...... 67 2.5.2 Issues ...... 38 REPORT STRUCTURE ...... 7 PROPOSALS PER SETTLEMENT AREA 70 2.5.3 Implications and opportunities 39 SDF LEGISLATIVE CONTEXT ...... 7 3.5.1 ...... 70 BUILT ENVIRONMENT ...... 41 SDF CONTENT REQUIREMENTS ...... 8 3.5.2 Napier ...... 73 2.6.1 Municipal overview ...... 41 USERS OF THE CAM SDF ...... 9 3.5.3 ...... 76 2.6.2 Issues ...... 48 THE PLANNING AREA ...... 9 3.5.4 L’Agulhas ...... 79 2.6.3 Implications and opportunities 49 APPROACH, PROCESS AND 3.5.5 Elim ...... 81 GOVERNANCE ...... 53 TIMEFRAMES ...... 10 3.5.6 / Waenhuiskrans ...... 83 2.7.1 Municipal overview ...... 53 1.7.1 CAM approach to the SDF ...... 10 3.5.7 ...... 86 2.7.2 Issues ...... 54 1.7.2 Process, activities and outputs . 11 3.5.8 Klipdale ...... 88 2.7.3 Implications and opportunities 54 POLICY CONTEXT ...... 13 3.5.9 Protem ...... 90 SYNTHESIS ...... 56 1.8.1 The broad policy context ...... 13 4 IMPLEMENTATION FRAMEWORK ...... 92 2.8.1 Key issues...... 56 The PSDF ...... 15 POLICIES ...... 92 2.8.2 Key opportunities ...... 57 1.9.1 The CAM IDP ...... 17 DEVELOPMENT GUIDELINES ...... 97 2.8.3 Implications...... 57 GUIDING PRINCIPLES ...... 18 4.2.1 Provincial guidelines ...... 97 3 SPATIAL PROPOSALS ...... 59 GUIDING VISION STATEMENT ...... 18 4.2.2 Additional guidelines ...... 98 SPATIAL CONCEPT ...... 59 2 SPATIAL CHALLENGES AND DEVELOPMENT CHECK LIST ...... 98 OPPORTUNITIES ...... 19 3.1.1 Final vision statement ...... 59 CAPITAL INVESTMENT FRAMEWORK THE PREVIOUS CAM SDF ...... 19 3.1.2 Concept statement ...... 59 100 EXISTING SECTOR PLANS AND 3.1.3 Concept diagram ...... 59 4.4.1 Spatial priorities ...... 100 SERVICE INPUTS...... 19 FUTURE DEMAND APPROACH Precinct planning ...... 101 COMMUNITY VIEWS ...... 22 STATEMENT ...... 61 4.5.1 Implementation and institutional BIO-PHYSICAL ENVIRONMENT ...... 23 3.2.1 Current and planned rate of measures ...... 103 2.4.1 Municipal overview...... 23 housing delivery ...... 62

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IMPLICATIONS FOR OTHER CAM Table 11. Transport modal split ...... 47 PLANS ...... 105 Table 12. Provincial funding contributions ... 53 Map 1. Planning Area ...... 10 APPENDIX 1. IMPLEMENTATION OF THE PSDF IN Table 13. Legacy, current, and future issues 56 Map 2. Inland water systems ...... 23 THE OVERBERG ...... 107 Table 14. Major opportunities ...... 57 Table 15. Implications of current challenges Map 3. Oceans and coasts ...... 24 APPENDIX 2. POLICY FRAMEWORK FOR THE on components of settlement structure and Map 4. Biodiversity and ecosystems ...... 27 CAM SDF ...... 109 management ...... 58 Map 5. Agriculture and mining ...... 28 APPENDIX 3. CAM CAPITAL BUDGET (2016/17- Table 16. Housing demand by settlement ... 61 Map 6. Biophysical Synthesis ...... 33 2019/20) ...... 116 Table 17. Land requirements in hectares ..... 62 Map 7. COMMUNITY FACILITIES AND Table 18. Proportional housing allocation by ECONOMIC INFRASTRUCTURE ...... 35 APPENDIX 4. HOUSING TYPOLOGIES ...... 119 settlement ...... 62 Map 8. Socio-economic Synthesis ...... 40 APPENDIX 5. CAM HOUSING PIPELINE (2016) Table 19. Current housing pipeline ...... 62 Map 9. Settlement structure and classification ...... 122 Table 20. Pipeline housing projects and post- ...... 42 APPENDIX 6. HOUSING PROJECTS PER 2025 demand ...... 63 Map 10. Renewable Energy Development SETTLEMENT ...... 125 Table 21. Current pipeline land allocation Zones ...... 45 (Western Cape Government) ...... 63 Map 11. Built Environment Synthesis ...... 52 APPENDIX 7. SUGGESTED COASTAL Table 22. SDF proposals...... 67 Map 12. CAM SDF ...... 69 DEVELOPMENT CONTROL GUIDELINES ...... 128 Table 23. Bredasdorp SDF proposals ...... 70 Map 13. Bredasdorp SDF ...... 72 APPENDIX 8. COMMENTS AND RESPONSES Table 24. Napier SDF proposals ...... 73 Map 14. Napier SDF ...... 75 FROM STAKEHOLDER ENGAGEMENT ...... 129 Table 25. Struisbaai SDF proposals ...... 76 Map 15. Struisbaai SDF ...... 78 Table 26. L’Agulhas SDF proposals ...... 79 Map 16. L’Agulhas SDF ...... 80 Table 27. Elim SDF proposals ...... 81 Map 17. Elim SDF ...... 82 Tables Table 28. Arniston SDF proposals ...... 83 Map 18. Arniston / Waenhuiskrans SDF ...... 85 Table 29. Suiderstrand SDF proposals ...... 86 Map 19. Suiderstrand SDF ...... 87 Table 1. CAM SDF themes and sub-themes . 11 Table 30. Klipdale SDF proposals ...... 88 Map 20. Klipdale SDF ...... 89 Table 2. The broad policy context ...... 14 Table 31. Protem SDF proposals ...... 90 Map 21. Protem SDF ...... 91 Table 3. PSDF Spatial agenda ...... 15 Table 32. Provincial guidelines ...... 97 Map 22. Precinct Plans ...... 102 Table 4. PSDF transitions...... 16 Table 33. Private sector opportunities ...... 104 Table 5. High-level IDP strategic framework Table 34. Implications of SDF for IDP and for CAM ...... 17 sector plans ...... 105 Box 1. CBAs, ESAs and ONAs: Definitions and Table 6. SPLUMA Principles ...... 18 objectives ...... 26 Table 7. Challenges/ opportunities as Box 2. Biophysical issues ...... 30 reflected by services (continued overleaf) .. 20 Maps and Figures Box 3. Socio-economic issues ...... 38 Table 8. Summarised IDP inputs ...... 22 Box 4. Built environment issues ...... 48

Table 9. Settlement structure ...... 41 Figure 1: CAM SDF process ...... 12 Box 5. Governance issues ...... 54 Table 10. Settlement classification ...... 41 Figure 2. Spatial concept ...... 60

6 Cape Agulhas Spatial Development Framework 2017-2022 1. BACKGROUND AND REPORT STRUCTURE SDF LEGISLATIVE CONTEXT PURPOSE The report comprises the following chapters: The Municipal Systems Act, 32 of 2000 (MSA) first introduced the concept of a SDF as a PURPOSE Chapter 1: Background and component of the mandatory IDP that every Purpose municipality must adopt. Chapter 5 of the This document presents the new Cape •Outlines the purpose of the report, the Act deals with integrated development Agulhas Municipality (CAM) Spatial SDF legislative and policy context, planning and provides the legislative Development Framework (SDF), prepared in process and other points of departure. framework for the compilation and adoption parallel to the development of the CAM of IDPs by municipalities. Within the chapter 2017-2022 Integrated Development Plan Chapter 2: Spatial Challenges and Opportunities section 26(e) specifically requires an SDF as a (IDP). •Outlines spatial challenges, mandatory component of the municipal IDP. The SDF is a statutory requirement of all opportunities and implications for In 2001 the Minister for Provincial and Local municipalities. Its purpose is to structure and themes and sub-themes. Government issued the Local Government: direct – as far as it is possible – the distribution Municipal Planning and Performance and management of activities and Chapter 3: Spatial Proposals Management Regulations. Within these supporting infrastructure in space in a regulations, Regulation 2(4) prescribes the •Outlines strategies, policies, and minimum requirements for a municipal SDF. manner which best serves the interest of proposals for CAM and individual citizens, today and into the future. settlements. The Spatial Planning and Land Use Management Act, 2013 (SPLUMA) is a As part of the IDP review and preparation Chapter 4: Implementation cycle, it is envisaged that the CAM SDF with Framework framework act for all spatial planning and land use management legislation in South undergo annual review and further •Outlines roles and opportunities for development as the need arise (within the different agents, further work, and . It seeks to promote consistency and context of the 5-year IDP and this SDF), with a priority projects. uniformity in procedures and decision- major re-assessment and review following in making. Other objectives include addressing 2022. historical spatial imbalances and the integration of the principles of sustainable development into land use and planning regulatory tools and legislative instruments.

Chapter 2 of SPLUMA sets out the development principles that must guide the

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preparation, adoption and implementation prescriptive plans that predetermine or try to  Coordinate and deliver public sector of any spatial development framework, deal with all eventualities, or sets out components of this vision with other policy or by-law concerning spatial planning complete land use and development agencies and processes to ensure and the development or use of land. These parameters for every land portion or implementation. principles, outlined in more detail in section cadastral entity. They should, however,  Reflect the national policy, national …, include the redress of spatial injustices contain sufficient clarity and direction to policy priorities and programmes relating and the integration of socio-economic and provide guidance to land use management to land use management and land environmental considerations in land use decisions while still allowing some flexibility development. management to balance current and discretion. SDFs need to distinguish  Promote social inclusion, spatial equity, development needs with those of the future between critical non-negotiables and fixes, desirable settlement patterns, rural generations in a transformative manner. and what can be left to more detailed revitalisation, urban regeneration and SPLUMA reinforces and unifies the National studies. They should be based on normative sustainable development. Development Plan (NDP) in respect of using principles including performance principles  Ensure that land development and land spatial planning mechanisms to eliminate that form the basis of monitoring and use management processes, including poverty and inequality while creating evaluation of impacts. applications, procedures and timeframes conditions for inclusive growth by seeking to are efficient and effective. SPLUMA prescribes that SDFs should: foster a high-employment economy that SDFs should include: delivers on social and spatial cohesion.  Enable a vision for the future of regions and places that is based on evidence,  A report on and an analysis of existing At the Provincial sphere of government, local distinctiveness and community land use patterns. aligned with SPLUMA, the Western Cape Land Use Planning Act, 3 of 2014 (LUPA) derived objectives.  A framework for desired land use  Translate this vision into a set of policies, patterns. further outlines minimum standards for SDFs, priorities, programmes and land  Existing and future land use plans, both in preparation process, and content. allocations together with public sector programmes and projects relative to key SDF CONTENT REQUIREMENTS resources to deliver them. sectors of the economy.  Create a framework for private  Mechanisms for identifying strategically In terms of SPLUMA, an SDF covers a longer investment and regeneration that located vacant or under-utilised land and time horizon (i.e. five years or longer) than promotes economic, environmental and for providing access to and the use of spatial plans, and sets out strategies for social well-being for a specific region or such land. achieving specific objectives over the area. medium to longer term. SDFs are not rigid or

8 Cape Agulhas Spatial Development Framework 2017-2022 In terms of LUPA, a municipal SDF must: national, provincial, and district level policy, it situated within the Overberg District also sets out the municipality’s spatial Municipality (ODM) of the Western Cape  Comply with other applicable legislation. agenda for government departments across Province (Map 1).  Promote predictability in the utilisation of spheres of government to consider and land. The CAM area covers approximately follow. Most importantly, the SDF outlines  Address development priorities. CAM’s spatial agenda to its own service 2 411km² and includes the towns of  Where relevant, provide for specific Bredasdorp and Napier, the coastal towns of departments, ensuring that their sector plans, spatial focus areas, including towns, other Arniston/ Waenhuiskrans, Struisbaai, programmes, and projects are grounded in a nodes, sensitive areas, or areas L’Agulhas (the most southern town in Africa), sound and common spatial logic. experiencing specific development Suiderstrand and the rural settlements of pressure. The second user category is the private Protem and Klipdale. The municipal area also  Consist of a report and maps covering sector, comprising business enterprises, non- includes Elim – a private town – and a very the whole municipal area, reflecting government organisations, institutions, and large rural area. municipal planning and the following private citizens. While the private sector The 2011 Census estimated the total CAM structuring elements: operates with relative freedom spatially – population at 33 038 (the 2016 Community making spatial decisions within the Transportation routes. Survey indicates a population of 34 698, 5.9%  framework of land ownership, zoning, and  Open space systems and of the district population). Some 19% of associated regulations and processes – the ecological corridors. CAM’s population lives in dispersed  Proposed major projects of organs SDF gives an indication of where and how homesteads on farms. Athough CAM is the of state with substantial spatial CAM intends to channel public investment, smallest municipality in terms of population in implications. influence, and other resources at its the OD M are, CAM makes up one third of  Outer limits to lateral expansion. disposable. In broad terms, this includes the district area.  Densification of urban areas. where infrastructure and public facility

investment will be prioritised, where private Bredasdorp – the largest town in CAM – USERS OF THE CAM SDF sector partnership will be sought in accommodates the administrative head development, and how the municipality will offices of both CAM and ODM. The CAM SDF targets two broad user view applications for land use change. categories. The first is the government sector, across spheres from national to local THE PLANNING AREA government, and including State Owned The CAM SDF focuses primarily on the CAM Enterprises (SOEs). While the CAM SDF is jurisdictional area, a Category B (Local) informed by the spatial direction stated in Municipality and one of four municipalities

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it was challenging to meet time frames associated with IDP preparation. Further, tight time frames, and the focus of leadership on broad strategic issues and overarching budget apportionments between priorities and services – at the beginning of a term of office – presented significant challenges.

Nevertheless, preparing the SDF in parallel to the IDP is the appropriate approach and the one which best serves the relationship between different municipal planning instruments envisaged in the applicable legislation. Specifically, CAM is of the view that:

 It is important to establish a culture of integrated planning in CAM which confirms the centrality of the IDP as the MAP 1. PLANNING AREA primary planning and resource allocation process while including full consideration APPROACH, PROCESS AND the 2016 municipal elections – a specific aim of spatial and environmental issues. In this TIMEFRAMES was set to undertake appropriate long-term sense, the process followed here is of planning during the first year of the five-year great significance to CAM. 1.7.1 CAM approach to the SDF term of office.  As with the term-of-office IDP, which focuses on the overall direction for CAM Two main aspects inform the approach to This approach presented specific challenges. over the next five years, it is perhaps the SDF. For example, work on the SDF had to await appropriate for the SDF to set the broad leadership direction in relation to the IDP, the Firstly, CAM leadership chose to prepare the framework for spatial planning and land inputs from IDP public participation new SDF as an integral part of the 2017-2022 use management in CAM now at the processes, and so on. Thus, the preparation IDP. As a new leadership group – following beginning of the term of office. Through of the SDF lagged slightly behind the IDP, and the annual IDP review process, the SDF

10 Cape Agulhas Spatial Development Framework 2017-2022 could be refined over the next five years, national norms and content requirements of far as possible to the themes and sub-themes also including more detailed planning SDFs (as reflected in SPLUMA and the work of employed in SPLUMA and the PSDF. These addressing specific areas or challenges. the DRDLR), existing policy that informs the themes and sub-themes are illustrated in SDF, and a “guiding vision” for preparing the Table 1. Secondly, the CAM leadership agreed to SDF. During the start-up work phase, the follow the “SDF Guidelines: Guidelines for the administration – with a view to enable inter- The start-up work phase provided a “lens” for Development of Provincial, Regional and the second phase, focused on a status quo governmental alignment of policy initiatives – Municipal Spatial Development Frameworks analysis of spatial matters in CAM. It includes agreed to organise work on the CAM SDF as and Precinct Plans” – issued by the the perspective of citizens and interest Department of Rural Development and Land Reform (DRDLR) in 2014 – in preparing the TABLE 1. CAM SDF THEMES AND SUB-THEMES SDF. The Guidelines have been prepared to THEME SUB-THEME provide clear and strategic guidance on the preparation of credible SDFs.1 In essence, BIO-PHYSICAL ENVIRONMENT  Biodiversity and ecosystem services  Water the Guidelines calls for spatially focused, Sustainable use of the Municipality’s spatial resources  Soils and mineral resources shorter, and user-friendly SDFs, integrated and assets.  Resource consumption and disposal. with other sector plans and the IDP.  Landscape and scenic assets.

1.7.2 Process, activities and outputs SOCIO-ECONOMIC ENVIRONMENT  Regional and municipal economic infrastructure  Rural space-economy The process for preparing the CAM SDF is Opening-up opportunities in the Municipal space-  Settlement space-economy illustrated in Figure 1 overleaf. economy.

Broadly, preparation of the SDF involved BUILT ENVIRONMENT  Sense of place and settlement patterns three phases.  Accessibility Developing integrated and sustainable settlements.  Land use and density. The first “start-up” phase involved  Facilities and social services engagements with CAM’s political leadership  Informality, housing delivery, inclusion and urban land markets on spatial issues and process expectations, a review of the current SDF, a review of the

1 Shortcomings in SDFs identified by the DRDLR include work not founded on sound or consistent development principles, a lack of clear connection between the different scales of planning, an overreliance on non-directional analysis and generic policy statements, a lack of spatial focus, inadequate emphasis of spatial structure that should be actively planned and managed by the public sector, and inadequate linkages between planning, budgeting and implementation.

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groups on challenges, challenges and and supportive programmes and projects to  In-depth discussion between municipal opportunities as reflected in existing sector address challenges and exploit opportunities. officials and the SDF service provider to plans of CAM, and a professional review of clarify the brief, expectations and desired Work culminated in the preparation of an biophysical, socio-economic, and built work process (including CAM’s views on, implementation framework, outlining the role environment challenges and opportunities. and experience in using, the previous and opportunities for different agencies, This phase culminated in a synthesis of key SDF). further work to be undertaken, and priority challenges, opportunities, and spatial  In depth discussions with senior projects. implications to be addressed in the CAM SDF. administrative and political leadership to understand current challenges and The third phase involved the preparation of In more detail, activities and outputs associated with preparing the CAM SDF opportunities related to different the actual spatial development framework, involved: municipal services. including spatial development and land use  Establishment of – and engagement with management strategies, policies, guidelines, – an integrated steering committee (comprising representatives across FIGURE 1: CAM SDF PROCESS spheres of government and sectors) responsible for providing inputs to the SDF.  A detailed review of existing policy and plans – across spheres of government and sectors – and spelling out its implications for the CAM SDF.  Consideration of inputs received from organisations and individuals during the IDP public participation process (including ward-based workshops).  Consideration of the strategic inputs received from the CAM Mayoral Committee following its December 2016 five-year strategic planning session, interpreting the spatial implications of the strategic direction set, and workshopping these with CAM leadership.

12 Cape Agulhas Spatial Development Framework 2017-2022  A detailed review of existing programmes POLICY CONTEXT and plans applicable to CAM, including In terms of SPLUMA, Municipal SDFs the intended five-year implementation should interpret and reflect national, plan. provincial and regional level policy,  Preparation of a status quo report, priorities and programmes relating to outlining existing challenges, land use, development, and opportunities, and the broad context for management. Across spheres of preparing the SDF. government, a host of policy  Preparation of spatial planning input to documents exists which have a bearing the Draft IDP (which sought further public on the use, development and input on the 2017-2022 IDP). management of land, both directly and  Formal advertising of CAM’s intent to indirectly. Appendix 2 contains a table prepare the SDF, an advertisement which summarises all the major policy

inviting public comment on the status quo references applicable to the CAM SDF. work phase and report, and consideration of public comments The following sections outline: received in response to the status quo  Key policy imperatives envisaged in work phase. various integrated and sectoral policy  An SDF “Open Day”, structured to documents across spheres of engage with organisations and members government. of the public interested in the SDF and  The main tenets of the PSDF, related matters. arguably the key “spatial policy”  An in-depth workshop with the CAM informant of the CAM SDF. Mayoral Committee to discuss proposals  The CAM IDP, the key policy and incorporated in the SDF. business planning instrument of  Advertising of the draft SDF for public CAM, setting out the municipality’s comment and consideration of the inputs service delivery vision and agenda received. for the next five years. Comments and responses from the public 1.8.1 The broad policy context participation process are included as Appendix 8. Table 2 overleaf sets out key policy

imperatives applicable to this SDF.

Cape Agulhas Spatial Development Framework 2017-2022 13 TABLE 2. THE BROAD POLICY CONTEXT

THEME SUB-THEME IMPLICATIONS FOR THE CAM SDF Biodiversity and ecosystem services  Protection of Critical Biodiversity Areas, Ecological Support Areas, protected, and vulnerable areas.  Precautionary approach to climate change and sea level rise.

 Ecological corridor development Water  Responsible water use.  Protection of water resources. Soils and mineral resources  Protection of valuable soils for agriculture.  Protection of mineral resources for possible extraction.

PHYSICAL

- Resource consumption and disposal  Energy efficiency and change to alternative energy sources  Waste minimization and recycling.

BIO ENVIRONMENT Landscape and scenic assets  Retaining the essential character and intactness of wilderness areas. Regional and municipal economic  Developing and maintaining infrastructure as a basis for economic development and growth. infrastructure Rural space-economy  The protection of agricultural land, enablement of its use and expansion of agricultural output.  Focus on undeveloped and underdeveloped land in proximity to existing concentrations of activity and people and as far as

possible within the existing footprint of settlements.  The protection and expansion of tourism assets.  The expansion of entrepreneurial opportunity (also for emergent entrepreneurs).

ECONOMIC Settlement space-economy  Focus resources in those areas that have both high or very high growth potential, as well as high to very high social need.

-  Better linkages between informal settlements/ poorer areas and centres of commercial/ public activity.  A richer mix of activities in or proximate to informal settlements (including employment opportunity).  The protection and expansion of tourism assets. The expansion of entrepreneurial opportunity (also for emergent SOCIO ENVIRONMENT entrepreneurs). Sense of place and settlement  The protection of places and buildings of heritage/ cultural value (while ensuring reasonable public access, also as a means of patterns economic development).

Accessibility  A focus on public transport to ensure user convenience and less dependence on private vehicles (there is a recognition that many citizens will never afford a private vehicle and that the use of private vehicles has significant societal costs). Land use and density  Compact, denser development.  Pedestrian friendly development. Facilities and social services  A focus on improving and expanding existing facilities (schools, libraries, and so on) to be more accessible and offer improved services.  The significance of well-located and managed public facilities as a platform for growth, youth development, increased wellness, safety, and overcoming social ills.  The clustering of public facilities to enable user convenience and efficient management. Informality, housing delivery,  The upgrading of informal settlements.

BUILT ENVIRONMENT inclusion and urban land markets  Housing typologies which meet the unique needs of households and income groups.

Way of work  A more coordinated and integrated approach in government planning, budgeting and delivery.  Partnering with civil society and the private sector to achieve agreed outcomes (as reflected in the IDP and associated frameworks/ plans).  Active engagement with communities in the planning, resourcing, prioritization, and execution of programmes and projects. GOVER NANCE 14 Cape Agulhas Spatial Development Framework 2017-2022 The PSDF  Provide a shared spatial development and sector-based planning, the WCG has vision for both the public and private prepared specific communiqués outlining The PSDF sets out to: sectors, and to guide all sectoral the implications of the PSDF for themes and considerations about space and place. regions, including:  Address the lingering spatial inequalities  Direct the location and form of public that persist because of apartheid’s investment, and to influence other  Developing Integrated and Sustainable legacy – inequalities that contribute both Settlements. investment decisions by establishing a to current challenges (lack of jobs and  Sustainable use of Provincial Assets. coherent and logical spatial investment skills, education and poverty, and  Opening-up Opportunities in the Space framework. unsustainable settlement patterns and Economy. resource use) and to future challenges The spatial agenda advocated by the PSDF  Implementation of the PSDF in the (climate change, municipal fiscal stress, is summarised in Table 3. To assist in the Overberg. food insecurity and water deficits). alignment of Provincial and municipal spatial

TABLE 3. PSDF SPATIAL AGENDA FOCUS WHAT IT INVOLVES Growing the Western  Targeting public investment into the main driver of the Provincial economy (ie the Cape Metro functional region, the emerging Saldanha Cape economy in Bay/ Vredenburg and George/ Mossel Bay regional industrial centres, and the Overstrand and Southern Cape leisure and tourism regions) partnership with the  Managing urban growth pressures to ensure more efficient, equitable and sustainable spatial performance private sector, non-  Aligning, and coordinating public investments and leveraging private sector and community investment to restructure dysfunctional governmental and human settlements community based  Supporting municipalities manage urban informality, making urban land markets work for the poor, broadening access to accommodation organisations. options, and improving living conditions  Promoting an urban rather than suburban approach to settlement development (ie diversification, integration and intensification of land uses)  Boosting land reform and rural development, securing the agricultural economy and the vulnerability of farm workers, and diversifying rural livelihood and income earning opportunities Using infrastructure  Aligning infrastructure, transport and spatial planning, the prioritisation of investment and on the ground delivery investment as primary  Using public transport and ICT networks to connect markets and communities lever to bring about the  Transitioning to sustainable technologies, as set out in the WCIF required urban and rural  Maintaining existing infrastructure spatial transitions. Improving oversight of  Safeguarding the biodiversity network and functionality of ecosystem services, a prerequisite for a sustainable future the sustainable use of the  Prudent use of the Western Cape’s precious land, water and agricultural resources, all of which underpin the regional economy Western Cape’s spatial  Safeguarding and celebrating the Western Cape’s unique cultural, scenic and coastal resources, on which the tourism economy depends assets.  Understanding the spatial implications of known risks (eg climate change and its economic impact, sea level rise associated with extreme climatic events) and introducing risk mitigation and/or adaptation measures

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TABLE 4. PSDF TRANSITIONS These communiqués are available on-line, and the “Implementation of the PSDF in the THEME FROM TO Overberg” is attached as Appendix 1. RESOURCES AND Mainly curative interventions More preventative interventions ASSETS Resource consumptive living Sustainable living technologies The PSDF advocates several “transitions” or (BIO-PHYSICAL Reactive protection of natural, Proactive management of resources as ENVIRONMENT) scenic and agricultural resources social, economic and environmental “changes” needed to ensure the sustainable assets land use development and management in OPPORTUNITIES IN Fragmented planning and Spatially aligned infrastructure planning, the Western Cape Province, outlined in THE SPACE management of economic prioritisation and investment infrastructure Table 4. ECONOMY (SOCIO-ECONOMIC Limited economic opportunities Variety of livelihood and income opportunities ENVIRONMENT) The PSDF – in line with national policy – holds Unbalanced rural and urban Balanced urban and rural space that government and policy-makers focus space economies economies built around green and information technologies their resources in those areas that have both INTEGRATED AND Suburban approaches to Urban approaches to settlement high or very high growth potential, as well as SUSTAINABLE settlement high to very high social need. In this regard, SETTLEMENTS Emphasis on “greenfields” Emphasis on “brownfields” development (BUILT development settlements in CAM do not fall within the ENVIRONMENT) Low density sprawl Increased densities in appropriate upper tier of growth potential and social locations aligned with resources and space-economy need. Thus, CAM could not expect absolute Segregated land use activities Integration of complementary land uses or extraordinary prioritisation for additional Car dependent neighbourhoods Public transport orientation and walkable resources for services beyond what is already and private mobility focus neighbourhoods Inferior quality public spaces High quality public spaces provided by government. Fragmented, isolated and Integrated, clustered and well located inefficient community facilities community facilities The PSDF includes a composite map which Focus on private property rights Balancing private and public property graphically portrays the Western Cape’s and developer led growth rights and increased public direction on growth spatial agenda. In line with the Provincial Exclusionary land markets and Inclusionary land markets and spatial policies, the map shows what land top-down delivery partnerships with beneficiaries in delivery use activities are suitable in different Limited tenure options and Diverse tenure options and wider range standardised housing types of housing typologies landscapes and highlights where efforts Delivering finished houses Progressive housing improvements and should be focused to grow the Provincial through large contracts and incremental development through economy. For the agglomeration of urban public finance and with public, private and community finance standard levels of service with differentiated levels of service activity, the Cape Metro functional region, as well as the emerging regional centres of the

16 Cape Agulhas Spatial Development Framework 2017-2022 Greater Saldanha functional region and the mission, and values for managing the CAM, George/ Mossel Bay functional region, are and medium term strategic goals and prioritised. The priority tourism/ leisure objectives. corridors are the Overstrand and Garden The high-level strategic framework for CAM Route leisure corridors (the priority tourism routes are the N2-corridor, R62 between included in the IDP is reflected in Table 5. Worcester and Oudtshoorn, the N7 corridor and R43). Two priority rural development TABLE 5. HIGH-LEVEL IDP STRATEGIC FRAMEWORK FOR CAM corridors – areas of agricultural and rural development opportunity – have been ASPECT AGREED MEANING/ FOCUS identified. The first is on the west coast – Vision “Together for excellence” stretching from Lutzville in the north to “Saam vir uitnemendheid” “Sisonke siyagqwesa” Clanwilliam in the south. The second rural Mission “To render excellent services through good governance, public ownership and development corridor stretches from Tulbagh partnership, to create a safer environment that will promote socio-economic growth and in the north-west to in the ensure future financial sustainability in a prosperous southernmost community” southeast. Values  Fairness  Integrity The composite map recognises the  Accountability and responsibility  Transparency contribution of CAM to two key Provincial  Innovativeness economic sectors: agriculture and tourism.  Responsiveness  Empathy 1.9.1 The CAM IDP Strategic  Local Economic Development as the key to unlock much needed employment goals for opportunities Agri-processing must be explored as part of the local economic CAM’s preparatory work for the compilation 2017-2022 development strategy of the 2017-2022 IDP culminated in a political  Tourism research showed that it is a major contributor to the provincial GDP and CAM must design appropriate strategies with the various partners to grow the local tourist and administrative leadership multi-day industry strategic session during December 2016. At  Youth Development and the improvement of social welfare services This is a high this session, municipal leadership considered priority strategic area and requires urgent attention the inputs received during the initial  Quality and sustainable basic service delivery (the core mandate of the municipality) Strategic  To establish a culture of good governance community participation process and objectives  To ensure long-term financial sustainability developed the guiding framework for for 2017-  To ensure that infrastructure is provided and maintained managing the municipality during its term of 2022  To provide community services office and the IDP. This includes a vision,  To create a safe and healthy environment

Cape Agulhas Spatial Development Framework 2017-2022 17 TABLE 6. SPLUMA PRINCIPLES GUIDING PRINCIPLES PRINCIPLE EXPLANATION IN ACT Spatial justice  Past spatial and other development imbalances must be redressed through improved access to Given the significance of SPLUMA in the and use of land. national spatial planning and land use  SDFs (and associated policies) must address the inclusion of persons and areas that were previously excluded, with an emphasis on informal settlements, and areas characterised by management system, as well as the need widespread poverty and deprivation. to achieve greater inter-governmental  Spatial planning mechanisms, including land use schemes, must incorporate provisions that enable redress in access to land by disadvantaged communities and persons. alignment in planning, CAM agreed to use  Land use management systems must include all areas of a municipality and specifically include the SPLUMA guiding principles as the provisions that are flexible and appropriate for the management of disadvantaged areas and overall normative context for preparing informal settlements.  Land development procedures must include provisions that accommodate access to secure the SDF. tenure and the incremental upgrading of informal areas.  In considering an application, a Municipal Planning Tribunal may not be impeded or restricted in These principles and the meaning of each the exercise of its discretion solely because the value of land or property is affected by the outcome of the application. is outlined in Table 6. Spatial  Promote land development that is within the fiscal, institutional and administrative means of sustainability government. GUIDING VISION STATEMENT  Give special consideration to the protection of prime and unique agricultural land.  Uphold consistency of land use measures in accordance with environmental management In step with the SPLUMA principles, the instruments.  Promote and stimulate the effective and equitable functioning of land markets. following “working” vision for preparation  Consider all current and future costs to all parties for the provision of infrastructure and social of the CAM SDF could be: services in land developments.  Promote land development in locations that are sustainable, limit urban sprawl, and result in communities that are viable. “Settlements and activities Efficiency  Land development must optimise the use of existing resources and infrastructure.  Decision-making procedures must be designed to minimise negative financial, social, economic or in CAM distributed and of environmental impacts.  Development application procedures must be efficient, streamlined, and timeframes adhered to a nature and form which by all parties. Spatial  Spatial plans, policies and land use management systems must be flexible to ensure sustainable ensures justice, resilience livelihoods in communities most likely to suffer the impacts of economic and environmental shocks. sustainability, efficiency, Good  All spheres of government must ensure an integrated approach to land use and land administration development. livelihood opportunity,  All government departments must provide their sector inputs and comply with any other prescribed requirements during the preparation or amendment of SDFs. and a rich life experience  The requirements of any law relating to land development and land use must be met timeously.  The preparation and amendment of spatial plans, policies, land use schemes as well as for all residents, citizens, procedures for development applications, must include transparent processes of public and visitors.” participation that afford all parties the opportunity to provide inputs on matters affecting them.  Policies, legislation and procedures must be clearly set out in a manner which informs and empowers the public.

18 Cape Agulhas Spatial Development Framework 2017-2022 2 SPATIAL CHALLENGES AND OPPORTUNITIES

THE PREVIOUS CAM SDF

The previous SDF for CAM was approved by Council in 2012. In discussion with the CAM administration, the following issues were identified with the previous SDF:

 The bulkiness of the document – including lengthy conceptual and analytical sections not necessarily focused on spatial matters – which detracts from the SDF’s user-friendliness and actual use.  An agenda of proposed interventions – large and small – beyond the management and fiscal resource capability of CAM (and because of the lack of focus, ineffective change and addressed by an SDF for the overall even inertia). EXISTING SECTOR PLANS AND municipality). Nevertheless, the inputs are  An inordinately generous proposing of SERVICE INPUTS provided as a “context” for spatial analysis non-residential land use and Table 7 summarises challenges and and planning. development along major entrance opportunities identified in the existing sector routes to settlements (specifically plans of different services/ departments of Arniston/ Waenhuiskrans, and Struisbaai), CAM or during discussions with the services/ perhaps over estimating demand and departments during the preparation of the resulting in amorphous distribution of SDF. activities and the degrading of amenity in residential areas. Many of the service inputs do not have direct spatial implications (at the level of concern

Cape Agulhas Spatial Development Framework 2017-2022 19

TABLE 7. CHALLENGES/ OPPORTUNITIES AS REFLECTED BY SERVICES (CONTINUED OVERLEAF)

SECTOR PLAN/ CHALLENGES IMPLICATIONS AND/ OR OPPORTUNITIES SERVICE INPUT Municipal revenue  Decreasing rates base.  A long term financial plan has been completed.  Decrease in conditional operating grants.  A revenue enhancement strategy has been completed.  Increasing consumer debtors.  The feasibility (and value for money to the municipality) of PPPs with  Increase in the number of indigent citizens. concessionaires for operating/ managing the public resorts in L’Agulhas, Struisbaai, Arniston and Bredasdorp and financing/ building/ management of the Bredasdorp WWTW upgrade will be investigated.  Opportunity to develop additional erven at Arniston/ Waenhuiskrans for enhanced income/ rates base. Economic  Inadequate economic development.  A comprehensive LED Strategy should be prepared. development  Explore the feasibility of utilising the SANDF airport in the municipality’s jurisdiction for commercial purposes. Water services  Additional water sources for Bredasdorp, Napier, and Struisbaai  Funding to be provided in budget. to unlock development opportunity.  Clearer prioritization to be determined in preparation of Infrastructure  Upgrading of WWTW in Bredasdorp and Napier. Development/ Maintenance Plan.  Refurbishment or replacement of old water and sewer networks.  Minimization of non-revenue water.  Maintenance of communal ablution facilities in informal settlements.  Replacement of old honey suckers. Roads and stormwater  Backlog in road/ stormwater construction.  Additional funding for roads and stormwater to be considered in  Taxi-rank for BD to facilitate transport in different directions. budget to eradicate backlogs/ challenges over 5-10 years.  Poor sidewalks, particularly in business districts (and near old age  Clearer prioritization to be determined in preparation of Infrastructure facilities). Development/ Maintenance Plan.  Inadequate budget for reseal programmes.  Parking issues (particularly during holiday season). Solid waste and fleet  Bredasdorp landfill requires an additional cell.  Funding to be provided in budget.  Absence of a wheelie bin-system.  Clearer prioritization to be determined in preparation of Infrastructure  Illegal dumping. Development/ Maintenance Plan.  Poor participation in recycling initiatives.  Investigation related to a new landfill for CAM/ Swellendam to proceed.  Wheelie bin system to be implemented. Electricity services  Electricity losses (technical and non-technical).  Funding to be provided in budget.  Increasing incidences of copper/ brass theft.  Clearer prioritization to be determined in preparation of Infrastructure  Long lead times on supply of electrical equipment. Development/ Maintenance Plan.  Eskom approaching their installed capacity in all towns.  Large deposits required when upgrading network capacity.

20 Cape Agulhas Spatial Development Framework 2017-2022 SECTOR PLAN/ CHALLENGES IMPLICATIONS AND/ OR OPPORTUNITIES SERVICE INPUT Community services/  Youth unemployment.  Strengthening partnership with businesses to provide opportunity. welfare support  Youth employment to be addressed specifically in the LED Strategy.  Youth amenity/ recreational opportunity.  Strengthening partnerships with WCG for sports development, development of clubs.  Arranging special tournaments (i.e. a “Mayor’s CUP”).  Alcohol and women abuse.  Stronger partnerships with SAPS, NGOs, and so on.  Advocacy for a frail-case centre.  Stronger support for a soup kitchen.  Ensuring that housing is allocated to vulnerable groups. Resorts and open  Vandalism and theft at resorts.  Possible PPP management arrangements for resorts (guided by space principles).  Vandalism of play equipment at parks.  Increased staff. Cemeteries  Inadequate land for cemeteries in Bredasdorp, Napier, and  Budget for purchasing land for cemeteries to be secured. Struisbaai Housing  In-migration.   Upgrading of informal settlements.  Increased focus, budget, and staff.  Human settlement plan requires review.  The review could address a “paradigm shift” (required in higher policy) from “quantity of opportunity” to “quality of opportunity”, a broader range of products, allocation to vulnerable groups, and so on.  Land invasions.  Strong leadership position on land invasions.  Lengthy town planning processes.  Strengthening inter-departmental cooperation.  Funding for solar heater programme.  Funding from National Government. Law enforcement  Inadequate law enforcement (related to speeding, payment of  Expansion of law enforcement capacity (including municipal transport fines, illegal land uses, and so on). for law enforcement officers between settlements). Land/ building  Illegal land use.  Expansion of law enforcement capacity. development  Strengthening inter-departmental cooperation. management  Strengthening the municipal/court relationship.  Illegal building work on farms.  Expansion of law enforcement capacity.  Incomplete survey of rural/ farm land use.  To be completed during 2017. Environment/ coastal  Incomplete coastal setback line promulgation.  Coastal management line project in process of finalisation. management  Incomplete coastal access determination  Provincial coastal access strategy under development  No municipal environmental management capacity  National Department of Environmental Affairs’ Local Government  Lack of alien invasive species control plan required in terms of Support programme could provide assistance NEMBA Air and noise quality  Inadequate awareness and control.  Strengthening air and noise quality awareness programmes. management

Cape Agulhas Spatial Development Framework 2017-2022 21

COMMUNITY VIEWS TABLE 8. SUMMARISED IDP INPUTS During the initial public participation process informing the preparation of the 2017-2022 Safety and security  The need for CTV Cameras.  Traffic calming (speed bumps). IDP, the administration led a very extensive ward-based public participation process with Economic development / job creation  Many people are looking for work.  The “appearance” of towns, especially entrances. citizens, community organization, local  The need for skills development (people want more than leaders, and business representatives. EPWP opportunities).  Market and business facilities (especially for emerging As could be expected, many of the entrepreneurs). discussions and inputs received at these Social development  Care facilities (including safe houses and homes for the sessions were very detailed and focus on elderly).  Youth development and facilities. participants’ immediate living environment,  Play parks. relate to issues of settlement management,  Sport and recreation facilities (especially swimming pools). and do not have direct spatial implications. Transport  Public transport (specifically subsidized public transport).  Bus stops and facilities. The inputs of citizens in all six wards  Taxi facilities. emphasised: Infrastructure development Electricity  Lighting in all areas.  Safety and security. Waste  Youth development.  Job creation.  Wheelie bins.  An improved disposal facility.  Public transport. Roads In more detail, the IDP summarises ward  Upgrading of roads. concerns as indicated in Table 8.  Upgrading of pavements.  Better road signage. Compared to previous IDP cycles, the 2017- Storm water 2022 participation process is characterised  Upgrading of storm water infrastructure. by a stronger emphasis on socio economic Water and sanitation priorities as compared to infrastructure  General upgrades to enable future development. needs.  Improved facilities in informal areas.  Building of bathroom in informal areas.

22 Cape Agulhas Spatial Development Framework 2017-2022 BIO-PHYSICAL ENVIRONMENT plains. At the foot of the mountains are the A total of 51.25% of the district municipality gently rolling Rûens hills. has been transformed from a natural state. 2.4.1 Municipal overview Intensive agriculture constitutes 43% of the Topography The CAM is located at the southern tip of district’s land use, much of which is under The CAM area is made up of two distinct Africa, within the Overberg District of the irrigation. Formally protected areas and core topographical regions. In the northwest are Western Cape Province. The biodiversity areas comprise 17% of the the rolling hills of the Rûens, situated at 250 to mountains lie to the north, separating the municipality, whilst an additional 26% has 400m above sea level. The Bredasdorp, country’s arid interior from the flat coastal been identified as Critical Biodiversity Areas. Heuningberg and Soetmuisberg mountains, at up to 1 000m altitude, separate the Rûens MAP 2. INLAND WATER SYSTEMS from the large coastal lowland known as the Agulhas Plain. Several deep river valleys transect the municipal area.

PHOTOGRAPH 1. BREDASDORP MOUNTAINS

Hydrology The municipality falls within the Overberg East sub-catchment of the Breede Gouritz Catchment Management Area. Two major river systems, the Sout and the Heuningnes- Kars-Nuwejaars, feed large wetlands and inland waterbodies on the Agulhas Plain. The Sout River drains the eastern part of the municipality, flowing into the De Hoop Vlei

Cape Agulhas Spatial Development Framework 2017-2022 23

with no outlet to the sea. The Heuningnes Rivers both empty into the Soetendalsvlei, wetland system with an outlet to the sea via River, and its tributaries the Kars and one of the largest freshwater lakes in South the Heuningnes River in De Mond Nature Nuwejaars rivers, drain the western part of Africa and an important nursery area for Reserve. De Hoop and De Mond are Rasmar the municipality. The Kars and the Nuwejaars marine fish. 1 The vlei forms part of a complex wetlands of international importance.

The municipality’s rivers are generally in fair to 2 MAP 3. OCEANS AND COASTS good condition, primarily impacted by agricultural activities and alien invasive plants, particularly acacias. Only the upper reaches remain in a good or natural state. Near urban areas, and where good farming practices are not followed, the health of the rivers deteriorates into a poor state. The excessive use of fertiliser has led to eutrophication and habitat modification in the Sout River, while the upper Kars River is impacted by alien invasive vegetation. The watercourses of the Agulhas Plain are important for the conservation of various indigenous fish species,3 and many are targeted for rehabilitation by CapeNature.

The municipal area has approximately 170km of coastline, much of which is under formal protection (Agulhas NP, De Mond NR, De Hoop NR, and De Hoop Marine Protected Area). The low-lying Agulhas Plain is very vulnerable to sea level rise and other associated climate change impacts,

1 Cleaver-Christie, G., Hoekstra, T., Huisamen, J., Lamberts, C. & L. Waller, 2013. De Mond Nature Reserve Complex Protected Area Management Plan 2014- 2019. 2 Department of Water Affairs, 2005. River Health Programme Technical Report: Ecological Status for Rivers of the Overberg Region 2004/2005 3 Including the Cape Galaxias and the critically endangered Heuningnes redfin

24 Cape Agulhas Spatial Development Framework 2017-2022 including groundwater pollution, inundation, loss, changes in hydrology and pollution and safeguarding to ensure the continued erosion, and storm surges. A coastal is in a poor ecological state. 2 A draft Estuary existence and functioning of species and management plan has been prepared for Management Plan and an Estuary Advisory ecosystems, including the delivery of the ODM, with a supplementary component Forum are in place for the estuary, managed ecosystem services. These spatial priorities specific to CAM.1 and Coastal Management by CapeNature. Floodline determination for are used to inform sustainable development Lines and EIA Setback Lines have been the estuary was completed in 2017. in the Western Cape. The 2017 WCBSP drafted to inform land use planning along replaces all previous systematic biodiversity the coast. The technical determination of the Biodiversity planning planning products and sector plans. Six Critically Endangered, two Endangered lines is completed; they are however yet to and one Vulnerable vegetation type occur be adopted by the provincial government. Box 1outlines the definitions, management within the municipal area. Very little remains objectives, and land use implications for Their inclusion in this SDF is a key step towards of the critically endangered Rûens shale CBAs, ESAs, and Other Natural Areas (ONAs) their implementation. renosterveld vegetation types that once as defined in the WCBSP. They include both Access to the coast is limited within the covered the north of the municipal area, aquatic and terrestrial components, and are municipality due to the formal protected now extensively farmed for cereal crops. The further divided into natural (CBA1) and areas along the coast. The Overberg District remnants that still occur are designated as degraded (CBA2) areas based on past land is the subject of a pilot coastal access critical biodiversity areas and priority clusters use. strategy prepared by the WCG. Proclaimed are identified for conservation. 3 Largely CBAs in the CAM area include: fishing harbours with public slipways are intact Overberg Sandstone  River corridors and wetlands situated at Arniston/ Waenhuiskrans and dominates the Bredasdorp mountains, and  Remnant renosterveld patches in the Struisbaai. A public boat launching site exists Elim Ferricrete Fynbos occurs in patches in Rûens at Suiderstrand. the southwest of the municipality.  Parts of the Agulhas Plain adjacent to the The Heuningnes River discharges to the sea, Critical biodiversity areas (CBAs) and and along the at a large estuary on the Agulhas Plain east Ecological Support Areas (ESAs) are coast near the of Struisbaai, listed as a Ramsar wetland. It designated for the municipal area by the extends for approximately 12km across the Western Cape Biodiversity Spatial Plan coastal plain of the Zoetendals Valley. The (WCBSP) 2017 (Box 1 overleaf). The WCBSP is estuary experiences pressures from habitat a systematic biodiversity planning assessment that selects areas which require

1 Mott McDonald & Royal HaskoningDHV, 2016. Overberg District Municipality Coastal Management Programme 2016: Cape Agulhas Local Municipality Supplementary Component 2 HilLand Associates, 2010. Draft Estuary Management Plan for the Heuningnes Estuary 3 Fine Scale Conservation Plan for Cape Lowlands Renosterveld, 2003.

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Land uses within CBAs and ESAs must be BOX 1. CBAS, ESAS AND ONAS: DEFINITIONS AND OBJECTIVES carefully reviewed for suitability; development within a CBA would require strong motivation and is likely to be subject to an environmental authorisation and EIA.

Three Important Bird and Biodiversity Areas

(IBAs) occur in the municipal area. IBAs are designated (by Birdlife ) on the basis that they are critical for the long-term survival of bird species that: are globally threatened, have a restricted range, and are Definition restricted to specific biomes/vegetation types. The Overberg Wheatbelt IBA makes up

much of the northern part of the

municipality, including the large areas of intensive agriculture used by Blue Cranes. The Agulhas Plain-Heuningnes Estuary IBA incorporates the wetlands in the southwest of the study area and is habitat for several globally and locally threatened bird species Objectives while the De Hoop IBA is located within the De Hoop Nature Reserve. The Cape vulture,

a threatened species, breeds within the

reserve. Land Use Land

Increasing significance

26 Cape Agulhas Spatial Development Framework 2017-2022 Area is a large area of private land on the MAP 4. BIODIVERSITY AND ECOSYSTEMS Agulhas Plain, the owners of which are signatory to an agreement to conserve and manage the land in sustainable ways. This, and the conservation stewardship programme run by CapeNature, is a major contribution to the protection of biodiversity outside of formal protected areas.

Formal protected areas comprise 16% of the municipality, whilst an additional 35% has been identified as Critical Biodiversity Areas or Ecological Support Areas. A total of 55.2% of the municipality has been transformed.

Agriculture Agricultural activities comprise the most significant land use of the municipal area. Provincial data indicates that approximately 42% of the municipal area is cultivated land, predominantly lucerne (55 000ha), wheat (34 000ha), barley (22 000ha) and canola (11 000ha).

Approximately 12 600ha is utilised for grazing, Hoop coast, supporting biodiversity and Protected areas largely by sheep and to a lesser extent The municipal area includes several maintaining fish stocks in a protected marine cattle. Agriculture constitutes 47% of the protected areas, including a national park environment. municipality’s land use. 1 (Agulhas), provincial nature reserves (De Private nature reserves are located along the Hoop and De Mond), and local authority reserves (Bredasdorp). The De Hoop Marine coast near the Agulhas National Park. The Nuwejaars Wetland Special Management Protected Area is located along the De

1 Western Cape Department of Agriculture Agristats, 2013

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Natural resource extraction activities shelters are situated high up in the cliffs contains some of the best-preserved Mining is not currently a significant economic overlooking Rasperpunt. examples of coastal Stone Age archaeology sector in the municipality. Sand mines and and extensive cave systems are also found The Cape Agulhas Lighthouse is a Provincial hard rock quarries are present in the within the reserve.1 mountains surrounding Bredasdorp, but on a Heritage Site and the second-oldest relatively small scale. lighthouse in the country. The De Hoop Nature Reserve, a World Heritage Site, Wild fynbos flower harvesting is a form of natural resource collection practiced on the MAP 5. AGRICULTURE AND MINING Agulhas Plain. The Agulhas Biodiversity Initiative is a landscape initiative aimed at making economically viable land use of the Agulhas Plain, improving conservation planning and management, and enabling the sustainable use of wild Fynbos flowers.

Heritage Several heritage sites are located within the municipality, including historic buildings in Bredasdorp and Napier town centres, fishermen’s cottages in Kassiesbaai, the Elim mission station, and the Struisbaai Hotagtersklip area. The intertidal zone along the rocky Agulhas shoreline contains shell middens indicative of the exploitation of shellfish species by Later Stone Age hunter- gatherers. Cape Agulhas, Rasperpunt and Suiderstrand host well-preserved examples of “visvywers”, ancient fish traps constructed by Khoikhoi pastoralists, and rare limestone

1 Mott MacDonald PDNA. 2015. Overberg District Coastal Management Plan (CMP) Situation Analysis Report

28 Cape Agulhas Spatial Development Framework 2017-2022 Climate change driven coastal erosion. The low, medium and risk which is significantly exacerbated by the The CAM municipal area is impacted on by high risk zones corresponds to 1:20 year storm spread of invasive alien plants (IAPs); in 2011 global changes in climate and their effects event and 20cm sea level rise, 1:50 year approximately 31% of the Agulhas Plain was on weather patterns, sea level, and storm event and 50cm sea level rise and estimated to be invaded by IAPs to a density temperatures. Modelling of sea level rise and 1:100 year storm event and 100cm sea level of more than 50%.3 Invasion of fynbos by IAPs flood risk for the ODM1 identified much of rise, respectively. The lines are yet to be leads to an increase in fuel loads, which CAM’s coastline west of Arniston, as well as adopted by the Minister of Environmental leads to more intense and devastating fires. de Hoop Vlei, as at moderate risk of coastal Affairs and Development Planning, after IAPs also tend to use more water than erosion and inundation. L’Agulhas and which these zones will be integrated into indigenous species, which can cumulatively Arniston Waenhuiskrans are at moderate risk, municipal zoning schemes; until then have a large impact on water availability in while Struisbaai is at risk of extreme coastal municipalities have been encouraged to heavily invaded areas4. events such as large storm surges.2 The consider the risk zonings in Overberg Climate Change Response their spatial planning. Risk Framework notes that losses of coastal public zones are depicted in the and private property to coastal erosion have settlement SDFs in section 0 already been experienced at Struisbaai of this document. Appendix nostra, north of the Struisbaai Harbour. 7 outlines suggested Struisbaai and L’Agulhas are the most at-risk development guidelines for areas of the ODM coastline, according to coastal risk zones. the framework. Invasive alien species Coastal Management Lines (CMLs) and The fynbos vegetation which associated risk zones were developed in 2015 predominates in CAM is for the Overberg coast based on projected naturally fire-prone, sea level rise, littoral active zones (mobile particularly in the region’s sand), projected sea level rise, storm-driven dry, warm and windy coastal inundation and projections of storm- summers. This creates a fire PHOTOGRAPH 2. A DENSELY ALIEN-INVADED SITE IN BREDASDORP

1 DEA&DP (2012). Sea Level Rise and Flood Risk Assessment for a Select Disaster Prone Area along the Western Cape Coast, Phase B: Overberg District Municipality. 2 DEA&DP (2017). 3rd Draft Overberg Climate Change Response Framework. 3 Nowell, M. (2011). Determining the hydrological benefits of clearing invasive alien vegetation on the Agulhas Plain South Africa. M.Sc. Thesis, University of Stellenbosch, Conservation ecology and entomology, Stellenbosch. 4 Water losses in the Western Cape caused by IAPs are estimated to be worth ~R1.29 billion per annum. DEA&DP (2014). Western Cape Eco-Invest Project. Phase I: A preliminary assessment of priorities and opportunities for mobilising private sector investment in the Western Cape’s natural capital.

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2.4.2 Issues 2.4.3 Implications and opportunities

Box 2 summarises legacy, current, and future Key natural and ecological elements to be issues in relation to the bio-physical protected environment to be redressed, addressed, Areas important for ecological processes and mitigated. and ecosystem services are designated as Critical Biodiversity Areas and Ecological BOX 2. BIOPHYSICAL ISSUES Support Areas. LEGACY ISSUES: CURRENT ISSUES: FUTURE ISSUES: Key focus areas are to:

REDRESS ADDRESS MITIGATE  Prevent urban creep into CBAs and ESAs  Past erosion and  Implementation of  Further impacts of by managing urban edges and directing degradation of critical biodiversity planning and risk climate change through biodiversity areas and management frameworks active adaptation, development toward infill and natural resources. including CBAs and the including implementation appropriately located already- Coastal Management Line of provincial guidelines transformed sites before greenfields  Limited access to nature for land use in coastal risk development. and the coast for poorer areas.  Maintain and manage municipal land communities.  Alien invasive vegetation designated as CBAs through effective  Poor land management and impacts on fire regimes alien invasive management and fire regimes in agricultural and water supply, by areas. preparing and monitoring.  The impact of climate implementing a  Support expanded stewardship and change, sea level rise, municipal control plan. conservation initiatives by private energy, water, and food landowners and government. insecurity.  Encourage private Key natural and ecological elements to be landowners to implement protected stewardship programmes or create conservancies,  Critical Biodiversity Areas and private or contract nature Ecological Support Areas. reserves to extend effective  Protected areas. protected areas.  Areas under stewardship and conservation agreements.

30 Cape Agulhas Spatial Development Framework 2017-2022 Agricultural resources Major environmental threats to be mitigated Areas vulnerable to climate change Given the significance of agriculture to the and adapted to impacts provincial and municipal economy, a core Complex and broad-scale environmental principle of the spatial framework should be challenges such as climate change, food  Low-lying Agulhas Plain and Heuningnes to prevent inappropriate development which insecurity, sea level rise, and coastal erosion area. depletes agricultural opportunity. cannot be effectively managed at the  Coastal settlements. municipal scale. Responses should focus on  Riparian land.

Key agricultural resources to be protected adaptation, particularly through: Access to natural assets  Cultivated land.  Adoption of a conservative approach to Development along the coast, lakes,  Pasture. further coastal development, guided by estuaries, and rivers should not compromise  Fynbos areas used for flower harvesting. coastal management lines and coastal ecological integrity, tourism potential and  Streams, aquifer recharge areas, and protection zones delineated by provincial landscape character. While public assets to catchments. government. aquatic assets should be enabled,  Ensuring resource efficiency in building, development should be contained within a Water resources including for affordable housing, by limited footprint, preferably within or Surface water resources (CAM’s primary reducing energy use through building adjacent to existing settlements, and the water source) are unevenly distributed, massing and configuration, and by required ecological buffers and setbacks currently used to their limits, and offer few exploiting passive energy design. must be adhered to. opportunities for further extractive uses.  Compacting settlements (also enabling Protection and rehabilitation of river systems non-motorised transport). Public access to be improved and ground water recharge areas is  Mainstreaming water conservation and required. Urban development that threatens demand management in settlement  Improve access to the coast, water resources through inappropriate making and upgrading. particularly for the poor and placement or poor stormwater management  Management and control of alien marginalised (both in relation to amenity should be avoided. invasive vegetation, particularly in and entrepreneurship opportunity). Key aquatic systems to be protected catchment areas and protected areas.  Protecting significant agricultural land  Heuningnes Estuary. with long term food security value from Scenic, historic, and cultural assets The overall natural and cultural landscape  Wetlands, lakes and Ramsar sites. urban encroachment.  Rivers and riparian areas, including and the layered pattern of settlements in watercourses within settlements. response to the natural landscape over time

Cape Agulhas Spatial Development Framework 2017-2022 31

are a provincial asset worthy of protection. Maintaining landscape integrity requires:

 Retaining the essential character and

intactness of wilderness areas in the face of fragmentation by unstructured urbanisation and commercial agriculture.  Retaining continuity and interconnectedness of wilderness and agricultural landscapes (for example, through ecological corridors and green linkages). Scenic landscapes to be protected

 Bredasdorp/ Heuningberg mountains.  Strandveld Plain and Agulhas Plain.  Rûens farming areas.

PHOTOGRAPH 3. SCENIC VIEWS FROM THE R316 Scenic routes to be protected

road.  R316 road.  R43 road.

Historic & culturally significant precincts & places

 Bredasdorp and Napier town centres.  Fishermen’s cottages in Kassiesbaai and Arniston/ Waenhuiskrans village.  Elim mission settlement.  Struisbaai Hotagtersklip area. PHOTOGRAPH 4. HISTORIC BUILT ENVIRONMENT IN ELIM (LEFT) AND BREDASDORP (RIGHT)  Coastal middens and fishtraps.

32 Cape Agulhas Spatial Development Framework 2017-2022 MAP 6. BIOPHYSICAL SYNTHESIS

Cape Agulhas Spatial Development Framework 2017-2022 33

SOCIO-ECONOMIC ENVIRONMENT  Replacement of the Struisbaai Primary In relation to maternal health, CAM reported School (earmarked for 2025/ 6). zero maternal mortality rates per 100 000 live 2.5.1 Municipal overview  A new hostel in Bredasdorp (earmarked births in 2013/ 14. Out of a total of 241 for 2027/ 8). deliveries to women under the age of 18 Population years reported in the Overberg District in The 2011 Census estimated the total CAM HIV/ AIDS and TB treatment and care 2013/ 14, the least were reported in CAM population at 33 038 (the 2016 Community The Antiretroviral treatment (ART) patient (33). CAM also has the lowest terminations of Survey indicates a population of 34 698, 5.9% load at Cape Agulhas increased by 24.4% pregnancies per 100 000 population (23), of the district population). Per population between March 2013 and March 2014 (for while the highest cases were reported at estimates by the WCG Department of Social the Province, the ART patient load increased Overstrand (874), followed by Development, CAM’s population is expected by 18.9% 2013 and 2014). In terms of Theewaterskloof (469) and Swellendam (368). to grow by 1.04% per annum over the Tuberculosis (TB), all municipalities in the immediate term. Overberg District reported decreases in the Health facilities number of patients with TB (with the highest In relation to health facilities, the WCG Health Education decrease of - 12.1% in CAM). Department has planned the following The provincial literacy rate was 87.2% in 2011. projects for implementation the MTEF period: Literacy rates in the Overberg district were Child and maternal health highest in Overstrand Municipality (87.5%) The Overberg District is ranked fourth in the  Napier Clinic replacement followed by Cape Agulhas (81.1%). In 2013, Province in terms of the full immunisation  Otto Du Plessis Hospital (Acute Psychiatric CAM had the highest Matric pass rate coverage rate (81.6%), outperforming the Ward) (92.1%) in the Overberg District (followed by provincial average of 80.3%. The Overberg Overstrand 92%). In 2016, Overberg District also has the second lowest number of Poverty CAM reported the lowest poverty rates achieved a matric pass rate of 92.7%, a 3% severely malnourished children under 5 years (19.1%) in the Overberg District in 2010. increase from 2015. (60), compared to 544 for the City of Cape During the period 2011-2013, CAM also had Town, 218 for Cape Winelands District and The WCG Education Department has the highest GDP per capita in the district (R41 168 for the Eden District. The number of cases indicated that the following new facilities are 536 compared to Overstrand’s R33 082). of children under 5 with severe malnutrition required as part of the 10-year education per 100 000 population in the Overberg plan: Crime District (156) is lower than the provincial Drug-related crime and burglaries at  A new primary school in Bredasdorp average of 180 children. residential premises are the most prevalent (earmarked for 2024/ 5).

34 Cape Agulhas Spatial Development Framework 2017-2022 forms of crime in CAM, and both have been Municipal Economic Review and Outlook The economy trending upward since the late 2000’s. (MERO) of 2014 indicates that the demand The Overberg District regional economy for highly skilled labour grew by 2.8% per generated 3.1% of the Western Cape GDPR Access to basic services annum from 2000-2013, demand for skilled during 2013 (R13.3bn of the total R431bn). In The clear majority of CAM citizens have labour by 1.8%, while that for unskilled and 2013, Cape Agulhas’s GDP was estimated at access to basic services. Access for services semi-skilled workers declined by 2.6%. R1 400 million, a 0.53% share of the provincial compare well to overall figures for the economy. When non-metropolitan Province and other district municipalities with municipalities in the Province are ranked in 97% of citizens having access to water, 97% terms of their contribution to r eal GDPR, to housing, 97% to energy, and 90.1% to sanitation. In relation to refuse removal, MAP 7. COMMUNITY FACILITIES AND ECONOMIC INFRASTRUCTURE CAM’s access level (80.1%) lag the Province.

Employment Census 2011 estimated the unemployment rate in the Overberg District at 17.0% (compared to the 21.6% for the Province and 29.8% for South Africa). CAM’s unemployment rate of 13.8% was the second lowest in the region after Swellendam (11.4%). CAM had a youth unemployment rate of 19.5% in 2011, which was the second lowest out of the four municipalities in the region, and significantly lower than the City of ’s rate of 31.9%.

Approximately 770 formal jobs were lost in the Agriculture sector over the period 2000- 2013. At the same time, 50 jobs were gained in the manufacturing sector and 2 580 in the services sector. There appears to be a trend towards employing highly skilled and skilled individuals within the Overberg District. The

Cape Agulhas Spatial Development Framework 2017-2022 35

Cape Agulhas is ranked 15th (Overstrand is Current local economic development power which benefits local retail, services 5th, while Theewaterskloof is 11th and initiatives and small business. Swellendam is 16th respectively). The Overberg District Agri-Parks Master The CAM economy grew by 5.3% between CAM Participatory Appraisal of Competitive Business Plan (2016) 2000 and 2013 (the second fastest in the Advantage process (2014) The Department of Rural Development and district, after Overstrand Municipality at The WCG Department of Economic Land reform (DRDDL) is custodian of a 6.3%). The competitive strengths of the district Development and Tourism provided support national project which aims to establish Agri- reside in its food value chain, including a to the Municipality to apply and facilitate a stable agriculture sector producing for export Parks as “a networked innovation system of PACA process, aimed at identifying medium agro-production, processing, logistics, market, associated food and beverage and short term catalytic projects or marketing, training and extension services processing industries, a strong building and economic opportunities that will make a located in District Municipalities.” construction sector, business services, tourism, tangible contribution to economic growth. and furniture manufacturing. Local stakeholders participated actively in Agri-Parks are to be farmer controlled and comprise three key elements: During the economic recovery period (2010- the process. The process identified the following sectors as being key to 2013), the Overberg District was the second  Farmer Production Support Unit (FPSU), development of the local economy: fastest growing region in the Province at 3.4% with a focus on primary production (following Eden District which recorded a real towards food security. GDPR growth rate of 3.8%). The fastest  Agriculture, which has had good crop  Agri-Hub (AH). growing sectors within the Overberg District yields in recent years and contributed to  A Rural Urban Market Centre (RUMC). were finance, insurance, real estate, and growth, despite declining employment. business services (5.6%), wholesale and retail  Agro-processing and tourism. The Department of Rural Development and trade, catering, and accommodation (4.1%),  Fishing, albeit on a steady decline due to Land Reform commissioned the and General government (3.8%). Notable reduced stock and quotas. development of an Agri-Parks Master Business growth rates in the recovery period were also  Property, which despite a steady decline Plan – agreed to in 2016 – to provide high recorded for manufacturing, mining, and has recently begun showing level guidance on the development of the quarrying as well as the community, social, improvement. Overberg District Agri-Park. and personal services sectors (each at 2.6%).  Government services and social grants. Agriculture, forestry and fishing sector grew  Private sector income from external by 0.6% and electricity, gas and water by markets, in turn, increasing local buying 0.4%.

36 Cape Agulhas Spatial Development Framework 2017-2022 The objectives of the plan are to: The Overberg DM’s Agri-Park is to focus on  An intake, storage and dispatch facility of both the agricultural and ocean economy. about 2 000m² for produce from the  Transform and modernise rural areas and The Agri-Pub will be developed in CAM and feeder FPSUs. small towns in the Overberg DM through the Aqua-hub in the Overstrand Municipal  A small packing and cooling facility for the development of the agricultural Area. Each will support Farmer Support Units vegetables to handle about 200 tons of sector over the next 10 years. (FSU). vegetables per month.  Develop integrated and networked Agri-  A fish Intake, storage (cold-room) and Park Infrastructure over the next 10 years. Conceptually, the Agri-Hub – proposed for dispatch facility for fish from the Arniston  Enhance agricultural productivity through Bredasdorp – will include the following and Struisbaai FPSUs. enabling producer ownership of 70% of facilities and support services:  A market facility to sell local produce. the equity in the Agri-Park, with the state  Possible shares in the local Abattoir which  Office space and secretarial services for and commercial interests holding the needs to expand capacity with linked local emerging farmers. remaining 30% minority shares (as the irrigated pastures (10 to 20ha) to round off  A main production input supply facility to lead sponsor, the DRDLR must appoint a animals for the premium meat market. purchase production inputs like fertilizer, suitably qualified and experienced Agri- The abattoir should further be linked to chemicals, seed irrigation equipment, Park Manager who will facilitate the the upgrade of the local waste water small tools, and so on. formal establishment of the Agri-Park and plant to deliver water of irrigation  A mechanization centre and equipment its constituent institutional arrangements standard to be used on land made servicing and repair centre to effect to ensure that the Agri-Park provides a available by the local municipality to major repairs to the fleet of trucks, tractors comprehensive range of Farmer Support establish irrigated pastures to and vehicles that service the hub and its Services). accommodate small farmers. The feeder FPSUs.  Facilitate funding and investment for the abattoir will receive stock from the  Extension services with shared offices at development of the Agri-Park over the Napier, , and the training centre. next 5 years. FPSUs.  A market information centre with shared  Provide technical support and extension  An animal feed production plant to offices at the training centre. services to Agri-Park beneficiaries over the produce formulated animal feed from next 10 years and beyond. The Farmer Production Support Unit is locally produced lucerne. It should have  Enhance the capacity and capability of proposed for Napier – serving Spanjaardsloof an estimated capacity of 500 tons per officials responsible for the and Elim – in support of stock, vegetable, month. It will receive lucerne from the implementation of the Agri-Park over the and flower farmers. The FPSU will include the Napier, Genadendal, and Suurbraak next 3 years. following facilities and support services: FPSUs.

Cape Agulhas Spatial Development Framework 2017-2022 37

 A small produce handling facility for the The two fishing harbours in CAM earmarked Conversion of the military airport into a receipt and dispatch of produce from the for development are the Arniston and commercial facility catchment areas, including animals, Struisbaai Harbours. The conversion of the currently military airport vegetables, flowers / proteas and in Comprehensive Rural Development into a commercial facility, specifically for the future rooibos and honey bush tea. Programme (2013) export of agricultural produce, has been  A packing and cooling facility for mooted for some time. handling and packing of flowers. The Comprehensive Rural Development  A mechanization and repair centre. Programme is aimed at strengthening the 2.5.2 Issues  A market facility to sell produce locally. response to poverty and food insecurity by Box 3 summarises legacy, current, and future  A production input supply facility. maximizing the use and management of issues in relation to the socio-economic  A small meeting and internet facility. natura l resources to create vibrant, environment to be redressed, addressed, equitable and sustainable rural communities. Harbour Spatial and Economic Development and mitigated. Framework (2014) The program was implemented in various municipalities within the Province and is The Harbour Spatial and Economic presently focusing on Arniston and Struisbaai. Development Framework project – part of Operation Phakisa – is headed by the GWC Department of Public Works (DPW). It aims to: BOX 3. SOCIO-ECONOMIC ISSUES

 Ensure that DPW develops each harbour LEGACY ISSUES: CURRENT ISSUES: FUTURE ISSUES: to unlock the economic potential and REDRESS ADDRESS MITIGATE creating sustainable livelihoods for local  Historic view of  Increased benefit from  The potential deepening communities. agricultural land as of natural resources for citizens. of poverty through poor less value than urban  Access to land and location and form of  Develop a Spatial and Economic land. opportunity for new affordable housing, Development Framework for each  Marginalisation of entrepreneurs. inadequate urban harbour to guide planning and poorer communities  Maximising existing opportunities in proximity development. (in relation to well- infrastructure and resources to the poor, and  To enable a proactive and planned located land and for economic development inadequate access to approach to addressing issues currently access to and increased livelihood entrepreneurship and experienced by the Harbour Steering opportunity). opportunity. livelihood opportunity for the poor. Committee, DPW, and other stakeholders.

38 Cape Agulhas Spatial Development Framework 2017-2022 2.5.3 Implications and opportunities within walking distance from citizens to formalized spaces (as perhaps the one minimise travel costs. contemplated by political leadership for The sections below outline implications and  Increasing access for ordinary citizens to Napier; a dedicated formal structure which opportunities related to the socio-economic entrepreneurship and livelihood exposes regional craft, produce, cuisine, and environment. opportunity associated with agriculture, culture, and acts as an enabler of livelihood nature (and tourism), trading locations development and cultural and regional Public facilities Public facilities fulfil a critical role in along major routes, and so on. understanding) to small street spaces where community development and welfare. The individuals can trade in food and goods on a Infrastructure and socio-economic municipality should assist in maintaining these daily or intermittent basis. In this way, the full development range of needs in the municipal area could facilities to a high standard. From a spatial Given the capital budget focus on be met, while greater certainty is assured perspective, it is important to cluster facilities infrastructure, it is important to maximize that the requirements of leadership are met as far as is possible, in this way maximizing associated socio economic benefits. For or public funds assist targeted beneficiaries. management capacity and user experience. example, the municipal entrepreneurship assistance and development agenda should The WCG Education Department’s Catalytic interventions be directly linked to infrastructure requirement for new school facilities in CAM should continue to participate actively development. Priority should perhaps be Bredasdorp and Struisbaai should be in inter-governmental initiatives to establish given to assisting people in establishing integrated with planning for future housing the Agri-Park and Farmer Production Support enterprises or acquiring skills directly related development. Unit, upgrade existing harbours, and to the infrastructure development and commercialization of the military airport. The location and form of public investment maintenance programme. and poverty From a spatial perspective, public investment Economic infrastructure can assist to curtail poverty through: Few formal market spaces for emerging entrepreneurs  Locating and designing publicly assisted exists. With the above in housing in a manner where the mind, it appears sensible opportunity provided becomes an asset for CAM to develop an as opposed to a burden which further approach to enabling impoverishes beneficiaries. development of a  Providing other urban opportunity – “hierarchy” of markets in commercial, work and public facilities – various places. Thi s could range from larger PHOTOGRAPH 5. INFORMAL DWELLINGS IN PHOLA PARK, BREDASDORP Cape Agulhas Spatial Development Framework 2017-2022 39 MAP 8. SOCIO-ECONOMIC SYNTHESIS

40 Cape Agulhas Spatial Development Framework 2017-2022 BUILT ENVIRONMENT In terms of provincial guidelines for the emptying of septic tanks) are provided to the provision of social facilities1, CAM settlements farming community. 2.6.1 Municipal overview are classified as shown in Table 10. CAM has commissioned a study of land use CAM’s settlement structure comprises nine No settlement in CAM is classified as of high on farms. While this work is in progress, the towns and settlements of various size and or medium-high growth potential and high PSDF’s policy directives in relation to function, as outlined in Table 9. social needs in terms of the Provincial Growth strengthening the rural economy should be Potential Study (2013). Bredasdorp and considered. This includes that: Napier is classified as having medium growth  Rural considerations are to be factored TABLE 9. SETTLEMENT STRUCTURE potential and the rest of CAM settlements as into all municipal IDPs and SDFs, with SETTLE- POPU- FUNCTION/ ROLE having low growth potential. The whole of priority given to getting rural coverage in MENT LATION CAM is classified as having medium social all district SDFs and then refining the detail Bredasdorp 15 524 Primary settlement in CAM, needs. seat of government, of the planning at local municipality level. regional services centre. Napier 4 212 Secondary services centre, Rural settlement  SDFs should be able to assist in the sought-after retirement/ Some 19% of CAM’s population lives in identification of strategically located land second home area. dispersed homesteads on farms. Limited for land reform purposes in terms of the Struisbaai 3 877 Coastal settlement, sought- after retirement/ second municipal services (e.g. the occasional Pro-active Land Acquisition Strategy home area and holiday (PLAS). destination. Elim 1 412 Historic missionary TABLE 10. SETTLEMENT CLASSIFICATION settlement. Arniston/ 1 267 Historic fishing and coastal TYPE OF CENTRE CAM POPULATION OTHER WESTERN CAPE Waenhuiskra settlement, sought-after SETTLEMENTS EXAMPLES ns retirement/ second home Regional Centre - > 70 000 Cape Town, George, Paarl, area and holiday Worcester, Mossel Bay destination. Primary regional service centre - 20 000-70 000 Knysna, Malmesbury, L’Agulhas 548 Coastal settlement, sought- Swellendam, Beaufort West, after retirement/ second Secondary regional service centre Bredasdorp 5 000-20 000 , Langebaan, Ashton home area and holiday destination. Rural settlement with threshold to Napier, 1 000- 5000 Gouda, McGregor, Yzerfontein support permanent social services Struisbaai, Elim, Suiderstrand 44 Small coastal settlement, Arniston/ retirement/ second home Waenhuiskrans area. Rural settlement without threshold to L’Agulhas, < 1 000 Witsand, Buffelsbaai, Protem Small rural service centre. support permanent social services Suiderstrand, Matjiesfontein Klipdale Small rural service centre. Protem, Klipdale

1 Based on Guidelines For The Provision Of Social Facilities In South African Settlements, CSIR, 2012

Cape Agulhas Spatial Development Framework 2017-2022 41

 Compatible and sustainable rural networks (i.e. served by off-grid activities (i.e. activities that are technologies). Given limited staff resources, building appropriate in a rural context, generate  The use does not impose actual development and land use management on costs or risks to the municipality positive socio-economic returns, and do farms is a major challenge. delivering on their mandate. not compromise the environment or  The use does not infringe on the ability of the municipality to deliver on its authenticity of rural landscapes. mandate) and of an appropriate scale and form can be accommodated outside the urban edge (except in bona MAP 9. SETTLEMENT STRUCTURE AND CLASSIFICATION fide wilderness areas).  While the 2009 PSDF draft Rural Land Use Planning and Management Guidelines are to be reviewed and updated to serve as basis for clarifying the interpretation of this policy, the following criteria should be applied:

 Environmental authorization, compatibility with land use activities suitable in the CBA it is situated in, and subject to an EIA.  The use does not alienate unique or high value agricultural land, or compromise existing farming activities.  The use does not compromise the current or future possible use of mineral resources.  The use is consistent with the cultural and scenic landscapes within which it is situated.  The use does not involve extensions to the municipality’s reticulation

42 Cape Agulhas Spatial Development Framework 2017-2022 Public facilities has Camp Sites and Resorts at Bredasdorp, month will receive the free basic services as The CAM Library Service consists of nine Arniston, Struisbaai and L’Agulhas. The prescribed by national policy. In 2014/ libraries, serving 10 896 members (almost a Municipality manages the camp sites/ resorts 15, 3 429 households qualified for free basic third of the CAM population). The main and maintains beach related facilities such services. The number of households library is situated in Bredasdorp, while there as ablution blocks and ablution facilities on are also library facilities at Welverdiend an on-going basis. registered for indigent support has increased (Bredasdorp) Struisbaai, Waenhuiskrans, to 3 485 in 2016/ 17 (almost 31% of total Napier, Klipdale, Protem and Elim. The There are sports grounds/ fields in each households). internet is available free of charge in seven settlement. Maintenance, ground Free services entail: preparation, and reservation functions are of these libraries (with access available at the  6kl water. performed on an on-going basis. CAM has other two through the “Cape Access”  50kw electricity. concluded an MOU with the WCG programme). Safety upgrades at libraries – a  A 40% or 80% rebate on sanitation Department of Sport, Art and Culture to core challenge identified by staff – has been (depending on household income). develop the Bredasdorp sports grounds as a budgeted for.  A 40% or 80% rebate on refuse removal sports academy (included is grant funding (depending on household income). CAM has seven cemeteries. To meet future provided for in the MTEF). demand, extensions are planned to current Water cemeteries in Bredasdorp, Struisbaai, and Infrastructure and services Napier. The Municipality’s primary water sources are ground water from various boreholes in the Access to services The Municipal Area currently has 18 parks area. Bredasdorp has, in addition, the with playground equipment, as well as a In terms of the 2011 census, of CAM’s 10 162 Uitvlucht spring and the Sanddrift Dam. community park in every ward. There are households (at the time): also sports grounds/ fields and community All households in the municipal area have halls in every ward as well as camp sites/  72% had access to connected sewerage. access to minimum water standards, defined resorts at Bredasdorp, Arniston, Struisbaai and  81.8% had access to piped water. as access to 25lt of potable water per day L’Agulhas.  96.7% of residents receive electricity. supplied within 200m of a household and with a minimum flow of 10lt per minute. CAM has an on-going park enhancement Free basic services and maintenance programme. The All towns have sufficient water sources Municipality also has a nature reserve – In terms of CAM’s Indigent Policy, all except for Struisbaai where the water source Heuningberg – for which there is a households earning less than R2 860 per is under ever increasing pressure owing to management plan exists. The Municipality numerous residential developments and

Cape Agulhas Spatial Development Framework 2017-2022 43

holidaymakers. Various Water Purification Excluding Bredasdorp and Napier, Waste missionary towns with municipal service Works are operational throughout the Water Treatment Works (WWTW) in CAM delivery systems). Municipal Area and have adequate have sufficient capacity and are operating Electricity capacity and are operating at a satisfactory at a satisfactory level. An effluent quality level. Although none of the CAM’s water control program is in place to minimise the Electricity distribution in the Municipal Area is treatment works have Blue Drop Status, risk of pollution of public streams or ground done by CAM and Eskom (Struisbaai North, drinking water is of an excellent quality with a water sources. The most critical priority for Elim, Kassiesbaai, Protem and Klipdale). All compliance level of 95%. Problems are upgrading is Bredasdorp WWTW. The project formal households and households in informal experienced in L’Agulhas and Struisbaai with is in the planning phases and is registered as settlements have access to electricity and brackish water but the possibility of a MIG project for the 2017/18 fiscal year. street lighting. Informal settlements where developing ground water Reverse Osmosis some type of township development has Bredasdorp has a full waterborne sewerage (RO) plants is currently being investigated taken place also have access to electricity. system in place. The lower income areas in (RO is a water purification technology that Napier, Arniston and Struisbaai also have full Electricity capacity is adequate to cover uses semi-permeable membranes to remove current demand for electricity in the area. waterborne sewerage systems, whilst the ions molecules and larger particles from The Municipality’s electricity losses increased higher income areas of these towns are drinking water). from 6.45% in 2014/ 15 to 7.20% in 2015/ 16 serviced with conservancy tanks. Unaccounted water of some 20% remains a Conservancy tanks are not deemed a (still well below the norm). All existing households within the Municipal supply area challenge. Losses are highest in Napier which backlog and the service is adequate except have access to minimum standards of attests to a direct correlation with ageing for the Struisbaai CBD where the tanker electricity, defined as an electricity infrastructure. services is under immense pressure during summer tourist season and is placing a connection at the dwelling. Sanitation (waste water) limitation on potential development. The installed capacity of CAM’s electrical All formal households in CAM have access to infrastructure is approximately three times the Elim has its own waste water treatment works sanitation services (with no household Eskom notified maximum demand. This and reticulation network which is managed serviced by CAM dependent on the bucket contributes to relatively low technical losses – by the Elim Opsienersraad. The high cost toilet system). Informal areas are serviced by because of heat, hot connections, and and expertise required to maintaining this communal toilets, generally exceeding the transformers not operating in ideal zones. The infrastructure remains a challenge (it is minimum norm of a communal toilet per five upgrading and maintenance of electrical understood that the WCG is leading an families. infrastructure is ongoing and CAM has seven initiative aimed at full incorporation of sophisticated quality of supply recorders that

44 Cape Agulhas Spatial Development Framework 2017-2022 continuously monitor the quality of supply per Much of CAM falls within the Overberg The Municipality has a recycling programme the relevant IEC and NRS standards. Renewable Energy Development Zone (Map in place and the separation of waste takes 10) identified by national government as place at source. A two-bag system has been Major challenges relate to Eskom capacity being of strategic importance for large scale implemented for collecting of waste. limitations, curtailing development. These wind and photovoltaic development. The Material that can be recycled is placed in include: area is intended to be incentivised for clear bags and other waste in black bags.  Eskom’s indication that they cannot meet renewable energy development and grid Businesses also take part in the recycling a request for an increase in Notified expansion. Reduced environmental project and separate the waste for Maximum Demand (NMD) for Bredasdorp assessment process and decision criteria are collection. This programme also creates jobs and Napier from 11MVA to 13MVA before applicable to projects within the identified and extensive use is made of the EPWP. 2021 (the installed infrastructure capacity area. The Municipality has a licensed landfill site in is 15MVA). The increase is required for a Bredasdorp and three drop-off areas (Napier, proposed upgrade at P&B Lime and MAP 10. RENEWABLE ENERGY DEVELOPMENT ZONES Waenhuiskrans and Struisbaai). There is also a planned publicly assisted housing licensed landfill site in Elim operated by the development. Elim Opsienersraad. Waste from drop-offs is  The quality of service delivery in the Eskom collected and transported to the Bredasdorp supply area of Arniston/ Waenhuiskrans landfill site. which is inferior to that of the municipally supplied area, and the physical state of Municipal landfill sites are either at or nearing the 66KV line that feeds the substation at the limit of their design capacity and the Overberg Test Range. Eskom is maintenance does not comply with planning the replacement of this line, but legislative and national norms and standards

not in the short term. (mainly as site were established prior to  The Struisbaai Eskom substation has Waste management stringent environmental legislation, and adequate capacity to supply Struisbaai in limited resources for upgrades which will the short to medium term but would not All households in the Municipal Area have ensure compliance). The WCG is assisting to be sufficient to supply extensions to access to a weekly refuse collection service. increase the lifespan of the existing landfill Struisbaai North (currently fed by an old In low income areas, bags are carried out to sites through the Back-to-Basics Support Plan. 22KV farmer’s line with the associated the nearest collection point. Each household Work is also proceeding to explore a shared lack of service reliability). receives 60 black bags per annum free of new landfill for CAM and Swellendam charge. Municipality.

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Street cleaning takes place on a continuous are respectively part of Phase 1 and Phase 2 with approximately 65% (793 units) of the basis throughout the year (in support of the of the Provincial roll-out programme. units built located in Bredasdorp. EPWP). Housing Since 2009/ 10, CAM has provided Stormwater approximately 1 220 low income houses in Affordable and GAP housing opportunity Bredasdorp, Napier, Struisbaai, and Arniston/ Storm water drainage is a major challenge in Waenhuiskraal. Some 65% of these have CAM owing to backlogs and inadequate Consistent with National and Provincial policy been in Bredasdorp (consistent with the storm water systems. All new roads are directives, CAM strives to improve basic proportion of housing beneficiaries in service provision to informal settlements while constructed with storm water drainage and Bredasdorp). Given the current rate of the Municipality aims to construct a minimum simultaneously decreasing the number of supply, and assuming no growth in the of 500m of storm water pipes annually to informal dwellings and provide formal new waiting list, it would take the CAM address the backlog. dwellings. approximately 17 years to meet the current Of specific concern, spatially, are the The existing demand for housing is based on waiting list. stormwater implications should extensive the official CAM Municipal Housing Waiting further development east of Bredasdorp take List. There are currently approximately 3 430 place. applicants/ potential beneficiaries on the CAM’s ICT systems housing waiting list. Some 60% of the waiting list beneficiaries are in As part of its OneCape2040 strategy, the Bredasdorp and 23 % in Napier. WCG has prioritised the roll-out of a strong broadband network. At first, it is intended to Since 2009/ 2010, CAM has develop an initial backbone to link all provided approximately 1 220 Provincial Government buildings and pilot new low income housing in wireless mesh networks in municipalities. It is Bredasdorp, Napier, Struisbaai planned to provide public ICT access within and Arniston. Over the last six- a 2km radius of anyone by 2019 and make year period, this equates to an available higher connection speeds to average of 203 units per fiscal businesses. Bredasdorp to Swellendam and year. Housing delivery is largely Bredasdorp to Caledon Fibre Build-out Plans aligned to the housing waiting list, PHOTOGRAPH 6. SUBSIDISED HOUSING IN BREDASDORP

46 Cape Agulhas Spatial Development Framework 2017-2022 The current five-year housing pipeline Higher income housing opportunity provides for some 1 980 opportunities Three projects for higher income Notably, the approved pipeline for the next housing opportunity were mooted three years shows an increase in the planned during the status quo work phase. delivery of housing units. This would contribute to halving the overall waiting list (if  A retirement village on municipal everyone on the waiting list is eligible for a land at the Napier entrance to housing opportunity) and largely meeting the Bredasdorp. waiting list of those 35 years and older.  An extension of Arniston/ Waenhuiskraal north of the main The supply of GAP housing – and housing for beach area (behind the existing lower or emergent middle income groups – row of houses on Harbour Road). appear very limited in CAM.  The proposed Eco Estate at A more detailed account of the housing L’Agulhas PHOTOGRAPH 7. HIGH-INCOME HOUSING IN STRUISBAAI challenge and related land supply and These proposals should be opportunity per settlement is provided in Public transport carefully considered in relation to existing Section 3.2 Future Land Demand Statement. Based on information from the Provincial service capacity and the built character of Land Transport Framework (2014), the surrounding areas. transport modal split for the Overberg District is as shown in Table 11.

CAM does not enjoy access to passenger rail TABLE 11. TRANSPORT MODAL SPLIT services. As private taxi services are NON-MOTORISED TRANSPORT PRIVATE TRANSPORT PUBLIC TRANSPORT intermittent, public transport between the various settlements remain a significant challenge.

To enable access to schools, the WCG 57% 26% 15% Education Department provides for the (compared to 20% in Cape (the lowest in the Province; (mainly bus; no rail and limited Town and 34% in Eden). compared to 45% in Cape Town mini-bus taxis; with Cape transport of learners in rural areas to public and 46% in Eden). Winelands, the lowest in the schools, typically where learners are located Province; compared to 20% in more than five kilometres from schools and Eden and 35% in Cape Town). no public transport service exists.

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The quality of the provincial roads linking the In 2016, there were 106 new private houses area to the N2 is good. CAM has built in CAM to a value of approximately approximately 28 gravel roads, maintained R158m and non-residential buildings to a on a quarterly basis to a good drivable value of approximately R152.6m. condition. The intention is to surface all these Applications for building development are roads by 2050. recommended and approved within the 30 day time limit of but most are completed in Two major roads have been prioritised for 15 days in a bid to reduce “red tape” and upgrading to a tarred surface owing to stimulate the economy. Given limited staff potential economic impact. The first is 56km resources, and the spatial expanse of CAM, leading to the De Hoop Nature Reserve and building development and land use the 5km gravel road which links L’Agulhas PHOTOGRAPH 8. AN EXAMPLE OF REDEVELOPMENT management on farms is a major challenge. SENSITIVE TO THE HISTORIC BUILT FABRIC IN BREDASDORP and Suiderstrand (this road was recently transferred to CAM). Given associated costs, 2.6.2 Issues upgrading will occur in partnership with the Box 4 summarises legacy, current, and future National and Provincial Departments of issues in relation to the built environment to Public Works as well as ODM. Upgrading of the road linking and Elim has been be redressed, addressed, and mitigated. completed. BOX 4. BUILT ENVIRONMENT ISSUES CAM aims to build no less than 1,5km new LEGACY ISSUES: CURRENT ISSUES: FUTURE ISSUES: roads annually. All projects employ labour intensive construction methods and job REDRESS ADDRESS MITIGATE  Historic view of  Increased benefit from  The potential deepening allocation through the EPWP. agricultural land as of natural resources for citizens. of poverty through poor less value than urban  Access to land and location and form of Building development and land use land. opportunity for new affordable housing, management  Marginalisation of entrepreneurs. inadequate urban On average CAM received some 20 poorer communities  Maximising existing opportunities in proximity applications for rezoning and land use (in relation to well- infrastructure and resources to the poor, and change and almost 400 applications for located land and for economic development inadequate access to building development over the past two to access to and increased livelihood entrepreneurship and three years. opportunity). opportunity. livelihood opportunity for the poor.

48 Cape Agulhas Spatial Development Framework 2017-2022 2.6.3 Implications and opportunities  Significant expansion of the small rural and a growing indigent population – create settlements of Klipdale and Protem should significant challenges to infrastructure The sections below outline implications and not be considered. provision in CAM. It appears important to: opportunities related to the built environment. Lateral growth and expansion of settlements  Focus resources for infrastructure There appears to be no need to significantly expansion in areas where the most Settlement hierarchy and role grow any settlement “outwards”. Sufficient people will benefit and the leverage of In relation to settlement hierarchy and role: land is available for infill development in infrastructure for further economic  Bredasdorp should be reinforced as the towns and significant subdivided and zoned development and job creation will be the primary settlement in CAM. It is here coastal land has not yet been developed. greatest. In practice, this implies a focus where most can benefit from investment This strategy has several benefits, including: on Bredasdorp and Napier as opposed to in higher order facilities and infrastructure smaller settlements.  Protecting places of nature and  Not to grow coastal settlements laterally Given limited staff resources, and the agricultural value. spatial expanse of CAM, building significantly.  Compacting settlements for greater development and land use management  Focus further development within efficiency. on farms is a major challenge. settlements on infill and the use of  Reducing infrastructure services and underdeveloped land, in this way  Napier is also a major settlement, but the management costs. primary investment focus should be more minimizing the length of service runs.  Pursuing reasonable densification in all on tourism and culture as opposed to Land use on farms commercial services. CAM is currently engaged in undertaken a settlements (while respecting the specific  The focus in Struisbaai and L’Agulhas detailed land use survey of farms. Once this character of places). should be on tourism and leisure work is completed, careful consideration  Ensuring that new affordable housing is development, and specifically improved must be given to a system which both provided in places and a manner where facilities and places along the coast. provides reasonable protection to rural and housing becomes real assets, in this way  Elim and Arniston/ Waenhuiskrans should agricultural area and recognises the public enabling service users to contribute to be maintained and carefully managed resource constraints in implementing the service charges. for their special historic and cultural system. characteristics (including the relationship between settlement and the natural Infrastructure The dispersed settlement structure of CAM – environment). together with substantial temporary service user increases during peak holiday periods

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 Focus new development in areas where User numbers are simply too low and Housing infrastructure can be provided in the most distances between settlements substantial. Affordable housing remains a key challenge affordable way.1 in CAM. Given the small proportion of farm In this context, it would be important to assist workers living on farms, it appears that the Also important is expanding the scope of (where possible), private sector taxi operators movement of workers to town has – in recent infrastructure investment and projects to to run regular services enabling people to years – created an additional burden on the meet other needs. For example, the access opportunity such as work in the municipality to house citizens. The SDF should establishment of small market spaces and different settlements. At the same time, it consider: tree planting should be planned and would appear logical to: implemented as part of roads infrastructure  The principles of SPLUMA, demanding the  Focus significant new settlement growth projects. location of affordable housing in a and development in the place of manner which maximizes livelihood Albeit not a spatial matter, careful greatest opportunity to minimize inter- opportunities for poorer citizens. consideration should be given to align CAM’s settlement movement. In practical terms,  A focus of affordable housing local business development initiatives – for it means that significant infrastructure expenditure in settlements which provide example, assistance in business registration – initiatives, job creation initiatives, public optimum work and other opportunities and the infrastructure plan and programme facilities, or housing projects should be in and minimizes inter-settlement to assist in the employment of local people Bredasdorp. movement. and businesses on infrastructure projects.  Progressively pursue a compact form for  Ensuring that the layout and form of all settlements as far as possible to enable affordable housing allow for changing Public transport use of non-motorised transport. user demands, lifestyles, and increased It is unlikely that CAM will ever enjoy the  Ensure that each settlement contains a livelihood opportunity (including sufficient benefit of a comprehensive government range of facilities required to meet at on-site space to grow food and extend supported public transport system – including least the daily needs of citizens, in this units to enable rental, accommodating specialised routes, vehicles and systems – to way minimizing the need for excessive extended families, or income generating enable inter-settlement people movement. movement. work space).

1 Traditionally, it is the norm for infrastructure services to depend on spatial planning to indicate where best to focus infrastructure development. Arguably, given the extent to which infrastructure development and maintenance dominate the municipal resource base, it is as important – through an analysis of its own cost structure – for infrastructure services to also present a case on where and how infrastructure should be provided in the most sustainable way. This issue should be a specific output of the proposed Infrastructure Development Plan (to be prepared during 2017).

50 Cape Agulhas Spatial Development Framework 2017-2022 There is significant demand for GAP housing funds have been provided for establishing a Catalytic projects in CAM. Many younger people – including market in Bredasdorp. The SDF needs to Several larger projects which could provide CAM staff – find it difficult to find suitable consider that the informal economy significant impetus to the local economy accommodation in CAM. The municipality comprises a “continuum” of economic have been mooted for CAM. These include should support the provision of GAP housing activities, requiring decision-makers and conversion of the currently military airport into by private developers through land service providers to differentiate what is a commercial facility (specifically for the availability incentives. provided to the needs of different sectors export of agricultural produce), the and local areas. Depending on who is to establishment of an AgriPark in Bredasdorp Public facilities benefit – or the kind of market contemplated as part of the Provincial programme to Social development and welfare are – the location of the facility, the services enable agricultural production and significant issues raised during the IDP public provided to assist traders or visitors, and entrepreneurship, and the expansion of small participation process and leadership management arrangements, may differ craft harbors at Arniston/ Waenhuiskrans and strategic sessions. It is also a very significant substantially. With the above in mind, it Struisbaai to meet the needs of the fishing provincial strategic and policy focus area. appears sensible for CAM to develop an industry. These projects can no doubt assist From a spatial perspective, this requires a approach to enabling development of a local economic development. However, all specific emphasis on public facilities. “hierarchy” of markets in various places. This of them involve a range of partner Specifically, it is believed that: could range from larger formalized spaces organisations and interest, and require resources beyond the means of CAM.  Cluster social facilities and activities within (as perhaps the one contemplated by Nevertheless, it is important for CAM to nodes to optimise accessibility and political leadership for Napier; a dedicated remain engaged in exploring these initiatives, convenience while also improving formal structure which exposes regional craft, and assist through local infrastructure operations, security and maintenance. produce, cuisine, and culture, and acts as an alignment, and so on. Most critical is  Place higher order public facilities and enabler of livelihood development and finalisation of land agreements and activity on the most important routes and cultural and regional understanding) to small infrastructure needs related to the AgriPark in smaller ones on the main route or at cross street spaces where individuals can trade in Bredasdorp. roads within communities. food and goods on a daily or intermittent basis. In this way, the full range of needs in  Promote Bredasdorp as the location for higher order public facilities. the municipal area could be met, while greater certainty is assured that the Economic infrastructure requirements of leadership are met or public Providing an enabling environment for the funds assist targeted beneficiaries. development of small enterprises has been a longstanding concern of CAM. Thus, some

Cape Agulhas Spatial Development Framework 2017-2022 51 MAP 11. BUILT ENVIRONMENT SYNTHESIS

52 Cape Agulhas Spatial Development Framework 2017-2022 GOVERNANCE funding of between R11,1m and R11,9m per  Significant spending – within the limited annum over the MTEF period, and Integrated means of CAM – to extend, maintain and 2.7.1 Municipal overview National Electrification Programme funding safeguard sports and public facilities. of between R1m and R7m per annum over National and Provincial Government funding the MTEF period. Staff resources contributions The IDP reports on the staffing constraints Eight infrastructure and/or capital investment Municipal budget raised as a challenge by various services in projects with a total budgeted value of CAM. From a spatial perspective, two issues R16,3m are planned by WCG for CAM over The CAM Draft Capital Budget for the MTEF are significant. The first – as highlighted in the MTEF period. The WCG projects are period is attached as Appendix 3 The draft Section 2.5 – relates to the need to develop outlined in the table below. budget (approximately R24,75m in 2017/ 18 institutional arrangements to integrate and and dropping to approximately R20,92m in coordinate the work of various extra- The WCG has also allocated Human 2019/20) indicates: municipal organisations involved in Settlements Grant funding of R20,25m to community welfare and community  The emphasis on infrastructure CAM in 2017/ 18, R20m in 2018/ 19, and development initiatives. The second maintenance and development, R40,10m in 2019/ 20. Library service concerns limited staff resources to undertake comprising approximately 77% of the replacement funding of R5,6m in 2017/ 18, spatial planning, and land use and building budget. R5,8m in 2018/ 19, and R6,2m in 2019/ 20 has development management. Partnerships are  Significant spending – within the limited been provided for. key in implementing CAM’s spatial strategy means of CAM – to maintain and and plans. The most significant National government upgrade amenity and facilities allocations to CAM (with spatial implications) associated with beaches. Public investment and space is Municipal Infrastructure Grant (MIG) As indicated in the IDP, the number of households registered for indigent support in TABLE 12. PROVINCIAL FUNDING CONTRIBUTIONS CAM has increased from 3 431 in 2014/ 15 to WCG DEPT PROJECT TYPE OF PROJECT BUDGET 3 485 in 20116/ 17 (almost 31% of all Transport and -Bredasdorp road reseal Refurbish-ment and R2m households in CAM). Further, CAM has found Public Works Riversdale-Ladismith road reseal rehabili-tation that the indigent grant which is financed Health  Napier Clinic replacement Development R14,3m from the equitable share in terms of the  Otto Du Plessis Hospital (Acute Psychiatric Ward) DEA&DP De Mond Nature Reserve Construction of TBD Division of Revenue Act (DORA) is no longer tourism cabins and adequate to cover actual service costs. related management infrastructure

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From a spatial perspective three issues 2.7.3 Implications and opportunities greater degree on management by appear important in relation to curtailing an communities and interest groups. The sections below outline implications and increase in the number of indigent opportunities related to governance. households: Project implementation Given the limited resources of CAM – both Land use management  Locating and designing publicly assisted capital and human – implementation of

housing in a manner where the CAM covers a vast spatial area and proposals (and particularly those not primarily opportunity provided becomes an asset numerous land use activities occur across the focused on smaller infrastructure investment as opposed to a burden which further rural area. Further, many areas are of a and publicly assisted housing for the lowest impoverishes beneficiaries. character that requires a unique land use income beneficiary groups), will require  Providing other urban opportunity – management response sensitive to local considerable private sector partnership and commercial, work and public facilities – conditions. Ideally, CAM requires a much investment. within walking distance from citizens to stronger land use management staff Extra-municipal institutional arrangements minimise travel costs. complement to management the many There appears to be an opportunity to focus  Increasing access for ordinary citizens to different conditions in the municipal area. more on institutional arrangements to entrepreneurship and livelihood Given competing needs, more resources are, integrate and coordinate the work of various opportunity associated with agriculture, however, unlikely. Thus, CAM needs to follow extra-municipal organisations involved in nature (and tourism), trading locations a land use management system and community welfare and community along major routes, and so on. guidelines which is minimalist and relies to a development initiatives. 2.7.2 Issues BOX 5. GOVERNANCE ISSUES Box 5 summarises legacy, current, and future issues in relation to governance to be LEGACY ISSUES: CURRENT ISSUES: FUTURE ISSUES: redressed, addressed, and mitigated. REDRESS ADDRESS MITIGATE  Traditionally mono-  Coordination of the  The impact of housing functional lower contributions of business, location and form on income housing areas NGOs and other public indigence and the resulting in organisations to socio- sustainability of municipal disproportionate economic development. finances. travel cost and stress  Limited capital and staff on household funds. resources for implementing spatial strategy and plans.

54 Cape Agulhas Spatial Development Framework 2017-2022 Publicly assisted housing and access to opportunity To avoid a spatial decision-making from contributing to an increase in indigence and long term municipal financial sustainability:

 Publicly assisted housing should be located and designed in a manner where the opportunity provided becomes an asset as opposed to a burden which further impoverishes beneficiaries.  Further urban opportunity – commercial, work and public facilities – should be provided within walking distance from citizens to minimise travel costs.  Access for ordinary citizens to entrepreneurship and livelihood opportunity associated with agriculture, nature (and tourism), trading locations along major routes, should be increased.

PHOTOGRAPH 9. RECENT HOUSING DEVELOPMENT IN ARNISTON

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SYNTHESIS

2.8.1 Key issues

TABLE 13. LEGACY, CURRENT, AND FUTURE ISSUES LEGACY ISSUES: REDRESS CURRENT ISSUES: ADDRESS FUTURE ISSUES: MITIGATE BIO-PHYSICAL ENVIRONMENT  Past erosion and degradation of  Implementation of biodiversity planning and risk management  Further impacts of climate change through active critical biodiversity areas and natural frameworks including CBAs and the Coastal Management Line adaptation, including implementation of provincial resources.  Limited access to nature and the coast for poorer communities. guidelines for land use in coastal risk areas.  Poor land management and fire regimes in agricultural areas.  Alien invasive vegetation impacts on fire regimes and  The impact of climate change, sea level rise, energy, water, and water supply, by preparing and implementing a food insecurity. municipal control plan.  Encourage private landowners to implement stewardship programmes or create conservancies, private or contract nature reserves to extend effective protected areas. SOCIO-ECONOMIC ENVIRONMENT  Historic view of agricultural land as of  Increased benefit from natural resources for citizens.  The potential deepening of poverty through poor less value than urban land.  Access to land and opportunity for new entrepreneurs. location and form of affordable housing, inadequate  Marginalisation of poorer communities  Maximising existing infrastructure and resources for economic urban opportunities in proximity to the poor, and (in relation to well-located land and development and increased livelihood opportunity. inadequate access to entrepreneurship and livelihood access to opportunity). opportunity for the poor. BUILT ENVIRONMENT  Infrastructure responding to demand as  Settlement sprawl and further loss of agricultural and natural assets.  Development in “peak season” coastal settlements of opposed to directing urban  The location of land uses in a manner which minimises private a nature which results in inequitable and unsustainable development. transport. demands on municipal infrastructure provision.  Limited typology of government  Degradation of the special housing.  character of settlements and precincts.  Marginalised, dormitory nature of some townships/ poorer areas.  Upgrading informal settlements.  Proactively providing settlement opportunity.  Inadequate access to public and commercial facilities to all citizens.  Appropriate and sustainable housing opportunities to all citizens. GOVERNANCE Traditionally mono-functional lower  Coordination of the contributions of business, NGOs and other public  The impact of housing location and form on indigence income housing areas resulting in organisations to socio-economic development. and the sustainability of municipal finances. disproportionate travel cost and stress on  Limited capital and staff resources for implementing spatial strategy household funds. and plans.

56 Cape Agulhas Spatial Development Framework 2017-2022 2.8.2 Key opportunities

2.8.3 Implications TABLE 14. MAJOR OPPORTUNITIES The table overleaf highlights the implications THEME OPPORTUNITY of current challenges on components of BIO-PHYSICAL  Expansion of protected areas through incorporation/ stewardship. settlement structure and management. ENVIRONMENT  Further development of guidelines associated with risk areas.  Protection of agricultural land through containing settlement.  Introducing measures to promote alternative energy, careful water use, and waste minimisation.  Protection of scenic assets.  Partnerships with landscape initiatives such as the Nuwejaars SMA, Agulhas Biodiversity Initiative and Lowlands Conservation Trust  Control of alien invasive vegetation to reduce fire risk and water stress SOCIO-  Regional and municipal infrastructure assets that could be enhanced

ECONOMIC and offer more opportunity to assist economic development. ENVIRONMENT  Cultural assets and historic settlements which could assist to grow tourism.  Municipal land in good locations that could be employed for entrepreneurship development. BUILT  A relatively clear existing settlement structure as a basis for future ENVIRONMENT development which enables sustainability, user convenience, and recognising the unique and different characteristics of places.  Municipal land in good locations that could be employed for well- located publicly assisted housing.  Existing strong public facilities with locations and surrounding land which could form the basis of public facility clusters.  A relatively manageable proportion of informal dwellings. GOVERNANCE  Existing business enterprises, NGOs and public institutions which could be harnessed to deliver services in a more coordinated way, aligned with the municipal agenda.  Existing private sector interest to partner in the implementation of development projects.

Cape Agulhas Spatial Development Framework 2017-2022 57 TABLE 15. IMPLICATIONS OF CURRENT CHALLENGES ON COMPONENTS OF SETTLEMENT STRUCTURE AND MANAGEMENT THEME SUB-THEME IMPLICATIONS FOR THE CAM SDF BIO-PHYSICAL Biodiversity and ecosystem services  Protection of Critical Biodiversity Areas and Ecological Support Areas, protected, and vulnerable areas ENVIRONMENT  Support for expanded private stewardship and conservancy programmes.  Identification of priority areas for disaster risk management  Precautionary approach to climate change and sea level rise Water  Responsible water use  Protection of water resources from urban development and poor land management practices Soils and mineral resources  Protection of valuable agricultural land from urban development  Environmentally responsible mineral extraction Resource consumption and disposal  Promoting off-grid development and renewable energy programmes  Supporting recycling and waste minimisation Landscape and scenic assets  Retaining the essential character and intactness of rural landscapes and wilderness areas SOCIO- Municipal economic infrastructure  Developing and maintaining infrastructure as a basis for economic development and growth ECONOMIC Rural space-economy  Protection of agricultural land, enablement of its use and expansion of agricultural output ENVIRONMENT  Identification of land for agricultural land reform/ peri-urban agriculture.

 New development to focus on undeveloped and underdeveloped land in proximity to existing concentrations of activity and people and as far as possible within the existing footprint of settlements.  Protection and expansion of tourism assets.  Expansion of entrepreneurial opportunity (also for emergent entrepreneurs in agriculture & tourism). Settlement space-economy  Prioritise new growth in those areas that have both high growth potential and high social need.  Better linkages between informal settlements/ poorer areas and centres of commercial/ public activity.  A richer mix of activities in or proximate to informal settlements (including employment opportunity).  Land incentives to enable business development proximate/ within township areas.  Market opportunities for small entrepreneurs.  Protection and expansion of tourism assets.  Expansion of entrepreneurial opportunity (also for emergent entrepreneurs). BUILT Sense of place & settlement patterns  Protection of places and buildings of heritage/ cultural value (while ensuring reasonable public access) ENVIRONMENT Accessibility  Focus on public and non-motorised transport for user convenience and reduced dependence on private vehicles Land use and density  Compact, denser development  Pedestrian friendly development Facilities and social services  A focus on improving and expanding existing facilities (schools, libraries, and so on) to be more accessible and offer improved services  The significance of well-located and managed public facilities as a platform for growth, youth development, increased wellness, safety, and overcoming social ills  The clustering of public facilities to enable user convenience and efficient management Informality, housing delivery,  The upgrading of informal settlements inclusion and urban land markets  Housing typologies which meet the different needs of households and income groups GOVERNANCE Way of work  A more coordinated and integrated approach in government planning, budgeting and delivery  Partnering with civil society and the private sector to achieve agreed outcomes (as reflected in the IDP)  Active engagement with communities in the planning, resourcing, prioritization, and execution of programmes and projects 58 Spatial planning and development  User friendly instruments Cape Agulhas Spatial Development Framework 2017-2022 management instruments  Instruments not dependent on extensive resources.

3 SPATIAL PROPOSALS and scenic landscapes – which is the basis of Key strategy 6 life and the local economy. Within all settlements prioritise infill SPATIAL CONCEPT development, the efficient use of land, and Key strategy 2 adaptive re-use of existing assets. 3.1.1 Final vision statement Make allowance for extended opportunity in key sectors reliant on the natural resource Key strategy 7 In response to inputs received during the base of CAM, including agriculture, agri- Within all settlements, actively seek to public participation process, the guiding processing, and tourism. upgrade and integrate marginalised and vision statement was adjusted to be more informal settlements, cluster public facilities, succinct while maintain linkages with the Key strategy 3 provide opportunity for entrepreneurs, and Maintain and improve CAM’s major inter- core themes of the SDF and the SPLUMA increase housing choice and asset value. principles. and intra-regional infrastructure and movement routes. Key strategy 8 “An environment, space economy, and Actively seek partnerships to develop and settlements in CAM which ensure justice, Key strategy 4 manage CAM to achieve the SDF principles Work to increase the potential benefits sustainability, efficiency, livelihood and proposals. associated with key public infrastructure opportunity, and a rich life experience for elements in CAM (including the airport, 3.1.3 Concept diagram all residents, citizens, and visitors.” harbours, and rail). The spatial concept for CAM is illustrated in 3.1.2 Concept statement Key strategy 5 Figure 2 overleaf. Maintain a settlement hierarchy which The spatial concept for CAM – aimed at achieving the desired spatial form for CAM minimises resource impacts, maximises while ensuring alignment with the SPLUMA livelihood opportunity, enable the efficient spatial development principles – comprises and cost effective provision of infrastructure eight key strategies: and services, minimises vehicular movement, and maintains the positive settlement and life Key strategy 1 style characteristics of places. Protect, maintain and enhance the natural resource base of the municipality – including areas of high biodiversity, high-potential agricultural land, inland and coastal waters,

Cape Agulhas Spatial Development Framework 2017-2022 59

FIGURE 2. SPATIAL CONCEPT

60 Cape Agulhas Spatial Development Framework 2017-2022 FUTURE DEMAND APPROACH changes in household dynamics, and socio- there is a rise in the number of households STATEMENT economic means, and current housing need. entering the middle and high-income brackets, 49.1% of households in the As indicated in Section 2.5.1, the WCG In relation to urban settlement, the major Municipal Area fall within the low-income Department of Social Development sector requiring land is housing, and bracket. Average household size has specifically publicly assisted, affordable estimates CAM’s 2017 population at 35 017. It decreased somewhat from 3.3 persons per is expected that this population will gradually housing. In terms of demand for land, other household to 3.2 between 2011 and 2016. than the provision of roads, infrastructure is increase over the 5-year planning cycle to 36 generally not considered be a high 773 by 2023, approximately 1% per annum. The number of households registered for consumer of land. Once the core indigent support has grown from 3 431 in CAM had 10 162 households in 2011. This has infrastructure of waste water treatment 2014/15 to 3 485 in 2016/17 (almost 31% of grown to 11 321 in 2017 (approximately 1,7% plants, substations and landfill site are total households). per annum). allocated, the primary infrastructure required The existing demand for housing is based on with spatial implications is that of the The poverty headcount shows that the the official CAM Municipal Housing Waiting provision of new road networks. number of poor people within the CAM area List. The distribution between settlements is increased from 2,2% of the population in 2011 Future demand for land to accommodate set out in Table 16 (based on information to 6,7% in 2016. The intensity of poverty – i.e. publicly assisted, affordable housing, is provided by CAM). the proportion of poor people that are below informed by population growth expectations, the poverty line – within CAM increased from If it is assumed that CAM’s population will 41.0% in 2011 to 45.4% on 2016. Although increase by 2 000 people over the next five years (constituting approximately 660 TABLE 16. HOUSING DEMAND BY SETTLEMENT households), and, conservatively estimated, 90% of these households will require public SETTLEMENT INFORMAL % OF WAITING % OF WAITING LIST % OF assistance (in the form of an erf and/ or unit), DWELLINGS TOTAL LIST TOTAL OVER 35 TOTAL the five-year demand will be approximately 600 units.

If the current demand of informal dwelling BREDASDORP 463 65,7 2 181 61,7 1 269 62,8 NAPIER 144 20,4 707 20,0 302 15,0 units, totalling 705, are not formalised, with STRUISBAAI 62 8,8 326 9,2 187 9,2 the new five-year demand of approximately ARNISTON 0 0 143 4,0 119 5,9 600 units, the number of people living in ELIM, KLIPDALE, 36 5,1 181 5,1 143 7,1 PROTEM informal settlements will almost double. TOTAL 705 100 3 538 100 2 020 100

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If allocated based on the existing backlog between settlements will be as indicated in growth in the waiting list, it would take the split between settlements, the allocation Table 18. CAM approximately 17 years to meet the current waiting list. With the anticipated Based on average unit densities of 35 per ha, growth increasing by approximately 600 units the demand for land to accommodate over the next five years, it would take the TABLE 18. PROPORTIONAL HOUSING ALLOCATION BY current backlogs and five-year growth will be SETTLEMENT municipality approximately 20 years to meet as indicated in Table 17. the current waiting list. SETTLEMENT ALLOCATION 3.2.1 Current and planned rate of housing BREDASDORP 370 The current five-year housing pipeline and delivery the distribution between the settlements are NAPIER 120 1 Since 2009/ 2010, CAM has provided set out in Table 19. Where projects are split STRUISBAAI 55 approximately 1 220 new low income over budget years, an equal split of units is ARNISTON 24 housing units in Bredasdorp, Napier, assumed per annum. Notably, the approved pipeline for the next three years shows an ELIM, KLIPDALE, PROTEM 31 Struisbaai and Arniston. Over the last six-year period, this equates to an average of 203 increase in the planned delivery of housing TOTAL 600 units per fiscal year. Housing delivery is units. This would contribute to halving the overall waiting list (if everyone on the waiting TABLE 17. LAND REQUIREMENTS IN HECTARES largely aligned to the settlement split of the housing waiting Backlog Future Total list, with TABLE 19. CURRENT HOUSING PIPELINE (ha) demand land approximately (ha) demand Projects 2017/ 2018/ 2019/ 2020/ 2021/ Total % of 65% (793) of the (ha) 2018 2019 2020 2021 2022 Total BREDASDORP 318 318 239 71 71 1 017 51 BREDASDORP 62,3 10,6 72,9 units built NAPIER 50 236 234 - - 521 26 NAPIER 20,2 3,4 23,6 located in STRUISBAAI 110 111 110 111 - 442 22 STRUISBAAI 9,3 0,5 10,9 Bredasdorp. ARNISTON 4,1 0,2 4,8 ARNISTON - - - - - 0 0 Given the current ELIM, - - - - - 0 0 ELIM, 5,2 0,3 6,1 KLIPDALE, rate of supply, KLIPDALE, PROTEM and assuming no PROTEM TOTAL 101,1 17,1 118,2 TOTAL 478 664 585 182 71 1 980 100

1 It should be noted that the figures in Table 19 represent what has been approved by the CAM for the next five-year period and does not consider the projects which are currently under consideration or in the pre-planning process. The figures in the above table therefore differs from that presented in the WCG Department of Human Settlements pipeline, as these figures represent projects tabled and in various stages of the review process.

62 Cape Agulhas Spatial Development Framework 2017-2022 list is eligible for a housing opportunity) and TABLE 20. PIPELINE HOUSING PROJECTS AND POST-2025 DEMAND largely meeting the waiting list of those 35 years and older. Current Supported Not Total Pipeline Total land Supported land (Post pipeline + 3.2.2 Developable Land Areas and Densities pipeline 2025) pipeline post 2025 The housing pipeline has considered various Sites 187 1 723 81 1 991 3 249 5 240 BREDASDORP sites for housing projects. As part of the SDF Ha 8 28 2 37 117 154 process, the sites have been mapped and Sites 130 262 - 392 227 619 NAPIER assigned the status as provided by the WCG Ha 14 6 - 19 9 29 Department of Human Settlements. The land Sites - 437 80 517 - 517 allocation to meet current and future STRUISBAAI Ha - 8 6 13 - 13 demand, along with their status is shown in Sites - - - - 200 200 ARNISTON Table 20. Based on unit densities of Ha - - - - 2 2 approximately 35 per ha, the demand for ELIM, KLIPDALE, Sites ------land to accommodate current backlogs and PROTEM Ha ------five-year growth will be as indicated in Sites 317 2 422 161 2 900 3 676 6 576 Total Table 21. Ha 22 41 7 70 128 198

The detailed CAM Housing Pipeline (2016) list is provided in Appendix 5. These sites, considered suitable for housing, has been TABLE 21. CURRENT PIPELINE LAND ALLOCATION (WESTERN CAPE GOVERNMENT) identified and mapped and is attached as Total land Total land % land Total land % demand met by Appendix 6. demand pipeline pipeline pipeline + total land pipeline (ha) (ha) meet pipeline post and pipeline post With cognizance given the housing demand, demand 2025 2025 Table 21 shows the extent to which the BREDASDORP 72.9 37 51 154 211 current land pipeline and the post 2025 NAPIER 23.6 19 82 29 121 pipeline meets demand. STRUISBAAI 10.9 13 121 13 121 ARNISTON 4.8 - 0 2 46 ELIM, KLIPDALE, 6.1 - 0 - 0 PROTEM Total 118.2 70 59 198 167

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From the above, it appears that:  The current housing pipeline does not meet the anticipated housing demand. The current pipeline addresses approximately 51% of the housing demand for Bredasdorp and 82% of Napier’s demand up to 2022. Struisbaai’s demand is exceeded (things remaining constant, this settlement should not need further developable land until 2022).  In terms of the current land demand estimates, Bredasdorp does not meet its projected land demand. Further infill development sites would need to be sought to meet the demand, or alternatively, one of the larger housing projects identified for Erf 1148 (Site F1 extended or Site F2) could be prioritised for implementation for the next five-year period. By incorporating one or both sites, Bredasdorp could meet its projected land demand and have sufficient land “banked” for future development phases as the need arises. Alternatively, the sites PHOTOGRAPH 10. SUBSIDISED HOUSING DEVELOPMENTS IN BREDASDORP could be developed for both subsidy and

GAP housing, for which there appears significant demand. This option should be considered considering the effort and costs expended on smaller pieces of land are similar, if not higher than the pro-rata effort spent on larger projects.

64 Cape Agulhas Spatial Development Framework 2017-2022 THE COMPOSITE AND SETTLEMENT AREA SDF FOCUS AND STRUCTURE

Broadly – and aligned to the SPLUMA SDF guidelines – the SDF entails three types of actions or initiatives:

 Protective actions – things to be protected and maintained to achieve the vision and spatial concept.  Change actions – things that need to be changed, transformed, or enhanced to achieve the vision and spatial concept.  New development actions – new development or initiatives to be undertaken to achieve the vision and spatial concept.

The tables overleaf outline the legend for SDF diagrams. Although the same legend is used for the composite SDF and proposals for different settlement areas (towns), all aspects of the legend are not necessarily applicable to all PHOTOGRAPH 11. THE EXISTING WALKWAY ALONG THE COAST AT STRUISBAAI IS PROPOSED TO BE EXTENDED TO FORM A CONTINUOUS ROUTE LINKING STRUISBAAI NOORD WITH L’AGULHAS settlements.

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PROTECTIVE ACTIONS CHANGE ACTIONS NEW DEVELOPMENT ACTIONS

Protected Area AREAS OR PLACES Informal settlements/ New residential TO BE UPGRADED affordable housing areas development

Critical Biodiversity Area: Integration areas between Terrestrial informal areas/ affordable Aquatic housing areas and centres Future publically

ELEMENTSTO BE Ecological of commercial activity assisted housing

Support Area: IGNIFICANT SCALE Terrestrial Focus area for public Aquatic AREA FOR markets

PROTECTED

ENHANCED Agricultural land ECONOMIC New OPPORTUNITY Areas for peri-urban commercial, agriculture Coastal risk tourism or public

areas: places High | Rural

NATURAL/ECOLOGICAL Enhanced commercial Medium and industrial NEW DEVELOPMENT OF S Low accommodation

Historic and AREAS FOR TO BE culturally Residential infill and DENSIFICATION

significant places densification AND INFILL and precincts AREAS FOR EFFICIENT/ Places for clustering public IMPROVED ACCESS facilities

PROTECTED TO PUBLIC SERVICES LANDSCAPE AND Scenic routes Streets or places where IMPROVED LAND- landscaping and tree

SETTLEMENT ELEMENTS SCAPING planting should be focused

Public recreation places IMPROVED PUBLIC and amenity (e.g. ablution AMENITY facilities)

66 Cape Agulhas Spatial Development Framework 2017-2022 THE COMPOSITE SDF

The composite CAM SDF is illustrated in Table 22 and Map 12. The proposals contained within the framework aim to achieve the desired spatial form and strategies for CAM while ensuring alignment with the SPLUMA spatial development principles.

TABLE 22. SDF PROPOSALS

STRATEGIC FOCUS SDF ELEMENT PROPOSALS Protective Natural/ ecological CBAs, ESAs, Protected Areas and Maintain the integrity of and enhance the continuity of Formally Protected Areas, actions elements to be protected watercourses Critical Biodiversity Areas, wetlands, rivers, aquatic Critical Biodiversity Areas, Ecological Support Areas, and Marine Protected Areas. Agricultural land Maintain productive agricultural land. Urban edge Maintain tight edges to urban settlement to protect agricultural land, nature, and enable settlement efficiency and convenience. Coastal management line and risk zones Limit and manage development seaward of the coastal management line to reduce risk. Landscape and Scenic landscapes, scenic routes, and Maintain the scenic quality of the natural and agricultural landscape, associated settlement elements to special places of arrival routes, and the unique but different arrival places which mark the transition be protected between rural and urban settlements. Historic and culturally significant precincts Maintain the unique historic quality of different settlements and precincts, and places including Napier, Bredasdorp old town, Elim, Arniston/ Waenhuiskraal, the area, and L’Agulhas light house precinct. Change actions Areas or places to be Informal settlements/ affordable housing Upgrade informal settlements (specifically in Bredasdorp and Struisbaai). upgraded areas Area for enhanced Integration areas between informal areas/  Strive to break down activity barriers between informal areas/ affordable economic opportunity affordable housing areas and centres of housing areas and centres of commercial activity through the location of new commercial activity entrepreneurship opportunity and public facilities.  Provide incentives to assist in breaking down activity barriers between informal areas/ affordable housing areas and centres of commercial activity (e.g. using municipal land).  Prioritise Ou Meule Street in Bredasdorp for integration and entrepreneurship development. Enhanced industrial accommodation Enable industrial expansion in Bredasdorp and Struisbaai (while maintaining Bredasdorp as the key focus for future industrial development). Focus area for public markets Enable the development of a hierarchy of public markets in all settlements, focusing on visible locations along or at the intersection of major routes. Areas for peri-urban agriculture Enable peri-urban culture on commonage surrounding settlements. Areas for densification Residential infill and densification Prioritise infill and densification of all settlements as opposed to lateral growth. and infill Areas for efficient/ Places for clustering public facilities Prioritise existing larger public facilities as the location for public facility clusters in improved access to settlements (e.g. the Thusong Centre in Bredasdorp and Napier Community public services Services Centre.

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Improved landscaping Streets or places where landscaping and Focus landscaping on the main streets of settlements or at the intersection of tree planting should be focused major routes (overlapping with public markets).

Improved public amenity Public recreation places and amenity (e.g.  Explore enhanced recreation access along the coast (specifically north of ablution facilities) Kassiesbaai in Arniston/ Waenhuiskraal, Struisbaai North, and Struisbaai Central (including a continuous NMT route from Struisbaai North to L’Agulhas).  Maintain and upgrade beach amenity (e.g. ablutions, steps, parking areas) while recognising the unique character of places. New New development of New residential development  Focus new publicly assisted housing in Bredasdorp and Napier, while meeting development significant scale backlogs in Struisbaai, Arniston/ Waenhuiskrans, and Elim. actions  While persisting with a strategy of infill publicly assisted housing, commence planning of larger municipal landholdings in Bredasdorp, Napier, and Struisbaai for integrated human settlement.  Ensure that planning for larger municipal land holdings include the needs of the WCG Education Department. New commercial, tourism or public places  Explore new commercial/ tourism related development in Struisbaai and Arniston/ Waenhuiskraal. New routes Continue to establish critical movement links integrating communities and unlocking public development benefit.

68 Cape Agulhas Spatial Development Framework 2017-2022 MAP 12. CAM SDF

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PROPOSALS PER SETTLEMENT AREA

The following sections outline spatial proposals for each of the nine settlement areas in CAM.

3.5.1 Bredasdorp

As indicated in the analytic section of the SDF, Bredasdorp is the primary settlement in CAM, seat of government, and regional services centre. Bredasdorp should be reinforced as the primary settlement in CAM. It is here where most can benefit from investment in higher order facilities and infrastructure. This is specifically important as it is unlikely that CAM will ever enjoy the benefit of a comprehensive government supported public transport system – including specialised routes, vehicles and systems – to enable inter-settlement people movement. User numbers are simply too low and distances between settlements substantial. Thus, significant new settlement growth and development should be focused in the place of greatest opportunity to minimize inter-settlement movement.

While CAM has done well to promote affordable housing in proximity to existing commercial opportunity and public facilities through infill development, housing planning for Bredasdorp, in terms of current land demand estimates, does not meet demand. Further infill development sites would need to be sought to meet the demand, or alternatively, one of the larger housing projects identified for Erf 1148 (Site F1 extended eastwards or Site F2) could be prioritised for implementation for the next five-year period. By incorporating one or both sites, Bredasdorp could meet its projected land demand and have sufficient land “banked” for future development phases as the need arises.

A key proposal for Bredasdorp is to declare Ou Meule Street a “restructuring”, “integration” or “business promotion” zone and provide incentives to assist emergent or previously disadvantaged entrepreneurs to establish businesses which will add to the convenience of adjacent residents and serve to integrate parts of the town.

TABLE 23. BREDASDORP SDF PROPOSALS

STRATEGIC FOCUS SDF ELEMENT PROPOSALS Protective Natural/ ecological CBAs, ESAs, Protected Areas and  Protect CBAs, ESAs, and Heuningnberg Nature Reserve from development. actions elements to be watercourses  Resist any development within the river corridor or 1:100 year floodline. protected Agricultural land  Maintain the productive capacity of agricultural land surrounding the town as far as is possible. Urban edge  Maintain a tight urban edge around the existing footprint of the settlement. Coastal management line and risk zones  - Landscape and Scenic landscapes, scenic routes, and  Maintain the current sense of arrival to the settlement from Napier. settlement elements special places of arrival  Carefully consider the visual impact of any future development on Re Erf 1148 south of to be protected Long Street at the Napier entrance to the town.

70 Cape Agulhas Spatial Development Framework 2017-2022 STRATEGIC FOCUS SDF ELEMENT PROPOSALS Historic and culturally significant  Maintain the rural town character of Long Street (with active street frontages facing the precincts and places street).  Maintain the character of the old town structured around Long Street and All Saints Road. Change actions Areas or places to be Informal settlements/ affordable housing  Progressively upgrade Phola Park (while considering the impact of the adjacent landfill). upgraded areas Area for enhanced Integration areas between informal  Declare Ou Meule Street a “restructuring”, “integration” or “business promotion” zone economic areas/ affordable housing areas and and provide incentives to assist emergent or previously disadvantaged entrepreneurs to opportunity existing centres of commercial activity establish businesses which will add to the convenience of adjacent residents and serve to integrate parts of the town. Enhanced commercial or industrial  Declare Ou Meule Street a “restructuring”, “integration” or “business promotion” zone. accommodation for user convenience,  Enable further industrial development on Erf 1148. entrepreneurship development, and  Accommodate the proposed Agri-hub on municipal land adjacent to and north of the work opportunity. R319. Focus area for public markets  Consider small public market spaces at serviceable places along major routes and the intersections of major routes (Long Street, Church Street, Dirkie Uys Streets, All Saints Street, and Ou Meule Street). Areas for peri-urban agriculture  Reserve areas to the east of the existing settlement for peri-urban agriculture. Areas for Residential infill and densification  Continue to target the broad area east of Recreation Road and the R316 (with Ou densification and infill Meule Road as a central route) for infill publicly assisted housing development.  Allow sensitive densification of residential fabric in older parts of Bredasdorp subject to the general height and character of surrounding development.  Consider limited infill development along the edges of the Sports Grounds (subject to detailed precinct planning). Areas for efficient/ Places for clustering public facilities  Develop Erf 3546 as a public facility cluster (focused on the Thusong Centre). improved access to  Cluster new sport facilities serving a municipal-wide function at the existing sports public services ground abutting the R316 and R319. Improved Streets or places where landscaping and  Focus tree planting along the main routes of the settlement: Long Street, All Saints Road, landscaping tree planting should be focused and Ou Meule Street. Improved public Public amenity (e.g. ablution facilities)  Provide public amenity in association with market facilities. amenity and easy access New New development of New residential development  Consider Erf 1148 (Site F2) and the Re Erf 1148 east of the R319 and south of the R316 development significant scale (Site F1) for future settlement expansion and the longer term publicly assisted housing actions expansion needs of Bredasdorp (subject to detailed planning, including housing mix, public facility provision, and linkages to the existing town). The planning of Site F1 should be sensitive to the golf course. New commercial, tourism or public  Should plans to establish a OD Agri-hub in Bredasdorp materialise, the best location places (depending on the extent of land required and detailed logistical needs) appears to be the Re Erf 4102, Re Erf 1148, and Erf 4746, north of the R319 and east of Fabrieks Road.  Stimulate new commercial development along the Ou Meule Street “restructuring”, “integration” or “business promotion” zone. New routes -

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