The Underbelly of the Berea: Challenges to Orthodox Planning For
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The underbelly of the Berea: Challenges to orthodox KAROLO E SENG NTLE/E SENG planning for the creation of sustainable suburban HANTLE YA BEREA: DIPHEPETSO TLHOPHISONG / TOKISETSONG neighbourhoods in South Africa YA TOKA “ORTHODOX PLANNING” BAKENG SA HO Robynne Hansmann, Gilberte Lincoln & Godfrey Musvoto THEA/BOPA DITIKOLOHO TSE NANG LE BOTSITSO http://dx.doi.org/10.18820/2415-0495/trp72i1.2 DITOROPONG KA HARE HO Peer reviewed and revised January 2018 AFRIKA BORWA *The authors declared no conflict of interest for this title or article. Ntshetsopele e tsitsitseng ya tikoloho ke ngongoreho ya molao wa lefatshe wa hlophiso/tokisetso ya setoropong Abstract bakeng sa mongwahakgolo wa “21st Sustainable neighbourhood development is a global urban planning policy concern century”. Karolong e ka Borwa ya st for the 21 century. In the global South, these concerns persist alongside increasing lefatshe, dingongoreho tsena di tswella population and poverty levels in cities. In South Africa’s established former apartheid pele mmoho le ho eketseha ha setjhaba neighbourhoods, the challenges of creating sustainable neighbourhoods from the le maemo a bofutsana ditoro pong. current post-colonial neighbourhood are unclear and contradictory. Former largely mono-functional suburban neighbourhoods of the apartheid period are undergoing Ditikolohong tsa kgale tsa kgethollo Afrika changes in form, function and demography. Using the case of Berea suburban Borwa; diphepetso tsa ho etsa ditikoloho neighbourhood in the metropolitan city of eThekwini (Durban), the article explores tse nang le botsitso ho tswa ho ditikoloho the responsiveness of orthodox land-use planning to sustainable neighbourhood tsa hajwale tsa ka mora bokolone, change from 1994. It focuses on a historical review of orthodox planning vis-à-vis ha di a hlaka, hape di a hanyetsana. recent policy and land-use change dynamics in the Berea. Data used include a Ditikoloho/dibaka tsa metseto ropo tsa content analysis of the Berea General Plans from 1857, Town Planning Schemes nakong ya kgethollo, tseo e neng e le and related documents, purposively selected interviews, observations, GIS mapping tsa bodulo feela (mono-functional), di of planning applications, and analysis based on South African demographic fetoha sebopeho, le tshebediso ya tsona census data from 2001 to 2011. The article concludes that former largely mono- le bongata ba batho “demography”. Re functional orthodox suburban neighbourhood planning is insufficiently responsive to sebedisa mohlala wa tikoloho ya Berea heterogeneity trends on the Berea. toropo e kgolo ya eThekwini (Durban), Keywords: Informality, neighbourhood change, orthodox planning, planning policy, atikele ena e hlahloba karabelo ya thero/ physical form and function, sustainable neighbourhood planning tokisetso ya tshebediso ya lefatshe ka mokgwa wa toka “orthodox” bakeng DIE ONDERBUIK VAN DIE BEREA: UITDAGINGS AAN ORTODOKSE sa phetoho e tsitsitseng ya tikoloho ho BEPLANNING VIR DIE SKEPPING VAN VOLHOUBARE SUB-STEDELIKE tloha ka 1994. E tsepamisa mohopolo WOONBUURTE IN SUID-AFRIKA hodima tlhatlhobo ya nalane/histori Die ontwikkeling van volhoubare omgewings is ’n bekommernis vir globale stedelike ya thero/tokisetso ya toka “orthodox”, beplanningsbeleid vir die 21ste eeu. Hierdie bekommernisse tesame met groeiende ho fapanyetsana le molao wa hajwale bevolking en vlakke van armoede in stede duur voort in die globale Suide. In Suid-Afrika le dikarolo tsa phetoho ya tshebediso se gevestigde voormalige apartheidswoonbuurte, is die uitdagings vir die skep van ya lefatshe, Berea. Pokello ya dintlha volhoubare buurte vanuit die huidige post-koloniale omgewingsveranderingsdinamika (data) e sebedisitsweng e kenyelletsa onduidelik en teenstrydig. Voormalige hoofsaaklik mono-funksionele voorstedelike tlhatlhobo ya dikahare tsa Berea General woonbuurte van die apartheidstydperk ondergaan tans veranderinge in vorm, Plans ho tloha ka1857, Town Planning funksie en demografie. Met behulp van die Berea-gevallestudie in die sub- Schemes le ditokomane tse amehang, stedelike omgewing in die stad van Durban ondersoek die artikel die reaksie van dipuisano tse kgethilweng ka boomo, ortodokse grondgebruikbeplanning vir volhoubare omgewingsverandering vanaf ditlhokomediso, mmapa wa GIS bakeng 1994. Dit fokus op ’n historiese oorsig van die ortodokse beplanning vis-à-vis die sa dikopo tsa hlophiso le tlhatlhobo e huidige dinamikabeleid en grondgebruikverandering in Berea. Data wat gebruik is, sluit in ’n tydreeksanalise van die Berea grondgebruikskema van 1857 tot die itshetlehileng hodima pokello ya dintlha hede, doelgerigte geselekteerde onderhoude, waarnemings, GIS-kartering van tsa palo ya setjhaba (census data) ho beplanningsaansoeke, en analise gebaseer op Suid-Afrikaanse demografiese tloha ka 2001 - 2011. Atikele ena e qeta sensus data vanaf 2001 tot 2011. Die artikel dui aan dat voormalige hoofsaaklik ka hore thero/tokisetso ya tikoloho ya mono-funksionele ortodokse sub-stedelike omgewingsbeplanning onvoldoende motsetoropo wa kgale o neng o na le reageer op heterogeniteittendense op Berea. tshebediso e le nngwe ya bodulo feela Sleutelwoorde: Beplanningsbeleid, fisiese vorm en funksie, informaliteit, omgewings- (mono-functional) o ikarabella ka matla verandering, ortodokse beplanning, volhoubare omgewingsbeplanning mekgweng e sa tshwaneng, Berea. Ms Robynne Hansmann, Department of Town and Regional Planning, Durban University of Technology, PO Box 1334, Durban, 4000, South Africa. Phone: 0313732666, e-mail: <[email protected]> Gilberte Lincoln, Department of Town and Regional Planning, Durban University of Technology, PO Box 1334, Durban, 4000, South Africa. Phone: 0313732220, e-mail: <[email protected]> Dr Godfrey Musvoto, Department of Town and Regional Planning, Durban University of Technology, PO Box 1334, Durban, 4000, South Africa. Phone: 0313732665, e-mail: <[email protected]> 13 SSB/TRP/MDM 2018 (72) 1. INTRODUCTION management shapes the dynamics of as “the new philosophy, in which This article critiques the legacy of urban transformation. The normative principles of futurity, equity, global orthodox modern neighbourhood principles, articulated in policy environmentalism and biodiversity planning in the context of post- and legislation have been critically must guide decision-making” apartheid South Africa suburban assessed, including the eThekwini (Andrew, 1995: 109). Sustainability neighbourhood change and Integrated Development Plan, the is a normative concept to guide planning. Using the Berea suburb Spatial Development Framework future action, and is often referred in the metropolitan city of eThekwini Report 2013/2014 (eThekwini to as the “triple bottom line”, which (Durban), the case study explores the Metropolitan Municipality, 2012), considers environmental quality, responsiveness of neighbourhood the Spatial Land Use Management economic prosperity and social scaled orthodox planning to Act (No. 16 of 2013) (RSA, 2013), justice and, more recently, expanded post-apartheid sustainable city- in which the principles of integrated definitions argue for the inclusion of planning policies and dynamics. sustainable development and the governance domain (Yigitcanlar The Berea, some 2000 hectares, compact city are articulated. & Kamruzzaman, 2015: 14679). The latest addition is the United located adjacent to the west of the This article provides a literature Nations 2030 Agenda for Sustainable Inner City, is a former apartheid review focusing on the background Development, which declares that neighbourhood in the city of Durban of the study, highlighting the extreme poverty, environmental which falls under the planning domains of orthodox planning degradation and climate change can and administrative jurisdiction of and sustainable neighbourhoods. only be tackled through implementing present-day eThekwini Metropolitan An outline of the South African and the Sustainable Development Goals Municipality. Typical of South African eThekwini Municipality sustainable (SDG) (Stewart, 2015: 289). suburban neighbourhoods developed neighbourhood planning policy during the colonial and apartheid context follows. The interplay of the Pieterse (in Bruyns & Graafland, era, urban planning of the Berea eThekwini Municipality, as regulator 2012: 52-53) argues for definitions was based on modern ‘orthodox’ of development and land use, that focus on sustainable lives suburban planning principles that through schemes, market forces, and livelihoods that are open to were infused with racial segregation and what lies in between, creates the local context and the “potential of and class stratification, resulting in backdrop. Finally, the methodology, sustainable urban development”, enduring urban and neighbourhood findings, discussion of findings and rather than the prescripts of “world spatial inequalities. recommendations are presented. class cities”. Pieterse and others From 1994, planning in the city This paper identifies the conflicts (Parnell & Pieterse, 2010: 158; Schensul & Heller, 2011a: 26-27; of Durban and the Berea, in of residual orthodox planning Brenner, Marcuse & Mayer 2012: 39; particular, occurs in the context of instruments in practice following Harrison & Todes, 2015: 158) Integrated Development Planning the paradigm shift and changing caution of advancing integrated (IDP). As a process, IDP is a local assumptions from orthodox planning sustainable development in the policy manifestation of Agenda 21, to normative, sustainable planning. context of a highly exploitative