Conceiving, Producing and Managing Neighbourhoods
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EXECUTIVE SUMMARY GCRO OCCASIONAL PAPER # NO. 14 Conceiving, producing and managing neighbourhoods COMPARING URBAN UPGRADING INITIATIVES IN JOHANNESBURG MAY 2019 Researched and written by Thembani Mkhize and Aidan Mosselson 1 A Partnership of: CONCEIVING, PRODUCING AND MANAGING NEIGHBOURHOODS: COMPARING URBAN UPGRADING INITATIVES IN JOHANNESBURG May 2019 All images unless stated: Alet Pretorius e-ISBN: 978-0-6399873-1-6 Copyright 2019 © Gauteng City-Region Observatory ISBN: 978-0-6399364-5-1 Published by the Gauteng City-Region Observatory Written by: Thembani Mkhize and Aidan Mosselson (GCRO), a partnership of the University of Design: Breinstorm Brand Architects Johannesburg, the University of the Witwatersrand, Cover Image: Alet Pretorius Johannesburg, the Gauteng Provincial Government Peer reviewer: Gordon Pirie and organised local government in Gauteng (SALGA). Conceiving, producing and managing neighbourhoods Comparing urban upgrading initiatives in Johannesburg ACKNOWLEDGEMENTS The authors would like to thank all those who research project, as well as to Richard Ballard for contributed to our research and kindly shared their his encouragement and oversight. Particular thanks time and experiences with us. This occasional paper also go to our GCRO colleagues Samy Katumba and would not have been possible without the cooperation Mncedisi Siteleki for creating the maps which appear of officials from the Johannesburg Development in this report. Agency, representatives of the Ekhaya Residential City GCRO would like to thank Dr Gordon Pirie who, Improvement District and the Norwood and Orchards as anonymous peer reviewer, provided valuable input Residents’ Association, and several informal traders that helped shape and sharpen the content. We also and car guards working in Hillbrow and Norwood. thank Hazel Cuthbertson for her careful copy editing We are also grateful to Claire Bénit-Gbaffou who of the work. participated alongside us in the Norwood leg of the GCRO OP#14 | CONCEIVING, PRODUCING AND MANAGING NEIGHBOURHOODS Contents Figures ..................................................................................................................................................................................................................................................4 Acronyms and abbreviations ......................................................................................................................................................................................................5 EXECUTIVE SUMMARY ......................................................................................................................... 8 INTRODUCTION.................................................................................................................................... 12 Key research questions .....................................................................................................................................................................................................12 Methodology ...........................................................................................................................................................................................................................14 Background .............................................................................................................................................................................................................................14 CONCEIVING NEIGHBOURHOODS: ENVISIONING URBAN CHANGE .................................................. 22 Upgrading process in context ........................................................................................................................................................................................22 Major actors ............................................................................................................................................................................................................................25 Neighbourhood visions .....................................................................................................................................................................................................27 Implications ...........................................................................................................................................................................................................................30 PRODUCING NEIGHBOURHOODS: BRINGING VISIONS TO LIFE ......................................................... 34 Demarcating the neighbourhood .................................................................................................................................................................................34 Materiality ..............................................................................................................................................................................................................................38 Interventions .........................................................................................................................................................................................................................41 Implications ...........................................................................................................................................................................................................................46 MANAGING NEIGHBOURHOODS: EVERYDAY GOVERNANCE ............................................................. 50 Institutionalising management ...................................................................................................................................................................................50 Adaptive everyday governance .....................................................................................................................................................................................54 Social conflict and exclusions ........................................................................................................................................................................................59 Implications ...........................................................................................................................................................................................................................63 KEY FINDINGS AND CONCLUSIONS ..................................................................................................... 66 Managing public–private partnerships ....................................................................................................................................................................66 Difficult compromises .......................................................................................................................................................................................................66 Localised urban management strategies .................................................................................................................................................................67 Governing change at different scales .........................................................................................................................................................................67 References ............................................................................................................................................................................................................................................69 About the authors .............................................................................................................................................................................................................................75 2 3 GCRO OP#14 | CONCEIVING, PRODUCING AND MANAGING NEIGHBOURHOODS Figures Figure 1: Location of Hillbrow and Norwood .....................................................................................................................................................................13 Figure 2: The Ekhaya neighbourhoods relative to Greater Hillbrow ....................................................................................................................17 Figure 3: Location of the Grant Avenue Precinct .............................................................................................................................................................19 Figure 4: Clusters of buildings forming the Ekhaya South RCID ............................................................................................................................35 Figure 5: Objects and materials used to test planning and design concepts in Norwood ............................................................................39 Figure 6: The amenities, recreation activities and management partnerships of Ekhaya Park ..............................................................42 Figure 7: The current state of Norwood Park (aerial view) ........................................................................................................................................44 Figure 8: Initial design for upgraded Norwood Park ......................................................................................................................................................45