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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1

SUSTAINABLE LAND USE AND DEVELOPMENT: PERSPECTIVE ON COSMO CITY, JOHANNESBURG,

George Okechukwu Onatu Faculty of Engineering and Built Environment Department of Town and Regional Planning University of Johannesburg Doornfontein Campus

Abstract The rapid growth in housing demand since 1994 represents a mammoth task for both the present and future housing policy in South Africa. The new Developmental Local Government in an effort to address this challenge has placed high premium to informal settlement formalization and mixed income housing development. The rationale behind these two approaches is to address urban poverty, segregation and redevelopment. The goal of this paper is to appraise mixed income housing development as it relates to sustainable land use with the objective towards integration along racial and social grounds. The problem associated with South African housing policy in creating separate residential development based on income group has reached a crisis point in addressing housing challenge facing the country. The poor remain located on the peripheries of the cities where the land is cheap and far from their places of work and have to travel long hours to and from work. The City of Johannesburg is characterized by fragmented housing development that lack harmonious integration and this impact on infrastructural provision and access to job opportunities. Hence, this investigation tends to appraise the development of mixed income housing development in addressing these challenges. This investigation will be based on an exploratory research and will reviewing the success and challenges of mixed income housing development. Both published and unpublished literatures were equally use in this study as well as focus group discussion and interview with the beneficiaries as well as the principal developers and City of Johannesburg representatives. Integration of the poor into the urban system is achievable with effective and efficient Public Private Partnership. Key words: Sustainable land use, Mixed income housing strategy, Public Private Partnership and Poverty alleviation.

INTRODUCTION a city and its sustainability. However The search for the ultimate sustainable consensus is lacking about the exact nature urban development and form perhaps now of this relationship in urban studies debate needs to be reoriented to the search for a (Williams, et al, 2000). The relative number of sustainable urban forms which sustainability of, for example, high and low respond to a variety of existing settlement urban densities, or centralized and patterns and contexts (Jenks, et al, decentralized settlements is still disputed. 19996:345). Studies have shown that the Certain urban forms appear to be more form of a town or city can affect its sustainable in some respects, for example in sustainability. It is widely accepted in the reducing travel, or enabling fuel efficient field of urban planning and related built technologies, but detrimental in others, environment that a relationship exists perhaps in harming environmental quality or between the shape, size, density and uses of producing social inequality. To help to

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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1 understand what sustainable land use and Proponents of mixed-income housing at urban development means it is imperative to another angle posit that economic diversity understand the concept of sustainable within a neighbourhood would automatically development and then relate this to specific enhance community interaction and improve urban form. The most widely definition of neighborhood characteristics (Cole & sustainable development is that of the Goodchild, 2001; Joseph, 2006; Kleinhans, WCED (1987) , which describes it as 2004). Early studies on mixed-income development which is capable of meeting housing initiatives were guided by the today‟s needs without compromising the general hypothesis that enhanced ability of future generations to meet their neighborhood conditions-physical, political, needs. This definition contains inter- and socioeconomic-translate into public generational equity and social justice, as goods that were broadly distributed across well as environmental awareness (Haughton all households (Fraser & Nelson, 2008). and Hunter, 1994 cited in Williams, 2000: 3). Studies has shown that mixed-income In view of this definition we now see housing does not automatically produce ourselves being confronted with the these hypothesized neighborhood-and question, “How do policy makers achieve household-level outcomes both in the U S the objective of building a sustainable city (Collins, et al.2005; Kleit, 2001; Popkin et al. using a mixed-income housing 2004; Salama, 1999 and Varady et al. 2005). development”? This is the critical question that lies at the heart of this research. We DeFilippis and Fraser (2008:2 cited in Onatu, shall tackle this question not in a 2010) in reaction to these findings question straightforward manner; instead we the premises on which mixed-income approach it by reviewing a specific land use housing and neighbourhood (MIHN) policy development strategy the mixed-Income were always based on the above stated housing project. The argument in using this reasons as they found themselves attracted case example is not to justify it as the only to the „ideal”, in theory, but frustrated by its ideal model but to serve as one of the reality in “practice”. According to their pathways towards achieving sustainable research, these policies tend to „leave poor city. According to Guy and Marvin (2000 people in places without the social networks cited in Williams, et al, 2000) the and informal social support of prior achievement of sustainable cities is a neighbourhood‟ (ibid: 10). Poor urban process and not the result of implementing a neighbourhood is noted to have dense particular model. networks of social support that have been created out of necessities because services Mixed-income housing development that are commodities in wealthy strategy has attracted the attention of many neighbourhood (childcare, for instance) scholars and also feature in many policy must be negotiated as non-commodified documents, namely, (Department of when the participants do not have money. Housing South Africa, 2005; Duda, 2005; They noted that mixed-income policies have Fraser & Nelson, 2008; Hoek-Smit, 2002; failed to create social mixing, networks, Huchzermeyer, 2005; Marshall, 2005; interaction as well as institutional services Milligan, et. al, 2004; Smit et.al, 2006;). and capacities. Being in close proximity These scholars points out that mixed- need not engender interaction, and when it income housing development is an does, that interaction may mean conflict as innovative approach to housing delivery that much as anything else. It is unclear whether provides a mixture of housing products to or not the physical proximity of the rich and suit low income earners, middle income poor will lead to the rich even earners as well as high income earners. acknowledging, let alone understanding or

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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1 trying to understand the poor (De Filippis & income housing development hits the Fraser, 2008:10). Using as example US market. "Jerusalem", in Fairland, Department of Housing and Urban northwestern Joburg, will see lower- income Development‟s (HUD) HOPE 1V program, earners living side by side with more Fraser & Nelson (2008) noted that mixed- affluent homeowners. The plan is to build income developments can reduce the 187 houses on 9.3ha of council-owned land. incidence of social problems related to Social housing units would take up 30% of concentrated poverty while providing the development. The 55m² social housing opportunities for low-income households to units will feature two bedrooms, a kitchen, gain access to better neighborhoods. bathroom and living room. They will be Placed-based mixed-income housing rented out for R1, 500 to R2, 000 a month to initiatives they argue can play a role in families earning between R3, 500 and R7, creating a foundational environment in 000 a month. The other units, which will which other poverty ameliorating strategies make up 70% of the development, are can be more successful (e.g. Welfare to expected to sell at over R1.5- million. Work, Jobs Plus). Initially, residents were extremely concerned about the original proposals for Schwartz and Tajbakhsh (1997) found that an extensive low-cost housing development mixed-income represent the current in their area. Francois Viruly (2007) in direction of U.S. Housing policy, but caution commenting on this development stated that that little is actually known about its social "The only issue that we need to watch out benefits, its costs, and the preconditions for for is that we build such units in areas where its viability. According to their findings, there is sufficient infrastructure. research on mixed-income housing is Mixed income housing development necessary to determine the extent to which according to some analyst can have reducing the concentration of poverty can important role in getting additional also reverse the social problems connected affordable units built, ensuring high quality to poverty. Mixed-income housing are housing and deconcentrating poverty created through four different context, (http://www.knowledgeplex.org). namely, density bonuses and other land-use Notwithstanding the benefits, they further regulations, special public housing noted that mixed income housing is not the programs and initiatives, State and Local silver bullet to overcome the difficult housing programs, and nonprogrammatic challenges faced by families seeking to mixed-income housing (private individuals escape from poverty or realities of housing and organizations building and sustaining markets. This is because mixed income mixed-income housing outside of any housing developments are complex, present institutional framework that specifically unique risks, and often house fewer needy promotes such housing) (Schwartz& families than other type of development. Tajbakhsh, 1997:17). Contextual factors at local, state and federal levels all impact mixed-income housing Mahlangu (2007) in describing mixed- development as these projects typically income housing strategy in South Africa involve complicated multi-level coordination noted that small rental units to go alongside (Fraser & Nelson, 2008 cited in Onatu, bigger houses. South Africa's first mixed- 2010). APPROACH AND METHODOLOGY This paper looks at an attempt by the City of neighbourhood through mixed income Johannesburg to co-opt residents of residential development strategy. Research informal settlement into formal shows that isolation and poverty combine to

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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1 produce other disadvantages for what are the expected outcomes and how neighbourhood residents leading to a host can it improve the quality of life and of negative outcomes (Coulton et al, 1996; prospects of low-income families? This Ellen and Turner, 1997; Jenks and Mayer, research is based on the review of relevant 1990; Land et al, 1991; Taylor and literature, field recognizance survey, Covington, 1993). Although the term „mixed- interview with developers and official of City income housing development (inclusionary of Johannesburg and synthesizes of Shift housing)‟ is becoming widely used, there workshop research document on Cosmo remains certain gap and many open City. questions about how best to implement it,

HISTORICAL CONTEXT The cornerstone of the post -1994 housing subsidies, institutional subsidies, rural policy was a new Housing Subsidy Scheme subsidies and people‟s housing subsidy. with a once-off capital subsidy target at the Many housing practioners consider South „poorest of the poor‟ (Tomlinson, 2006: 88 Africa‟s housing programme to be one of the cited in Onatu, 2010). The government most successful of any country in history housing subsidy is a grant that the (Gardener, 2003:7). The publicly stated government gives to South African citizens target was to develop one million subsidized or permanent residents who need help to houses within five years. On average 470 get a house of their own. Beneficiaries are housing units were delivered in South Africa not expected to pay it back, but it is not every day between May 1994 and May 2002 money in your hand. The money goes to the (Rust, 2003), affecting the lives of over 6 developer or builder to help you pay for your million people. According to one analyst, land or your house. A developer can be a nowhere in the developing world have private company, the local authority or a countries committed such vast resources to community organization. The housing providing free or subsidized houses for the subsidy scheme is divided into different poor like South Africa (Sunday Times, categories, namely, project-linked 2007:20). subsidies, individual subsidies, consolidated

BREAKING NEW GROUND AND SUSTAINABLE HUMAN SETTLEMENT This is a comprehensive housing plan for the housing, medium-density accommodation development of integrated sustainable and rental housing as well as stronger human settlement introduced by the partnership with the private sector; social government in September 2004 in view of infrastructure and amenities. Building oversight by the government in promoting multicultural communities in a non-racial the residential property market society also aim the plan at changing the (http://www.info.gov.za). Slow delivery on spatial settlement pattern through state new government-subsidized low-cost housing. This national policy on informal housing is often put forward as the cause of settlement upgrading developed in the continuous persistence of informal response to international campaigns and settlement. It is an approved government out of government commitment to housing programme in the next five years international agenda (Huchzermeyer, et.al, that includes the development of low-cost 2004).

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Key strategic priorities are: While the above comprehensive housing programme notes the continued relevance 1. Accelerating housing delivery of the state housing programme introduced in 1994, it flags the need to redirect and 2. Improve the quality of housing enhance various aspects of policy, and products and environment to ensure asset commits the Department of Housing to creation meeting a range of specific objectives which 3. Ensure a single, efficient formal is basically the creation of sustainable housing market human settlement (DoH, 2005: 4).

4. Restructure and integrate human settlements.

INTEGRATED RESIDENTIAL SETTLEMENT that provide convenience access to urban PROGRAMME (IRSD) amenities, including places of employment. One of the key lessons learnt in the review The programme aimed at creating social of the outcome of housing programme sine cohesion. The integrated residential 1994 is that, owing to a variety of reasons, development programme (IRDP) provides low-income settlements continue to be for the acquisition of land, servicing of located on the urban periphery without the stands for a variety of land uses, including provision of social and economic amenities, commercial, recreational, schools and as in the apartheid era (DHS, 2009). Hence a clinics as well as residential stands for both new programme has been introduced to low, middle and high income groups. The facilitate the development of integrated land use and income mix is based on local human settlements in well-located areas planning and need assessment (DHS, 2009).

CRITERIA FOR ASSESSMENT . Lawfully reside in South Africa or . Single person must have financial permanent resident holders. dependant. . A legally competent person to The Programme also provide for the contract or declared competent by a creation of non-residential stand such as court of law. . Neither the applicant nor his or her . Institutional stand- Police stations, spouse has previously benefited schools and clinic from government housing assistance . Businesses and Commercial stand . Have not owned fixed residential . Churches, Creche and Nursery property before. . Parks and Community facilities . Must be married or habitually cohabit.

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HOUSING SUBSIDY QUANTUM

SUBSIDY PROGRAMME SUBSIDY AMOUNT

R0 TO R3,500.00 ,706.00

Enhanced People Housing Process

R0 TO R3,500.00 R55,706.00

Rural Subsidy

R0 TO R3,500.00 R54, 906.00

Farm Resident Subsidy

R0 TO R3,500.00 R54, 650.00

Consolidated Subsidy

R0 TO R3,500.00 R54,906.00

Institutional Subsidy

R0 TO R3,500.00 R52,472.00

Individual Subsidy

R0 TO R3, 500.00 R84,000.00

(Source: DHS, 2009)

MIXED INCOME HOUSING DEVELOPMENT: people. It is located north of R512 road and IN COSMO CITY, JOHANNESBURG falls under Peri-Urban Land Use Zoning. The Cosmo City emerged out of an urgent need choice of the location for mixed-income to provide accommodation for the informal housing project has been found to be of settlers of Zevenfontein and Riverbend who central important for economic viability. had been illegally occupying privately Finkel et al. (2000) noted that if a site is owned land 25km North West of the convenient and attractive, higher-income Johannesburg CBD. These informal residents will be drawn to the newly built settlements were characterized by residence, especially if there is availability substandard living conditions with limited homeownership. access to basic services (Cowden, 2006 Cosmo City is very accessible and well cited in Onatu, 2010). The socio-economic located. It is a Greenfields development profile of both communities is based on low commissioned by the City of Johannesburg income levels, high unemployment rates and in conjunction with the Provincial low educational levels amongst other Housing Department (Cowden, 2006: 1). The breadline issues (Myburg, 2009). The idea project was conceptualized to stand out as a was that Cosmo City would create jobs and mixed-income residential development stimulate local economic activity for these where people of different income groups

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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1 live in the same area utilizing similar syndrome which plagues spatial distribution amenities. The projects have been driven of human settlement throughout South with so many difficulties, especially from Africa (Luc Limacher, 2009 cited in Onatu, surrounding neighbours who waged series 2010). The project was announced in 1997 of legal battle that the development will but only commenced in 2005. Cosmo City devalue their properties tends to demonstrate that the supply led (www.worldbank.org/southafrica). The approach to housing delivery can be as slow delay in this project also centers on NIMBY as compared to demand-led approach. The objectives of the development are:

. To be the first green-field consideration, economic developments that will endeavour to consideration and social comply with integration and responsibility sustainability principles as per . To make a statement towards government policies and legislation integration along racial and social . To assist in meeting the pressing grounds and negative perceptions demand for housing in the north- that exists around such integration western part of the City of . To make a political inroad in the Johannesburg resolving the conflict access of the poor to formal urban between environmental system.

Project Description and Planning The project is located on 1100 hectares of partner to this section of the project land with vast wetland and Zandspruit river providing „step up‟ loans and the cutting through the site. Work started on- Department of Housing will provide site on January 2005 and due to the vast the subsidy. 1000 – social housing size the project was divided into phases. It rental units (income group R1, 500 – comprises of: R9, 670) still under construction . 5000 – low income houses (income . 3, 300 – bonded houses ( open group R0-R3,500.00) with 1504 market) completed and each unit is 36m2 of . 12 – Schools floor space and consists of 2 . 40- sites for churches, clinics and separate bedrooms, bathroom space crèches with a flush toilet and a living area. . 43 – parks and recreational sites This are known as RDP houses. . 30- commercial and retail centre . 3000 – Financed credit linked houses . 40ha – industrial park (income group R3, 501 –R9, 670) 702 . 300ha – environmental areas completed. Subsidies are provided for people earning up to R7000.00. First National Bank (FNB) is a

Social benefit effect of the development In looking at Cosmo City one of the income groups residing here? Although questions that have always come to mind is shortcomings of public housing and other the social benefit. Does the project benefit projects have been noted in the literature the life chances of low-income residents? but little research is available on the social What is the social interaction of the various benefit of residents of mixed-income

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Jan-Mar 2012 Journal of Sustainable Development and Environmental Protection Vol.2 No.1 housing development (Schwartz and going to the same school with other children Tajbakhsh, 1997). In Cosmo City there are from rich family living in bond houses”. The three schools. Two primary and high school three parks equipped with various with recreational facilities. These schools recreational facilities for children such as cater for the low-income earners and basketball court, swings and cricket nets middle-income earners as well as residents serve all the community. The Hotel School is living in the 5000 RDP „give away‟ housing one of the unique social institutions in units provided plus high income earners Cosmo catering for this diverse community. living in bond houses and social housing There is also housing support centre that schemes. According to one Sibongile „My provide information and assist the children living with me in RDP house are community on any issue.

Social Amenities All the development has ample space for developments is access to safe and high- parking on site. 5% of the subsidies quality schools (Varady et al. 2005). Three allocated to this project is reserved for parks were funded by the Johannesburg disabled and 5% for right sizing (Zack et al, City Parks and are equipped with various 2005). Three schools have been completed; amenities, such as basketball court and two primary schools and one high school cricket net. An informal trading area is and both have been handed over to the provided in the vicinity of the low-income Department of Education. Brophy and Smith areas to allow them to continue with income (1997 cited in Onatu, 2010) find that the generating activities. There is a site provision of attractive, onsite amenities and designated for the establishment of services will assist in drawing a critical churches and a catholic church is already mass of upper-income residents. One up and functioning in Extension 0. It does amenity that researchers find as a pre- not have a functional police station but requisite for drawing upper-income presently uses the service of nearby residents with children to mixed-income Honeydew Police Station (Onatu, 2010).

Community Participation Developing municipal understanding of are governed by a representative leader community needs and priorities is noted to who represents them at periodic general enhance a lot early opportunity to promote meeting with the managing developers. At community participation. This is noted at such meeting issues affecting various early stage of the development of this extensions are discussed and problems are project as we discovered. Through this resolved. House rules as it applies to strategy as noted by Plummer (1999) regulations, right and obligation of all problems are identified, needs are assessed residents are communicated to these and partnership can be formed with representatives. This umbrella group of communities to collect information. This is extension leaders forms an important noted to provide ample platform to instrument to help monitor and report collecting information increases important issues that the Developers might understanding and build strong community not notice in their routine checks on each confidence and capacity. site. One of the success of Cosmo City is the level of participation as each of the extensions

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Challenges The informal activities poses a lot of budgetary cut witnessed by the project is challenge to the City council as the also of major concern to the project team. proliferation of this if not controlled might There is high visibility of road widening result to slum and impact on the observed in most part of the area around the sustainability of the project. One other project site meant to address the increase challenge is the problem of fountain and in volume of vehicles as a result of this poor geological structure of the soil that project. impact on the neighborhood. The series of

CONCLUSION AND RECOMMENDATION Mixed-income housing development as South Africa. Mixed income housing has the shown in this study incorporating various ability to deal with South African highly socio-economic grouping has portrayed an segregated built environment as access to element of the use of settlement to aim at land is a very big issue and to acquire prime sustainable development. Private sector land for the location of the RDP houses is participation in housing development should very difficult. The success of Cosmo City is be encouraged as most local authorities are the appropriation of land by the City of struggling in terms of finance to address Johannesburg from private developer and socio-economic issue and service delivery. this brought down the development cost. Integrated sustainable human settlement The need for intersectoral collaboration can be developed without compromising cannot be overemphasized in view of the and infringing on people‟s comfort. There is project. There is need to further research on need to strengthen the inclusion of mixed the extent to which land use regulation income (inclusionary housing) as a policy to policies are monitored and adhered to by form part of the Housing code chapter in residents of this community.

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