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The Challenge of Informal Settlement Upgrading Breaking New Ground in Hangberg, Cape Town?

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The Challenge of Informal Settlement Upgrading Breaking New Ground in Hangberg, Cape Town? Universität Potsdam Daniel Ehebrecht The Challenge of Informal Settlement Upgrading Breaking New Ground in Hangberg, Cape Town? Potsdamer Geographische Praxis // 7 Potsdamer Geographische Praxis Potsdamer Geographische Praxis // 7 Daniel Ehebrecht THE CHALLENGE OF INFORMAL SETTLEMENT UPGRADING Breaking New Ground in Hangberg, Cape Town? Universitätsverlag Potsdam Bibliografische Information der Deutschen Nationalbibliothek Die Deutsche Nationalbibliothek verzeichnet diese Publikation in der Deutschen Nationalbibliografie; detaillierte bibliografische Daten sind im Internet über http://dnb.de/ abrufbar. Universitätsverlag Potsdam 2014 http://verlag.ub.uni-potsdam.de Am Neuen Palais 10, 14469 Potsdam Tel.: +49 (0)331 977 2533 / Fax: -2292 E-Mail: [email protected] Die Schriftenreihe Potsdamer Geographische Praxis wird herausgegeben vom Institut für Geographie der Universität Potsdam. ISSN (print) 2194-1599 ISSN (online) 2194-1602 Das Manuskript ist urheberrechtlich geschützt. Gestaltung: André Kadanik, Berlin Satz: Ute Dolezal Titelfotos: Daniel Ehebrecht Druck: docupoint GmbH Magdeburg ISBN 978-3-86956-300-8 Zugleich online veröffentlicht auf dem Publikationsserver der Universität Potsdam: URL http://pub.ub.uni-potsdam.de/volltexte/2014/7123/ URN urn:nbn:de:kobv:517-opus-71232 http://nbn-resolving.de/urn:nbn:de:kobv:517-opus-71232 ABSTRACT Despite its many challenges the concept of (unconventional) in situ upgrading of informal settlements has become one of the most promising approaches to the housing crisis in the ‘Global South’. Due to its inherent principles of incremental in situ development, prevention of relocations, protection of local livelihoods and democratic participation and cooperation, this approach, which reflects princi- ples of a ‘support paradigm’, is often perceived to be more sustainable than other housing approaches that often rely on quantitative housing delivery and top down planning methodologies. While this thesis does not question the benefits of thein situ upgrading approach, it seeks to identify and analyse problems of its practical implementation within a specific national and local context. The thesis discusses the origin and importance of this approach on the basis of a review of interna- tional housing policy development and analyses the broader political and social context of the incorporation of this approach into South African housing policy. It further uses insights from a recent case study in Cape Town to capture and analyse complications that can arise when applying in situ upgrading of informal settlements in a complex local context. On that basis benefits and limitations of the in situ upgrading approach are extracted and prerequisites for its ‘successful’ implementation formulated. The thesis concludes that despite its limitations in situ upgrading can be, the adequate circumstances provided, an important and more appropriate approach to the housing crisis in South Africa as well as in the ‘Global South’ in general. 5 TABLE OF CONTENT ABSTRACT ......................................................................................................... 5 LIST OF FIGURES ........................................................................................... 10 ACRONYMS .................................................................................................... 11 1 INTRODUCTION ........................................................................................ 13 1.1 Research Objectives and Questions ................................................. 19 1.2 Structure of the Study ....................................................................... 21 2 URBAN HOUSING CHALLENGES IN THE ‘GLOBAL SOUTH’ – DISCOURSES, CONCEPTS AND POLICIES ............................................. 23 2.1 Underlying Challenges: Globalisation, Urbanisation and Poverty ....27 2.1.1 Population Growth and the Urbanisation into Poverty ........................ 28 2.1.2 Globalisation, Poverty and Inadequate Housing .................................. 30 2.2 Discussing Informal Settlements ..................................................... 35 2.2.1 ‘Squatting’ as Human Needs-Led Development .................................... 36 2.2.2 Challenges, Opportunities and Limitations of Informal Housing ............. 37 2.3 A Review of International Housing Policy Development .............. 41 2.3.1 The ‘Provider’ and the ‘Support Paradigm’ .......................................... 41 7 2.3.2 Modernisation, Public Housing and ‘Slum Clearance’ .......................... 42 2.3.3 Basic Needs, Redistribution with Growth and the Rise of Self-Help Housing ................................................................................ 44 2.3.4 Aided Self-Help: Site and service and in situ Upgrading ....................... 46 2.3.5 Policy Adjustments, Newer Concepts and Agendas .............................. 49 2.3.6 Excursus: Insights from International Housing Practice ....................... 52 3 URBAN HOUSING IN POST-APARTHEID SOUTH AFRICA – CHALLENGES AND APPROACHES ......................................................... 59 3.1 Urban Housing Challenges ............................................................... 63 3.1.1 Socio-Spatial Exclusion and the Legacy of Apartheid .......................... 63 3.1.2 Migration, Population Growth and Housing Backlogs ......................... 66 3.2 National Housing Policies, Programmes and Politics ................... 69 3.2.1 A Review of National Housing Policy Development ........................... 69 3.2.2 The Reconstruction and Development Programme .............................. 71 3.2.3 A Comprehensive Plan for the Development of Sustainable Human Settlements ........................................................................................... 74 3.2.4 The Upgrading of Informal Settlements Programme ............................ 76 3.2.5 Constraints to the Implementation of in situ Upgrading in South Africa ......................................................................................... 80 4 HOUSING IN CAPE TOWN – IN SITU UPGRADING OF THE HANGBERG INFORMAL SETTLEMENT IN HOUT BAY ......................... 85 4.1 Introducing the Case Study ............................................................. 89 4.1.1 Case Study Selection and Research Questions ...................................... 89 4.1.2 Research Methods ................................................................................ 90 4.1.3 Structure of the Case Study .................................................................. 91 4.2 The Urban Context: Cape Town ...................................................... 93 4.2.1 Urbanisation and Housing Challenges .................................................. 93 4.2.2 Informal Settlements and in situ Upgrading ......................................... 96 4.3 The Local Context: Hangberg in Hout Bay .................................... 103 4.3.1 Historic Background and Informal Settlement Growth ..................... 103 8 4.3.2 Local Livelihoods, Physical and Social Vulnerability ......................... 105 4.4 Initiation of the Hangberg in situ Upgrading Project ................... 109 4.4.1 Stakeholder Roles, Participatory Planning and Initial Achievements 109 4.4.2 Land Registration and Land Management .......................................... 114 4.5 Underlying Challenges, Constraints and Conflicts ....................... 117 4.5.1 Physical Challenges, Housing Consolidation and Security of Tenure . 117 4.5.2 Internal Community and Leadership Conflicts .................................. 121 4.5.3 External Community Conflicts and Governance Failures .................. 124 4.5.4 Competition for Land and Social Insecurity ....................................... 126 4.5.5 Socio-Economic Exclusion, Crime and Socio-Racial Tensions ............ 130 4.6 From Conflict Escalation to Project Reinvigoration .................... 135 4.6.1 Place Identity, Violence and Conflict Resolution ............................... 135 4.6.2 Peace and Mediation: Achievements and Perpetual Conflicts ............ 139 5 THE CHALLENGE OF IN SITU UPGRADING OF INFORMAL SETTLEMENTS ......................................................................................... 143 5.1 Lessons Learned from the Case Study ........................................... 147 5.2 Key Benefits and Limitations ofin situ Upgrading ....................... 151 5.3 Prerequisites for ‘Successful’ in situ Upgrading ............................ 155 6 CONCLUSIONS ........................................................................................ 161 7 APPENDIX – INTERVIEW PARTNERS ................................................... 167 ANNEX ........................................................................................................... 171 9 LIST OF FIGURES Figure 1: Informal settlements ‘Dassenberg Drive’ in Cape Town (top left and bottom left) and ‘Kwa Kopa’ in Dar es Salaam.. ................................. 39 Figure 2: Composition of World Bank shelter lending 1972–1986 and 1987–2005 ................................................................................... 50 Figure 3: Apartheid city model.................................................................... 65 Figure 4: Objectives of ‘Breaking New Ground’ (BNG) ................................ 76 Figure 5: UISP project phases ...................................................................... 80 Figure 6: Informal Settlements in Cape Town 2007 (map extract) ............ 97 Figure
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