6.2. INTERVIEWS WITH OFFICIALS FROM THE ETHEKWINI MUNICIPALITY
6.2.2. Theme 2: Spatial transformation
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identified when the process for registrations is being fast tracked. Communities were also aware of original beneficiaries selling houses but no action has been taken. Communities have acknowledged that there is better life
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should avoid the sprawling of informal settlements and protect agricultural and environmental resources, as well as open spaces networks.
… it is difficult in this way that, we are retrofitting human settlements onto an existing apartheid planning city, it’s unlike planning everything from scratch. (2)
Furthermore, poor human settlement led to the poor being effectively side-lined in terms of accessing jobs, urban amenities and social networks – the reason being that they were expected to spend too much time and money on transportation costs. On the other hand, locating human settlements closer to centres of job opportunities can have a positive impact on households and on their savings - while at the same time, offsetting the higher costs of housing involved (see Khan & Khan, 2012).
When retrofitting the city, respondents indicated that the application for human settlements was initiated by municipality, with the help of the consultant. The application submitted required input from all the departments involved, in order to ensure integration in the development.
… we have an obligation as the department to ensure that all the parties that need to comment on the application to make an input so that whatever output is integrated as possible in terms of getting comments from various line departments. (2)
In order to ensure integration, the submission by Human Settlements should be a package, which includes infrastructure development for settlements. At the same time, the submission should be in line with the SDP and the IDP of the municipality, including social facilities and the infrastructure (see IDP 2016/2017).
…. incorporate whatever the strategy of the human settlement integrated development settlement incorporated into our SDF and then we will know spatially where all those projects are. (4)
The findings of this theme has revealed that spatial development should indicate the direction of economic opportunities, areas of investment, and the developments, which is the strategic direction that the city is taking. Concerning human settlements, the plan should ensure that sustainable communities are created, so that settlements are not ad hoc but should achieve the goal and objectives identified in the IDP (see SDF, 206/17). Housing projects do not follow spatial plans, but are driven by developments to a particular direction. Todes argues that because of more reliance by the poor on government, domestic workers and other unskilled workers are not considered – once the project is identified emphasis is more on the local (see
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Todes, 2008). It has become clear that when retrofitting, cities should accommodate the Department of Human Settlements’ housing policies, and should also provide guidance on how cities can create compact and integrated towns and cities (see Harrison & Todes, 2015). The Spatial Development Framework, as incorporated in the IDP, ensures that houses are built in well-located areas – while at the same time, improving the transport links and the infrastructure.
6.2.2.2. Availability of prime land for human settlements
The theme identified the shortage of land as a critical element to human settlements.
Government aims at eradicating informal settlements and ensuring that communities are relocated to suitable areas where there is integration, which promotes human settlements. The challenge, however, has always been that land is owned by private individuals, and that suitable land has to be identified but is costly. Partnering with the private sector make it easy for government to acquire land close to economic opportunities (see DoH, 2004). Tongaat Hullet and eThekwini Municipality identified mixed-use projects, which comprised large-scale housing components to enhance economic growth, create employment, address housing backlogs, and produce integrated human settlements (see Sutherland et al., 2015).
When identifying the land value should be maximised through public-private partnerships so that the development of the land brings a positive and a stable economic, environmental and social return that is both financially sustainable and contributes to redressing disparities (see Royal Hansking DHV, 2012). Respondents echoed the issue of identifying the land for housing development as problematic. As the demand for housing increases the demand for human settlements also increase. One of the problems that the Municipality is faced with is the fact that most of the informal settlements are built on the land which is not owned by the municipality or government.
The discussions on the Cornubia project were held between the municipality and Tongaat- Hullet. Cornubia as a mixed-use project is aimed at accommodating the BNG and Social Housing, while at the same time fulfilling the policy mandate of promoting integrated human settlements (see DoH, 2004; Sutherland et al. 2011). Such types of projects provide a space for private partnerships between different actors.
Cornubia as a mixed-use development and the land owned by Tongaat-Hullet, facilitation of the project was done by the municipality and them as private partners. With regard to mixed-
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use projects communities are consulted towards the end as the relocation of beneficiaries is done from different settlements. (1)
The findings of the theme indicated that it is important for the national and provincial government to facilitate access to habitable land. This is stipulated in the 1994 White Paper on Housing as a critical component that government has to deal with if formal housing development is to be a reality (see Khan & Thurman, 2001). In acquiring land, the municipality should utilise the services of HDA, as mandated by the DHS. It is clear that municipalities cannot acquire the land on its own, but that the support of the provincial and national government is crucial in ensuring that suitable land is acquired. The cost of acquiring land in this regard, can be borne by all spheres of government (see Cameron, 2014).
The findings indicated that the Cornubia project came into being because the government wanted to do away with informal settlements. When all in situ upgrades were done, the municipality realised that it had still not met the target. In some cases, the challenge has been that the municipality has failed to accommodate everyone in the emergency camps, because there was an excess (see White, 2011). Respondents were concerned with the budget constraints, where the municipality has to “top up” in order to ensure that all people are accommodated to improve the quality of life of communities. Land, which is close to the city is owned by the private sector or individuals, who are only prepared to sell it to the municipality at a high price. Some respondents were concerned with the competing needs of different interest groups – in the sense that in some cases acquiring land in prime areas becomes difficult as departments also need land – and those that own land prioritise other government departments. This again exerts more pressure on the already strained resources as it pushes up the price of the land identified for development.
6.2.2.3. Security of tenure
The Housing Act of 1997 stipulates that housing development should make available a wide range of reasonable housing and tenure options – while at the same time, ensuring that developments are based on integrated development planning, which is managed in a transparent, responsible and reasonable manner that supports principles of good governance (see Tissington, 2011).
… on paper the policy requires that once land has been acquired and after houses have been built it should be transferred to the beneficiaries. But it is not happening, municipalities are
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still struggling to issue title deeds. It becomes safer for municipalities in ensuring that once the land is bought it remains with the provincial government because one bill for rates is sent to the province rather than issuing tens of thousands of title deeds and taking into account because some cannot afford to pay for the rates (4).
The above statement shows that the provincial government and the municipality are experiencing a challenge with issuing title deeds. Communities still contend with the lack of adequate housing, which led to chronic problems caused by lack of access basic service delivery – that is the provision of water, sanitation and electricity, as well as increasing unemployment and unresponsiveness at local government level. This has led to service delivery protest in most communities in black new settlements (see Booysen, 2007; Tissington, 2011).
So even themselves they want to transfer it to the beneficiaries as quickly as possible to reduce their own rates burden cause if it remains in their name it remains their asset and then pay rates. If you are a municipality you will think about it, it’s easier to send one invoice to a provincial government on a land that covers 50 hectares and surely a government department will have to pay rather to send 400 invoices to poor families which cannot afford to pay. (5) The findings in this theme revealed the challenges experienced in acquiring prime land for human settlements. The participation of the private sector in housing development in this regard, is crucial as some of the land acquired is expensive, and government cannot afford to buy expensive land. As a result, the Cornubia project has been a partnership between eThekwini and Tongaat-Hulett, which made the concept of integrated human settlements a reality (see Kennedy, 2013). Such projects improve the quality of life of communities – as they live in close proximity to places of employment and recreational facilities (see DoH, 2004).
… the reality is that so many housing projects as we speak today have not reached the stage of issuing of title deeds. (8)
This theme also revealed that there were problems in issuing title deeds to beneficiaries. To this effect, tenure security formalises the agreement between individual and property owners, regulated by legal and administrative frameworks (see Payne, 2012). The aim with the integrated human settlement was also to ensure that title deeds are issued, and that once they are issued, the quality of life of the people will improve because they are now owning an asset (see Urban Landmark, 2012). On the other hand, a delay in issuing title deeds increases the likelihood of land invasions by communities, evidenced by the everyday sprawling of informal settlements around South African cities. This is to the detriment of municipalities, whose
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mandate is to address the housing backlog – as in some cases shacks are built on land that does not belong the municipality, which the later still has to acquire from the private sector or individuals.
With reference to Cornubia, the delay in issuing title deeds has seen an increase in illegal activities – as people began to sell houses to their friends and relatives. Respondents indicated that some beneficiaries were selling these houses – as they were now far from their places of work, as well as their social networks. The findings indicated that this will pose problems to the municipality, when the process of allocating title deeds is initiated as houses will be occupied by new owners. Respondents were wondering how the municipality was going to address this problem, as the new occupants were not on the list, but the municipality could not have them evicted – as they will be violating the laws of the land.
6.2.2.4 Sustainable human settlements
In order to achieve sustainable human settlements, housing developments should seek to create a liveable environment with integral abilities that stimulate an ongoing process of consolidation and upgrading overtime. Officials emphasised that sustainable human settlements should not only be about providing people with houses, but should encompasses the provision of social amenities, skills development, and opportunities. Through developments such as Cornubia, municipalities should ensure that integration is achieved, as the project also entails a strong partnership between the private sector and municipalities. When relocating communities access to transportation should be taken into account, as well as other facilities which are a responsibility of other departments within the municipality. Integration within departments is a challenge as it usually takes a while before all amenities can be made available in new developments, as various departments are involved.
The nature of development and the scale of the development should not just be an ordinary housing project but integrated human settlement development which encompasses more than just housing, it encompasses social amenities, skills and economic opportunities. (1)
… the other important question that we address as public sector housing is to test the sustainability of that particular development. As a human settlement establishment will not be sustainable if it is not integrated you must see for instance how people travel (you know) to the place of employment you must check also whether is adequately educational facilities within the development. (2)
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But if you’re going to count the settlement as being good for human habitation, you’re going to start addressing the issue of sustainability. (4)
The findings of this theme reflected on how human settlements can create an environment, which is highly liveable, which also promotes an ongoing process of consolidation and upgrading overtime (see CSIR, 2000). In achieving this, the BNG indicates that a balance should be maintained amongst economic growth and societal development in order to achieve sustainable human settlements (see DoH, 2004). It further indicated that densification is crucial in addressing sustainable human settlements – and ensures that communities are brought closer to economic opportunities, while at the same time, accessing all amenities. In making this possible, the municipality adopted the strategy of building high-rise structures in order to accommodate the demand for housing. Densification is a concept used “in planning, architecture and urban design, which is used to describe, predict and control the use of land”
(see eThekwini, 2013; see Turok, 2011). Respondents indicated that decisions have to be made regarding densification in order to address sustainable human settlements. Bringing communities closer to economic opportunities and accessing all amenities requires the municipality to adopt the strategy of building high-rise structures in order to accommodate as many people as possible. It is imperative that such decisions are covered in policies, which encourage high-urban densities (see Boyko & Cooper, 2011).
To promote sustainable human settlements, scholars conducted an empirical research and supported the idea of higher levels of density housing that would provide benefits for car travel, travel distances and transport costs (see Barret, 2010; Gakenheimer, 2011; Newman &
Kenworthy, 1991; Nijkamp & Rienstra, 2010; Owens, 1986; Stead and Marshall, 2001;
Guindon (as cited in Du Plessis, 2014). Hence, municipalities have to ensure that the land identified is in close proximity to other facilities in order to achieve integration in human settlements. To increase sustainability, walkability and accessibility should be taken into account, as these are important factors which promote integrated human settlements. BNG has acknowledged densification and integration of communities as a strategy used to promote human settlements (see DoH, 2004). The integration process should adhere to the principles identified in the BNG. When densifying, the SDF should be taken into account as it stipulates future plans for the municipality (see Yusuf & Allopi, 2004; Sim, et al., 2015; Turok, 2011).
The findings for this objective indicated that housing projects do not follow spatial plans, but are driven by developments in a particular direction. Todes argues that because the poor relies
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more on government, domestic workers and other unskilled workers are not considered once the project has been identified, as emphasis is more on the locals (see Todes, 2008). Even though the Spatial Developments have been approved by Council, catalyst projects tend to bypass the whole process. In as much as plans are driven by developments in a particular direction, plans for developments have to be adopted, in order to meet the requirements (see eThekwini Municipality, 2015).
The findings have further shown that it is important for government to facilitate access to the land, which is habitable. Land which is close to the city is owned by the private sector or individuals, who are only willing to sell it to the municipality at a high price. Another challenge identified by officials that also hinders the process of the transfer of title deeds is that beneficiaries would rather go back to the informal settlements than staying in these new developments. The findings further indicated that if the issuing of title deeds can be fast-tracked by the relevant structures, municipalities will have less problems with the illegal transactions taking place (see Urban Landmark, 2011). The original beneficiaries in the register are no longer occupying the units, in some cases there are new owners who have made informal arrangements with the original owners. Some have paid money for these new units which is going to lead to difficulties removing them
The findings further indicated that community members be involved in the decision to relocate them to new areas. Consumer education should concern itself with how communities’ lives will be affected in the new areas, which can serve as another strategy to improve the quality of life of communities (see Irvin & Stansbury, 2004). Communities emphasised correct procedures be implemented in facilitating community participation by the municipality, as this will result in less problems experienced in implementing community projects. It is not only the communities, which benefit but also administrators because they get to be aware of what the community is thinking in relation to the proposed policy.