Greater Kokstad Municipal Housing Sector Plan

GREATER KOKSTAD MUNICIPAL HOUSING PLAN
CONTENTS
Page
1. INTRODUCTION
4
2. POLICY AND LEGISLATIVE ENVIRONMENT
5
Introduction
Vision, Goal, Framework and Guiding Principles of the National Housing Policy
Municipal Responsibility
The Comprehensive Plan for the Development of Sustainable Human Settlements
5
5
5
6
3. IDP OVERVIEW
Alignment of Municipal Housing Plan with Integrated Development Plan
District and Local Context
Demographic Profile
Spatial Analysis
Availability of Infrastructure
Roads and Stormwater Drainage
Water and Sanitation
Sewage Treatment
Electricity
Telecommunications
Free Basic Services
Summary on Engineering Services
7
8
8
9
10
11
12
12
15
15
16
16
16
4. SPATIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT
SYSTEM
16
Reviewed Spatial Development Framework
The Link Between Land Use Management and Spatial Development
Greater Kokstad Spatial Development Framework
Greater Kokstad Development Informant Maps
Settlement Hierarchy
Movement Corridors
Land Use and Environment Management
Conclusions
Land Use Management System
Greater Kokstad Land Use Management System: Urban Scheme
Greater Kokstad Land Use Management System: Rural Scheme
16
16
17
17
17
18
18
19
19
20
20
5. HOUSING STATUS
Legal Status (Formal and Informal Settlements)
Functional Status
Project Status (Progress)
21
21
23
24
6. HOUSING NEEDS ASSESSMENT
Quantification of Housing Need
Geographical Distribution
Land Reform Initiatives
Farm Worker Housing
Rural Housing
Worker Housing
Rental Housing
Special Needs Housing (Housing for Victims of HIV/AIDS)
6.9 Overall Assessment of Housing Need
24
24
26
27
27
27
27
27
27
28
7. LAND IDENTIFICATION
28
8. PLANNED AND ANTICIPATED FUTURE PROJECTS
30
National and Provincial Priorities
Project Categorisation
Housing Subsidy Scheme
Discount Benefit Scheme
Public Sector Hostels Redevelopment Programme
Municipal Owned Houses
Rental / Social Housing
Worker Housing
Other
8.10 Engagement with the Private Sector
30
31
31
31
31
32
32
33
33
33
9. INTEGRATION WITH OTHER SECTORS
34
10. HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK
35
10.1 Housing Administration
10.2 Institutional Framework
10.3 Capacity Building
35
36
36
11. PERFORMANCE MEASUREMENT
37
12. HOUSING DELIVERY PROGRAMME
38
13. CONCLUSIONS
39
REFERENCES
40
2
ANNEXURES
Annexure A: Projects Completed and Closed Out
Annexure B: Projects Substantially Complete but Not Closed Out
Annexure C: Active Projects
Annexure D: Projects in Preparation
Annexure E: Identified Future Projects
Annexure F: Identification and Audit of Additional Land for Housing
Annexure G: Proposed Housing Delivery Programme
Annexure H: Cash Flow Projection for Proposed Delivery Programme
Annexure J:
Photographic Record of Sites Selected For Various Projects
3
GREATER KOKSTAD LOCAL MUNICIPALITY
MUNICIPAL HOUSING PLAN
1. INTRODUCTION
In terms of the Municipal Systems Act, the Greater Kokstad Local Municipality (GKM)
manages the Integrated Development Planning (IDP) Process for its area of jurisdiction. The
Municipality has therefore, in previous financial years, included a housing perspective as
part of its IDP documentation, and the related annual review process.
In respect of the current financial year (2007/2008), GKM has acquired funding support from
the Provincial Department of Housing, KwaZulu-Natal to appoint a service provider to
prepare a Municipal Housing Plan as a specific sector plan or chapter of the IDP for the
Municipality, and has appointed Makhosi Nyoka & Associates to undertake this initiative.
The process of preparing the Greater Kokstad Municipal Housing Plan has been undertaken in
accordance with the following national and provincial policy documents, and manual:

National Housing Programme for Housing Sections of Integrated Development
Plans: National Department of Housing

Guidelines to Assist Municipalities in the Preparation of Municipal Housing
Plans: Department of Housing KwaZulu-Natal

Municipal Housing Sector Plan Manual (Funded by USAID): Project
Preparation Trust of KZN and Department of Housing, KZN.
The methodology for the preparation of the Greater Kokstad included the following:







A best practice analysis of existing MHPs in other municipalities.
Consultations with interested and affected stakeholders including officials of the
Municipality, the provincial Department of Housing, Sisonke District and with
developers.
Review of national and provincial policy environment.
Review of existing documentation, including the Municipality’s Integrated
Development Plan, Land Use Management System, Strategic Environmental
Assessment and Spatial Development Framework, provincial records, and
district sector plans.
Primary research and survey where information was lacking.
Input requested from Councillors and officials.
Public comment was invited through advertisement in local media, and was
considered in finalising the plan.
4
2. POLICY AND LEGISLATIVE ENVIRONMENT
Introduction
All housing-related activities take place within the context of the relevant planning and
housing statutes and policies. It is beyond the scope of this assignment to provide an
exhaustive analysis of this legislative environment. However, the following key
considerations are germane to the Municipal Housing Plan:
2.2 Vision, Goal, Framework and Guiding Principles of the National Housing Policy:
South Africa’s housing vision comprises the overall goal to which all implementers of
housing policy should work. The vision is outlined in the definition for “housing
development”, contained within the Housing Act, 1997 (No. 107 of 1997):
“…the establishment and maintenance of habitable, stable and sustainable public and
private residential environments to ensure viable households and communities, in areas
allowing convenient access to economic opportunities and to health, educational and social
amenities, in which all citizens and permanent residents of the Republic will, on a
progressive basis have access to (a) permanent residential structures with secure tenure, ensuring internal and external
privacy and providing adequate protection against the elements; and
(b) potable water, adequate sanitary facilities and domestic energy supply.”
The vision is reinforced in both the Urban and Rural Development Frameworks which
extend the vision to focus on improving the standard of living of all South Africans, with a
particular emphasis on the poor and those who have been previously disadvantaged.
2.3 Municipal Responsibility
The primary role of municipalities is to take all reasonable and necessary steps within the
framework of national and provincial legislation and policy to ensure that the inhabitants
within their jurisdictional areas have access to adequate housing on a progressive basis. To
achieve this the functions of municipalities are:





To initiate, plan, coordinate and facilitate appropriate housing development within
its boundaries.
Prepare a local housing strategy and set housing delivery goals (the MHP).
Set aside, plan and manage land for housing development.
Create a financial and socially viable environment conducive to housing
development.
Facilitate the resolution of conflicts.
5



Provide bulk engineering services where there are no other service providers.
Administer any national housing programme in respect of its area of jurisdiction if
accredited to do so.
Expropriate land for housing development if the land cannot be acquired through
other means.
2.4 The Comprehensive Plan for the Development of Sustainable Human Settlements
In addition, the Comprehensive Plan for the Development of Sustainable Human
Settlements (August 2004) and the Guidelines for the Implementation of Labour-Intensive
Infrastructure Projects under the Expanded Public Works Programme (EPWP) should be
considered in formulating the MHP. The Comprehensive Plan promotes the achievement of
a non-racial, integrated society through the development of sustainable human settlements
and quality housing. Housing is to be utilized as an instrument for the development of
sustainable human settlements in support of spatial restructuring.
The aim of the plan is to move beyond the provision of basic shelter towards achieving the
broader vision of sustainable human settlements and more efficient towns, cities and
regions. The following factors must be taken into consideration in order to achieve this
vision:

Progressive Informal Settlement Eradication: these settlements must be integrated
into the broader urban fabric to overcome spatial, social and economic exclusion.
The human settlement plan supports the eradication of informal settlements through
in-situ upgrading in desired locations coupled with the relocation of households
where development is not possible or desirable.

Promoting Densification and Integration: the objective is to integrate previously
excluded groups into the city and the benefits it offers and to ensure the
development of more integrated, functional and environmentally sustainable human
settlements, towns and cities.

Enhancing Spatial Planning: greater coordination and alignment of various
planning instruments and economic policies lies at the heart of sustainable human
settlements. This requires more than mere coordination between departments but
there should be a single overarching planning authority and/or instrument to
provide macro-level guidance to support the development of sustainable human
settlements.

Enhancing the Location of New Housing Projects: the location of housing projects
has been criticized as reinforcing apartheid spatial settlement patterns. The
objective of spatial restructuring demands a more decisive intervention in land
markets. Interventions are envisaged in respect of accessing well located stateowned and parastatal land, acquisition of well-located private land for housing
development, funding for land acquisition and fiscal incentives.
6

Supporting Urban Renewal and Inner City Regeneration: urban renewal and inner
city regeneration often result in the current inhabitants being excluded as a result of
the construction of dwelling units they cannot afford. Some municipalities are
striving to avoid this by promoting affordable inner city housing. The human
settlement plan will support this by encouraging social housing.

Developing Social and Economic Infrastructure: there is a need to move away from
a housing–only approach towards the more holistic development of human
settlements including the provision of social and economic infrastructure.

Enhancing the Housing Product: there is a need to develop more appropriate
settlement designs and housing products and to ensure appropriate housing quality.
The Expanded Public Works Programme (EPWP) is aimed at reducing unemployment by
the provision of work opportunities through labour intensive methods in all government
funded development projects. In respect of housing projects specifically, this can be
achieved through the use of unskilled local labour and use of the Peoples Housing Process
(PHP) methodology. This policy focuses on poor families in both urban and rural areas,
using capital subsidies to allow people to build their own homes. It also assists people to
obtain access to technical, financial, logistical and administrative support to build their own
homes, on either an individual or collective basis. It would also be valuable to involve the
Department of Labour in housing forum meetings, as this can combine skills development
with the employment opportunities for specific projects.
The principles mentioned above should be incorporated when housing projects are being
prepared and packaged.
3
IDP OVERVIEW
An IDP has once been defined as participatory approach to integrate sectoral and fiscal
strategies to support the optimal allocation of scarce resources between sectors and
geographical areas across the population in a manner that provides sustainable growth,
equity and the empowerment of the poor and marginalized (FEPD : 1995). It is at this
juncture that an IDP is referred to as council’s living document to which citizens must use to
debate development issues of the municipality.
The purpose of the IDP is to:





assess service delivery
make adjustments and amendments
feed new information into budget
ensure relevance of the plan as the Municipal Strategic Plan and
assess changing internal and external circumstances
This section includes relevant information obtained from the references listed at the end of
this document. Only sufficient information is provided here to contextualise the MHP. For
greater detail, the reader is referred to the source documents.
7
3.1 Alignment of Municipal Housing Plan with IDP
PHASE 5:
PHASE
5:
APPROVAL
APPROVAL
PHASE 4:
PHASE 3:
PHASE 4:
PHASE
3:
INTEGRATION
PROJECTS
INTEGRATION
PROJECTS
PHASE 2:
PHASE
2:
STRATEGIES
STRATEGIES
PHASE 1: ANALYSIS
PHASE 1: ANALYSIS
This being the first time that the municipality is preparing a MHP as a specific sector plan in
its IDP, the preparation process is essentially independent of the IDP process. In future years
however these processes will run concurrently, as illustrated in the flow diagram below:
Compiling existing Data
Compiling existing Data
Meetings with Community
Meetings with
Community
and Stakeholder
Representatives
and Stakeholder Representatives
Identifying housing demand 1A
Identifying housing demand 1A
Identifying housing demand 1B1B
Identifying housing demand
Analysing the Context
Analysing
Context
of Priority the
Issues
of Priority Issues
Specifying housing demand 1D
Specifying housing demand 1D
Agreeing on a vision
Agreeing
on a vision
& on objectives
& on objectives
Negotiating supply
Negotiating
objectivessupply
B
objectives 2 2
B
Negotiating projects
Negotiating projects
Agreeing on
Agreeing
Priority on
Priority
Issues
Issues
Defining housing
Defining
housing
demand
demand
Debate decision-making
decision-making
OnDebate
appropriate
strategies
On appropriate strategies
Negotiating supply
Negotiating
strategy supply2 C
strategy
2C
4A
4A
Formulation of project proposals
Formulation of project proposals
Screening, adjusting,
Screening,
consolidating
andadjusting,
agreeing on
consolidating
and agreeing on
project proposals
project proposals
Inviting and incorporating
Inviting
and incorporating
comments
comments
Confirming/
amendingConfirming/
housing chapter
amending housing chapter
1E
1E
Considering the relevance and
Considering
the relevance
application
of policy
guidelinesand
in
application
of policy
guidelines in
the local
context
the local context
Understanding the
Understanding
the
conditions of supply options
2A
conditions of supply options 2 A
3A
3A
Confirming/
Confirming/
amending
projects
amending projects
1C
1C
5A
5A
Compilation of
Compilation
Integrated of
Integrated
programmes
programmes
Documenting a housing
Documenting
a housing
chapter
& accommodating
chapter & accommodating
implications
of housing
implications
of housing 4 B
projects
and municipal
projects
municipal 4 B
roles
in theand
integrated
roles
in
the
integrated
sector plans and
sector plans and
programmes
programmes
Adoption by
Adoption
IDP
Council by
IDP
Council
Consolidation of the housing
Consolidation
of the
housing
chapter
into sector
plan
that
chapter
into sector
plan that
includes
relevant
IDP sections
includes relevant IDP sections
5B
5B
Figure 1: Alignment of MHP with IDP
3.2 District and Local Context
Greater Kokstad Local Municipality is located within the south western portion of Sisonke
District Municipality, which in turn is situated in the south west of KwaZulu-Natal
Province.
The town of Kokstad is situated in the Mount Currie Magisterial District and is well located
within the Midlands. The town is the largest service centre in the Sisonke District
Municipality area of jurisdiction. It is a commercial and educational hub, providing services
to the whole of the area and north-eastern parts of the Eastern Cape.
The transport network which includes the N2, and R56 integrate Kokstad to the major
economic nodes of Durban and Pietermaritzburg. Accessibility of the area provides a basis
for the location of several government departments, providing services to Greater Kokstad
and its surrounding areas as well as to the north-eastern areas of the Eastern Cape.
8
3.3 Demographic Profile
This section outlines the demographic profile of the municipality.
The 2001 Census has been used by the municipality as a base for current and future
planning though the municipality has raised some concerns regarding the accuracy of the
figures as it is believed that the total population for the area is greater than the 2001 census
figures and forecast. The municipality has been hoping to conduct it’s own analysis of the
population to determine figures more accurately, but this is subject to the availability of
funding for such an exercise.
The municipality has calculated population estimates based on a 2, 21% growth rate.
Population
2001
African
46 832
2007@
2,21%
growth
estimates
53 395
Coloured
6 209
7 079
Indian
454
517
White
3 030
3 453
TOTAL
56 526
64 444
Group
POPULATION
It should be noted however that while the national population is expected to increase, the
growth rates will be declining, due to high HIV infection rates, from approximately 1,53%
in 2001, to 0,6% in 2005 and only 0,1% in 2007, at which point the population will begin to
decline. It should also be noted, that as KwaZulu-Natal has the highest incidence of HIV
infection, the decline in population will be greater here than in the country as a whole.
HIV infection rates in KwaZulu-Natal are projected to peak this year (2007) at 19,2%, and
AIDS related deaths will peak in 2009 at 194 690 (25,6% of the national total for that year).
By 2010, life expectancy in KwaZulu-Natal is projected at only 37 years, from a life
expectancy of 59 in 2000. This compares with a national life expectancy of 41 in 2010,
declining from 56 in 2000.
This decline in population and population growth rates, will however be mitigated by inmigration from surrounding areas. The extent of this migration is however very difficult to
estimate.
9
It is reasonable to conclude, however, that there will be very limited population growth for
the foreseeable future.
The 2001 population figures from the 2001 census given above represent 20 561
households. The number of heads of household employed is only 11 380, representing 55%
of households.
3.4 Spatial Analysis
Greater Kokstad Municipality has three urban nodes Kokstad Town, Swartberg and
Franklin. Kokstad Town is the major economic centre due to its strategic location in terms
of the existing transport network, and economic and administrative activities. The National
Route (N2) links the area to the major economic nodes such as Port Shepstone and Durban
in the Kwa-Zulu Natal Province and Umtata in the Eastern Cape Province. The R56 links
Kokstad to Ixopo and Pietermarzburg. The strategic location of Kokstad creates
opportunities for economic growth.
Emanating from the spatial location of the area is a high population growth rate due to high
immigration of people from the Eastern Cape and Lesotho into the area in search for
employment opportunities. The municipality is therefore faced with a challenge of planning,
providing basic services, housing and creating employment opportunities for its growing
communities
There are also land reform projects in rural areas like Pakkies I and 2 and Kransdraai. Apart
from the built environment there is agriculture, indigenous forests and areas of biodiversity.
The municipality acknowledges the relationship between the built and the natural
environment and has adopted an integrated approach to development and protection of the
natural environment.
One major spatial challenge facing the municipality is illegal occupation of land for housing
purposes. The municipality has no systems in place to deal with the situation. However, the
implementation of a Land Use Management System (currently in the preparation phase) and
the preparation of by laws (to be prepared after the Land Use Scheme has been completed)
will enable the municipality to control land use and apply to court to demolish any structure
that is in contravention of its Land Use Scheme. This will contribute towards orderly and
harmonious development. In this regard, cognisance should be taken of the KZN
Elimination and Prevention of Re-emergence of Slums Bill, 2006, which should be of
assistance to the municipality.
10
3.5 Availability of Infrastructure
The feasibility of any housing development is to a large extent governed by the availability
of engineering services, specifically road access, water supply, sanitation and electricity. If
bulk services have to be provided from a considerable distance to any proposed housing
development, this can render the housing development to be unviable.
11
3.5.1 Roads and Stormwater Drainage
The area benefits from two types of transport mode in terms of infrastructure in place, Rail
Transport and Road Transport. Road Transport consists of four categories: the National
Road (N2), Provincial Roads (R56), District Roads and Local Roads.
The railway line is not currently being used. Road transport is the only functional mode of
transport in the area. This has resulted in roads being degraded thus, requiring frequent
maintenance which has major financial implications. The railway line can be used to
transport goods, agricultural products or people depending on consumer demand. The
revitalization of the railway line remains a Spoornet function.
In relation to Provincial Roads, the Department of Transport (DoT) currently maintains
gravel roads in the outlying settlements of Greater Kokstad. DoT in the 2003/2004
completed Road Infrastructure for Horseshoe Settlement and Extension of Wylde Road
Storm Water Drainage. The Department is currently constructing L149 1 and 2, Thuli
Rustlers Route Phase 1 drainage, Maraiskop Road No1, Widening of the road (entrance into
Kokstad from the South) and Mzintlava Bridge and construction of Mariaskop Road 0.3 km
materials. During 2005/06 financial year projects such as widening of bridges along major
roads into Kokstad have been implemented and some of them are underway. There are also
a number of road projects to be implemented by DoT in the upcoming financial years in the
area. Regardless of what has been achieved, the existing condition of roads and stormwater
drainage leaves much to be desired. Contributing to the demand for roads infrastructure are
major housing developments in areas like Eastview, Riverview, Willowdale, Shayamoya
and Horseshoe.
3.5.2 Water and Sanitation
The function of water has been taken over by Sisonke District Municipality and Greater
Kokstad Municipality has signed a service level agreement with the District. All water and
sanitation related functions are now performed by the Sisonke District Municipality.
According to the backlog study conducted by the district municipality, Greater Kokstad
Municipality requires funding estimated at R10 474 025.60 for water and
R3 855 958.80 for sanitation backlog inclusive of operating and capital costs.
POPULATION
PERCENTAGE
WATER
POPULATION
FOR PERCENTAGE
SANITATION
STATUS
FOR
75,04 %
72,87%
Served above RDP
10,27%
10,75%
Served at RDP
0,00%
0,00%
Served below RDP
14,69%
16,38%
Unserved
Backlog study 2005
12
In Thuthukani there are two boreholes equipped with hand pumps. Because of the position
of these springs residents prefer obtaining water from an unprotected spring and river stream
thus increasing their chances of contracting water-related disease.
Ekuthuleni is a land reform area which is in process being serviced for formal resettlement.
Currently the area has no formal water supply and this issue will form part of the
development plan of the area which is being addressed by the Department of Land Affairs,
Greater Kokstad Municipality and Sisonke District Municipality. The community currently
makes use of nearby streams as the main source of water. There is no proper sanitation
facility and for this reason the community makes use of bushes and nearby dongas. The
situation may result in contamination of the underground water.
Pakkies area has formal water supply with only 15 standpipes. The area has a protected
spring supplying a service reservoir and communal stand pipe reticulation. The water supply
clearly does not meet the DWAF requirements in terms of both the quality and level of
service. There are two institutions i.e. school and community hall that are not connected to
the existing water infrastructure. There is no proper sanitation that exists in the area.
In Maraiskop area, the Hilltop section has its water source as the nearby river. The weir
was constructed across the river and water is extracted directly from it. This therefore
means the community is consuming unpurified water. The Middelbult community draws
water from a protected spring. Vaalbank community currently uses a borehole. There is no
proper sanitation facility existing in the greater Mariaskop.
Makhoba residents use unprotected spring as a source of water. Water gravitates through
furrows to an earth fill dam, from where it is pumped to two elevated plastic tank prior to
distribution to the households. There is no proper sanitation in Makhoba.
In Wansbeck there is a water supply currently under implementation, which meets DWAF
and RDP guidelines. No proper sanitation in existence.
In Franklin out of 215 households, 200 reside in informal settlement. The remaining 15 are
Spoornet properties and are therefore supplied with water through 15 yard taps. The Greater
Kokstad Municipality has provided the informal settlement with two tap stands and five
flush toilets.
Swartberg comprises of 265 households of which only 5 households have proper water
supply and sanitation facilities.
In Kransdraai there exists only one borehole fitted with a positive displacement, line shaft
driven, Mono pump powered by a 3-phase 380 v. and 4KW electric motor. Water is
dispensed to the community through yard trickle feed tanks. Out of 102 households, 98 have
yard connection with one tap stand and pay a monthly flat rate of R13.00 towards operation
and maintenance. There are 98 brick VIP toilets in Kransdraai.
In Ergeton, water is sourced from an existing borehole in the local school and there is no
sanitation facility in existence.
13
There is full reticulation system in areas of Kokstad, Bhongweni, Extension 7, Shayamoya
and Horseshoe. The physical infrastructure like bulk pipelines and reservoirs are in
generally good condition however, 65% of the reticulation infrastructure dates back to the
1950’s and 1960’s and needs to be upgraded or replaced. The upgrading program for urban
infrastructure has been developed in the Sisonke District Municipality Water Services
Development Plan.
Current upgrading of bulk water supply in the area includes a weir on the Mzintlava River, a
high-lift pump-station and a 5 km rising main to deliver 5MI/d to the waterworks to
augment the raw water supply from Crystals Spring Dam; a 3rd clarifier at the waterworks
(increasing the clarification capacity from 9 MI/d to 13,5 MI/d); a new chemical dosing
facility and modification to the chlorine gas handling and regulating equipment in order to
meet recently amended statutory safety requirements.
Notwithstanding the above the Greater Kokstad Municipality is faced with a challenge of
water shortage. There is a need to upgrade Bulk Water and Sewerage Services to cater for
new developments in the area. A report done by Ninham Shand in 2004 indicates that the
Bulk Water Supply’s capacity to meet future demand in the area is limited by:
 old filters which without the drought restrictions are at the limit of their capacity
as a result a new filter building (designed for 18 MI/d but initially equipped for
9 MI/d ) is required
 insufficient clean water storage
 insufficient Crystal Springs Dam Gravity Pipeline (currently close to its limit)
 clarifier capacity will be insufficient in the near future
With regards to clean water storage the existing 4,5 MI reservoir at the water works acts as:
balancing storage between the waterworks output and fluctuating demands, primary storage
for Kokstad high level zone and augmenting primary storage to areas with insufficient local
storage (Kokstad low zone, Shayamoya and Bhongweni). The water works operator is
experiencing difficulty maintaining sufficient primary storage in the above-mentioned
reservoir due to increasing balancing requirements. Until such time as more reservoir
capacity is provided at the waterworks, this reservoir cannot be taken out of service for
maintenance and cleaning.
To increase all aspects of bulk water supply the following upgrading is proposed:







Construction of Booster Pump station at Crystal Springs Dam to increase
delivery capacity from dam to 18MI/d
Construction of a new 18MI/d Filter Building (equipping 3 of 6 filter beds being
deferred and retaining oldest filters in service)
Providing recycling facility for spent backwash water (incorporated in new filter
building)
Providing pre-chlorination facilities for the water pumped from the river
(incorporated in new filter building),
Construction of 4th clarifier to increase overall clarifier capacity to 18MI/d
Construction of 10 MI/d reservoir at water works and
Construction of staff quarters near water works (current quarters are limited and
form part of the existing filter building)
A total of R21 160 000 excluding VAT is required to bring all the aspects of the supply to a
capacity, which can meet a Peak Week Daily demand.
14
Greater Kokstad has poor raw water supply because of droughts in the area and this issue
has been highlighted in the Disaster Management Plan. In the 2003/2004 financial year
DWAF granted the municipality R4 million for Drought relief program. Drought relief
measures currently being undertaken in Kokstad include the following:




The construction of a 6 m high concrete dam on the Mzintlava River just
upstream of the new river abstraction and pumping scheme (storage capacity of
400 000 m³)
Facilities to divert river water into a disused quarry next to the above mentioned
dam and pump the water back into the river when the river flow fails (storage
capacity of 230 000 m³)
Construction of various water reticulation pressure reducing control valves and
The equipping of 1 borehole (capacity of 200 m³/ day)
Once completed the above measures will effectively solve the short and medium term raw
water supply limitation. It should however be noted that full assessment of the raw water
supply capacity should be undertaken to allow for timeous planning.
3.5.3 Sewage Treatment
The provision of sanitation in residential and commercial areas is made in a form of
waterborne system. The sewerage treatment works has reached its carrying capacity and
needs to be upgraded to ensure that effluent produced meets DWAF water quality
requirement. In small towns such as Franklin and Swartberg the majority of households are
serviced with septic tanks. The small portion of Franklin on Spoor net property is serviced
with waterborne system. This system will be taken over by the District once transfer of
property from Spoornet to the municipality has been finalized. Kransdraai and Maraiskop
are serviced with Ventilated Improved Pit Latrines (VIP’s).
The Ninham Shand report prepared in 2004 indicates that the mechanical drum screeners are
urgently required for the inlet to the works. It is also mentioned that non-biodegradable
fibrous matter and plastics especially condoms are causing severe operational and process
problems and a sum of R1.2 million is required to resolve this. An additional R19 million
(excluding VAT) is required to duplicate works capacity.
3.5.4 Electricity
Electricity in the area is supplied by two service providers: Greater Kokstad Municipality
and ESKOM. Greater Kokstad Municipality purchases power from ESKOM and supply it to
the old Kokstad Municipal area while ESKOM supplies electricity in rural areas. The
municipality is responsible for reticulation and cost recovery in the area it is currently
servicing. One major challenge with this arrangement is different tariffs charged by the
service providers.
Power is generated from ESKOM Sub-station which derives its power from Harding and
supplies Municipal Sub-station. The new housing developments in the area such as
Eastview, Riverview, Willowdale, Area 12 and 13, Phase 2 and Horseshoe Phase 3 have
created a great demand for electricity supply in the area. Most rural communities such as
Pakkies Areas, Franklin, Kransdraai, Wansberg, Nauwpoort and Maraiskop require
electrification.
15
3.5.5 Telecommunications
Telkom is the authority for telecommunications in the Greater Kokstad Area. The majority
of people in formal urban settlements have access to Telkom services. In rural areas the
majority of people rely on cellular phones and cellular network coverage is weak to nonexistent in most areas.
3.5.6 Free Basic Services
The municipality has adopted an Indigent Policy (which relates to refuse collection and
electricity) the implementation of which started during 2005/06 financial year. On
implementation of the policy, the municipality managed to register about 2017 indigents.
The municipality, understanding the number of its indigents has then reopened registration
in July 2005 and closing on 31 January 2006 to afford members of the community an
opportunity to register,. The threshold to qualify for this benefit is an overall household
income, which does not exceed R1600. The said beneficiaries are entitled to electricity
worth R20 and R30 for refuse. Only the indigent community of Greater Kokstad will
benefit through this programme. The District municipality is in the process of developing its
indigent policy, which will respond to consumers who cannot afford to pay for the water
usage.
3.5.7 Summary on Engineering Infrastructure
Appearing as a challenge in the municipality is low revenue base, which emanates from the
high rate of unemployment. The majority of people in the area do not pay for services
rendered and it becomes difficult for the municipality to provide and maintain services. It is
indispensable that the consumers do pay for services rendered so that the municipality is
able to maintain the standard of services. However, the high unemployment rate remains an
obstacle.
4
SPACIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT
SYSTEM
4.1 Reviewed Spatial Development Framework
Greater Kokstad Municipality has reviewed its Spatial Development Framework and a
detailed document is available. For the purpose of the MHP we have included a summary of
the SDF. Based on the development strategies identified in Greater Kokstad’s IDP, the
Spatial Development Framework has taken into account the following critical areas to be
developed spatially:


Agricultural Development and
Tourism Development
4.2 The link between Land Use Management and Spatial Development
It is important to note that the IDP Spatial Development Framework is intended to form the
basis for the Land Use Management System for the municipal area (Land Use Management
referring in this instance to a) the control of development and b) the facilitation of
development). These two aspects place different requirements on the Spatial Development
16
Framework - one the one hand it must be detailed enough to guide the implementation of
land use rights (by means of Planning Schemes), while on the other hand it must identify
measures to stimulate development.
4.3 Greater Kokstad Spatial Development Framework
4.3.1 Greater Kokstad Development Informant maps:
The Development Informant maps are a series of maps, which show spatial trends and
issues. These maps are used as the informants for the Land Use Management system, which
is developed by the Municipality.
The following maps have been prepared:








Map 1 – Updated Cadastral Base Map
Map 2 – Minset Data from EKZN Wildlife (Critical Areas)
Map 3 – C-Plan Data from EKZN Wildlife (Critical Areas)
Map 4 – Agricultural Land Potential Map
Map 5 – Spatial Development Framework
Map 6 – Important Species, Eco-Systems, Landscapes and Wetlands –
EKZN Wildlife
Map 7: Tourism Plan
Map 8 Population Density Map
From a study of the abovementioned maps, the following key spatial trends and issues have
emerged:
4.3.2 Settlement Hierarchy
a. Primary Node
Kokstad is the largest population centre in the municipality and predominates
massively in the Municipality’s economy. In this node the CBD is dissected by R59
and intersected by R617 which are both Primary Movement Corridors.
b. Secondary Node
Swartberg the second largest population centre in the municipality on the R609
primary movement corridor plays an important role as a service centre to farmers in
the north of the municipality by providing a small variety of commercial and social
services.
c. Satellite Service Nodes
These were identified in Franklin, New Amalfi and Kingscote.
d.
Primary Tourist Nodes
Mount Currie Nature Reserve, the proposed Cultural Centre opposite Wimpy,
and the Mission at Kags Post are primary tourist nodes in the Greater
17
Kokstad Municipality. These have cultural and historical significance, which will
enhance tourism in the Municipality.
4.3.3 Movement Corridors
a. Primary Corridor
R617, N2, R56 are the primary corridors within the Municipality. These provide
high linkages with surrounding municipalities and economic nodes. Along
R617there are views of scenic beauty and landscapes, which can attract both
domestic and international tourimt thereby promoting LED projects at some
locations.
b. Secondary Corridor
D609 joining D622 to Wansbeck is a secondary corridor and also provides linkages
to the Drakensberg.
P604 connecting Matatiele to R617 provides a short cut to Pietermaritzburg and the
N3 and its potential could be strengthened through surfacing.
R602-1 to Creighton and Umzimkulu provides a linkage between Franklin,
Umzimkulu and Creighton.
c. Tertiary Corridor
These corridors provide vital linkages to service satellites in the district and ensure
connectivity with service delivery in the communities.
4.3.4 Land Use and Environmental Management
a. Wetlands (Potential Conservation Areas)
Only one formal conservation area exists within the urban area of Kokstad
(Mount Currie Nature Reserve).
The potential exists for extensive conservation measures on large areas of
wetlands to be implemented throughout the Municipality with respect to
important eco-systems, habitats, landscapes and fauna (especially the Franklin
Vlei).
b. Commercial Agriculture and Tourism
Commercial agriculture exists throughout the municipality. Future development
of the municipality should seek to preserve the agricultural land in the area,
develop its specific potentials and provide for diversification eg. Tourism and
forestry. Although other areas have been identified where such specific
diversification should occur they should not be viewed as inhibiting commercial
agriculture occurring on a mixed basis.
18
c. Primary Getaway, Adventure and Eco-tourism
Although much of the area is farmed for commercial agriculture it contains a
vast combination of natural resources and landscapes for getaway tourism.
In the course of diversifying to tourism conservation efforts should be applied
using protection mechanisms such as bio-sphere reserves. Any tourism
development should integrate with such efforts. From a tourism plan done by
the distrct, and the local municipality, Greater Kokstad shows potential for this
tourism.
d. Potential opportunity for rural housing
Settlements with potential for rural housing identified through the IDP processes
in the municipality include for example, Pakkies, Makhoba and Wansbeck.
These developments will improve the socio-economic conditions of the rural
communities.
e. Urban Expansion
Land adjacent to the Mount Currie Motel to the east and land to the North of the
N2 has potential for urban expansion in the form of middle to high income
housing and industrial development. This would assist in job creation within the
Municipality. Land to the North of Mount Currie Secondary School also displays
potential for urban expansion.
4.3.5 Conclusions
The Greater Kokstad Spatial Development Framework (SDF) provides a broad indication of
where different types of development should take place within the municipal area. As such
it provides general direction to guide decision-making (and thereby contribute towards the
creation of integrated and habitable towns and residential areas), a framework for the
formulation of an appropriate land use management system for the municipal area and a
framework for public and private sector investment. This plan is currently reviewed to
reflect potential projects in spatial form as per comments from DLGTA during IDP
Assessment for 2006/07 financial year.
In respect of housing development, there is an excellent correlation in respect of both the
existing and potential new housing projects with the main spatial framework elements.
All existing projects and almost all potential new projects are situated within the
designated development nodes, the only exceptions being relatively small rural
developments. Those that are not situated in development nodes relate well to
movement corridors (see attached plan showing an overlay of housing projects in
relation to the main spatial framework elements, at the back of this document).
4.4 Land Use Management System
The Greater Kokstad Municipality has embarked on developing a comprehensive and
flexible Land Use Management System for the greater municipality including both urban
19
and rural components. Due to the nature of the municipality being semi-urban/rural, the
project has been divided into two phases. The first phase is the Kokstad Urban Scheme
which is an extension of the existing Kokstad Town Planning Scheme to include newly
developed township areas such as Shayamoya and Horseshoe, as well as existing areas like
Bongweni, Kokstad town centre and surrounding suburbs. The second phase, the Kokstad
Rural Scheme covers all rural and farm areas, as well as adjoining informal settlements with
no current proper land use management system.
4.4.1 Greater Kokstad Land Use Management System (LUMS): Urban Scheme
The LUMS for the municipality has been developed to achieve the promotion of coordinated and harmonious development that will tend to promote health, safety, order,
amenity convenience and general welfare as well as economic development. This also seeks
to achieve a pattern and distribution of land uses which generally:




Retains and enhances established residential neighbourhoods, industrial districts,
open space and amenities.
Allows for flexibility and the introduction of compatible uses in residential
neighbourhoods.
Allows for flexibility in the commercial area by permitting a combination of
commercial uses and residential uses.
Promotes the development and expansion of the tourism potential area.
4.4.2 Greater Kokstad Land Use Management System (LUMS): Rural Scheme
The purpose of this Policy is to identify suitable zones for the management of rural land in the
municipal area based upon the principles of the LUMS guidelines manual and to put forward
a management system that can be applied by the Local Council to areas which were formerly
outside of the urban areas currently covered by the Planning Schemes. The purpose of this
Policy is to promote co-ordinated and harmonious development of the municipal area in such
a way as will most effectively tend to promote health, safety, order, amenity, convenience and
general welfare, as well as efficiency and economy in the process of development, and the
improvement of communications. The purpose generally is to ensure that the principles of
sustainability, efficiency and integration are achieved. In furtherance of this purpose the
Greater Kokstad Municipality desires to achieve a pattern and distribution of land uses which
would generally provide for the following:











Accommodate desirable land uses.
Provide a framework to resolve conflict between different land uses.
Promote certainty of land use.
Promote the efficient use of land.
Promote the efficient movement of persons and goods.
Promote economic activity.
Promote the amenity of adjacent land uses.
Protect natural resources, including prime agricultural resources.
Protect cultural resources giving due consideration to the diversity of communities.
Protect and enhance unique areas or features of environmental significance and
biodiversity.
Manage land generally, including change of land use and sub-division.
20
5
CURRENT HOUSING STATUS
Kokstad Town, being the main urban centre in the municipality accounts for the bulk of
formal housing, for all income groups, as well as the majority of informal settlements.
Swartberg, being the secondary centre, has a correspondingly smaller proportion of housing
stock.
Housing for communities, which are more rural in nature, is present in the other secondary
nodes at Makhoba, Pakkies and Wansbeck, and at the tertiary nodes at Franklin, New
Amalfi and Kingscote. Outside of these nodes, population densities are relatively low, and
generally comprise communities of farm workers and their dependants.
Greater Kokstad Municipality has been proactive in initiating and implementing housing
projects, and has established a track record of delivery in the housing sector (see Annexures
A and B). Over 6000 housing opportunities have been provided to date, since the inception
of the Government’s housing subsidy scheme.
However there still exists a significant demand, as evidenced, particularly by informal
settlements, mainly in the vicinity of Kokstad Town. The municipality is also pursuing
substantial initiatives in rural housing development and land reform, as well as publicprivate partnerships, both in worker housing and the provision of rental stock.
Existing settlements and housing projects can be categorised from various perspectives.
5.1 Legal Status (Formal and Informal Settlements)
Formal Settlements
Formal Settlements are planned settlements approved by the municipality and relevant
government departments including the Department of Housing. Formal settlements are
planned in such a way that service delivery such as water, sanitation, electricity and roads
become part of planning and implementation phases. The municipality acknowledges the
challenge of servicing unplanned and scattered development and is therefore promoting
densification by developing suitable vacant land. Urban sprawl, which is caused by
uncontrolled development has a negative impact on service delivery, the environment and
economic growth and should be avoided. Planned and dense settlements are easier to service
in terms of engineering, economic and social services. Formal settlements occur at all
primary, secondary and tertiary nodes in the municipality.
Informal Settlements
Informal settlements are housing developments, which have not been planned and approved
by the municipality or Housing Department, are caused by illegal occupation of land, and
development is not accompanied by housing infrastructure such as roads, electricity,
sanitation, water and social services. Informal settlements are generally located in areas that
are not suitable for low income housing. They lack spatial logic, making it is difficult and
costly to service them.
21
The table below illustrates the informal areas that need urgent attention within the Greater
Kokstad Municipality. Detailed investigation will be necessary to determining the feasibility
of formalising, re-planning or replacing the informal settlements. The municipality is
currently engaged in such investigations.
RESIDENTIAL
AREA
STATUS QUO
SERVICE LEVEL
Franklin Quarters

Approximately 500 informal
dwellings with an estimated
population of more than 1500

Area situated on privately
owned land (owned by Spoornet) at
close proximity to Franklin urban
centre.

Area lacks non-residential
facilities.

Area located on wetland next
to the Vlei.
Access gained through
undefined informal roads.
Water and sewer supply
need major upgrading.
Franklin urban centre is
underdeveloped to
economically service any
development in the area.
Area 12 Bhongweni

Approximately 514 informal
dwelling with an estimated
population of 2 416

Most densely populated area
in Bhongweni

Site sizes range from 80-300
square metres

In close proximity to
Kokstad Town

Area is serviced with basic
communal pit latrines, and
unsurfaced roads which are
inaccessible in poor weather
conditions
No clean water
No electricity
Very poor roads
Area 13

Located between Horseshoe
Development and the railway line
within former Kokstad Municipality
Estimated 263 informal dwellings
with an estimated population of 1
236

Less densely populated
compared to Area 12 above

Site sizes range from 300
square metres and above

Strategically located and is in
close proximity to Horseshoe
Development which provides access
to opportunities
Basically non serviced
No Clean water
No Electricity
Very poor roads
Horseshoe
22
Area 1
Lindelani
Area 9
Ezibayeni

Located to the Eastern corner
of Bhongweni adjacent to the
cemetery and railway line

Estimated 52 informal
dwellings with an estimated
population of 244
Basically non serviced
No Clean water
No Electricity
Very poor roads

Located on a steep slope
Estimated 77 dwellings with an
estimated population of 362
Informal internal roads
have been constructed
No Clean water
No Electricity
Very poor roads
 Located on a fairly steep
slope
 Estimated 137 informal
dwellings with an
estimated population of 738
Area 7 and 8
Bhambayi
Area 6

Eastview/Riverview

This is an area that has been
built on a wetland. The
community here is very
crowded in small buildings and
others stay in the old toilets as
their rooms. This is one area
that will be included under the
‘Slums Clearance Project’.
The estimated number of
beneficiaries is about 200.
No services
There are services
5.2 Functional Status
The functional status refers to the particular type of housing need addressed. These
priorities or categories include urban development and slum clearance, rural housing, rental
housing, hostels redevelopment, and meeting special needs e.g. victims of HIV/AIDS, and
orphans.
To date the emphasis in Greater Kokstad has been urban development and slum clearance.
This is evidenced in the numerous urban projects around Kokstad Town, such as in
Bhongweni, Shayamoya and Horseshoe. It is appropriate that significant diversification is
now taking place, with initiatives in rural housing, worker housing and the provision of
rental stock being prepared.
Existing and proposed new housing projects are described, together with their functional
classifications, in Annexures A to E.
23
5.3 Project Status (Progress)
Housing initiatives are generally undertaken on a project basis. Assessing the project status
provides an indication of progress with any particular initiative. The project status can
nominally be categorised as follows:





Future Project: a potential new project has been identified
In Preparation: feasibility study, risk assessment and project packaging are
underway
In Implementation: funding is approved, and final design and construction are
underway
Substantially Complete: construction is finished and houses occupied
Closed Out: all administrative processes and financial reconciliation are
finalised
Of particular importance in government funded housing initiatives is the necessity of closing
out substantially completed projects. This is important firstly from an accountability
perspective, to ensure that the public funds allocated have been utilised effectively, and for
the purpose approved, and secondly to enable funding to be allocated to new or future
projects. The provincial Department of Housing is reluctant to approve new housing
initiatives in any given municipality, where older initiatives have not been finally closed out.
In terms of establishing a multi year programme for the implementation of housing delivery,
it is essential to ensure that sufficient initiatives are being identified as potential future
projects, and that sufficient projects are in preparation. This is also important to ensure that
the municipality will receive an adequate share of the Provincial Housing Fund, and that
funds which could be utilised in Greater Kokstad, are not allocated elsewhere.
6
HOUSING NEEDS ASSESSMENT
6.1 Quantification of the Housing Need
Quantifying the housing need can be undertaken in a number of ways.
Firstly is the information for existing dwellings, provided by Census 2001:
The census information is now six years old, and must be interpreted in that context. It does
indicate a substantial number of informal dwellings (2136), with 68 families living in
temporary shelter (caravans or tents). It can also be assumed that a significant proportion of
rooms or flats in backyards and on shared property (1135) do not constitute adequate shelter.
The traditional dwellings (4201) will mainly be in rural areas, and also constitute a priority
for the provision of adequate housing. It can also be assumed that a small proportion of
conventional housing is inadequate, and needs to be upgraded or replaced. From the census
information therefore a need for about 9000 houses can be deduced.
24
Dwelling Type
House or brick structure on a separate stand or yard
10 623
Traditional dwelling/hut/structure made of traditional materials
4 201
Flat in block of flats
1 227
Town/cluster/semi-detached house (simplex;duplex;triplex)
229
House/flat/room in backyard
891
Informal dwelling/shack in backyard
669
Informal dwelling/shack NOT in backyard
1 467
Room/flatlet not in backyard but on shared property
244
Caravan or tent
68
Not applicable (institution)
941
Total
20 560
This can be categorised as follows:
Housing Category
Housing Need
(number of units)
Slum Clearance
3050
Rural Housing
2100
Rural Land Reform
2100
Rental Housing
1400
Hostel Redevelopment
200
Farm Worker Housing
150
Total
9000
Secondly would be information contained in a housing waiting list, maintained by the
municipality. Greater Kokstad Municipality has, in the past, kept a housing waiting list, but
this has become out of date, and cannot therefore be taken into account for this municipal
25
housing plan. Experience both here and elsewhere has exposed the inaccuracy of waiting
lists and the difficulties experienced in keeping such lists current.
A third mechanism would be to compile information from ward committees. This has not
been undertaken as yet within Greater Kokstad, but is viewed as a potentially useful tool for
the future.
The fourth method would be a specific survey at a given point in time within the
municipality. This has recently been undertaken by municipal officials, but only in certain
specific locations containing informal dwellings. This has yielded the following
information:
Area Surveyed
Housing Need
Eastview/Riverview
120
Swartberg
300
Wansbeck
120
Bhambayi
150
Horseshoe
250
Shayamoya
200
Kraansdraai
175
Maraiskop
60
Nauwhoek
35
Total
1 410
This survey is current, and can be utilised to plan for housing initiatives in the areas
addressed.
6.2 Geographical distribution
Kokstad Town, being the main population centre and chief source of economic opportunity,
accounts for the largest housing need. The recent survey identified 720 informal dwellings
in the vicinity of Kokstad Town, and 1043 in and around Bhongweni. Smaller centres such
as Swartberg and Franklin exhibit correspondingly smaller demands for housing. A project
for Franklin, comprising 450 houses is currently being prepared.
26
6.3 Land Reform Initiatives
Of significance are the various land reform initiatives throughout the municipality,
such as Makhoba, Pakkies, Ekuthuleni and Kransdraai. Makhoba in particular, represents a
substantial development, with a demand for 1400 houses envisaged. Another potential
project for Pakkies has been identified, for 420 units.
6.4 Farm Worker Housing
Other, generally smaller housing development needs are present in the form of farm worker
housing in areas such as Willowdale, Maraiskop, Wansberg and Nauwhoek. These are
described in Annexure E.
6.5 Rural Housing
One important feature in respect of Greater Kokstad Municipality is the absence of land
under traditional authority, and held in the name of the Ngonyama Trust. Settlements on
such land represent a significant development priority to the provincial Department of
Housing, together with an appropriate budgetary allocation. This however is not applicable
in Greater Kokstad.
6.6 Worker Housing
Another important feature in Greater Kokstad is both the supply and demand for worker
housing in respect of large industry and major institutions. This is currently represented by
housing demand in respect of the Hans Merensky development (timber industry), the
hospital, and the prison. The Hans Merensky development is currently envisaged to provide
600 houses.
6.7 Rental Housing
The municipality has identified a significant need for rental housing, mainly to
accommodate workers who retain their family homes elsewhere. This group includes
educational and health workers, as well as employees of various industries and businesses,
mainly around Kokstad Town.
It will be important in addressing this need, that the municipality becomes familiar with
government policy in respect of rental housing. An earlier initiative by the Department of
Housing to make a presentation to the municipality was aborted. This initiative needs to be
revived, in order to assist the municipality in taking the matter forward.
The municipality is currently in negotiation with a company called Respond Housing with a
view to establishing a public private partnership for the provision of rental housing. It is
envisaged that about 600 units will be supplied, and that they will target the middle-income
bracket.
6.8 Special Needs Housing (Housing for victims of HIV/AIDS)
The full extent of the impact of HIV/AIDS within the municipality has been difficult to
quantify. However it is known that it is significant. This has substantial impacts on the
determination of housing need. From one perspective it is limiting the actual growth of
27
population as described and quantified in Section 3.3 above. From a different perspective it
presents the challenge of how shelter should be provided for the elderly and for orphans,
who have lost the support of economically active family members. It also presents the
challenge of providing shelter for the sick. Experience elsewhere indicates that
institutionalisation is not going to be a practical solution, given the extent of the pandemic.
There is significant support for the concept of caring for people within their own
communities and within their family structures as far as possible. This proposition is to a
large extent also supported by cultural values.
Several private institutions, generally funded by religious denominations, are currently
operating within the municipality in support of victims of HIV/AIDS. It will be important
however for the municipality to quantify the extent of the need in this sector, and to
establish strategies to address the challenge.
6.9 Overall Assessment of Housing Need
The overall scale of housing need in Greater Kokstad at present amounts to 9000 units. Of
this total, 1877 houses will be provided as a result of projects currently in preparation. An
additional 3406 will be supplied as a result of identified future projects. This leaves a
balance of 3717 houses still needed and for which planning still has to be undertaken.
7
LAND IDENTIFICATION
Greater Kokstad Municipality has in recent years made excellent progress in respect of
establishing policies for its Spatial Development Framework and Land Use Management
System. It is thus very well placed to direct and manage development within its area of
jurisdiction. It has also identified the housing need, both in terms of the housing demand in
various geographical locations, and the functional requirement i.e. urban development,
rental housing, farm worker housing, land reform projects, etc.
However in respect of housing development in particular, the municipality now needs to
take this process the next step forward, which is to identify particular areas or parcels of
land on which the various housing developments could take place. Only when specific
parcels of land have been identified, and through land audit found to be suitable for
development, can specific projects be taken forward. This in turn, initiates the whole process
of project feasibility study, risk assessment, preparation and packaging, as illustrated in the
project preparation cycle flow diagram below.
28
Project Preparation Cycle
This process of land identification and audit has commenced for certain parcels of land in
the vicinity of Kokstad Town and elsewhere. The status of this study is given in Annexure
F. The linkages between land already identified and planned projects are also shown in the
table.
Within the town of Kokstad itself, much of the land is already developed, and is therefore
not available for new housing development. However there is a significant potential for
urban densification. This is the process, which occurs through the development of vacant
land, the result of which is an increase in city, town or urban density. It can also occur
through compaction i.e. an increase in net residential density through the addition of new
units or people into an area through the subdivision of land or through the expansion of floor
space of existing buildings.
Greater Kokstad Municipality has vacant land in various areas, for example, Bhongweni
Area 16. The site is 6760 square metres and is the remaining vacant portion in Bhongweni.
The site is strategically located and has high potential for infill. Kokstad East Residential
Area comprises 600 dwellings units and is well located between Bhongweni and the centre
of Kokstad Town. 55 % of the land is under-developed and can accommodate
approximately 750 dwelling units. The area is comprised of large plots of about 4000 square
metres and has not been subdivided.
29
Residential development in the area has tended to concentrate along main roads leaving the
internal sites underdeveloped. This issue will be dealt with in the Land Use Scheme that is
currently being developed for the area.
Notwithstanding the above, it is clear that additional land must by identified in and around
Kokstad Town, in order to meet the current demand.
The linkages between specific land parcels and potential projects are given in Annexure F.
8
PLANNED AND ANTICIPATED FUTURE PROJECTS
In Greater Kokstad, the need for housing varies across the municipality, and across a wide
income spectrum.
8.1 National and Provincial Priorities
The national and provincial Departments of Housing have established the following
priorities in respect of the provision of housing:






Finalisation of existing projects
Removal of slums/informal settlements
Rural housing
Provision of Rental Stock
Accommodating victims of HIV/AIDS
Hostels redevelopment
In respect of the finalisation of existing projects undertaken in terms of the government’s
housing subsidy scheme, Greater Kokstad has one project completed and closed out, and
eight projects substantially completed but not yet closed out. It will be important therefore
that municipal officials engage with the provincial Department of Housing to ensure that
these closeouts are undertaken timeously. The provincial Department has established target
dates by which this should be achieved (see Annexure B).
Removal of slums and informal settlements has been the municipality’s main priority to
date, and will continue to be the main priority for the foreseeable future. This is
evidenced in the areas already identified around Kokstad Town and the other urban centres
for upgrading and replacement. With the possible additions of replacing traditional
dwellings and rural land reform, this represents the largest demand in the municipality.
Potential projects have already been identified to address this category, with Franklin
currently being prepared.
Rural housing is also starting to gather momentum in the municipality, the major and most
advanced project being in respect of land reform at Makhoba.
The rental/social housing category is described below, as is progress with hostels
redevelopment.
Whilst housing delivery in the municipality is generally very good, both in terms of the
6000 houses delivered to date, and the planned and identified future projects, it would
30
appear that the major gap in respect of planned housing delivery in Greater Kokstad is the
provision of shelter for victims of HIV/AIDS, and accommodation for the wider impact of
this pandemic, where the economically active members of society are hardest hit, leaving
behind the elderly and children, the latter often in child-headed households. It is important
therefore that the municipality prioritise this category for future attention.
8.2 Project Categorisation
Planned and anticipated future projects can be categorised under various programmes. The
Housing Act, 1997 defines “National Housing Programme” as any national policy
framework that achieves the following objectives:



Assistance to persons who cannot independently provide for their own housing
needs
Facilitation of housing delivery
Rehabilitation or upgrading of existing housing stock
These programmes to facilitate housing development, include, but are not limited to, the
following:



The Housing Subsidy Scheme
The Discount Benefit Scheme to promote home ownership
The Public Sector Hostels Redevelopment Programme
8.3 Housing Subsidy Scheme
Most of the planned and identified housing projects for Greater Kokstad, and all of the
substantially complete projects are applicable to the Housing Subsidy Scheme. This includes
the currently active project at Horseshoe, the projects currently in preparation at Franklin,
Makhoba and Willowdale, and the many identified future projects.
Such projects require considerable time for preparation and approval, and it is important
therefore to plan far enough ahead to ensure continuity of delivery. This is addressed later.
8.4 Discount Benefit Scheme
The municipality has not at this stage identified any houses to which the Discount Benefit
Scheme would apply.
8.5 Public Sector Hostels Redevelopment Programme
Greater Kokstad Municipality has two hostels, Shayamoya Hostel and Bhongweni Hostel,
and a facility known as Single Quarters.
Shayamoya Hostel
This hostel has approximately 50 rooms, but is no longer habitable. The building is very old,
and is collapsing in places. Notwithstanding this, some people are still living in it.
31
This structure is beyond renovation, and will have to be demolished and rebuilt to
accommodate families, rather than individuals.
Bhongweni Hostel
Bhongweni Hostel has about 64 rooms. The structure is basically sound. However, it has
been extensively vandalised. The roof has been removed from two of the blocks, and
windows, doors, toilets and electrical wiring have been stolen.
Because the structure is basically sound, this hostel could be renovated into family units.
Some 40 people are staying in Block 2 of this hostel. This block still has a roof, windows
and doors. However, no maintenance and cleaning has been taking place, so conditions are
unhygienic, and there is a shortage of potable water for drinking and for the toilets. This
block is also suitable for renovation into family units.
Single Quarters
The Single Quarters comprise 48 rooms. These units are small, but they are all occupied.
These structures are very old, and are showing signs of structural distress. The Single
Quarters are identified for renovation and transformation to family units.
Some of the current occupants of the Single Quarters claim to be paying rent, but the
municipality has no records of this, or proof of ownership of these properties. An
investigation will therefore have to be carried out to clarify these matters.
8.6 Municipal Owned Houses
In Bhongweni there are a number of houses belonging to the Municipality. The
Municipality is in the process of auditing these houses, to determine how many there are.
Although these houses are occupied, no rent is being paid to the Municipality. This
requires further investigation, to determine who the occupants are, and who they are paying
rent to, if rent is being paid at all.
The municipality has identified a need for policy formulation to guide the establishment of
the institutional arrangements to manage these houses.
8.7 Rental / Social Housing
Respond Housing
Greater Kokstad Municipality, in partnership with Respond Housing from Northern Ireland
are presently formulating a rental/social housing project to cater for the middle and upper
income brackets.
Approximately 600 units are anticipated for this development, and the land has already been
identified.
32
Construction of Rental Flats
An additional rental housing project, for the construction of 30 units, targeting the middleincome market has been identified by the Municipality. The estimated cost of this project is
R20 million.
Establishment of a Section 21 Housing Company
The municipality has decided that the most suitable strategy for implementing rental and
social housing will be to enter into Public Private Partnerships (PPPs), and has elected to
form a Section 21 company to take this initiative forward.
Transnet Houses
Transnet is in the process of selling their housing stock to GKM. This comprises
approximately 50 units, and is located in Franklin and Kokstad Town. The Municipality is
currently considering utilising this housing stock for rental purposes.
8.8 Worker Housing
Hans Merensky
The Hans Merensky development has created a demand for housing, for staff employed in
the timber industry. A need for 600 units has been identified. Suitable land for this
development still has to be identified.
8.9 Other
Shayamoya 236 sites
This is a project, which was started but not completed. The company Greenstart, which was
responsible for this development, has now been taken over by Blue Financial
Services. It is anticipated that the development will proceed, pending repackaging and
municipal approval.
8.10 Engagement with the Private Sector
Arising out of the Provincial Housing Summit 2006, municipalities are to engage companies
in their areas with a view to exploring and ensuring the provision of employee housing and
company-assisted housing. In this regard, Greater Kokstad Municipality is developing an
exemplary track record and is well advanced with such initiatives, as evidenced in several of
the projects described above, most noticeably in the rental/social housing sector with the
Respond Housing initiative, the construction of rental flats, the take-over of Transnet houses
and the establishment of a Section 21 company, and also in the Hans Merensky initiative for
worker housing in the timber industry.
33
9
INTEGRATION WITH OTHER SECTORS
Integrated development is a cornerstone of the national Department of Housing’s policy, the
“Comprehensive Plan for the Development of Sustainable Human Settlements”, which
recognises the inadequacy of existing apartheid settlement patterns, and housing
development as is has been taking place under the new dispensation to date. This policy is
described in Section 2.4 above.
Integrated development itself is an essential condition for the successful evolution of
society, and for individuals to reach their potential. Integration across different sectors is the
central objective of the IDP process. However, integration must be addressed both at the
IDP level, and at the project level.
At the IDP level, projects first need to be prioritised. Then the various departments can be
informed, so that the various support services can be budgeted for and provided on a
timeline which is consistent with the provision of housing.
At the project level, this can include, but is not necessarily limited to physical infrastructure
such as:
 Road Access
 Water and Sanitation Infrastructure
 Energy supply (Electricity)
 Access to telecommunications
It also includes social infrastructure such as:
 Education
 Health Care
 Creches
 Provision of facilities for special needs groups e.g. HIV/AIDS, the aged,
orphans
 Sites for religious activity
The town planning layout for the development should make provision for all of the above,
as appropriate.
Provision should also be made for economic opportunity, and where appropriate, food
security. This provision can be addressed at either the IDP level or project level, depending
on the specific circumstances, and the provisions of the municipality’s Spatial Development
Framework (SDF), and Land Use Management System (LUMS), and could include:



Facilities for micro-enterprises
Commercial development
Agriculture or community gardens
A major concern, already identified by the municipality, is a lack of poverty alleviation
programmes. The need for such programmes is illustrated by the fact that 78% of the
population earn less than R400 per month, and only 2,3% of the population earn more than
R6 400 per month. At this stage there is little evidence to indicate that there will be
sufficient LED projects to support the development of sustainable human settlements,
particularly at a scale to match the housing need. This issue is relevant to those housing
projects already substantially completed, as well as new projects.
34
Although the municipality has identified three potential economic growth pillars, namely
agriculture, tourism and manufacturing/industry, the strategy has yet to be realised in the
creation of sufficient, sustainable employment opportunities. It is anticipated that this will
remain a challenge for the foreseeable future, and will impact negatively on the
sustainability of existing and future housing projects.
Therefore, coordination must take place between departments to ensure integration of
development activities. It will be the responsibility of the municipal housing component to
ensure that all other functional components or departments are informed
timeously. This will enable budgetary allocations to be addressed, and the actual service
provision to take place concurrently with the housing development.
For the engineering infrastructure, funding provision will be made through the MIG
programme. It is important to understand that MIG funds can be committed up to five years
in advance. Therefore adequate forward planning must take place for all housing
development, in order to ensure timeous provision of the bulk and connector engineering
services.
In the Province of KwaZulu-Natal there are two types of forum, which can be utilised to
facilitate better coordination for integrated development. The first is the municipal housing
forum, which usually takes place on a monthly basis in each municipality, and where the
issues affecting each actual and potential new housing project can be discussed and
resolved. The other is the District Service Provider Forum (SPF).
Although mentioned under Section 7. Land Identification, it is important also to note here,
that integration with other sectors can only meaningfully be taken forward when specific
land parcels have been identified on which the developments can take place. This land
identification therefore needs to take place at an early stage, in order to allow other sector
departments to plan and budget for the provision of their particular service as it relates to the
specific housing development under consideration.
10 HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK
10.1 Housing Administration
Administration in respect of housing is an important aspect of the municipality’s
responsibility, and includes the following:








Planning of new housing development
Project management
Property inspection and valuation
Setting of, and collecting rates, and service charges
Rental of municipal housing stock, and the maintenance thereof
Management, maintenance and administration of municipal-owned hostels
Community liaison
Record keeping
In addition to the above, changes in both functions and property ownership between the
three spheres of government, and inaccurate or inadequate record keeping, have increased
the responsibilities of local government in the housing sector.
35
Kokstad officials are currently undertaking an audit to determine the ownership of a number
of properties. The workload, particularly in respect of subsidy housing, has been
exacerbated by the practice of home ownership changing hands on an informal basis. This is
a major problem, and is particularly apparent in Shayamoya. Resolution of this issue
represents a significant demand on the capacity for housing administration within Greater
Kokstad.
It is imperative that the municipality completes such audits successfully, and that adequate
resources are applied to enable this to be achieved.
10.2 Institutional Framework
Greater Kokstad Municipality currently has a housing component comprising five posts, as
shown below. This component falls within the Technical Services Division.
Housing Manager
(Vacant)
Housing Project Facilitators
(2)
Trainee Housing Project Facilitator
Front Desk Liaison Officer
(1)
(1)
10.3 Capacity Building
The post of Housing Manager is a key post, being the most senior in the component, and is
currently vacant. Steps must be taken to ensure that this post is filled, and that funds are
available for this appointment.
The municipality will have to assess the adequacy of the capacity of this component to
manage the workload associated with the multi-year housing programme presented in this
plan, and adjust the component accordingly. It would appear however, that additional
capacity will be required in order to cope with the workload anticipated in meeting the
housing need.
In particular, it can be anticipated that additional project management and professional
engineering skills will be necessary to drive housing development on the scale required.
These skills are in short supply nationally, as well as at the local level. If the municipality is
unable to recruit sufficient capacity as staff, then it will have to consider outsourcing, either
on a programme or project basis, in order to ensure delivery of housing at the required rate.
36
In addition, further capacity for housing administrative functions will be required. In this
case the municipality should be able to recruit, and if necessary train personnel for these
functions on a cost effective basis.
With regard to the existing staff, the municipality has a skills development policy, in terms
of which each staff member is required to have a current skills development programme. At
present this requires to be updated in respect of the housing component. However, staff from
this component regularly attend provincial workshops to keep abreast of current housing
initiatives and policy developments.
In the preparation of this municipal housing plan, municipal staff, particularly those of the
housing and planning components, have played an active and participatory role, particularly
in undertaking primary research, where important information was not readily available.
This has undoubtedly contributed to a greater understanding of the municipal housing
planning process, and will stand the municipality in good stead, when updating this plan in
future years. It has also added significant value to this document as a planning tool for the
future.
11. PERFORMANCE MEASUREMENT
A variety of measures can be utilised in the assessment of performance for housing delivery.
These can include, but are not limited to:




Number of units delivered (per annum)
Funding utilised (per annum)
Size of housing backlog
Progress against milestones for specific projects
These measures can be used to assess the quantity of housing delivery. Some measures
could also be introduced to assess the quality of housing delivery, such as:


Technical construction standards: compliance with National Building
Regulations and National Home Builders Registration Council requirements
Housing Consumer Satisfaction Surveys
For the purposes of this Municipal Housing Plan, it is recommended that the number of
units delivered per annum be utilised as the primary performance measure. This will have a
direct relationship to the funding utilised, particularly in respect of the subsidy housing
scheme. On average this municipality has delivered approximately 600 units per annum
since the inception of the subsidy housing scheme. It is suggested that a target of between
800 and 1000 units could be adopted for the future, taking into consideration the scale of the
housing demand and the government’s intention to eliminate all informal settlements.
It will also be important for the municipality to monitor the size of the housing backlog, and
to strive ultimately for a housing backlog of zero. It should be noted that from a national
perspective, an unanticipated increase in the national housing backlog in recent years was
revealed. This was attributed largely to a smaller family size than anticipated i.e. the number
37
of people per house, and the ongoing trend towards urbanisation. Only recently has a
decrease in the national housing backlog been reported.
The other measures suggested above, can best be applied on a project specific basis.
12. HOUSING DELIVERY PROGRAMME
The proposed housing delivery programme is attached as Annexure G.
The following considerations and assumptions have been utilised in preparing this
programme:

A typical housing project will take 3 years from inception to completion,
assuming it runs smoothly.

Approximately 18 months will be required for preparation and approval and 18
months for implementation.

Large or complex projects will take longer.

Unforeseen issues or difficulties will increase the project duration.

The actual rate of delivery will be governed by the following:
o The capacity of the municipality to manage the programme.
o The capacity of the construction industry to deliver.
o The funding available.

A detailed programme will be established for each project at the appropriate
time, which will guide project specific performance and delivery. Each project
specific programme will have to be kept current, as appropriate. These projectspecific programmes will then feed back into the overall municipal programme
of delivery, as contained in this Municipal Housing Sector Plan.
An additional key consideration is the fragmented nature of informal settlements around
Kokstad Town i.e. a relatively large number of small, geographically discrete informal
settlements. It is suggested, rather than addressing each individual settlement as a project,
that the municipality combines them either into a single project or small number of
relatively large projects. In this way, scarce project management and technical resources can
be better utilised, as well as benefiting from economies of scale in the actual construction.
38
13. CONCLUSIONS
The following conclusions can be drawn from the compilation of this Municipal Housing
Plan:








Greater Kokstad Municipality has established an excellent track record in housing
delivery, with over 6000 units delivered since the inception of the Housing Subsidy
Scheme. This compares most favourably with other municipalities of comparable
size.
The current need for housing amounts to a further 9000 units. Of this total, 1877
houses will be provided as a result of projects currently in preparation. An additional
3406 will be supplied as a result of identified future projects. This leaves a balance
of 3717 houses still needed and for which planning still has to be undertaken.
The Municipality has established the necessary planning frameworks to take housing
development forward in an orderly manner. These include the municipality’s
Integrated Development Plan, Land Use Management System, Spatial Development
Framework, and now the Municipal Housing Plan.
Identified future projects represent a pragmatic and appropriate response to housing
across various sectors, including freehold, rental, rural land reform, worker, and
farm worker housing. Both full subsidy and credit linked developments are being
planned.
The Municipality’s engagement with the private sector is ongoing and bearing fruit
in terms of housing delivery.
Identification of land for further housing development, and the availability of bulk
infrastructure should be treated as a high priority.
The municipal capacity to deliver continues to be a challenge, as a result of the scale
of delivery required, and the increased area of responsibility, brought about by the
municipal demarcation process.
Of concern is the level and growth of economic activity to support both existing and
new housing developments, which are growing rapidly, and to enable them to
function as sustainable human settlements.
39
REFERENCES
1. Greater Kokstad Local Municipality: Reviewed Integrated Development Plan (IDP)
2006/2007
2. Greater Kokstad Land Use Management System (LUMS): UDIDI Environmental,
Planning and Development Consultants
3. Greater Kokstad Local Municipality: Strategic Environmental Assessment: UDIDI
Environmental, Planning and Development Consultants
4. Greater Kokstad Municipality: State of the Municipality Report
5. Greater Kokstad Municipality: Annual Report for the Financial Year 2005/2006
6. Greater Kokstad Municipality: Summary of Operating and Capital Budget
2007/2008
7. National Housing Programme for Housing Sections of Integrated Development
Plans: National Department of Housing
8. Guidelines to Assist Municipalities in the Preparation of Municipal Housing Plans:
Department of Housing KwaZulu-Natal
9. Municipal Housing Sector Plan Manual (Funded by USAID): Project Preparation
Trust of KZN
10. Statistics South Africa http://www.statssa.gov.za/default.asp
11. The Department of Housing http://www.housing.gov.za/default.htm
12. Department of Housing KwaZulu-Natal http://www.kznhousing.gov.za/
13. The National Housing Code
14. The Housing Act, 1997 (Act No. 107 of 1997)
15. The Comprehensive Plan for Sustainable Human Settlements, National Department
of Housing
16. The Greater Kokstad Municipality Website http://www.kokstad.org.za/
40