Durban Situation Analysis

C I T I E S W I T H O U T SLUMS
Sub-Regional Programme for

Eastern and Southern Africa
SITUATION ANALYSIS
OF INFORMAL SETTLEMENTS
IN SOUTH AFRICA
CITY OF DURBAN (ETHEKWINI)

UMLAZI & KENVILLE/SEA-COW LAKE
SITUAT I O N A N A LY S I S
OF INFORM A L S E T T L E M E N T S
IN Th e CITY OF D U R B A N ( E THE KW I N I )
UMLAZI & KEN V I L L E / S E A- C O W L A K E
CITIES W I TH O U T S LU M S
S ub -Regional P rogramme for
Eastern and S outhern Africa
SO U TH A F R I C A
United Nations
Human Settlements Programme
Ethekwini Municipality
Situation Analysis of Informal Settlements in South Africa
Copyright © United Nations Human Settlements Programme

(UN-HABITAT), Nairobi, 2007
All rights reserved
United Nations Human Settlements Programme (UN-HABITAT),

P.O. Box 30030, GPO Nairobi 00100, Kenya
Tel: +254 20 7623 120
Fax: +254 20 7624 266
Web: www.unhabitat.org
HS/896/06E
ISBN: 92-1-131882-3
Design and Layout by Information Services Section, UN-HABITAT
ii
Table of C ontents
EXECUTIVE SUMMARY 1
SECTION A: BACKGROUND AND STATUS QUO 7
1. Project Background 8
1.1 Purpose of the Situation Analysis 8
1.2 Institutional Context 8
1.3 Goals and Objectives of Analysis 8
1.4 Methodology 9
1.5 Limitations 10
1.6 Umlazi 10
1.7 Kenville/Sea-Cow Lake 11
2. LAND DESCRIPTION 13
2.1 Land Legal 13

2.1.1 Land Ownership 13
2.1.2 Land Availability 13
2.2 Land Use 13
2.3 Land and gender issues 14
2.3.1 Patriarchy 15
2.3.2 Customary & religious laws & practices 15
2.3.4 Domestic Violence 15
2.3.5 HIV & AIDS 15
2.4 Geotechnical and Environmental Conditions 15
2.4.1 Geotechnical conditions 15
2.3.2 Environmental conditions 16
2.5 Availability of bulk services 16
3 SOCIO-ECONOMIC CONDITIONS 19
iii
3.1 Social Profile 19

3.1.1 Social Overview 19
3.1.2 Household Income 20
3.1.3 Umlazi and Kenville/Sea-Cow Lake Dwelling 20
3.1.4 Social Facilities 21
3.2 Economic Profile 22
3.2.1 LED Activities 22
3.3 Socio-Economic Dynamics 23
3.3.1 Economic Aspects 23
3.3.2 Physical Services 24
3.3.3 Social and Economic Infrastructure 24
3.3.4 Social Dynamics 24
SECTION B: PRIORITY ISSUES 27
4 HISTORIC HOUSING STRATEGIES 27
4.1 Previous housing investigations 27

4.2 Previous housing efforts 27
4.3 Previous housing structures 28
4.4 Lessons learned 28
5 CURRENT HOUSING STRATEGIES 31
5.1 Current housing strategies and plans 31

5.1.1 National strategies 31
5.1.2 Provincial strategies 31
5.1.3 eThekwini strategies 32
5.2 Current housing structures 33
5.2.1 Structures 33
5.2.2 National Government 34
5.2.3 Provincial departments 34
5.2.4 Municipal departments 35
iv
5.3 Current and planned housing projects 36

5.3.1 Projects planned 36
6. HOUSING DELIVERY ISSUES 37
6.1 Housing Delivery Stakeholders 37

6.1.1 eThekwini Housing 37
6.1.2 eThekwini Development Engineering Unit 37
6.1.3 Project Preparation Trust of KZN 38
6.1.4 Department of Welfare 38
6.1.5 Department of Health 38
6.1.6 Development Planning Unit 38
6.1.7 Department of Land Affairs 38
6.1.8 Umlazi Development Committee 39
6.1.9 Ward Councillors (Umlazi and Kenville/Sea-Cow Lake) 39
6.1.10 Homelesss Peoples’ Federation 39
SECTION C: POLICY ENVIRONMENT ANALYSIS 41
7 HOUSING POLICY AND NORMS 41
7.1 National Policies 41

7.2 Provincial Policies 41
7.3 Municipal Policies 42
7.3.1 Municipal policies 42
8 LEGISLATIVE ENVIRONMENT 45
8.1 Current Legislation 45

8.1.1 Land and planning related legislation 45
8.2 Anticipated Legislation 45
9. POLICY SUCCESSES AND CONSTRAINTS 47
9.1 Policy Successes 47

9.2 Policy Constraints 47

9.2.1. National Policy 47
9.2.2. eThekwini Policy 48
9.3 Policy Impressions 48
10. ALTERNATIVE UPGRADING STRATEGIES 51
SECTION D: PILOT PROJECTS 53
11. PILOT PROJECT SELECTION 53
11.1 Selection Criteria 53

11.2 Selected Pilot Areas 53
PLANS 84
vi
EXECUTIVE S U M M A RY have to be acquired, by expropriation or negotiation.
Problematic areas will only be those that fall outside
the former R293 towns and cannot be vested in the
eThekwini Municipality in terms of the Ingonyama
Pr o j e c t B a ckground Trust Amendment Act.
The objective of the Situation Analysis is to present the

state of slums and slum upgrading in selected wards Land and Gender Issues
in Umlazi and Kenville/ Sea Cow Lake, and the ef-
fectiveness of past and on-going upgrading initiatives, In Umlazi and Kenville/ Sea Cow Lake 43% and 38%
within the framework of the overall city development of the informal settlements respectively are headed
strategy and national poverty reduction program. Two by women. The social context within which women
key focus areas were selected in order to pilot alterna- seek access to housing is informed by factors such as
tive strategies because of their unique characteristics patriarchy, customary and religious laws and practices,
and having the largest number of informal settle- domestic violence, and HIV/AIDS. Specific strategies
ments, Umlazi and Kenville/ Sea Cow Lake. Umlazi and procedures must be devised to ensure that women
a formal township including the Umlazi Glebe area are enabled to participate fully in the planning and
and portions of the tribal authority areas west of the implementation of land reform projects. These have
proclaimed township. The study area forms part of the yet to be adequately formulated.
eThekwini Municipal area. Kenville/ Sea Cow Lake lies
in the northern part of eThekwini Municipality borders
the light industrial and commercial complexes along Geotechnical and
the North Coast Road activity spine. There are six Environmental Conditions
informal settlements comprising approximately 2 000
families, which have been earmarked for upgrade in Geotechnical information is not readily available for
the area. the specific study areas however it should be noted
that copies of detailed geotechnical reports could
readily be obtained from surrounding developments.
L a n d D e s c ription
Environmental conditions – The proposed develop-
Land within Umlazi is vested in the eThekwini ment of these informal settlements does not constitute
Municipality. Certain parcels of land within Umlazi a change in land use and as such it is not envisaged
may still vest in the Ingonyama Trust Board. The study that environmental authorisation will be required for
areas identified in the Kenville / Sea Cow Lake area the proposed residential development.
are all in private ownership with the exception of one
or two parcels of land which are owned by the eThek-
wini Municipality. Land that is vested in the eThek- Socio - economic Conditions
wini Municipality within the study areas can readily be
made available for development for implementation Umlazi and Kenville/Sea-Cow Lake areas have a total
of the alternative strategies to be formulated and ap- population of 403 435. Umlazi has the highest popu-
proved under this program. Privately owned land will lation of 388 687 and Kenville/Sea-Cow Lake 14 748.

The households in Umlazi are composed of 51, 2% of important and valuable lessons have been learned
females and 48, 8% males whilst Kenville/Sea-Cow during the period 1994-2005 with respect to housing
Lake’s gender distribution is 50, 4% females and delivery as well as the development of informal settle-
49, 6% males. From a study done by the eThekwini ments or insitu upgrades. These are further outlined
Municipality “Quality of Life Survey”, 2003-2004, it is below.
stated that the majority of households in 2004 were
made up of less than six members, and the average
household size is 4,5 members. Educational levels Current Housing Strategies
show that over 50% of the population has a matric
certificate. Educational levels show that over 50% The National Department of Housing strategies are
of the population within the study areas has higher defined in terms of their policies outlined. Their main
educational levels (Grade 8-Grade12), 20% of the current strategy that relates to the project is to:
population has a matric certificate. Only 11% of the
 Promote slums clearance and transformation,
population has tertiary level education. Umlazi’s la- mainly by means of implementing and
bour force is about 30% and Kenville/ Sea Cow Lake operationalising the Breaking New Ground
is 33%. 43% of the population in Umlazi is employed Policy which creates a more enabling
compared to 57% unemployed. environment for alternative and more flexible
strategies for upgrading informal settlements.
Of the total 90,196 households in Umlazi 58, 6% are The Provincial Department has identified ‘Cities with-
living in formal, 38% informal and 3% are living in out slums’ projects as a top priority within the Province.
traditional dwellings. In Kenville/Sea Cow Lake 34% eThekwini Municipality does have a housing plan and
are living in formal, 63% informal and 2% are living in a spatial development framework which they follow for
traditional dwellings. housing projects.
So c i a l D y n amics Projects Planned
The UN Situation Analysis is ensuring that participation Phases 1&2 of the Slums Clearance Project addressed
involves different stakeholders – community activists, 50 informal settlements and resulted in the develop-
professionals, politicians and government officials. A ment of 5 greenfield projects comprising 10 500 sites.
project Steering Committee has been formed which Phase 1 is nearing completion & Phases 2& 3 have al-
incorporates most stakeholders. ready been planned & proposal has been submitted to
the Province for approval. Phases 2 & 3 will result in the
development of 80 000 units over the next 6 years. 70
Pr i o r i t y I s s ues settlements will be relocated to the Greenfield projects,
120 will be upgraded & 20 greenfield projects will be
Historically the general strategy of the Ethekwini developed.
Municipality was to develop new green fields projects
(vacant land). This strategy created a number of new
housing opportunities for the poor but rarely trans-
lated into any impact in removing slums. A number

H o u s i n g D elivery Issues Federation will bring its experience of working with the
informal communities. People-centred development is
eThekwini Municipality adopted policies and practices going to be the key to their involvement.
for access to land and housing which are aimed at
providing quality living environments and integrating
the poor into the fabric of urban life through spatial Policy Environment Analysis
improvement. The Housing Department is expected
to champion the project of alternative upgrading National housing policy has only recently recognised
strategies. Phase 1 of the ‘Cities without slums’ is the need to formulate specific policies around the
an initiative of the eThekwini Municipality is already upgrading of informal settlements. A comprehensive
spearheaded by the Housing Unit in conjunction with strategy for the upgrading of informal settlements is
the KwaZulu-Natal Department of Housing (DOH). currently being developed, however it is likely that
The Engineering Department will provide extensive ex- as with all policies the practical realities can only be
perience on engineering project management services informed through implementation. Provincial policies
for low-income housing. The Housing Department will are to a large extent informed and driven by National
be assisting the project by providing input on how the Policies and Programs. Whilst certain programs such
communities are to be affected by this project and can as the slums clearance program have a strong KZN
benefit through projects/programmes that will take flavour the framework in which they have been de-
place. PPT will be playing an important oversight and livered is largely in accordance with National Policy.
project management role of this project. There are relevant policies and/ or legislation emanat-
ing from national, provincial and local government,
The Department of Health will highlight all the issues which affects housing delivery in KwaZulu Natal.
that relate to communities’ health issues in informal
settlements. Issues of HIV/AIDS, poverty, malnutrition
and sickness due to environmental problems need to Policy Successes
be addressed when dealing with this housing project.
The Department of Planning will be assisting by pro- The strength of the various policies and legislation
viding its expertise in the way best practices in terms of has however not always translated into enhanced or
physical planning in informal settlements have been improved delivery on the ground. This phenomenon
implemented and adding to the practices they have is more as a result of a lack of capacity at Local
used in the past. The Department of Land Affairs will Government level then a deficiency in the policy
give input on their recent methods of addressing land environment. The successes of Government policy
issues. are more evident in greenfields projects, institutional
projects and hostel redevelopment then in the upgrad-
Umlazi Development Forum consists of members of ing of slums or informal settlements.
various organisations and interested persons who as-
sist in ensuring consultation and communication with
the community. Ward Councillors who serve the Umlazi
and Kenville/Sea-Cow Lake wards will be bringing the
interests of the people in the ward as they are in touch
with the issues in their areas and Homeless People’s

Po l i c y C o n straints  Various categories of slums need to be defined

and classified or graded.
The rigid and formal process of township establishment  The reason for categorising various settlements
and development often makes the development of will allow for more then a single model to be
slums or the upgrading of informal settlements a very designed and implemented to suit the specifics
unattractive prospect for developers or local authori- of a particular area.
ties. The conventional wisdom for the development of  At this early stage it is not envisaged that more
land cannot be applied and very few innovative solu- then five different categories will be required.
tions exist. The development and construction industry  The previous ideal of individual free standing
as a whole is very conservative and alternative strate- housing units as a solution should not be
gies with respect to planning procedures, engineering considered an option.
designs and construction process’s is often frowned
 Security of tenure through individual
upon. ownership should not be considered an
imperative or a fundamental of the policy or
Examples of constraints are eThekwini’s fairly rigid and development instrument.
across the board minimum services level requirements
 Transitional arrangements based on an
(e.g.: with respect to level of road services and non
institutional type set up should be considered.
acceptability of on site sanitation). It is acknowledged
that these are, to some extent informed by:  Double storey walk up units or multi storey
units should be considered.
 A desire to put in place long term, best
practice infrastructural solutions (as opposed  Communal ablutions and community
to interim or incremental ones); amenities should be the norm
 A desire to move away from certain forms  Areas should be developed on an incremental
of historical forms of development which basis. In other words logical phases of
were associated with apartheid (e.g.: site and development should be planned and
service, on site sanitation). implemented over a period.
 The previous policies of all or nothing with
Based on the initial discussions between the various respect to township establishment process’s
stakeholders including Ethekwini Municipality, UN and conditions of establishment should not be
Habitat and the Department of Housing it is clearly considered an option.
evident that a radical rethink of current policies and
 Conventional levels of service and individual
strategies is required for development of informal set- water and sewerage connections should not
tlements. be an option at the early stages of incremental
development
From past experiences during the period 1994 – 2005
 Alternative zonings and regulations and by
and international experience the following should be laws should be adopted to suit a specific area
given consideration during the pilot study and the which is at a specific stage of development. In
development of a new development model; other words an area cannot progress from a
 Informal settlement’s and the definition of
slum to a fully-fledged suburb overnight.
slums vary from area to area and region to  Realistic time frames for development should
region. be agreed up front.

 The ultimate vision for an area needs to be

determined at the inception stage with clearly
defined stages of development being defined.
There needs to be great scale of capacity that needs to
be in order to implement extensive upgrading strate-
gies. Ethekwini Municipality has developed a matrix of
solutions to be combined so that appropriate solutions
can be used. The report outlines the alternative strate-
gies with their pros and cons. These are the conven-
tional one unit one site, site and service, management
of existing informal settlement, medium density hous-
ing and high density housing. These will be the way
forward to the formulation of the alternative strategies
that the Eastern and Southern African Region imple-
ments for their future upgrading projects.

SECTION A
BACK G RO U N D A N D the Project over and above the funding committed by

UN-HABITAT.
S TATUS QU O
The Scope of Work will encompass the following ele-
ments and focus specifically on the key areas identi-
fied:
1. Pr o j e ct Background
Conditions of informal settlements
The eThekwini Municipality’s proactive efforts in
• Institutional analysis
eradicating informal settlements through its Informal
Settlement Programme, Slums Clearance Projects and • Policy analysis
Housing Plans is recognised and admired at a Provincial, • Interpretative analysis of settlements
National and International level. On an international
• Proposed upgrading strategies
level, the Municipality currently enjoys a growing asso-
ciation with public sector and community based hous- • Follow-up proposals
ing bodies from various countries. Such associations, One of the key objectives of this Project will be the re-
which aim to promote dialogue between community evaluation of the way the Municipality currently imple-
based organisations and their local governments on ments housing projects with conventional engineering
matters of secure tenure and pro-poor slum upgrading and design standards, often resulting in a significant
strategies, are recognised, encouraged and supported number of relocations from in situ upgrade projects in
by the United Nations Human Settlements Programme the context of a limited number of well located green-
(UN-Habitat) through its Global Campaign for Secure field projects to accommodate the affected families.
Tenure and its Millennium Development Goal of sig-
nificantly improving the lives of at least 100 million For this purpose the UN Habitat appointed Maluleke,
slum dwellers by the year 2020. Luthuli & Associates, to assist in the synthesising and
consolidation of the existing information and develop-
It is through these associations, as well as the ing an example of good case study on upgrading of
Municipality’s impressive housing delivery track record unplanned settlements. This study will also augment
and financial commitment to the cause, that the UN- existing information through fresh analysis and
Habitat recognised a solid foundation on which to documentation. The team includes the international
launch the Inception Phase of its “Cities Without Slums” community through UN Nations Habitat to share ex-
Sub-Regional Programme for Eastern and Southern perience and help develop international best practice
Africa. After a field mission to the City in 2004, UN- and also to learn from and assimilate international ex-
Habitat chose Durban as a pilot city. The Municipality perience. National, Provincial and eThekwini Housing
has already signed an Agreement of Co-operation with are to facilitate improved upgrading strategies. A Town
the UN-Habitat and has contributed funding towards Planner and a Housing Consultant as well as Project

Preparation Trust as the Project Managers have been (PPT) which is active in the housing environment will
appointed to the team to implement this project. also be included in this process. In terms of the private
sector involvement, UN – HABITAT has appointed
Allan Gerber as its consultant to lead the process.
1 . 1 P u r p o se of the
 eThekwini, will be responsible for supporting
S i t u a t ion Analysis and managing the process of reaching
agreement amongst stakeholders regarding
In order to take full advantage of a Project of this the slum upgrading policy as well as
nature in the context of limited funding and a massive establishing a Steering Committee for major
number of informal settlements in the City, two key decisions and to view and monitor the
focus areas were selected for their unique character- progress of the initiative. They will also be
istics. These include Umlazi and the Kenville/Sea Cow responsible for organisational aspects of the
Lake. Umlazi comprises the largest number of infor- Stakeholders Workshop. eThekwini will also
provide the consultant(s) with all needed
mal settlement communities in the Municipality with
official documents and logistics support to
complex land issues while the Kenville-Sea Cow Lake
facilitate their field work missions and local
area comprises a significant concentration of informal consultations in the chosen communities.
settlements in a very well established and very well
located suburb which is only 8 km away from the City  The Consultant’s will work closely with the
eThekwini Municipality and community
centre.
representatives of Umlazi and Kenville/
Sea Cow Lake in order to collect relevant
The Project presents an ideal opportunity to pilot information on slum dynamics.
unique upgrade and in fill projects which have never
 The Homeless People’s Federation will
been attempted before at this scale. The Municipality is
make adequate contacts with the Umlazi
committed to avoid mass relocation of families where
and Kenville/Sea Cow Lake communities,
possible and provide its residents with a range of so-
undertake grassroots community workshops,
cial and economic opportunities they currently enjoy and realise appropriate surveys in the selected
in close proximity to their homes. Informal settlement slum areas in order to prioritise critical issues
upgrading is achieved with the active involvement of in a participative manner and integrate
slum communities during the planning, implementa- additional secondary source materials. They
tion, monitoring and management process will drive the enumeration process.
1 . 2 I n s t i t utional Context 1.3 Goals and Objectives

of Analysis
Institutional development for this project is to focus on
the direct role and function of local authority. There is The main objective of the Situation Analysis is to pro-
though going to be collaboration with Provincial and duce a clear, frank and well substantiated document
National levels of government. The “Slum dweller” or- on the present state of slums and slum upgrading in
ganisation, Homeless People’s Federation which has selected wards in Umlazi and Kenville/Sea Cow Lake,
been actively involved with the City and NGO’s such and the effectiveness of past and on-going upgrad-
as People’s Dialogue and Project Preparation Trust ing initiatives, within the framework of the overall city

development strategy and national poverty reduction  Proposed Upgrading Strategies: explore
program. It will represent the basis for producing a first creative sustainable strategies and approaches
which are not confined by financial and
proposal for a Slum Upgrading Intervention Strategy
engineering implications;
or Action Plan which will be defined and agreed at
the municipal level in close collaboration with the con-  Follow-up proposal: to upgrade the
cerned governmental and municipal institutions. It will settlements in the most appropriate way and
laying the foundation for setting up similar
serve as discussion piece for diverse stakeholders to
initiative throughout all areas affected by
arrive at consensus about the conditions of slums; the
settlements in the city.
conditions of governing slum upgrading and the ac-
tions needed to improve the conditions. The Situation
Analysis will thus provide a realistic assessment of the 1.4 Methodology
political, social, physical, economic, cultural, and the
institutional factors impacting on informal settlements. In order to reach the above mentioned objectives,
Previous efforts to improve the conditions of people the Consultant(s) will work closely with the eThekwini
who live and work in informal settlements will be in- Municipality. Representatives of Umlazi and Kenville/
cluded to give perspective of how the process has been Sea Cow Lake will provide their support to the consult-
carried out. ants especially concerning the Situation Analysis. The
eThekwini Municipality will be responsible for actively
The Situation Analysis will address the following issues involving other crucial government departments in this
in Umlazi and Kenville/ Sea Cow Lake initiative.
 Conditions of Informal Settlements(dwelling
count, household registration, detailed The study will include a desk study intended to con-
household survey); solidate secondary data on slum upgrading in Umlazi
and Kenville/ Sea Cow Lake. The secondary data will
 Land ownership and current tenure types;
include available census data, official documents, case
 Impact of the current housing policy in these studies on the settlements, and other relevant second-
areas; ary literature.
 Institutional Analysis: an investigation of all
active organisations in the two communities The Consultant(s) will prepare a Proposal for Slum
willing to assist the programme; an indication Upgrading Intervention Strategy in close collaboration
of what resources such organisations have with eThekwini, in which different stakeholders, such
and what they will be contributing; as slum dwellers, local organisations, NGOs, church
 Policy analysis: identification of any policies organisations, private sector, professional associations,
which can contribute towards the success of a local and national government officials and interna-
housing project, especially those which relate tional development cooperation agencies, will be
to gender issues; present. During this workshop, contacts with donors
 Interpretative Analysis of Informal Settlements: will be made to solicit their contribution to the debate,
to provide a useful background to the political, request their views and gain their support in the im-
economic and socio-cultural dynamics within plementation of the Action Plan that will emerge from
the identified settlements;

the Situation Analysis and the agreed Slum Upgrading many of the urban townships in the late 1980’s, expe-
Intervention Strategy. rienced substantial informal housing expansion.
The study area is defined as the formal township of

1 . 5 L i m i t a tions Umlazi, including the Umlazi Glebe area and portions
of the tribal authority areas west of the proclaimed
The two study areas, Umlazi and Kenville/Sea Cow township. The study area forms part of the eThekwini
Lake are areas that have not been researched to a Municipal area. Umlazi is located approximately 18km
great extent by the eThekwini Municipality. Kenville/ south of the Durban CBD and constitutes one of the
Sea Cow Lake especially, which has outdated informa- largest townships in South Africa. Being in extent of
tion that does not relate to the current situation. Due to approximately 4500ha, Umlazi is located between the
this inconvenience gaps exist in the document. These Umlazi River in the north and Ezimbokodweni River
will be looked at and researched as the progress of in the south. The surrounding areas include Isipingo
the project continues. in the east, Chatsworth in the north, the Vumengazi
Tribal authority area in the west and the Sobonakhona
Tribal Authority area in the south.
1 . 6 U m l a zi
Umlazi like many South African cities is characterised
The Umlazi area was previously part of the Vumengazi by institutional problems. Historically administration
tribal area. The establishment, planning and devel- has been fragmented and uncoordinated. Umlazi is
opment of this township was based on the intention no different to many townships now incorporated in
of providing accommodation for the required cheap local council areas where institutional responsibilities
labour. Whilst a fair amount of the township was used would shift from provincial level to a local council
to accommodate development pressures and growth level.
within the area itself, its main purpose was to serve as
a dormitory town for people relocated from central Much of the development in the area is characteristic
areas in the government’s forging of the apartheid of townships in general with major deficiencies relat-
city. Although Umlazi was initially conceived as a self- ing primarily to residential accommodation, provision
contained creation, it remained functionally linked of facilities and services, lack of urban and economic
with the rest of the city. Due to political reasons the opportunities. In sum, whilst the historical influences
administration and development of Umlazi rested in the development of Umlazi have to a large extent
with the previous KwaZulu Government and as such been mutually supportive, the effects have been quite
the area experienced many of the ills of homeland profound and varied. Umlazi like many other town-
administration. Emphasis was not placed on creating ships finds itself in an unfortunate position of having
a viable local community which required social and to suffer the effects of various widely recognised failed
economic infrastructure but merely to create a place policies and approaches.
to store labour to be used when required. Umlazi like
10
At the moment Umlazi within the local council does Kenville/Sea- Cow Lake was originally a settlement
not fall under any strategic areas in which small teams with market-gardens and extractive industry located
of professionals have been built to drive Area Based nearby. Although the word sea-cow usually means
Management. However, it is important to note that the ‘sirenian’ referring to the order of fishlike mammals
South Durban Basin (SDB) extends their services to the that also includes ‘walrus’, sea-cow in this context
area if any development needs to take place. is based on the Afrikaans word seekoei, meaning
‘hippo’. It is said that there were hippos in the area
in the former times. Kenville/Sea-Cow Lake is now a
1 . 7 Ke n v i l l e/seacow Lake large dry area, only parts of which become marshy at
certain seasons. Sea-Cow Lake’s informal settlements
are not that easily visible like the ones along National
highways.
There are 6 informal settlements comprising approxi-

mately 2 000 families, which have been earmarked
for upgrade in the area. A number of these families
need to be relocated as the settlements are too densely
developed to allow a reasonable level of service to be
installed. Other informal settlements, in the area are to
be relocated due to unsafe and unhealthy conditions.
KenvilleNeighbourhood. Photo: © UN-HABITAT
Kenville/ Sea Cow Lake lies in the northern part of the

City of Durban and borders the light industrial and
commercial complexes along the North Coast Road
activity spine. It is one of the nine communities that fall
under the Duikerfontein area which was incorporated
into the City of Durban in 1932. Kenville/Sea Cow Lake
is bounded by the Umgeni River, the Coronation Brick,
the railway line, the Northern Sewage Works and the
City Boundary. It is approximately 8km from the City
centre. These areas were proclaimed for Indian own-
ership and occupation in terms of the Group Areas Act
in 1959.
11
Situation Analysis of Informal Settlements in Addis Ababa
12
2. LAND D E S C R I P T I O N The Ingonyama Trust Amendment Act of 1996 estab-
lishes a Board of Trustees with whom certain tribal land
interests are vested. The Act creates mechanisms that
will facilitate effective administration and development
2 . 1 l a n d l egal in the former KwaZulu areas. The board of Trustees
administers land registered in the name of Ingonyama
(excludes proclaimed townships, privately owned land
and state owned land). The Ingonyama Trust Land Act
2.1.1. Land Ownership places large tracks of land that was previously part
of the former KwaZulu government under the trustee-
Land within the study area comprises various informal ship of the king, who administers it on behalf of the
settlements in Umlazi and Kenville / Sea Cow Lake. people. Should a pilot area be selected which falls on
Most of the land within Umlazi is now vested within Ingonyama Trust Land then discussions will have to be
eThekwini Municipality. Certain parcels of land within entered into with the Trust to secure a land availability
Umlazi may still vest in the Ingonyama Trust Board agreement. Alternatively the land could be expropri-
and this will only be accurately determined during the ated in terms of the Housing Act or Local Authorities
enumeration and selection of pilot areas. ordinance.
The study areas identified in the Kenville / Seacow lake

area are all in private ownership with the exception of 2.2 Land Use
one or two parcels of land which are owned by the
eThekwini Municipality. Land comprising the study area is informally settled
(slum conditions) with high densities of between ap-
proximately 45 and 75 structures/ households per
2.1.2. Land Availability hectare. The study area was identified and mapped by
the eThekwini Municipality as areas requiring urgent
All land that is vested in the eThekwini Municipality intervention in terms of its slum clearance program.
within the study areas can readily be made available Current land use or zonings of the affected areas
for development for implementation of the alternative within Umlazi are predominantly public open space
strategies to be formulated and approved under this or undetermined infill areas. Land affected within the
program. Kenville / Sea Cow lake area is predominantly zoned
as residential or public open space. The land within all
Privately owned land will have to be acquired, by the study areas is currently being utilised for residential
expropriation or negotiation, dependant on a number purposes and in all cases this has been occurring on
of issues such as land suitability and cost. The most site for an indefinite period of time.
problematic land issue could be those potential areas
in Umlazi, which fall outside of the former R 293
towns and as such cannot be vested in the eThek-
wini Municipality in terms of the Ingonyama Trust
Amendment Act.
13
2 . 3 L a n d and gender issues settlements. Umlazi and Kenville/Seacow Lake are

two examples of areas that show this tendency. The
Both colonial and apartheid laws and policies restricted graph below shows that 43% and 38% of the informal
black urbanisation, particularly African urbanisation. settlements in Umlazi and Kenville/Sea Cow Lake
These laws disproportionately affected women’s ac- respectively are headed by women.
cess to housing. In particular, influx control resulted in
African men having easier access to urban areas as Graph 2.3.1: Gender percentage for head of house-
their labour was required on the mines and in industry. hold
Women’s labour in urban areas was meanwhile largely
limited to domestic work. Explicit laws and policies to 60 59
control the mobility of African women were enacted 50

from the1930s. These laws made women dependent 41
40
on their male partners or fathers for their right to
30
remain in urban areas. In 1964 African women who
were not employed or legal residents could only enter 20
white urban areas with a visitor’s permit. The applica- 10

tion for a visitor’s permit required the permission of
0
male relatives. Male Female
Source: StatsSA, 2001
The overall result has been that many women have

been denied housing rights. Where they have been
able to find housing, they have been relegated to the
outskirts of economic centres, and have been disad-
vantaged by the poor quality of their housing.
In regards to land use females still have a problem

when it comes to acquiring land tenure rights. The
government is placed by the constitution to take rea-
sonable steps to enable citizens be it male or female
to gain equitable access to land, to promote security
Stakeholder’s meeting © UN-HABITAT of tenure, and to provide redress to those who were
dispossessed of property after June 1913. Policy issues
In addition to the explicit legislation and policies, should be addressed so that discrimination in women’s
officials had vast discretionary powers, which they access to land is eliminated.
exercised in an arbitrary manner often with negative
consequences for women. For example, the alloca- The social context within which women seek access
tion of housing to families via male household heads to housing is informed by factors such as patriarchy,
was the norm. This historical legacy has resulted in customary and religious laws and practices, domestic
significant numbers of women residing in informal violence, and HIV/AIDS.
14
2.3.1 Patriarchy fleeing from an abusive situation brings with it the

impossible choice between homelessness and staying
In most societies, including South African society, pa- in an abusive relationship.
triarchal norms and values underpin gender relations.
These norms can have serious consequences in the
area of housing. For example, most male partners 2.3.4 HIV/AIDS
register homes in their own names. This forces women
to forge and remain in relationships to meet their Women are disproportionately affected by HIV and
housing needs. Further, housing policy often favours AIDS and as a result when AIDS symptoms start, they
couples. Single female-headed households are often are often precluded from formal work. This, in turn,
excluded or discriminated against in housing practices, adversely affects their financial position and ultimately
as they do not fit the traditional concept of a family. their housing needs. Women’s caring responsibility
for those living with HIV/AIDS limits their employment
prospects and renders access to housing increasingly
2.3.2 Customary and religious laws and prac- unaffordable. The full and equal enjoyment by women
tices of their housing rights requires that account be taken
of women’s historical, social and economic realities
Discriminatory customary and religious laws and as described.
practices often work to the detriment of women’s
housing rights. In particular, patrilineal succession Specific strategies and procedures must be devised
under customary law has had serious implications for to ensure that women are enabled to participate fully
women’s rights to land and housing. In addition, cus- in the planning and implementation of land reform
tomary land tenure practices are based on communal projects. These have yet to be adequately formulated.
tenure with rights vested in male traditional leaders.
The allocation of land and housing by traditional
authorities is to heads of households, who are almost 2.4 G eotechnical and
always male. Women’s right to land and housing is, Environmental Conditions
as a result, dependant on their relationship to male
heirs. Polygamy, whether formal or informal, also has
an adverse impact on women and housing.
2.4.1 Geotechnical Conditions
2.3.3 Domestic violence Geotechnical information is not readily available for

the specific study areas however it should be noted
Domestic violence has a profound effect on women’s that copies of detailed geotechnical reports could
housing rights. The fact that housing is usually in the readily be obtained from surrounding developments.
name of the man makes women’s housing situation The infill areas within Umlazi are mostly located close
particularly tenuous in instances of domestic violence. to the major arterial road or secondary roads as well
Shelters for battered women are limited to some as close to large institutions or more formal residential
urban areas. In addition, most shelters only provide units. Geotechnical reports for these projects and for-
accommodation for a limited period of time. Hence, mal areas are obtainable. Kenville/Sea Cow Lake has
15
not had many studies carried on the area but the City  Preparation and maintenance of an
Engineers Report on the Plan of Duikerfontein area, environmental management plan.
1971:5, gives an indication on what the geotechnical  The Department of Agriculture and
conditions were found to be. It is mentioned that an Environmental Affairs retaining its right
undulating terrain characterises the area. Apart from to inspect the project during both the
some deposits of Berea Road Sands, Middle Ecca development and operational phase.
Shale & Dwyka Tillite, much of the area is character-  Any other listed activity, besides residential
ised by fine grained thin bedded shales of the lower requirements, under section 21 of the
Series. When weathering clay forms that expands and Environment Conservation Act 1989 (Act 73
contracts as it becomes alternatively wet or dry. of 1989) must comply with the requirements
of Government Notice No. 1183 of 5
September as amended.
Desktop Geotechnical appraisals will be conducted
for the areas selected as pilot project areas and de- Open Space Planning in eThekwini shifted away from
tailed assessments will be conducted during the pre a primary concern for the implementation and man-
feasibility and feasibility stages. Unstable areas will agement of socially, economically and environmen-
not be considered for insitu development but rather tally sustainable open space system. This planning is
for relocation projects. informed by the Durban Local Agenda 21 programme
(1994). In Umlazi, the Precinct Development Plan
(1998) suggests an establishment of an urban open
2.4.2 Environmental Conditions space system (DMOSS), i.e. the provision of a system
of formal urban spaces representing a civic structuring
The proposed development of these informal settle- element. This would be in addition to a major and
ments does not constitute a change in land use and minor open space system.
as such it is not envisaged that environmental authori-
sation will be required for the proposed residential
development. 2.5 Availability of Bulk Services
Notwithstanding the above it should be noted that a A detailed report on the availability and capacity of
number of other issues would apply with respect to bulk services for the study area has not been under-
Environmental legislation and requirements of these taken. Detailed information on the capacity of existing
include: bulk services will be obtained from the City Engineers
Department during the development of the alternative
 Residential developments must be away from
existing potential new sources of pollution. strategies for the development of these areas. Since
This may entail removing / resettling people the alternative strategies may involve some radical
that are close to hazardous substances and rethinking of conventional practices with respect to
facilities such as gas pipelines, electrical the provision of services and housing it would be pre-
substations, overhead powerlines and mature to conclude that the existing bulk services are
associated servitudes. adequate or not.
 Unauthorized occupation of servitudes.
Notwithstanding the above all of the informal settle-
 Preservation of sensitive areas where
ments forming part of the study area are well located
applicable.
16
with respect to public transport routes and access to This would merely require an arrangement with the
existing supplies of water and electricity. The access community to dispose of their solid waste in skips or
to water and electricity is often based on informal bins, which are left at the roadside for weekly col-
or illegal connections to these supplies. The greatest lection. Management of water, electricity and solid
challenge with respect to the supply of bulk services waste could be used as an opportunity to create
is therefore sanitation. Whilst waterborne sanitation economic opportunities to some within the community.
would provide the ultimate solution, this may not be For example the collection of solid waste could be
practically or economical achievable. undertaken by locals and compensation payable by
the municipality.
Solid waste disposal should not pose as a major prob-
lem where the settlements are in close proximity to
road networks, which are currently servicing the more
formal areas.
17
18
3. SOCI O - E C O N O M I C Graph 2: Gender distribution for both the study areas.
COND I T I O N S
Male
Female
3 . 1 S o c i a l Profile
-52 Kenville/Sea Cow lake 48
3.1.1. Social Overview -51 Um lazi 49
To gain insight into the two key focus areas that were -60 -40 -20 0 20 40 60
selected Statistics South Africa (2001) data has been
Source: StatsSA.2001
used to examine the basic socio-economic data for
the population. Gender ratios, racial composition,
age profiles, educational levels have been identified The population in both the project areas has a labour
in order to ascertain the cohesiveness of the society in force that is nearly the same. Umlazi’s labour force is
which the project is based. about 30% and Kenville/Sea-Cow Lake is 33%. From
a study done by the Ethekwini Municipality, “Quality of
Umlazi and Kenville/Sea-Cow Lake areas have a Life Survey” , 2003-2004, it is stated that the major-
total population of 403 435. Umlazi has the highest ity of households in 2004 were made up of less than
population of 388 687 and Kenville/Sea-Cow Lake six members, and the average household size is 4,5
14 748 as indicated in the table below. members.
Table 1: Population distribution within the study areas. Educational levels show that over 50% of the popu-
Area Population 2001 lation within the study areas has higher educational
levels (Grade 8-Grade12), 20% of the population has
Umlazi 388 687
a matric certificate. Only 11% of the population has
Kenville/Sea-Cow Lake 14 748
tertiary level education and nly 0.5% of the population
TOTAL (study areas) 403 426
has a university degree.
Source: StatsSA, 2001
The households in Umlazi are composed of 51, 2%

females and 48, 8% males whilst Kenville/Sea-Cow
Lake’s gender distribution is 50, 4% females and 49,
6% males.
19
Graph 3: Educational Level for Kenville/Sea Cow Lake Graph 5: Employment status of Kenville/Sea Cow
and Umlazi Lake
Um lazi
Kenville/
Sea Cow Lake
No Schooling
11
10 Employed Un employed
1
D egree 1.3 39% 61%
0 .1
D iplo m a 0 .1
20
G r a d e 12 20
9
G r a d e 11 7
10
G r a d e 10 10
8
Grade 9 8
8
10
Grade 8
7
8 Source: Stats SA, 2001
Grade 7
6
Grade 6 6
The manufacturing sector and the community, personal
22
G r a d e 1- 5
service sector are the dominant sectors of employment
20
0 5 10 15 20 25 within Umlazi. The largest source of household income

Source: Stats SA, 2001
assistance is from old age pensions with 20, 7% of
households receiving assistance. When putting the
3.1.2. Household Income two communities together 41, 5% of households live
on less than R1 500 per month, which implies deep
43% of the population in Umlazi is employed com- poverty or on the margins of it. 40, 4% earn between
pared to 57% unemployed. R1 501 and R6 000 whilst 7, 8% % of households earn
between R6001 and R11 000. The average monthly
Graph 4: Employment status of Umlazi household income is R1 650, (eThekwini Quality of
Life Survey, 2003-2004).
3.1.3. Umlazi and Kenville/Sea-

Un employed Cow Lake Dwelling
Employed
57.57% 57.57%
The Census report stated that from 1996 to 2001
(Statistics SA), eThekwini has experienced a housing
backlog which has been indicated by an increase of in-
formal dwellings in the municipality. Using information
collected from households during the Municipality’s
Annual Quality of Life Survey (2003-2004), ranked
Source: Stats SA, 2001
Kenville/Sea Cow Lake has more employed people

(61%) compared to the 39% unemployed.
20
results of ward needs assessment showed the follow- Graph 6: Dwelling Types for Kenville/Sea Cow Lake
ing results. and Umlazi
Table 2: Ranked Results of Ward Needs Assessment

Kenville/
1. Housing & household services
Sea Cow Lake
2. Safety & security Um lazi
3. Jobs/Economic development
70
63
4. Community infrastructure 60 59
5. Health services 50
6. Government issues 40 38
34
7. Transport
30
8. Education
20
9. Social issues
10
Source: eThekwini Integrated Development Plan 0.75 3 1.66 0.59
0
Of the total of 90,196 households in Umlazi 58, 6% Form al Inform al Traditional Other
are living in formal, 38% informal and 3% are living
in traditional dwellings. In Kenville/Sea-Cow Lake
Source: StatsSA.2001
34% are living in formal, 63% informal and 2% are
living in traditional dwellings.
3.1.4 Social Facilities
The eThekwini Municipality is taking an initiative
in meeting this backlog (70% Gross Backlog) by  Residential
2015 (eThekwini Quality of Life Survey, 2003-2004),
through housing programmes. Housing programmes Umlazi and Kenville/Sea-Cow Lake consist of medium
are being established to address needs within the in- & high density residential sites. The housing typologies
formal settlement. These are going to include the for- vary considerably from informal structures to upper
malisation of existing settlements that have not formed market residential homes.
part of previous upgrading programmes. Emphasis is
also bei+ng put on introducing additional forms of Umlazi contains in the region of 36 000 formal
development that will provide greater choice for the residential sites some multi-storey hostels and approxi-
community. mately 19 000 informal residential structures. Umlazi
comprises of 29 residential units, i.e unit A to unit DD
as well as the Glebe area. The extent and character
of residential units varies containing in the majority
traditional 51/9 4 roomed standard townships houses
21
as well as the Glebe area consisting of multi-storey  Religious

hostels and DD being a peri-urban tribal area. The study areas have places of worship from
different denominations located therein.
 Supporting Social Facilities  Other Community Facilities
 Educational Whilst Umlazi may contain in certain cases

above local significant facilities such as a
Umlazi and Kenville/ Sea-Cow Lake both fall university, technikon, stadiums and hospital,
under the Umlazi District section in the KZN it should not be assumed that the area is
Department of Education region. There are 76 well serviced in terms of social facilities.
schools (50 primary and 26 high) in Umlazi Apart from the above, the study areas also
whilst Sea-Cow Lake has five (2 primary have access to police stations, magistrate’s
and 3 high) schools. Umlazi also has three offices, post offices, shopping centre, Telkom
tertiary institutions, University of Zululand, offices, community halls as well as welfare
Mangosuthu Technikon and Umlazi Technical organisations.
College. A large number of both formal and
informal crèches are also available within the
two study areas. 3.2 Economic Profile
 Health Services
Prince Mshiyeni is the only hospital available
for the community’s utilisation in Umlazi and 3.2.1. LED Activities
clinics are allocated at the following sections,
AA, G, N, D, V, K and U. Kenville/Sea-Cow The vision established in the (Umlazi Integrated
Lake area has two clinics, Sea-Cow Lake and Development Framework, 1998), highlights economic
Clear Estate Clinic.
development as one of the key aspects that have to
 Sports and Recreation transform Umlazi. Reinforcing sustainable economic
Umlazi schools are mostly allocated with large growth and job creation and tackling matters of exclu-
playing fields which are usually used as sports sion from economic processes that characterise many
fields. There are altogether 14 sports fields of our communities is a requirement that Ethekwini
with other sports facilities including netball, Municipality is focussing on so that that there is
swimming and basketball facilities. A soccer high economic growth and employment opportuni-
stadium is located in section D, in Umlazi. ties. (eThekwini Municipality, Reviewed Integrated
Kenville/Sea-Cow Lake has two sport fields. Development Plan, 2004-2005).
 Cemeteries
The focus for the municipality is at three levels firstly
The greater Umlazi area has two cemeteries,
in sections S and G which are said to be households (and individuals), through pro-poor ori-
capacitating thus the community is using ented interventions secondly concentrating on firms
cemeteries from other areas. Kenville/Sea- management in terms of equity supporting procure-
Cow Lake community has to utilise the nearest ment reform and thirdly creating sectors/ (group of
cemetery which is located in Redhill. firms) by the enhancement of major new infrastructure
22
platforms and through the facilitation of improved for employment, economic development, major facili-
educational and skills attainment. ties and infrastructure.
Effective integration of the residents of the two study Main access to and within Umlazi is facilitated via the
areas into formal economic opportunities within the northern and southern spinal roads from South Coast
metro and investigations for SMME potential growth, Road and the N2. These represent the main carriers
supporting LED growth and facilitating economic of movement. A series of internal collector roads link
development through spatial restructuring is taking the various residential neighbourhoods with these
place. spinal roads. Apart from these east-west linkages,
which facilitate movement from the township to the
core there, exist no major linkage opportunities north
3 . 3 S o c i o -Economic Dynamics to Chatsworth or south and west to the adjacent tribal
communities.
3.3.1. Economic Aspects The community frequently uses rail transport. Five local
stations exist and these provide adequate linkage to
the remainder of the metropolitan area.
Context of Umlazi
Much of the development in the area is characteristic
This section provides an overview of recent economic of townships in general with major deficiencies relat-
trends in the Durban Metropolitan Area whilst pro- ing primarily to residential accommodation, provision
viding the economic context of the Umlazi Township. of facilities and services, lack of urban and economic
Umlazi forms a part of the South-Central Local Council opportunities. In sum, whilst the historical influences
of the Durban Metropolitan Area. Umlazi is linked to in the development of Umlazi have to a large extent
the Metropolitan Area by its linkage to the east i.e. been mutually supportive, the effects have been quite
the MR197 and the N2. Very limited commercial and profound and varied. Umlazi like many other town-
industrial opportunities exist within Umlazi. It is in this ships finds itself in an unfortunate position of having
context that commercial potential exists in areas such to suffer the effects of various widely recognised failed
as Isipingo, South Coast Road and the CBD. Umlazi policies and approaches.
contains only a few light industrial areas located
mainly in Unit W and unit V.
Context of Kenville/Sea Cow La k e
In metropolitan terms there exists a high degree of
interdependence between Umlazi and the remain- Kenville/Sea Cow Lake area is mostly surrounded by
der of the metropolitan region. Umlazi is located in an industrial belt along the North Coast Road. These
close proximity to the N2 corridor and the southern are separated from the study area by the North Coast
industrial areas. Employment opportunities are also railway line. Industries can have a positive impact on
dependant substantially on the sub-region and region the communities because of employment opportuni-
23
ties. Section on employment issues Kenville/Sea Cow entrance of the township. Umlazi is mainly dependent
Lake has a 61% employment rate. on the core and areas such as Isipingo for economic
services. A major shopping and services centre is to
The proximity of Kenville/Sea Cow Lake to the Durban be erected in Umlazi. eThekwini Municipality agreed
CBD gives opportunities for the community to access to support the Umlazi Mega city development both
what is not available for them within their area. The financially and institutionally.
movement system allows for both road and rail move-
ment. Low-income communities benefit by having Umlazi Mega City is highly visible from the N2, op-
access to railway transport as it makes it cheaper for posite the Durban International Airport. It borders the
them to travel to their destinations. main M30 arterial road (Mangosuthu Highway). It
will not only serve the population of Umlazi but also
attract consumers from the immediate residential and
3.3.2 Physical Services substantial industrial catchment areas of Lamontville,
Isipingo, Sapref, Merebank West and Mobeni (Umlazi
The formal areas of the township are “fully” serviced, Mega City Development Report, 2003).
but there needs to be upgrading done on them. There
is sufficient water supply, full waterborne sanitation.
Electricity, telecommunications and postal services 3.3.4 Social Dynamics
are functional within the area. Umlazi also has a well-
established road structure. In the informal settlements The UN Situation Analysis is ensuring that participation
that exist there has been some provision of physical involves different stakeholders – community activists,
services for communities. Standpipes and pit latrines professionals, politicians and government officials.
serve the informal settlements that have been formal-
ised in Umlazi. Making connections between the needs of the local
community with development programmes and budg-
ets and development programmes within the metro
3.3.3 Social and Economic Infrastructure is an essential basis to ensure meaningful delivery. A
well constituted representative structure with effective
The substantial growth over the years in population communication channels at a local level is essential in
numbers in Umlazi has resulted in pressures on the playing this role. In the case of Umlazi, while there ex-
existing facilities to the extent that a large number of ists a broadly represented development forum, effort
such facilities are now dysfunctional. Sites that had has been required to assist the development forum in
been set aside for community facilities have been taken establishing roles and responsibilities, effective com-
up by the residential pressures. These are the sites that munication, and co-ordination with the local council-
are currently informally settled on. This presents a lors and the community.
problem in presenting social facility needs.
Umlazi does not contain substantial economic infra-

structure. The town centre, located in the geographic
centre has not flourished as an economic centre. There
has been limited economic development in Unit V at the
24
Institutional Profiles that exist within the study areas Table 3.1: Different types of benefits accesses by Umlazi
are: community from the Department of Social Welfare
 Local Government(Local Council)
Type of benefit No. of people
The local council departments are structured Old age grant 11 130
as separate business units and should have
Disability grant 8 612
sufficient budgets in place. The services that
are involved here are the Water and Electricity War veteran 4
which have expanded their services into the Foster care grant 1 371 (2 178 children)
areas. Care dependency grant 921 (992 children)
 Provincial Departments
Some provincial departments have operated Combination (FCG & CDG) 64 (64 children)
within the study areas providing services Children support grant 31 443 (44 693)
such as Post and Telecommunications and TOTAL NUMBER 53 617
protection service. Source: Department of Welfare, Umlazi: 2005
Department of Social Welfare & Population
 Development Forum
Development
 In Umlazi and Kenville/ Sea Cow Lake the
Information collected from the Umlazi
development forum were formed through
Welfare Branch shows that the department is
the peace initiatives within the areas. These
participating at developing the community of
structure attempts to merge the needs of the
Umlazi. The following initiatives have been
communities (via councillors) with other actors.
taking place within the community.
 Other Institutions
There are a total number of 17 projects that
have been planned in the area. The number  Other actors that have been active in Umlazi
of social development projects that have include the DBSA and Ithala Bank who have
been funded is six and unfunded eleven. their own development programme and
Beneficiary database for Umlazi per grant focuses on large capital projects.
type is as follows:
25
26
SECTION b
PRIORITY ISSUES housing opportunities for the poor but rarely trans-
lated into any impact in removing slums. The reason
for this was that in many instances land acquired for
Greenfield development was located far from work
4 . H i s t o r ic H ousing Strategies
opportunities making transport expensive.
As land has become scarcer and as a result more

4. 1 Pr e v i ous housing expensive the Municipality has realised that the insitu
i n v e s t igations upgrading of informal settlements and partially devel-
oped settlements is critical to the success of the slums
The study areas identified within this project, as well clearance program.
as many other similar projects / areas have been the
topic of many debates and investigations in an attempt Current thinking at a National, Provincial and Local
to secure development of these areas. Government level indicates that the focus for housing
should shift towards the following;
Unfortunately these attempts were often restrained by
 A concerted effort to break the patterns
a number of factors including; created by the apartheid style of planning.
 Rigid policies of the Department of Housing  Promote planning principles that will result in
with respect to funding mechanisms and the more compact and efficient cities and towns.
general approach to insitu upgrading.
 Prevent urban sprawl and promote integrated
 Rigid policies within the former Durban development.
Metropolitan Council with respect to planning
parameters and development methodology.  Create sustainable human settlements.
 A general approach that promoted individual  Eradicate all slums within the next decade.
free standing housing units with security of
tenure as a pre requisite.
4.2 Previous housing efforts
 A general approach that demanded the
highest level of service and did not recognise The eThekwini Municipality has recently received
the benefit of incremental development. many accolades for its slum clearance program.
 Intense political activity and interference. The program is to a large extent deemed to be
one of the most successful in the country.
Insitu upgrades or informal settlement upgrades
(slums) are undoubtedly the most difficult and intensive The model utilised by the eThekwini Municipality basi-
projects to implement as a result they are generally cally works as follows;
the projects avoided by the private sector and most
 All informal settlements within the eThekwini
Municipalities. Municipality have been identified and broadly
enumerated.
Historically the general strategy of the Ethekwini
 Suitable land for development of new
Municipality was to develop new green fields projects
townships has been identified and acquired.
(vacant land). This strategy created a number of new
27
 Projects are developed and slums are 4.4 Lessons learned

relocated to the new projects or townships.
 Slums are then demolished and removed and A number of important and valuable lessons have
the area is policed to avoid resettlement. been learned during the period 1994 - 2005 with
respect to housing delivery as well as the development
A number of projects have successfully been developed of informal settlements or insitu upgrades.
and slums removed, these include projects such as;
These can be summarised as follows and should be
 Parkgate
used as a basis for formulating new strategies and
 Welbedaght East and West approaches
 Quarry Heights  Conventional informal upgrading strategies
 Mount Moriah typically result in a large number of
relocations. If the remaining informal
 Kwamashu Unit B
settlements were to be upgraded utilising
 Kwamashu Newlands Interface such strategies then the scale of relocations
to poorly located, peripheral areas would be
Ethekwini Municipality has had limited success in vast. Such a strategy would probably not be
dealing with existing slum settlements requiring insitu workable or sustainable.
upgrading. The reasons for this are complex but gen-  Informal settlement upgrading /
erally include; transformation is not viewed holistically and is
usually not dealt with in an integrated fashion.
 High cost of development due to the current
rigid requirements Housing and infrastructure is typically
prioritised and dealt with in isolation from
 Historically the development of these areas
other important supports or interventions (eg:
has been left to the private sector with limited
economic development, health care, crime
support from Municipalities and Government
prevention, education, food security etc).
 High numbers of relocations required due to
 Up until recently, the national policy
the individual site approach.
framework for housing was relatively inflexible
 Time taken to develop these areas in terms of and was designed around greenfields (as
the conventional approach opposed to upgrade) projects. This has
recently changed with the Breaking New
Ground Policy but alternative, more flexible
4 . 3 Pr e v i o us housing structures and more creative approaches still need to be
tested.
Information is to be provided once stakeholder meet-
ings are fully initiated.
28
 Conventional informal upgrading strategies  Projects that had enjoyed previous funding
typically result in large number of relocations. from other sources (example planning grants
If the remaining informal settlements were etc) progressed better then those projects
to be upgraded utilising such strategies then relying solely on subsidy funding.
the scale of relocations to poorly located,
 Servicing costs are generally 40 – 60 % higher
peripheral areas would be vast. Such a
then green fields development.
strategy would probably not be workable or
sustainable.  Formal tenure arrangements with respect to
the disposal of sites are not adhered to and
 Informal settlement upgrading /
sites are sold and resold on the informal
transformation is not viewed holistically and
market.
is usually not dealt with in an integrated
fashion. Housing and infrastructure is typically  Consolidation and the incremental
prioritised and dealt with in isolation from development of sites by beneficiaries were far
other important supports or interventions (eg: greater where a higher level of service was
economic development, health care, crime installed.
prevention, education, food security etc).
 The number of non South Africans residing in
 Up until recently, the national policy informal settlement sites on the increase to the
framework for housing was relatively inflexible extent that a number of projects would not be
and was designed around greenfields (as viable in terms of qualifying criteria.
opposed to upgrade) projects.
 Large numbers of people are renting shacks
(This has recently changed with the Breaking from slumlords within these areas.
New Ground Policy but alternative, more
flexible and more creative approaches still
need to be tested).
29
30
5. CURR E N T H O U S I N G  “There is still much to be achieved before
South Africa’s Housing problem is solved, but
STRAT E G I E S the structure, vision, policies and legislation
that is now in place creates the platform from
which to move forward effectively.
 The word innovation and creativity have
5 . 1 C u r r ent housing recently been repeated by the new National
s t r a t egies and plans Minister of Housing and the breaking new
ground policy reiterates this point.
 The unfortunate reality is that development
5.1.1 National strategies practitioners can only be as flexible as
allowed to by both officials and politicians
within Local and Provincial Government
The National Department of Housing strategies are
Structures.
defined in terms of their policies outlined in section
7 below. Their main strategies currently include the  Fortunately the eThekwini Municipality is a
following: progressive and forward thinking institution
which through this initiative is seeking creative
 Focus on unblocking historically funded and innovative housing solutions for slums
projects which are currently stalled, often due
to a shortage of funding to complete the top-
structure phase (which in turn is often a result
of the impacts of inflation on project budgets). 5.1.2 Provincial strategies
 Promote slums clearance and transformation,
mainly by means of implementing and The Provincial Department has identified Slum
operationalising the new Breaking New Clearance projects as a top priority within the Province.
Ground Policy (which creates a more enabling Unfortunately the strategies of the Province and the
environment for alternative and more flexible slums programme are affected by a number of issues
strategies for upgrading informal settlements. which include;
 Whist National Government has recognised  A lack of adequate planning by most
the need for a more flexible and creative municipalities at both an IDP and sector
approach to housing process this is very slow planning level.
in filtering down into practical applications.
 As a result projects have not been
 Part 4 of the Housing code relates to systematically planned and documented in a
new developments in housing strategies housing sector plan.
and procedures and the former National
Minister of Housing made the following  This in turn has resulted in an incomplete and
statements “The National Housing Policy as inadequate Provincial Housing plan.
detailed in the code identifies tremendous  The first come first served basis for approving
opportunities for creativity in housing delivery, projects continues to exist.
for gearing resources, and for building new
opportunities”.
31
 There are budgetary pressures as a result  Political factors

of the large numbers of existing projects
 Need versus current planning parameters
requiring unblocking as well as the impact of
the new rural programme.  Relatively new municipal demarcations
including Tribal Land
 The approach of the Department in reserving
subsidies to date has been completely  Rapid urbanisation and the influx of foreign
ineffective and the “conditional approval” nationals
process has created huge expectation without
 Existing bulk services
any hope of delivery in the short term.
 Capacity of the Municipality or individual
 The accreditation of the eThekwini Municipality
components
by the National Department of Housing has
created a lot of uncertainty around the future  Integration of the cities various service delivery
budgets for the eThekwini Municipality. units
 Historically the Municipality has enjoyed more  Lack of planning at a provincial level
then its “equitable share” largely based on the
fact that it had more capacity to prepare and As a result of the above, the City has had to identify
produce projects.
an urban edge or fringe and to limit the extent of new
 The eradication of slums over the next ten to bulk services beyond this edge. In other words an at-
twenty years, within the eThekwini Municipality tempt is being made to limit urban sprawl and create
as well as the province, depends largely a more compact and efficient city in terms of service
on the availability of funding and funding delivery.
programmes.
 The uncertainty relating to funding has Unfortunately this does not change existing settlement
resulted in a slowing down of delivery as the patterns and in particular those settlement patterns on
Municipality has limited capacity to bridge tribal land outside of the Urban Fringe. The project
finance costs.
areas identified for this project however, do not fall
into this category.
5.1.3 eThekwini strategies The department is currently characterized by the fol-

lowing;
Whilst the Ethekwini Municipality does have a hous-
 Poor systems and structures with respect
ing plan and a spatial development framework the to reporting mechanisms and information
manner in which housing projects are prioritised and technology.
delivered does not necessarily follow the “ideal” plan
 Poor administrative systems and weak contract
or the principles of “current best practice”.
documentation
The reasons for the complexities surrounding spatial  Non existent procurement procedures or
planning and prioritisation of housing projects in- strategies
clude.  Reliance on municipalities with no capacity
(almost without exception)
 Historical factors and existing settlement
patterns
32
 Dysfunctional or non-existent Provincial processes. R 36 million contracts are awarded

Housing plan or strategy. based on oral presentations.
 A lack of technical and developmental  Funds are transferred to municipalities who
capacity are unable to generate an invoice, bridge
finance VAT or even remotely understand the
 Fragmented structure with respect to regional
development process.
and head office functions
 Subsidies continue to be approved without a
 Lack of co ordination and co-operation
Provincial Housing plan
between regions and head office and regions
and Municipalities.  Most Municipalities are without a housing
plan
 Numerous systems and sub systems within the
Department.  Projects are awarded to implementing
agents and contracts signed prior to the
 Reliance on individuals to keep the “systems”
projects being prioritized. This creates huge
up and running
expectations on the ground.
 Poor record keeping and financial
 Lack of co ordination with other spheres of
administration
Government and funding agents.
 Weak management structures and complete
 Regions do not know what special projects are
lack of delegated authority.
doing, institutional support work in isolation of
 Complete lack of responsibility and the regions.
accountability as a result of all decision being
referred to the HAC and MEC.
 Multiple interpretations of housing policy 5.2 Current housing structures
resulting in numerous precedents and
continuous management by exception such
that exception and deviations have become
the norm.
5.2.1 Structures
In South Africa the government is ‘constituted as na-

Typical Examples tional, provincial and local, spheres which are distinc-
tive, interdependent and interrelated’ (Constitution of
 Inability of the SMS (subsidy management the Republic of South Africa, section 40(1). National
system) and FMS (financial management government, provincial governments and municipali-
system) to cope with issues such as escalation ties each play specific roles in the national housing de-
and the annual increase in subsidies. velopment process. Government is the key role player
 Contract documentation that completely required to support, facilitate, promote and/ or drive
disregards issue such as NHBRC enrolment social housing development in South Africa.
and escalation. Contract documentation that
still refers to the Provincial Housing Board,
which was disbanded 7 years ago.
 Procurement strategy that completely
disregards all recognized procurement
33
5.2.2 National Government 5.2.3 Provincial departments
National government establishes and facilitates a Currently the Provincial Housing Department KZN is
sustainable national housing development process. responsible for the evaluation of all housing applica-
Primarily the national government establishes and tions received from the eThekwini Municipality.
facilitates a sustainable housing development process,
after consultation with the nine MEC’s for Housing, The Provincial Department of Housing
and the national organization representing munici- is structured as follows;
palities (South African Local Government Association,
 Head office component in Pietermaritzburg
SALGA). and partly still in Durban
In order to facilitate and establish a sustainable national  Three Regional offices namely Northern
(Ulundi) , Inland (Pietermaritzburg) and
housing development process, National Government
Coastal (Durban)The Coastal office in Durban
 Determines national policy, including is of importance to the eThekwini Municipality
norms and standards, in respect of housing as all of its projects are evaluated by this
development. office.
 Sets broad national housing delivery goals,  New applications are directed to the Director
facilitates the setting of provincial housing Coastal Regional Office.
delivery goals and, where appropriate,
 The eThekwini Municipality is broken into
facilitates the setting of housing delivery goals
three regions, by the DOH, namely the
of municipality.
Northern Region, Southern and Central
 Monitors the performance of the housing Region and the Western Region.
sector against housing delivery goals and
 The Department has various teams headed by
performance indicators, in co-operation with
a Deputy Director managing each region.
every MEC.
The projects to be selected from the study area will
 Assists provinces to develop their
require evaluation and support from these structures.
administrative capacity and supports
The eThekwini Municipality has recently been granted
municipalities to manage their own affairs, to
exercise their powers and perform their duties accreditation by the National Department of Housing.
in respect of housing development. For the purpose of this study it will be assumed that
the Department of Housing will still play a major role
 Promotes consultation on matters regarding
in the evaluation and recommendation of the selected
housing development and finances housing
projects.
goods and services, provincial government
and municipalities and any other stakeholder
in housing development.
 Promotes effective communication in respect
of housing development.
34
The alternative strategies envisaged for these pilot Projects have been managed in a way that facilitates
projects will have to be agreed with the Department holistic development with the resources they have.
irrespective of the accreditation process.
Most Municipalities with the exception of very few are
The Department of Housing in its own right has al- characterized by the following;
ready recognised the need for alternative strategies
 A complete lack of capacity and total reliance
for the development of informal settlements and has on implementing agents and the Department
already produced some material and policies relating for support.
to these issues.
 Unable to cope with the demands of
communities with respect to service and
housing delivery.
5.2.4 Municipal departments
 Unrealistic expectations have been created
A municipality is the local level, or sphere, of govern- as a result of the number of “conditional
approvals” granted and projects advertised.
ment and is generally referred to as the local authority.
eThekwini local authorities have a central role to play  Poor administrative systems and weak contract
in the launch and implementation of an integration documentation
programmes for irregular settlements. As part of the  Non existent procurement procedures or
process of integrated development planning every strategies
eThekwini’s Housing department is taking all reason-
 Non-existent housing plans and strategies.
able and necessary steps within the framework of
national and provincial housing legislation and policy  Reliance on implementing agents who
to ensure that the right to have access to adequate have been appointed without any formal
accreditation process
housing is realised on a progressive basis. They also
have to upgrade and regularize informal settlements  Unable to bridge finance VAT payments
within existing regulatory frameworks. The constitu-  Reliance on individuals to keep the “systems”
tional objectives of local authorities are: up and running
 Providing democratic and accountable  Poor record keeping and financial
government for local communities; administration
 Ensuring the provision of services to  Weak management structures and complete
communities in a sustainable manner; lack of delegated authority.
 Promoting social and economic development
 Promoting a safe and healthy environment;
and 5.2.5 Implementing Agents
 Encouraging the involvement of communities  No accreditation process for implementing
and community organisations in the matters agents making it an easy entry industry which
of local government ( Constitution 152 (1)) is now characterized by numerous first time
operators and inexperienced practioners.
These objectives are the ones that play a role in bring-
ing closer the government to the South African citizens.
35
 Very few agents with the exception of perhaps Within this target are various initiatives such as con-
5 or 6 have the ability to deliver and provide ventional in situ upgrade & greenfield projects, social
their own finance.
housing & infill housing projects as well as the Slums
 Most agents are not developers or project Clearance Project. Phases 1&2 of the Slums Clearance
managers but rather professionals such as Project addressed 50 informal settlements and resulted
Engineers and Planner attempting to secure in the development of 5 greenfield projects comprising
work for their professions.
10 500 sites. Phase 1 is nearing completion & Phases
 The procurement of agents is often highly 2& 3 have already been planned & proposal has been
questionable in terms of process’s and submitted to the Province for approval. Phases 2 &
procedures 3 will result in the development of 80 000 units over
 Many agents have less capacity then the the next 6 years. 70 settlements will be relocated to
Municipality. the Greenfield projects, 120 will be upgraded & 20
 The Department offers very little support to
greenfield projects will be developed.
agents and in many instances agents are
treated as the “enemy”.
5 . 3 C u r r e nt and planned
h o u s i ng projects
5.3.1 Projects planned
In order for the Municipality to successfully meet its

housing backlog over the next 12-15 years, it has set
a target of producing 16 000 units per annum. This is
obviously dependent on it receiving the concomitant
funding from the Provincial Department of Housing.
36
6. H OUS I N G D E L I V E RY I S S U E S 6.1 H ousing Delivery Stakehold e r s
The different stakeholders that are going to assist in

eThekwini Municipality adopted policies and practices the progress of the project are:
for access to land and housing which are aimed at
providing quality living environments and integrating
the poor into the fabric of urban life through spatial 6.1.1 eThekwini Housing
improvement. The intention is to maximise the op-
portunities for improving the poor household’ quality The Housing Department is expected to champion the
of life through meeting their basic needs and by the project of alternative upgrading strategies. Phase 1 of
provision of essential services and social infrastructure. the Slums Clearance is an initiative of the eThekwini
The “Cities without Slums” Project has the same inten- Municipality is already spearheaded by the Housing
tions where the poor are going to benefit by having Unit in conjunction with the KwaZulu-Natal Department
their settlements upgraded in order to carry out these of Housing (DOH).
tasks there are stakeholders that have been invited to
see that the process is carried out in a proper, collabo-
tative manner. This is intended to avoid duplication, 6.1.2 eThekwini Development Engineering Unit
the sharing of resources, their different capacities and
learn from one another in order to reach the desired The Engineering Department has extensive experi-
goals of coming up with the strategy of upgrading ence on providing engineering project management
unplanned settlements. services for low-income housing including evaluating
engineering services required for low income housing,
During the project the stakeholders will be reflecting engineering design, contract administration, site su-
on issues, which could be applied at local levels of pervision/ quality control for construction of engineer-
society. Development institutions, such as government ing services, capital expenditure control.
and the various civil society organisations will be more
able to identify create and sustain useful partnerships
during this project. In this way organisations will be
able to conceptualise, plan, monitor and adjust their
plans.
37
6.1.3 Project Preparation Trust of KZN 6.1.5 Department of Health
PPT is an independent public interest organization that The department of Health will highlight all the issues
specializes in the preparation of projects for histori- that relate to communities’ health issues in informal
cally disadvantaged communities and special needs settlements. Issues of HIV/Aids, poverty, malnutrition
groups. The organisation takes an increasingly inte- and sickness due to environmental problems need to
grated approach to housing. This entails dealing with be addressed when dealing with this housing project.
community needs in a holistic fashion and undertaking
complementary forms of development simultaneously
with housing. This includes responding to poverty alle- 6.1.6 Development Planning Unit
viation and economic development needs, developing
community skills and capacity. They also address HIV The Department of Planning will be assisting by pro-
issues and ensuring that there is appropriate spatial viding its expertise in the way best practices in terms of
planning in place. physical planning in informal settlements have been
implemented and adding to the practices they have
PPT also focuses on settlement upgrades where com- used in the past. This department facilitates informed
munities already reside in an area, rather than on integrated development which in housing promotes
green-fields projects. This approach is partly a result of social, physical, and economic integration of housing
PPT’s community centred approach and partly due to development into existing areas through the creation
problems in ensuring appropriate locations for green- of quality living environments.
fields projects. The problems can include difficulties in
access to job opportunities and social facilities, such
as education and health, as well as dealing with the 6.1.7 Department of Land Affairs
sensitive issue of relocations and beneficiaries selling
their sites to return to better located informal settle- The Department of Land Affairs will give input on their
ments. recent methods of addressing land issues. The proce-
dures they take in this regard with particular emphasis
PPT will be playing an important oversight and project on the previously disadvantaged communities will be
management role of this project. of importance to the context of the “Slums Clearance
Project”. These will include ways on how accessing
and extending rights to land is provided. Land plan-
6.1.4 Department of Welfare ning and land distribution issues will be highlighted
during the process of the project.
This Department will be assisting the project by provid-
ing input on how the communities are to be affected
by this project and can benefit through projects/pro-
grammes that will take place.
38
6.1.8 Umlazi Development Committee 6.1.10 Homelesss Peoples’ Federation
The Umlazi Development Forum is a long standing The South African Homeless People’s Federation is a
community based structure that has been instrumental network of autonomous community-based organisa-
in dealing with issues around housing and develop- tions with their own identities and decision-making
ment in the area. The forum consists of members of structures. These organisations are rooted in shack
various organisations and interested persons who as- settlements, mobilise membership around savings
sist in ensuring consultation and communication with and prioritise the role of women.
the community is effectively undertaken. They also
have the support of the local councillors. Members of In this project the Homeless People’s Federation is
this forum have been elected to the Stakeholder com- bringing its experience of working with the informal
mittee that has been formed for this project. communities. People-centred development is going to
be the key to their involvement. The organisation has
over the years created social development practices
6.1.9 Ward Councillors (Umlazi and Kenville/ that can replicate themselves, which provides the basis
Sea-Cow Lake) for ongoing development. The organisation will also
provide support mechanisms for bottom-up creation
Ward Councillors who serve the Umlazi and Kenville/ of procedures.
Sea-Cow Lake wards will be bringing the interests of
the people in the ward as they are in touch with the is-
sues in their areas. They understand the key problems
and monitor development and service delivery. Their
presence during the process of the project will be of
high value as they understand key problems in their
particular area.
39
40
SECTION c
POLICY EN V I R O N M E N T The Interaction between UN Habitat and DoH

ANALYSIS National government.
UN Habitat through its global campaign has to re-

view South Africa’s process in implementation of the
Habitat Agenda. They are mandated to carry out the
7. Ho u s i ng Policy And Norms following:
 To assist in reviewing the national plan of
action for the implementation of the Habitat
7 . 1 N a t i o naL Policies
Agenda.
National housing policy has only recently recognised  To serve as a consultative mechanism for the
the need to formulate specific policies around the review and evaluation of national, provincial
and local implementation policies, plans
upgrading of informal settlements. Historically the
and programmes in relation to the Habitat
Department of Housing did not have a specific subsidy
Agenda.
instrument or approach, which dealt with the upgrad-
ing of informal settlements.  To act as a focal point for sharing experiences
and identifying good practice in sustainable
human settlement development in South
Some of the more recent developments include a
Africa.
policy on emergency interventions for example where
informal settlements are affected by fires or flooding.  To champion the Habitat Agenda by creating
This policy allows for funding to provide temporary awareness of critical social, economic and
shelters for people affected. environmental issues relating to sustainable
human settlement development.
A comprehensive strategy for the upgrading of infor-
mal settlements is currently being developed, however 7.2 Provincial Policies
it is likely that as with all policies the practical realities
can only be informed through implementation. Provincial policies are to a large extent informed
and driven by National Policies and Programs.
This pilot program could therefore be used as valuable Whilst certain programs such as the slums clearance
tool to provide meaningful input and assist in guiding program have a strong KZN flavour the framework
broader policies. in which they have been delivered is largely in
accordance with National Policy. In other words
It is envisaged that some radical deviations from con- the conventional approaches in the project linked
ventional development practice will be required. subsidy instrument are still being largely adhered to.
41
A radical rethink of procedures will be required at a local level. The White Paper has been
in order to develop informal settlements (slums) developed to accommodate options for
metropolitan local government these being,
these include innovative approaches to;
“Mega-City” and the second option is that of a
 Limiting the displacement of people metropolitan council with substructures.
 Delivery of basic services such as water and  The White Paper also outlines key challenges
sanitation facing local government as developmental
and outlines ways to meet challenges of
 An incremental approach to development over
backlogs in service delivery and infrastructure;
a sustained period with a clear end objective
the need to recognise the economic links
in mind.
between rural and urban areas; and the need
 A move away from conventional practice, for municipalities to rebuild a relationship
which promotes individual freestanding units with communities. The (IDP) and budgeting
with individual security of tenure via a formal are the first strategy, whereby plans for short
title deed. to medium term planning are developed.
Durban Metro’s Local Councils have all
 Moves towards blocks of flats or double
formulated IDPs in consultation with Local
storey walk up units with communal ablution
Councils.
facilities and other amenities.
 Providing more compact and efficient living
 Local Government Transition Act (1996)
environments.
 This act provides for the involvement of the
general public in the planning process. The
7. 3 M u n i c ipal Policies IDPs are the requirements for the Local
Government Transitional Act (1996). The
objectives of the IDP must be made available
for public comment and be evaluated and
7.3.1. Municipal policies amended as required. They must also be
informed of the achievements of the plans on
There are relevant policies and/ or legislation emanat- an annual basis and revisions to the IDP on
ing from national, provincial and local government an annual basis.
which affects housing delivery in KwaZulu Natal. These
provide a summary of relevant policies and legislation,  Proclamation No. 33 Of 1996
and they comment on how they affect housing delivery.
 This proclamation states that facilitation of
The policies and laws together provide direction for
housing delivery is currently a Local Council
more localised strategy formulation. function and housing policy formulation a
concurrent responsibility of Metro and Local
 White Paper On Local Government (1998) Councils. It stipulates that in instances where
there is non-delivery Metro may take over the
 White Paper on Local Government has an delivery function from Local Councils.
underlying assumption that local government
is the sphere of government closest to the
people, and is best placed to respond to
the challenge of delivery and development
42
Municipal Structures Bill (1998) Delivery and development play a central issue for
the new local government system. The Bill proposes
The Provincial legislature has a mandate to determine that performance measurement, transparency and
for each category of municipality the different types of accountability of local government must be a require-
municipality that may be established in that category ment that applies to daily business of the municipal
in the province. Eight different models for Metropolitan council. Municipalities are also required to establish
(Category A) municipalities, but all are some form of: performance management systems, the key elements
mega-city” model. of which are performance indicators, measurements
of performance, reporting, and monitoring and evalu-
Municipal Systems Bill (1998) ation.
The purpose of the Local Government Systems Bill is to Provision for appropriate mechanisms for citizen
give effect to the developmental vision for local gov- participation, integrating the activities of different mu-
ernment as envisaged in the Local Government White nicipal departments and agencies; aligning municipal
Paper by identifying and facilitating core planning, planning with the plans of adjacent municipalities and
performance management, delivery, and reporting. other spheres of government, and national/provincial
sectoral planning that has a direct impact on the
Residents of the Municipal area are the foundation, municipality has to be accommodated in a single inte-
content and focus of municipal government. The mu- grated development planning process at local level.
nicipal council is no longer the exclusive possessor and
focus of political authority, but rather an instrument for
the realisation of citizens’ interests and priorities, and
for communication between the municipality and the
residents.
43
44
8. LE G IS L AT I V E E N V I R O N M E N T National Housing Fund Council (NHFC). Therefore
the anticipated early operationalisation of the accredi-
tation process, linked to the grant funding is of utmost
importance from a risk mitigation point of view.
8 . 1 C u r r e nt Legislation
In October 2000 the erstwhile Durban Metropolitan
Council (now referred to as the eThekwini Municipality)
made application to the KwaZulu-Natal Provincial
8.1.1. Land and planning related legislation Department of Housing for “level 2 accreditation” in
terms of the Housing Act. This application followed an
The following land and related legislation exhaustive process in which the municipality investi-
will guide the development process. gated the implications and resourcing requirements.
This assessment involved substantial consultations and
 Prevention of Illegal Eviction from Unlawful
Occupation of land Act, Act No. 19 of 1998. collaboration with the Provincial Housing Department,
whereafter the accreditation application was favorably
 The Development Facilitation Act, Act No.67 received by officials of that department.
of 1995
 The KZN Town Planning Ordinance Subsequently, however, the Department of Housing
 Less Formal Township Establishment Act deferred accrediting the municipality citing “lack of
capacity” as the reason. This was incomprehensible
 The Expropriation Act, Act No. 63 of 1975
to the municipality as its application had presented
and amendments thereto
adequate proof of substantial housing administration
 The Municipal Systems Act capacity and expertise.
 The Municipal Structures Act
In the preparation of the accreditation application
the municipality had carried out a “Due Diligence”
exercise culminating in a comprehensive Accreditation
8 . 2 A n t i c i pated Legislation Business Plan.
The eThekwini Municipality’s housing capacity and

eThekwini Housing Accreditation initiatives have resulted in the Municipality being
awarded the coveted SA Institute of Housing Regional
The Housing Act, (Act 107 of 1997) stipulates that Award for Housing Excellence on several occasions.
the first and foremost risk mitigation measure in any In addition, the municipality has been awarded the
housing development is constituted by the proposed
accreditation process. It incorporates strong incentives
for Housing Institutions to ensure that their operational
house will be in working order. This has implications
that the institution can access the project capital grant,
capacity building and establishment cost grants as
well as preferential access to long-term credit through
45
prestigious platinum Impumelelo Innovations Award

for its Informal Settlement Programme.
Refinement Of Breaking New Ground Policy
The new policy for informal settlements will have an ef-

fect on the “Cities Without Slums” project. It accommo-
dates for the following advancement within informal
settlements projects
 Increases the existing subsidy and widens
eligibility (but no orphans, no illegal
immigrants)
 Intends and rewards intensive community
involvement from start of planning
 More money for quality top structure – R 25
000 +
 Planning and management vests at municipal
level, with 10 percentage municipal
contribution
 Area-based or community-based delivery, not
individual access
 Fast track, either upgrade or greenfields
46
9. POLIC Y S U C C E S S E S necessary to ensure compliance with legislation and
promote orderly development.
AND C O N S T R A I N T S
Typical Examples of these requirements are;
 Township establishment procedures
9 . 1 Po l i c y Successes  Survey procedures and the Survey Act
 Environmental legislation
Arising from the strength of the Constitution of the
 Minimum levels of service prescribed by
Republic of South Africa a number of very sound poli- Municipalities and the Province
cies and pieces of legislation are in existence.
 Requirements for services agreements and
social compacts
The strength of the various policies and legislation
has however not always translated into enhanced or  Formal tenure arrangements and the
improved delivery on the ground. This phenomenon registration of properties into individuals
is more as a result of a lack of capacity at Local names
Government level then a deficiency in the policy  Establishment and maintenance of Provincial
environment. However it is clearly evident that many data base
policies and procedures are very sophisticated and  Stringent qualifying criteria for subsidies.
complex by design, which makes implementation dif-
ficult and cumbersome in a third world or developing  Planning approval process
country environment.  Engineering design approval process
The successes of Government policy are more evident The rigid and formal process of township establish-
in greenfields projects, institutional projects and hostel ment and development often makes the development
redevelopment then in the upgrading of slums or of slums or the upgrading of informal settlements a
informal settlements. very unattractive prospect for developers or local
authorities.
The conventional wisdom for the development of land

9 . 2 Po l i c y Constraints
cannot be applied and very few innovative solutions
exist. The development and construction industry as
a whole is very conservative and alternative strategies
9.2.1. National Policy with respect to planning procedures, engineering
designs and construction process’s is often frowned
The National Housing policy framework is by design a upon.
rigid and complex process involving numerous statu-
tory requirements. These requirements are often very
47
9.2.2. eThekwini Policy opportunity to design and implement innovative strate-

gies.
The institutional set up of the eThekwini Municipality
is of such a nature that there is still a huge resistance Based on past experiences during the period 1994
to new and innovative ideas. This is particularly true – 2005 and international experience the following
in components such as the Engineering branch, town should be given consideration during the pilot study
planning, health and safety, real estate and the environ- and the development of a new development model;
mental branch. Service delivery units such as Housing,
 Informal settlement’s and the definition of
electricity and water appear to be more flexible in their slums vary from area to area and region to
approach based on operational experiences. region.
 Various categories of slums need to be defined
Examples of constraints are eThekwini’s fairly rigid and
and classified or graded.
across the board minimum services level requirements
(e.g.: with respect to level of road services and non  The reason for categorising various settlements
acceptability of on site sanitation). It is acknowledged will allow for more then a single model to be
that these are, to some extent informed by: a) a desire designed and implemented to suit the specifics
of a particular area.
to put in place long term, best practice infrastructural
solutions (as opposed to interim or incremental ones);  At this early stage it is not envisaged that more
b) a desire to move away from certain forms of histori- then five different categories will be required.
cal forms of development which were associated with  The previous ideal of individual free standing
apartheid (e.g.: site and service, on site sanitation). housing units as a solution should not be
One of the purposes of this project will be to system- considered an option.
atically assess a range of different options along with  Security of tenure through individual
the direct and indirect benefits and costs of various ownership should not be considered an
options (including extrapolation to delivery at scale). It imperative or a fundamental of the policy or
is expected that such an approach will assist eThekwini development instrument.
in re-evaluating or refining certain of its policies.  Transitional arrangements based on an
institutional type set up should be considered.
9 . 3 Po l i c y Impressions  Double storey walk up units or multi storey

units should be considered.
Based on the initial discussions between the various  Communal ablutions and community
stakeholders including Ethekwini Municipality, UN amenities should be the norm
Habitat and the Department of Housing it is clearly
evident that a radical rethink of current policies and
strategies is required for development of informal set-
tlements.
The study areas selected represent some of the worst

concentrations of poverty and slum settlements within
the greater Ethekwini area, thus provides a unique
48
 Areas should be developed on an incremental  Alternative zonings and regulations and by

basis. In other words logical phases of laws should be adopted to suit a specific area
development should be planned and which is at a specific stage of development. In
implemented over a period. other words an area cannot progress from a
slum to a fully-fledged suburb overnight.
 The previous policies of all or nothing with
respect to township establishment process’s  Realistic time frames for development should
and conditions of establishment should not be be agreed up front.
considered an option.
 The ultimate vision for an area needs to be
 Conventional levels of service and individual determined at the inception stage with clearly
water and sewerage connections should defined stages of development being defined.
not be an option at the early stages of
incremental development
49
50
10. ALTERN AT I V E is usually undertaken in a rollover format and in areas

where spaces allow for new site formation.
UPG RADIN G S T R AT EG I E S
Advantages Disadvantages
As noted in previous chapters a number of interven-  Ensures that acceptable  Disrupts family life
tions have taken place regarding informal settlement health conditions prevail not all households are
upgrading. The approaches have been varied but accommodated
 Job opportunities for local
limited to issues of delivery within particular budgets people  Low settlement densities,
and timeframes. Various challenges to the approaches resulting in urban sprawl
 Security of tenure
were indicated, however, the input from this process
 Can be expensive
requires alternatives to what has been learnt as well  Provision of a starter home
as definition of best practices in the event thereof.At with opportunity to expand  Not all households
approved as beneficiaries
this stage of the process we are unable to provide
i.e. Projects subsidy
detailed conclusions and consensus on the alternatives driven, with no options
as we have not finalised the enumeration process. This for non beneficiaries
process provides vital detail in the socio – economic
structure of settlement.The following are alternative
strategies indicating the definition thereof, how they 2. Management of existing
can be applied, and the pro’s and cons of each.
settlements
1 . C o n v e n t ional one site on house

Definition
Definition Improved supervision of existing settlements by ensur-

ing appropriate systems in place for management
This scenario considers the conventional and current thereof. This would include provision of water and
way housing provision. An area is planned and de- sanitation; refuse removal, containment of the settle-
signed to ensure that each household has his own plot ment through numbering and a database. Provision of
and a subsidised unit is provided with full waterborne access to facilities.
sanitation, water and electrification of the unit. This
is currently undertaken through the National Housing
subsidy which provides a certain amount of funds Application
dependent on a household’s income. The house is This would entail provision of appropriate manpower
usually a roomed unit constructed of concrete block. resources to manage each settlement or a group of
settlements. This could include temporary employment
of local people. This would require training and pos-
Application sibly provision of some resources, such as office space,
This can be applied firstly in Greenfield situations, as

well as in situ upgrades. The implementation thereof
51
furniture, access to a telephone and support services Application

such as security and policing.
This would entail temporary relocations and provision
Advantages Disadvantages
in areas which are vacant and rolling over develop-
 cost effective  additional funding required ment as required. The application of higher densities in
 quick solution and easily  can be a costly exercise highly trafficked areas and areas closer to major trans-
applied portation routes or around nodal points. Topography
 enables a managed of land occupied by settlements would also need to be
development process considered.
 appeases communities in Advantages Disadvantages
ensuring development is
intended in future  limit of urban sprawl  cultural issues relating to
high rise living will need to
cleaner, healthier and  economies of scale relating to
 be addressed
contained settlements infrastructure usage
 affordability for
provides work opportunities  In line with the Development
 beneficiaries
for locals Facilitation Act principles of
infill development?  higher development cost
 guarantees a sense of security
 Requires cultural shift in
 sustainability of jobs terms of how people live
3 . M e d i u m to H igh Density Ho using
Definition
This could take various forms of housing from semi-

detached, row housing, duplexes to multi storey walk
ups such as flats.
52
SECTION D
PILOT PRO J E C T S  Scale of the settlement (the settlement

should be big enough to have meaningful
impact in its own right but not too big to be
unmanageable as a project area – probably
between 300 and 600 sites)
11. PILOT P R O J E C T S E L E C T I O N  Willing community leadership and community
based organisations: it is critical that the
communities selected are willing to participate
pro-actively in development according to
After completion of the situation analysis, strategy and Masakhane principles as opposed to being
action planning phases of the project, two pilot up- passive recipients of development aid.
grade projects will be selected, one from each of two Masakhane is a people-driven campaign
targetted areas of Umlazi and Kenville / Seacow lake. that aims to accelerate delivery of basic
Feasibilities will be undertaken for each project and services and housing by stimulating economic
applications for housing subsidies will be submitted in development in urban and rural areas. This
order to initiate the provision of improved shelter. In campaign also aims to create conditions
parallel with this process, other key interventions and for large-scale investment in housing and
services infrastructure, and local economic
support activities will be identified in order to promote
development. Potential for a pro-poor, asset
more integrated and sustainable development (e.g.:
based and integrated development approach.
focussing on micro enterprise development, urban
agriculture, urban greening, skills development, adult  Absence of undue local political risks.
basic literacy, provision of social services such as
health care and education, improved community se-
curity, and the provision of improved care and shelter
11.2 Selected Pilot Areas
to those in special needs including those infected or
affected by HIV AIDS and orphans and vulnerable The following are the enumeration (socio-economic
children). survey) boundaries, i.e. the name of the settlements
where the enumeration (survey) would be done and
the total number of structures in each settlement.
1 1 . 1 S e l e c t ion Criteria These areas were chosen by the Ward Councillors as
the enumeration boundaries for the Pilot Project.
Criteria for the selection of the two pilot projects are
likely to include the following:
 Representivity of the settlement (ie: how typical
is it and will its selection as a pilot project
assist in developing a delivery methodology
that is potentially replicable at scale). This
implies that the settlement faces challenges
which are typical of many other settlements
(eg: land issues, relocations issues, high levels
of poverty, high settlement density, low quality
of topstructures).
53
Table 11.1: Enumeration Boundaries

Umlazi Total no. of Kenville/ Total no. of
Structures seacowlake Structures
V5 120 Johanna 208
JX6 88 Jamaica 407
K11 92 Gumtree 300
GX1 & GX2 125 Mysore/Temple Road 360
A3 106 Pakington (including 215

Park Station)
Bx1 (Phola Place)&EX11 94

(Ekuthembeleni)
NX1 (Elahlamlenze) & NX2 93
M12 122
AAX4 (Power) 164
P5 & PX3 140
Z6 &Z7 53
D18 (Extension) & 135

DX5 (Godsbell)
AX1 91
1423 1490
54
AC T I O N P L A N R E P O R T
CITIE S W I TH O U T S LU M S S U B - R EGI O N A L P R O G R A M M E
F O R E A S T E R N A N D S O U TH E R N A F R I C A
E T H E KW I N I M U N I C I PA L I T Y
This document is a discussion document illustrating the alternative strategies and their potential for the Umlazi
and Kenville/Sea Cow Lake pilot areas.
55
CONTENTS
1. Introduction. …………………………………………………………………....................55
2 Problem Statement. …………………………………………………………………........57
3. Main Findings Of The Situation Analysis…………………………………...............60
4. Implications of BNG Housing Policy …………………………………...............66
5. Overview of Upgrade Strategies ………………………………….............................67
6. An Alternative Strategy ……………………………………………........................70
7. Recommendations for the Development Strategies

For the two Targeted Areas …………………..........................................................72
8 Durban Situation Analysis Plans...........................................................................84
56
2. Pr o b l em statement  Results in a requirement for alternative land

 Not integrated enough (usually focus is
Informal settlements are growing at an alarming rate mainly housing and related infrastructure
throughout the world. Their number is projected to with limited LED, social facilities, and
double in 25 years (Cities Alliance, 2002). Peri-urban health interventions. Projects are often
fringes of cities and urban centers are where urbani- not integrated which impacts on long term
sustainability…)
zation pressures have given rise to the development
of informal settlements in a variety of environments.  Tend to view upgrade as a once off
Urban areas strongly influence the world of the 21st development as opposed to a process of
century and urban and rural populations are increas- change which needs to be managed in an
ingly interdependent for their economic, social and integrated way over a period of many years
environmental well-being. Population growth, cultural  Tendency to lump all types of slums and
expectations, voluntary and involuntary migration, upgrades under a single category
real and perceived employment opportunities, chang-  A range of barriers to conventional upgrade
ing consumption, production patterns, economic and method:
social factors have been influencing the urbanization
i. Very expensive – serious budgetary
process.
constraints both from Department of
Housing (DoH) as well as municipal
City slum populations are said to be growing fast- funding for bulk services and internal
est because they absorb about three-quarters of the services top ups – means a long waiting
population growth in African cities. By the year 2007 time for most settlements
more than half of the world’s population will live in
ii. Land legal issues relating to complex
urban areas and approximately 40% of them will be statutory land assembly processes
children below 15 years. A large percentage of these
will live in African cities-mega villages that present lit- iii. High settlement densities making
conventional servicing difficult and usually
tle or no advantage over rural areas in terms of basic
resulting in significant relocations
services (Urbanisation Challenges in Sub-Saharan
Africa, UN-HABITAT, 2005). iv. Lack of bulk services infrastructure in many
areas
In South Africa the history of racial segregation and v. Problems with relocations
repression contributed significantly to the current situ-
vi. Unstable communities can jeopardise
ation where nearly half the African population within projects
the eThekwini Municipal Area (EMA) currently reside
in informal settlements. While a number of in situ vii. Developers have been reluctant to work on
projects involving informal settlements
upgrade projects were initiated in the early 90’s, the
difficulties encountered have meant that many such viii.Formal tenure as a cornerstone to the state
projects have been subject to extensive delays and in subsidised system
some cases even abandoned. In situ upgrade projects ix. Lack of classifications for different
are more complex to implement and thus perceived to settlement types and finite definition of a
be high risk. This is due to the following reasons: slum or slums
 Results in significant relocations,
57
x. Rigid policies and mindsets with respect to housing that protects occupants from weather, which
development consisted of durable construction and enough space
xi. Conservative approach of all or nothing as for living and privacy.
opposed to incremental processes
xii. Rigid policies and inflexible attitudes with Seven criteria commonly used to clarify what adequate
respect to incremental development housing means are:
 The old concept, prevalent in the 1990’s, of  Legal security of tenure
housing and infrastructure as a lead sector,
 Affordability
has been largely undermined by practical
experience – unless there are positive  Availability of services, materials, facilities and
measures taken, low-income housing does infrastructure
not automatically trigger significant LED  Habitability
and other aspects of community upliftment.
These initiatives have to be triggered via a  Accessibility
conscious effort to create more integrated and  Location and
sustainable habitats.
 Cultural adequacy
 Need to balance depth and breadth
approaches When one or more of the above attributes are not
available, it can be said that housing is inadequate.
Breadth and depth approaches to upgrading – need
for a balance The unfortunate reality is that, between 1994 and 1999,
the quantum of the subsidy was designed to provide
When the new government came into existence in 1994, a housing opportunity and not a clearly defined end
it inherited a huge housing backlog. In its attempt to product. Norms and standards were only introduced
reduce the backlog, the government committed itself during 1999. This formalisation of a national norm of
to building million houses for people who had no 30m² resulted in the product becoming defined.
access to shelter. The housing backlog in 1995 was
estimated to 1.5 million units. This is when national The product produced via the Government subsidised
policy frameworks Reconstruction and Development program clearly reflects the breadth of the program
Programme (RDP) and the White Paper on Housing i.e. some for all. This in turn often translates into dis-
were published for the African National Congress appointment with the end product.
(ANC). These two documents were produced with the
aim of building up a new South Africa with sufficient Unfortunately the programs tended to perpetuate bad
housing conditions as well as eradicating the state of delivery goals with very little depth in terms of integra-
inhumanity. tion and sustainability related issues.
One of the RDP programmes was to meet basic needs, The Department of Housing has somehow, historically,
which set up a basic framework for the supply of hous- failed to balance and make flexible programmes that
ing for the people. It aimed to ensure the right to
housing for all South Africans on an incremental basis.
It also confirmed housing standards, which aimed for
58
lend themselves to more integrated and sustainable economic development in order to make housing
types of development. delivery process sustainable.
Within the broader housing and urban development High expectations have been created as a result of the
policy environment, government has in the last decade publicity given to slums and the associated political
tested a variety of implementation approaches and motives.
plans. Most recently (2004), the government introduced
the Comprehensive Housing Plan for the Development Promises to eradicate all slums by 2020 as well as a
of Integrated Sustainable Human Settlements – more significant number prior to the 2010 soccer world cup
popularly referred to as Breaking New Ground (BNG). has further driven expectations.
The BNG policy has identified the abovementioned
problems and seeks to remedy them (refer to Table Current budgetary restraints and the high cost of
1) . In light of the above, it can be said that adequate formal conventional development methodologies has
housing is not just the roof over one’s head, but also rendered the promises and expectations non feasible
include the other components mentioned above, such and delivery is very slow.
as security of tenure, affordability and habitability. The
government is also required to take measures that
are flexible and are able to address crises in the short,
medium and long-term.
The housing programme has not succeeded in accom-

modating the needs of the vast majority of homeless
people who had failed to qualify for the housing sub-
sidy and those who qualified but failed to get funding.
The provision of affordable and adequate housing
still remains a challenge for the government to meet
their obligations. Some of the issues that still prolong
are the continuing location of low-cost housing away
from areas of economic opportunities, limited success
Example of a greenfield development (30m2 units) that has been
of housing policies in integrating racially divided set-
one of the DoH implemented strategies to eradicate slums.
tlements and the link between housing delivery and
Photo: © Maluleke, Luthuli Associates
59
3. ENUM E R AT I O N F I N D I N GS Graph 3.1: Gender distribution for both the study

areas.
M a i n f i n d i ngs of the situation Female
a n a l y s i s a nd enumeration process Male
In order to pilot new approaches to the upgrading of

-52 Kenville/Sea Cow lake 48
informal settlements eThekwini Municipality recog-
nised that the project’s situation analysis needs to be
based on a detailed household socio-economic survey -51 Um lazi 49
for approximately 1 500 households in each area.
Phakamisa Collaborative and Siyamisana Planning -60 -40 -20 0 20 40 60
were contracted by the municipality to undertake the Percentage (%)
surveys, capture and process the data and present the
findings in the form of a report. The total population Source: StatsSA, 2001
in the settlements surveyed in Umlazi was 7 198 peo-
ple living in 1 434 structures and the total population During the enumeration process the following infor-
living in the structures surveyed within Kenville was 5 mation with regards to informal settlement profile was
871 people living in 1 492 structures. This implies an gathered.
average household size of 5.02 people per household
in Umlazi and an average household size of 3.93
people per household within the Kenville informal 3.1.1 Tenure Status
settlements. The following were the findings gathered
through the enumeration process. Graph 3.2: Kenville Citizenship
120
3 . 1 S e t t l ement Profile 100
99.87 South
African
80 Other
Table 3.1: Population distribution within the study %
60
areas.
40
Total Area Population 2001
Umlazi 388 687 20
0.13
Kenville/Sea-Cow Lake 14 748 0
South African Other
TOTAL (study areas) 403 426
Source: StatsSA, 2001 Source: Kenville Socio-Economic Findings, 2006
60
Graph 3.3: Umlazi Citizenship Graph 3.5: Reasons for settling (Umlazi)
100
120
90 86.98
99.93 South
100 80
African
70
80 Other
60
%
60 % 50
40
40 30
20
20
10 5.86 3.61
0.07 2.59 0.95
0 0
South African Other Seeking Needed Other Unable to Needed to
Employment Accomodation pay rent/ be closer
Source: Umlazi Socio-Economic Findings, 2006 evicted to work
Source: Umlazi Socio-Economic Findings, 2006

Graph 3.4: Reasons for settling (Kenville)
100
Graph 3.6: Umlazi Status of Occupier
90 86.98
80
100 94
70
90
60
80
% 50
70
40
60
30
% 50
20
40
10 5.86 3.61 2.59 0.95 30
0
20
Seeking Needed Unable to Needed to 10 4
Other 0 2
Employment Accomodation pay rent/ be closer
evicted
0
to work
Owner Tenant Not sure/ Other
dont know
Source: Kenville Socio-Economic Findings, 2006
Source: Umlazi Socio-Economic Findings, 2006
61
No. of years % Umlazi %Kenville Table 3.3: Residence History

Respondents Respondents No. of % Umlazi %Kenville Re-
0-2 3 5 years Respondents spondents
3-5 7 23 0-2 3 5
6-10 18 54 3-5 7 23
11-15 39 16 6-10 18 54
15-20 10 2 11-15 39 16
21-25 7 1 15-20 10 2
25-30 3 0 21-25 7 1
>30 12 14 25-30 3 0
Total 100 100 >30 12 14
Source: Umlazi Socio-Economic Survey, 2006 Total 100 100
Source: Umlazi & Kenville Socio-Economic Survey, 2006
Graph 3.7: Kenville Status of Occupier

All non-privately owned land is now vested with
eThekwini Municipality. Certain parcels of land within
Umlazi may still vest in the Ingonyama Trust Board.
The study areas identified in the Kenville / Sea Cow
0%
Not sure/ Lake area are all in private ownership with the excep-
100% dont know
tion of one or two parcels of land which are owned
Owner
0%
by the eThekwini Municipality. Land that is vested
Other in the eThekwini Municipality within the study areas
can readily be made available for development for
0%
Tenant implementation of the alternative strategies to be for-
mulated and approved under this program. Privately
owned land will have to be acquired, by expropriation
or negotiation. Problematic areas will only be those
Table 3.2: Ownership Status for Umlazi & Kenville that fall outside the former R293 towns and cannot
Source: Kenville Socio-Economic Survey, 2006 be vested in the eThekwini Municipality in terms of the
Ingonyama Trust Amendment Act.
62
Graph 3.8: No. of rooms in each structure 3.2 Socio-Economic Survey
Kenville Graph 3.10: Educational levels of both study areas

Um lazi
40
40
35 Um lazi
35
Kenville/
30
28 Sea Cow Lake
25
22 21 22 11
20 No Schooling 10
16 1
D egree 1.3
15
0 .1
10
D iplo m a 0 .1
7 20
G r a d e 12 20
5 2
1 0
9
0 0 0 0 0 G r a d e 11 7
0
10
Form al Inform al Traditional Other G r a d e 10 10
8
Grade 9 8
8
Source: Umlazi & Kenville Socio-Economic Status Survey, 2006 Grade 8 10
7
Grade 7 8
6
Grade 6 6
Graph 3.9: Construction material G r a d e 1- 5
22
20
120 0 5 10 15 20 25
99.87
100 South Source: Umlazi & Kenville Socio-Economic Survey, 2006
African
80 Other
% Graph 3.11: Employment Status for both Kenville and

60
Umlazi
40
20 120
0.13 99.87 South
0 100
African
South African Other 80 Other
%
Source: Umlazi & Kenville Socio-Economic Status Survey, 2006 60
40
20
0.13
0
South African Other
Source: Umlazi & Kenville Socio-Economic Status Survey, 2006
63
Table 3: Places of Employment Graph 3.9: Umlazi and Kenville Development Priorities
Kenville % UMLAZI %
120
Kenville 10 Umlazi 5
99.87
100 South
Inner City 12 Inner City 4 African
80 Other
Surrounding 12 South 17
%
surburbs Durban 60
Basin
40
Durban 5 Durban 2
North North/ 20
0.13
Springfield 0
Springfield 14 Pinetown/ 3 South African Other
Park New
Germany/ Source: Umlazi & Kenville Socio-Economic Survey, 2006
Marianhill
Umhlanga 2 Berea/ 2 It is clear that both the study areas have “good houses”
Glenwood as their priority in terms of development for their par-
Berea 9 Westville/ 2 ticular areas.
Highway
Other 36 Other 65
TOTAL 100% 100%
Source: Umlazi & Kenvile Socio-Economic Survey,2006
3.3 Development Priorities of Slum Dwellers
The total number of respondents for both Umlazi and

Kenville were 1 448 and 1492 respectively.
64
E N U M E R AT I O N F I N D I N GS CH A P T E R 4 - 6
65
4. I m p l i cations of bng  Enhancing the role of the private sector

h o u s i ng policy  Provision of housing finance
 Project management and other support
At its inception, the Housing Policy and Strategy (1994)
focused on stabilizing the environment to transform  Creating linkages between the primary and
the extremely fragmented, complex and racially based secondary residential property market
financial and institutional framework inherited from  Progressive Informal settlement eradication
the previous government, whilst simultaneously es-  Enhancing the housing product
tablishing new systems to ensure delivery to address
the housing backlog. The significant achievements of  Upgrading of informal settlements on the
basis of a holistic orientation, thus an area
this programme have been recognised both nation-
based approach of the past.
ally and internationally. Significant socio-economic,
demographic and policy shifts have also occurred over  Programme will harness fragile community
the past 10 years. networks, minimise disruption, facilitate
community participation in all aspects of their
development solution.
“Breaking New Ground” policy deals with informal
settlements through a new phased development ap-  Local Municipalities will have assistance from
proach that will deliver security of tenure, municipal provinces
engineering services and social and economic ameni-  External experts to assist in the implementation
ties. of the project.
 The programme to require the support
The programme focuses on, of the Home Affairs, Education, Public
 Accelerating delivery of housing as a key Works Provincial and Local Government,
strategy for poverty alleviation environmental Affairs and Health
 Utilising provision of housing as a major job  Upgrading of informal on the basis of a

creation strategy holistic orientation, thus an area based
approach as opposed to the individual subsidy
 Ensuring property can be accessed by all as an beneficiary focused approach of the past.
asset for wealth creation and empowerment
 The programme will harness fragile housing
 Leverage growth in the economy solution options available under the
 Combating crime, promoting social cohesion programme
and improving quality of life for the poor  Tenure options to be determined by the
 Utilizing housing as an instrument for the person’s status regarding income, previous
development of sustainable human settlements, residential property ownership and whether
in support of spatial restructuring the person accessed a State financed housing
subsidy in the past.
 Collapsing of subsidy bands so that all
households earning below R3500 will be able
to access a uniform subsidy amount.
 Shifting from product uniformity to demand
responsiveness
66
boundaries have to be established and movement

passages defined around the existing shacks. The
principle of minimal displacement is applied but
coupled with a requirement of the installation of basic
services. A Preliminary layout plan is developed by
taking the status quo into account and design based
on the de facto settlement to the extent possible. This
preliminary plan is then adjusted by the engineers to
allow for services such sanitation, water supply, road
access and stormwater .
It is noted that, in the context of eThekwini municipality,

A view from the Kenville/Sea-Cow Lake Informal Settlements show- high levels of minimum service generally apply, espe-
ing close proximity to employment opportunity to the study area. cially within the ‘urban edge’. Within this edge, which
Photo: © Maluleke, Luthuli Associates. includes both Umlazi and Kenville, water borne sewer-
age and individual household connections for water
are generally the minimum accepted level of service.
Reduced levels of road access (e.g.: pedestrianised
access) are also only permitted as a last resort.
5. O v e r v iew of upgrade Advantages

s t r a t e gies  Many of the existing sites / households can be
retained when using this strategy as well as
A number of development strategies could be utilised other land uses (e.g.: local economic activity,
to upgrade the so-called slums within the two study worship etc).
areas. The current traditional methodology to deal
 Improves the health conditions by means of
with the upgrading or removal of slums is generally
water and sanitation provision.
one of the following strategies;
 Job opportunities for local communities as
tenders can be called for the provision of
services.
5.1 Conventional in situ upgrade
Disadvantages
An informal settlement is allowed to stay and a com-
 The relatively high level of service
mitment for an upgrade is pursued. This usually oc- requirements in eThekwini areas such as
curs where a settlement is well located in terms of job Umlazi and Kenville mean that the costs of
opportunities and amenities. This can also occur if upgrading are relatively high.
there is little room for manoeuvring and if there are
 On site logistics: Existing structures need to
no spaces for relocations or rollover.
be removed/demolished the same day that
people are being moved to their new houses
Existing structures have to be enumerated, flood in order to avoid resettlement (i.e.: rollover
lines determined, required relocations identified. Site method). Alternatively a portion of the site has
67
to be set aside for temporary relocations. allows for collective forms of ownership, on condition
 In many cases, land is owned by multiple that the persons involved through collective owner-
landowners (often complicated by deceased ship, are fully aware , understand and subscribe to
estates), the land acquisition process can collective ownership options. Social housing cannot
be delayed. [This is because the housing be limited to specific income groups it should promote
subsidy requires that full title is provided to the both low income and medium income persons. The
beneficiary).
government’s funding objectives though remains to be
 A significant level of relocations usually results focused on the lower income end of the target market.
from the upgrade process, partially because of Housing institutions are enabled to access different
the one house one plot housing typology and operational programmes under the social housing
partially due to the loss of sites to make way programme such as the medium density-housing pro-
for services (e.g.: roads).
gramme, for specific programme development.
 Sprawling city. Does not promote the concept
of compact cities and towns. Medium density housing could take various forms of
 High incidence of residents migrating back to housing from semi-detached, row housing; duplexes
informal settlements. Promotes informal rental to multi storey walk ups such as flats. This would entail
capacity to tap into newly provided services. temporary relocations and provision in areas, which
Densities increase and slum conditions prevail. are vacant and rolling over development as required.
 Poor access of relocatees to job opportunities The application of higher densities in highly trafficked
and services areas and areas closer to major transportation routes
or around nodal points. Topography of land occupied
 Due to the relatively high per site and per
by settlements would also need to be considered.
project costs of this method, relatively few
projects can be undertaken simultaneously
due to budgetary constraints. This impacts Advantages
negatively in respect of achieving a balance  Improved yields and reduced relocations
between ‘depth’ and ‘breadth’ of delivery
 Reduced service cost per unit
 Delivery strategies seldom focus on education
and the creation of strong local management  Promotes the concept of compact cities and
structures to protect the new developments. towns and prevents urban sprawl and the
associated costs to maintain
 “Ownership” of the process and project is
problematic and culture of dependence on the
state exists Disadvantages
 High per unit cost.
5.2 Medium Density Housing  Inability to penetrate the bottom end of the
market – not currently feasible for those
earning below approx R2500pm, let alone
Social housing and social housing policy must be
residents of informal settlement who earn
clearly conceptualised and understood. This is a hous-
even less than this (it being noted that rentals
ing option for low-to-medium income persons that is have to be charged to ensure cost recovery /
provided by housing institutions, and that excludes sustainability)
immediate individual ownership. This housing option
68
 Variable community receptiveness to double Application

storey units or row housing often blamed on
cultural views
This would entail promotion of self-management via
 Inability to deliver at the necessary scale, formal mentorship programs with a view to com-
 Potential invasion of units or the surrounds munities ultimately managing and being responsible
are often problematic as informal settlements for their own settlements. Promote the development
seek to tap into the services and opportunities of people living within these settlements. This could
provided by the development. include temporary employment of local people. This
 Poor South African track record with respect to would require support services such as security and
the sustainability and effective management policing. LED opportunities created must however be
of social housing stock (especially low levels sustainable such as those afforded by local community
of rental collection and low management service contracts (e.g.: refuse removal, maintenance of
capacity of social housing institutions). roads) as well as training and mentorship for de-facto
micro-enterprises.
5.3 Informal Settlement Management Advantages

 Achieve breadth of delivery
Description
 Minimises relocations
Improved supervision of existing settlements by ensur-  Addresses short term health and other risks
ing appropriate systems are in place for the manage- without massive infrastructure costs (i.e.: cost
ment thereof. This would include: effective)
 Provision of temporary water and sanitation  Cleaner, healthier and contained settlements
and refuse removal;  Guarantees a sense of security
 Containment of the settlement through  Promotes integrated development
numbering of shacks, creation of a database
of names, and monitoring of the settlement.  Promotes the concept of self management and
Provision of access to social facilities (eg: a move from the syndrome of state reliance
health, education, recreation).
Disadvantages
 Flexible tenure arrangements that help bridge
the gap between the formal and the informal  Additional funding required
need to be put in place.  Potential political sensitivity / resistance
 Facilitation of other interventions to  Dealing with community expectations of a
alleviate poverty including: local economic fully subsidised house and plot (which is being
development; food security and HIV AIDS delivered in some other areas).
relief.
69
 Need to focus only on settlements which are 6. An alternative strategy

not targeted for short term relocation e.g. in
immediate risk of natural disaster
There is significant potential for further development of
 Provision of only rudimentary improved a delivery model, which supplements the main existing
services strategies of conventional insitu upgrades, greenfields
 Does not deliver title immediately and defers projects and social housing. This model / strategy is
this to a later time an incremental process which ensures better manage-
 Unless some form of limited intervention ment of informal settlements and which has the follow-
to improve top structure is included then ing main advantages. The key factor being that interim
there will be limited benefit from a shelter / incremental measures should be pursued ahead of
perspective full-scale housing and infrastructure delivery. There is
a need for a blend of different strategies, which com-
 Management of the process could be
challenging. plement each other:
 It entails limited capital expenditure and
thereby achieves greater ‘breadth’ of delivery
(balanced against the current strategies which
focus mainly on ‘depth’ of delivery but which
don’t rapidly meet the needs of the large
number of informal residents).
 It assists in stabilising informal settlements
from a range of perspectives including
improved health, access to certain rudimentary
basic services, and local economic
development.
 It creates improved pre-conditions for the
conventional models such as full-scale
upgrade once other preconditions (such as
Umlazi informal settlement. Photo: © Maluleke, Luthuli Associates.
funding availability and land) are in place.
70
 It promotes and facilitates more integrated  Facilitating better access to education and
and sustainable development by viewing educational facilities including ABET (adult basic
upgrading as a process of settlement change education and training)
and transformation which looks beyond
 Facilitate gender rights programmes (with NGO
physical infrastructure and housing and which
partnerships)
seeks to build human capital.
 Community savings mobilisation
 It facilitates improved social justice – citizens
who would otherwise not benefit from full  The introduction of more flexible standards and
scale upgrades will get other development regulations (e.g.: recognition and mainstreaming
benefits – this will also assist in managing of the incremental approach; earmarking certain
community expectations and begin changing informal settlements as incremental housing
them over time so that there is not the same zones etc).
level of expectation as to housing delivery –
 Extension of town planning schemes such as the
and less pre-occupation with housing delivery
ordinance to recognise these zones and create a
as such an important factor which excludes
framework for these types of development.
other factors
 This would greatly assist in breaking down the
 The incremental model / strategy would
stereotypical responses from various service units
include the following elements which could be
and Government Departments (i.e. the all or
applied to varying degrees depending on the
nothing approach).
nature of each specific settlement:
 Medium to high densities are important to
 Provision of rudimentary improved services
minimise relocations and as such road widths and
including:
space standards need to be adjusted.
 Sanitation (e.g.: communal ablutions or VIP’s)
 Formal tenure systems are coupled closely
 Water supply – standpipes to planning conditions and these need to be
amended to reflect a more flexible tenure system
 Pedestrian access
with a strong emphasis on de centralising the
 Improved services to prevent and contain fires process.
 Up front land legal assessment and, where  The system needs to be flexible so that the later
the City’s housing programme indicates, transition from the secondary / informal to the
commencement of work on land acquisition primary / formal market is possible.
(usually at least one or two years in advance
– significant lead in time required and this is
usually radically under-estimated)
 Micro enterprise business and sector skills training
and business development support
 Fruit tree establishment for urban greening and
improved food security
 Support for organic homestead gardens (training
and on site support)
 Facilitating improved access to health care and
HIV AIDS relief
71
7. Re c o mmendations for The short-term strategies would need to include the

d e v e l opment strategies following incremental programs (projects) and sub
programs;
f o r t h e two study areas
 Enumeration
A range of short and long-term interventions has been  Stabilising the settlement
formulated as outlined below.  Establish management structures
 Establish linkages with funding agents
including NGO’S, local and provincial
7.1 Kenville/Sea-Cowlake Government
Short Term Strategy
 Formulate definitive long term plan including
spatial planning
In order for the medium-term vision to be realised
an implementation strategy is required that provides  Formulate definitive short term programs and
practically implementable incremental) development plans linked to the long term vision including
process’s (solutions) in the short and medium term. physical planning
 Plan and implement short term programs and
Whilst it is acknowledged that the eThekwini projects
Municipality has already commenced with certain Short and medium term planning and projects would
short-term projects in these areas these have not been include;
linked to any broader plan for the area.
Employment Creation and Skills Training
The success of the incremental development approach
is dependant on a number of factors and the following Employment levels in both Umlazi and Kenville are
needs to be undertaken / achieved; relatively low; therefore a way to help local people
access economic opportunities, to gain employment,
 Political buy in with respect to incremental
development and the associated time frames and to start their businesses would be important.
Employment creation should be part of Umlazi and
 Manage expectations Kenville/SeaCow Lake vision. Initiatives to strengthen
 Community and Municipal support for the existing community organisations and to train people
program in basic life skills for urban living. Programmes that
 Availability of funding linked to multi year can be of assistance to local communities are as fol-
programs and budgets lows:
 Development of clearly defined projects with  Basic Business Management training
defined outcomes project
 Definitive linkages between short term projects  Multi-Skilling Project
and the medium term vision
72
 Home Ownership Education Project

 Crime prevention projects and programs
 LED initiatives
 HIV/AIDS awareness
 Food security programs
 Physical planning including land suitability
studies, investigating alternative zonings and
transitional / incremental type programs
 Provision of temporary services including
considerations such as fire, solid waste
removal, mobile clinics, communal ablutions
 Relocations within the settlement to crate
space for implementation of first phase of
development
 Provision of temporary or semi permanent
building materials
73
Proposed Projects For Kenville/Sea-Cow Lake

No. Intervention / Purpose & proposed outcome Action by* Estimated
Project budget
1 Pre-feasibility & Including geotechnical, land audits, topographical, Project Team with Housing Unit R100 K approved
project packaging bulk services assessment, environmental scoping
reports. Preparing submission of application
for subsidies to the KZN Dept of Housing.
2 Health & Sanitation Education on sanitation and oral health Health Unit with Water To be budgeted
hygiene. Potential to expand on communal & Sanitation Unit
ablutions, portable toilets, maintenance etc.
3 LED for training & Building capacity of informal dwellers to Economic Dev Unit To be budgeted
support for micro promote local economic development.
entrepreneurs  Fruit trees/gardening
 HIV/special needs
 Environmental- waste disposal
Pro-poor micro enterprises
4 Soild Waste Linked to job creation strategy as local people to Solid Waste & Cleansing Unit To be budgeted
be used to collect rubbish to main dumping areas.
Cleaner healthier slums linked to job creation.
Local labour / contracts to collect
waste. Form of LED initiative.
5 Water Consumer education program. Potential Water & Sanitation Unit To be budgeted
to expand water reticulation.
6 Electricity Examples include high mast lighting, lighting Electricity Unit To be budgeted
to public spaces & community facilities etc
7 Emergency roads Create improved access for emergency services, City Engineers Unit – Roads Dept To be budgeted
/ access transportation, improved security, storm water control
8 Emergency relocations Facilitate temporary and permanent relocations from Housing Unit To be budgeted
unsafe unsuitable areas. Internal and external relocations
i.e. within the project or to projects outside the area.
Relocations to facilitate space for future initiatives.
9 Formalisation of tenure Facilitate alternative tenure arrangements with a view Housing Unit with Ward Dev Committee To be budgeted
to managing the transitional nature of the settlement,
controlling crime and preventing the emergence of
slumlords. Strong emphasis on local management
and decentralising the tenure arrangements.
10 Housing in emergency As per DOH policy & focussing on addressing problem Disaster Mgt Unit, Housing To be budgeted
circumstances in situ rather than relocation out of the area. Unit, KZN Dept of Housing
11 Settlement management Program to ensure the settlement remains stable and Ward Dev Committee
well managed, control influx, maintain functional tenure
register and consolidate gains of previous years.
74
7.2 Kenville/ Sea-Cowlake -  Linkages to the short and medium term

Medium / Long Term Vision programs
 Impacts of HIV and Aids
Based on desk top studies the preferred model for  Should the model be based on an incremental
the ultimate end product for this area would be a basis then the following would have to be
combination of medium to high-density units such considered.
as semi-detached, double storeys, terrated and row
 Allocation procedure and qualifying criteria.
housing which would achieve a limited number of Who benefits first and why? Who manages
relocations if required. Part of the planning for the this process and how?
area would need to include the identification of all
 Whilst incremental development is taking
potential Greenfield / infill land usable for housing, in
place how is the settlement stabilised and
order to accommodate any relocations within the local
managed to ensure that the settlement does
area (to the extent possible). not attract new occupants hoping to secure a
unit.
In order for this medium term vision to be achieved a
 How are the settlements managed and what
number of factors and development process’s would
measures are put in place to provide the
need to be considered,
informal settlement with basic services. This
to avoid the entire community tapping into
The model would have to be implemented on an the new unit for sanitation, ablutions and
incremental basis linked to funding availability by electricity.
the provincial Department of Housing. The option of
 How is overcrowding and management of the
individual freestanding units should be dismissed.
units enforced (local committees or municipal
function).
The implementation of the proposed high-density
 What are the tenure arrangements and are
model would first require the following detailed feasi-
there repayments.
bility studies and process’s to be concluded.
 Land Availability and firm commitments to
purchase or lease. Other important factors to be considered are,
 Extent of land versus required densities.  The size of family units will have to be more
than the 30m², which has been the standard
 Land suitability studies including geotechnical, for communities.
topographical and environmental
 Cost of units. Current building costs are
 Acceptability of the model by the wider high, basic NHBRC (National Home Builders
community and beneficiary community Registration Council) compliant
 Detailed costing of the model including land,  From the above professional fees, services
services, fees and building costs. and land costs would be added
 Sources of funding and commitment to fund  Sustainability of the model
over a multi year program
 Ongoing maintenance / rates and service
 Sustainability and feasibility of the model charges.
 Phasing in of the model
75
From the outset it should be acknowledged that the vidual freestanding units should be discouraged but
total upgrading of slum conditions within the settle- may be appropriate in certain instances.
ments of Kenville and Sea Cow Lake are short and
medium term.
7.5 Pilot Project – Kenville/
Whilst the ultimate vision for the area would be the Seacow -lake
development of medium to high density housing the
short-term vision should be the creation of an enabling
environment to receive such a development whilst af-
fording short term poverty alleviation. Proposed Pilot –gumtree Road
This would require that the existing settlement be sta- Selection criteria
bilised and managed. The installation of rudimentary
basic services as well as the establishment of strong Based on a rudimentary desk - top assessment the
management systems including those related to tenure settlement known, as Gum Tree road appears to be
arrangements should be put in place. the most feasible settlement to commence with a pilot
project.
7.3 Umlazi – Short term Strategy The overriding reason for the selection of this area is
based on the following criteria:
Refer to tables for Kenville/Sea Cow Lake
 The settlement can be upgraded i.e. there
were no major physical development
PROPOSED PROJECTS FOR UMLAZI (focus on the constraints
Main corridor and in particular portions of Umlazi S
 The community had to be stable i.e. strong
1/2 , A, D & V) will be the same as in Kenville/ Sea
leadership preventing conflict and preventing
Cow Lake.
further growth – settlement had to be static
 Vacant developable land available in the
7.4 Umlazi Strategy immediate vicinity for small number of
relocations
Based on desk top studies the preferred model for this  Services must be available to the settlement
area would be a combination of medium to high-den-  No major land legal issues
sity units conventional insitu upgrading, limited reloca-
 Community to be willing to accept new
tions and management of the existing settlements.
alternatives
This model would have to be implemented on an
incremental basis linked to funding availability by the
provincial Department of Housing. The option of indi-
76
Project typology following studies be undertaken to a sufficient level of

detail.
The area appears to be suitable (subject to detailed
land suitability and related feasibility studies) for Land Audit
conventional upgrading strategies i.e. combination of
 Ownership details
insitu and green fields township type development.
 Restrictive conditions
However since the purpose of the study is to develop  Endorsements bonds
alternative strategies the concept of medium to high
 Valuations
density ” has potential subject to further feasibility
studies.  Options to purchase
 Current zonings
The idea of temporary shelters in terms of the new
National housing policy should also not be dismissed. Land Suitability Studies
 Detailed Geo-technical
Implementation strategy
 Environmental
A consultative process with respect to the final selec-  Topographical
tion of the pilot area will need to be undertaken.
 Preliminary planning
This process needs to be undertaken at both commu- Bulk services assessment

nity and municipal level.
 Availability of bulk services
The early consultation is made more complicated by  Water

the lack of detailed information available (feasibility  Sewerage
studies) as well as the fact that the development typol-
 Storm water
ogy has not been defined.
 Roads
Early consultation should therefore be limited to se-
lecting an area and advising the community based Preliminary designs and planning
structures that a product can only be defined once the
 Defines levels of service and cost model
necessary feasibility studies have been undertaken.
 Define type of development i.e. semi detached,
Consultation with community-based structures should multi storey or temporary housing
focus on explaining the development process and the  Cost model
associated time frames.  Preliminary layout plan
Feasibility studies required.
The viability of any project whether it be conventional

or an alternative strategy will require that at least the
77
Funding applications and sources of funding as the feasibility and development typology is clearly
defined.
 Consult DOH and eThekwini re funding
requirements.
A real danger exists that the project will simply revert
 Package funding application (preparation to a conventional project (i.e. insitu upgrade type
funding)
development) with the associated problems and time
frames.
Assessment of feasibility
Once the necessary studies have been concluded and

more detail is available the various proposed develop-
ment typologies can be work shopped in more detail
with the community based structures and the city of-
ficials responsible for development.
Program and way forward
Step 1
 Agree on requirements for feasibility studies –
Step 2 Smoke highlighting evenings at Umlazi informal settlements.

Photo: © Maluleke, Luthuli Associates
 Appoint consultants to undertake feasibility
studies – 3 weeks
7.6 Pilot Project – Umlazi
 Conclude feasibility studies – 3 months
Step 3
Proposed Pilot – S1/2 Emhlabeni And Ax2
 Agree on development typology – 3 weeks
 Prepare funding applications – 1 month Selection Criteria
Based on a rudimentary desktop assessment the areas

Recommendations known, as S1/2 Emhlabeni and AX2 appear to be
feasible areas to commence with a pilot project.
The issue of identifying a pilot area was carefully man-
aged in terms of obtaining community support. The overriding reason for the selection of these two
areas is based on the following criteria:
Emphasis was placed on development processes and
 The settlement can be upgraded i.e. there
related time frames. Unnecessary expectations were were no major physical development
not created in terms of the type of development and constraints
delivery time frames. This would be until such time
78
 The community had to be stable i.e. strong Implementation strategy

leadership preventing conflict and preventing
further growth – settlement had to be static
A consultative process with respect to the final selec-
 Vacant developable land available in the tion of the pilot area will need to be undertaken in
immediate vicinity for small number of conjunction with all stakeholders in Umlazi.
relocations
 Services must be available to the settlement This process needs to be undertaken at both commu-
 No major land legal issues
nity, political and municipal level.
 Community to be willing to accept new The early consultation is made more complicated by
alternatives the lack of detailed information available (feasibility
In addition the high visibility of these slums from the studies) as well as the fact that the development typol-
Mangosuthu Highway and the fact that this would ogy has not been defined.
form a logical starting point to upgrade the entire
Mangosuthu corridor was also considered. This falls Early consultation should therefore be limited to se-
in line with the City’s Urban Regeneration initiative for lecting an area and advising the community based
Umlazi. structures that a product can only be defined once the
necessary feasibility studies have been undertaken.
The projects would also improve the profile of the
Mangusuthu Technikon Campus and possibility re- Consultation with community-based structures should
solve land related issues. focus on explaining the development process and the
associated time frames.
Both areas have good access to existing road and
related services networks. Feasibility studies required.
Project typology The viability of any project whether it be conventional

or an alternative strategy will require that at least the
Both areas appear to be suitable (subject to detailed following studies be undertaken to a sufficient level of
land suitability and related feasibility studies) for detail.
conventional upgrading strategies i.e. combination of
insitu upgrading and “3-4 storey walk-ups”.
The idea of temporary shelters in terms of the new

National housing policy should also not be dismissed.
79
Land Audit Assessment of feasibility

 Ownership details
Once the necessary studies have been concluded and
 Restrictive conditions more detail is available the various proposed develop-
 Endorsements bonds ment typologies can be work shopped in more detail
with the community based structures and the city of-
 Valuations
ficials responsible for development.
 Options to purchase
 Current zonings Program and way forward
Land Suitability Studies Step 1

 Detailed Geotechnical  Agree on requirements for feasibility studies
 Environmental Step 2
 Topographical  Appoint consultants to undertake feasibility
 Preliminary planning studies – 3 weeks
Bulk services assessment  Conclude feasibility studies – 3 months

Step 3
 Availability of bulk services
 Water  Agree on development typology – 3 weeks
 Sewerage  Prepare funding applications – 1 month
 Storm water
Recommendations
 Roads
Preliminary designs and planning Emphasis needs to be placed on development proc-
esses and related time frames. Unnecessary expecta-
 Defines levels of service and cost model
tions should not be created in terms of the type of
 Define type of development i.e. semi detached, development and delivery time frames until such time
multi storey or temporary housing as the feasibility and development typology is clearly
 Cost model defined.
 Preliminary layout plan
A real danger exists that the project will simply revert
Funding applications and sources of funding to a conventional project (i.e. insitu – upgrade type
development) with the associated problems and time
 Consult DOH and eThekwini re funding
requirements. frames.
 Package funding application (preparation

funding)
80
Note: Although this report makes recommendations

on the proposed pilot, due to the misunderstandings
surrounding the intentions of the broader project by
the umalzi councillors, a decision was taken by the
management of the housing unit not to proceed with
this pilot as an immediate intervention but rather
to handover the recommendations to the housing
projects department to implement when the umlazi
councillors are ready to accept the concept of imple-
menting alternative strategies.
81
Table 7.1: Comparisons between “Breaking New Ground, Current Housing Initiatives and UN SLUMS proposed
strategies
Breaking New Ground” Current Housing Un Slums Proposed Strategies

Initiatives
Accelerating delivery of housing as a Effort to break the patterns created Combination of strategies using the best of existing
key strategy for poverty alleviation by the apartheid style of planning combined with new including elements of BNG
Utilising provision of housing as Creating sustainable Recognising that housing initiatives alone do not resolve
a major job creation strategy human settlements create sustainable and integrated environments
Ensuring property can be accessed Eradication of all slums by 2010 Recognising the limitations of the fiscus and establishing more realistic
by all as an asset for wealth goals and objectives. Emphasis on sustained incremental development
creation and empowerment
Leverage growth in the economy Prevention of urban sprawl and Promote self-management by empowering communities to manage their
promotion of integrated development own settlement. This may include community control of the tenure system.
Combating crime, promoting Promotion of planning principles Promote strong community structures within settlements with
social cohesion and improving to create more compact and a view to instilling systems and procedures that are aligned
quality of life for the poor efficient cities and towns with the principles of incremental development
Utilizing housing as an instrument To ensure job creation by Create jobs by assisting in providing municipal
for the development of sustainable housing programmes services such as solid waste removal
human settlements, in support
of spatial restructuring
Collapsing of subsidy bands so that all To create rental housing opportunities Combination of high-density units comprising of multi storey walk up units.
households earning below R3500 will be Utilising a combination of strategies over a sustained
able to access a uniform subsidy amount. period in an effort to remove slum conditions
Shifting from product uniformity Provision of housing for Incremental basis linked to funding availability
to demand responsiveness vulnerable groups including
those affected by HIV/AIDS
Enhancing the role of the private sector
Provision of housing finance
Project management and other support
Creating linkages between the primary and Linkages between primary and secondary markets
secondary residential property market to be viewed as long term strategies
Progressive Informal settlement eradication Progressive improvements on tenure arrangement linked
to incremental development. I.e. from transitional to
ultimate full tenure or other form of secure tenure.
Enhancing the housing product
Upgrading of informal settlements on
the basis of a holistic orientation, thus
an area based approach of the past.
82
Breaking New Ground” Current Housing Un Slums Proposed Strategies

Initiatives
Programme will harness fragile community Realities of slum lords and informal rental schemes to be addressed via
networks, minimise disruption, facilitate community based forums in association with local authorities, police service etc
community participation in all aspects
of their development solution.
Local Municipalities will have Realisation that reliance on state funding is not the only solution.
assistance from provinces
External experts to assist in the Acknowledge the limitations of external support and funding. Create
implementation of the project. a culture of self management and self reliance coupled with strong
community structures and linkages to Local and Provincial Government
The programme to require the support Measures to be put in place to assist foreign nationals i.e. subsidies etc
of the Home Affairs, Education, Public
Works Provincial and Local Government,
environmental Affairs and Health
83
8 D u r b a n Situation Analysis Plans
Map A
84
M ap B
85
M ap C
86
The Cities without Slums Sub-regional Programme for Eastern and Southern Africa was initiated in the year 2000,
in response to the situation of increasing poverty in the region. The programme seeks to assist Member States in
the sub-region to realize the Millennium Declaration Goal 7 Target 11 of ‘Cities without Slums’, by strengthening
institutional arrangements, building partnerships and supporting the improvement of conditions of people living
and working in slums areas. The initiative is also based on the partnerships created in South Africa, India and the
Philippines, in the Three Cities Project and supported by UN-HABITAT’s Global Campaign for Secure Tenure.
In South Africa, the City of Durban through the eThekwini Municipality is collaborating with UN-HABITAT in this
upgrading Programme the covers the Umlazi and Kenville/Sea-Cow lake informal settlements.
In Durban, the first phase of this initiative was to prepare the Durban Situation Analysis, which is an in-depth
analysis of the present and past conditions of the two informal settlements in eThekwini Municipality. The report
is the culmination of several months of consultations with key stakeholders.
The purpose of the Situation Analysis is to serve as a discussion piece for diverse stakeholders to arrive at a
consensus about the conditions of informal settlements and the conditions governing slum upgrading, and then
to identify a way forward by developing a concrete Action Plan that illustrates alternative strategies and their
potential for the Umlazi and Kenvill/Sea-Cow Lake areas.
HS/896/06E
ISBN: 92-1-131882-3
UNITED NATIONS HUMAN SETTLEMENTS PROGRMME

P.O. Box 30030, GPO Nairobi 00100, KENYA
Teephone: 254-20-7623120; Fax: 254-20-7624266/7 (Central Office)
E-mail: [email protected]; Website:http//www.unhabitat.org

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C I T I E S W I T H O U T SLUMS

Sub-Regional Programme for

CITY OF DURBAN (ETHEKWINI)

Copyright © United Nations Human Settlements Programme

All rights reserved

United Nations Human Settlements Programme (UN-HABITAT),

Design and Layout by Information Services Section, UN-HABITAT

SECTION A: BACKGROUND AND STATUS QUO 7

2.1 Land Legal 13

3.1 Social Profile 19

SECTION B: PRIORITY ISSUES 27

4 HISTORIC HOUSING STRATEGIES 27

4.1 Previous housing investigations 27

5 CURRENT HOUSING STRATEGIES 31

5.1 Current housing strategies and plans 31

5.3 Current and planned housing projects 36

6. HOUSING DELIVERY ISSUES 37

6.1 Housing Delivery Stakeholders 37

SECTION C: POLICY ENVIRONMENT ANALYSIS 41

7 HOUSING POLICY AND NORMS 41

7.1 National Policies 41

8.1 Current Legislation 45

9. POLICY SUCCESSES AND CONSTRAINTS 47

9.1 Policy Successes 47

9.2 Policy Constraints 47

10. ALTERNATIVE UPGRADING STRATEGIES 51

SECTION D: PILOT PROJECTS 53

11. PILOT PROJECT SELECTION 53

11.1 Selection Criteria 53

The objective of the Situation Analysis is to present the

So c i a l D y n amics Projects Planned

Po l i c y C o n straints  Various categories of slums need to be defined

 The ultimate vision for an area needs to be

BACK G RO U N D A N D the Project over and above the funding committed by

1 . 2 I n s t i t utional Context 1.3 Goals and Objectives

The study area is defined as the formal township of

There are 6 informal settlements comprising approxi-

KenvilleNeighbourhood. Photo: © UN-HABITAT

Kenville/ Sea Cow Lake lies in the northern part of the

The study areas identified in the Kenville / Seacow lake

2 . 3 L a n d and gender issues settlements. Umlazi and Kenville/Seacow Lake are

control the mobility of African women were enacted 50

white urban areas with a visitor’s permit. The applica- 10

Source: StatsSA, 2001

The overall result has been that many women have

In regards to land use females still have a problem

2.3.1 Patriarchy fleeing from an abusive situation brings with it the

2.3.3 Domestic violence Geotechnical information is not readily available for

3.1.1. Social Overview -51 Um lazi 49

The households in Umlazi are composed of 51, 2%

0 5 10 15 20 25 within Umlazi. The largest source of household income

3.1.3. Umlazi and Kenville/Sea-

Kenville/Sea Cow Lake has more employed people

Table 2: Ranked Results of Ward Needs Assessment

as well as the Glebe area consisting of multi-storey  Religious

 Educational Whilst Umlazi may contain in certain cases

Umlazi does not contain substantial economic infra-

As land has become scarcer and as a result more

 Projects are developed and slums are 4.4 Lessons learned

 There are budgetary pressures as a result  Political factors