list and explanation of acronyms mpcc’s - … bay/sq/3 - chpt 1... · list and explanation of...

MOSSEL BAY SPATIAL DEVELOPMENT FRAMEWORK (15.2574)

CNdV africa (Pty) Ltd DRAFT STATUS QUO REPORT

28 October 2016

page v

LIST AND EXPLANATION OF ACRONYMS AADT Average Annual Daily Traffic Volumes

ART Anti-Retroviral Treatment

BNG Breaking New Ground (new term for RDP (low income) housing)

CBA Critical Biodiversity Areas

DEADP Department of Environmental Affairs and Development Planning

DFA Development Facilitation Act (Act 67 of 1995)

DORA Division of Revenue Act, 2013 (Act 2 of 2013)

DTI Department of Trade and Industries

DWAF Department of Water Affairs and Forestry

EIAs Environmental Impact Assessments

EMF Environmental Management Framework

EMP Environmental Management Plan

ESA Ecological Support Areas

GIS Geographic Information System

GVA Gross Value Added

HIV/AIDS Human Immuno-deficiency Virus / Acquired Immune Deficiency

Syndrome

HSP Housing Sector Plan

HSP Human Settlement Plan

ICMP Integrated Coastal Management, Act No. 24 of 2008

IDP Integrated Development Plan

IPCC Intergovernmental Panel on Climate Change

IRPTN Integrated Rapid Public Transport Network

IRTN Integrated Rural Transport Network

ITP Integrated Transport Plan

IWMP Integrated Waste Management Strategy

LED Local Economic Development

LNG Liquid Natural Gas

LUMS Land Use Management System

LUPO Land Use Planning Ordinance, 1985 (Ordinance 15 of 1985)

MLRA Marine Living Resources Act (Act 18 of 1998)

MPCC’s Multi-Purpose Community Centres

MSA Municipal Systems Act, 2000 (Act 32 of 2000)

NBSAP National Biodiversity Strategy and Action Plan

NC PSDF Northern Cape Provincial Spatial Development Framework

NDP National Development Plan

NDPG Neighbourbood Development Partnership Grant

NEM:PAA National Environmental Management: Protected Areas Act, 2003

(Act 57 of 2003)

NFEPA National Freshwater Ecosystem Priority Areas

NGO Non-Governmental Organisation

NHA National Health Act 2003 (Act 61 of 2003)

NMT Non-Motorised Transport

NPC National Planning Commission

NSDP National Spatial Development Perspective

PGDS Provincial Growth and Development Strategy

PLAS Land for Proactive Acquisition

PLTF Provincial Land Transport Framework

PTP Public Transport Plan

RDP Reconstruction and Development Programme

RIDS Regional Industrial Development Strategy

SDF Spatial Development Framework

SEA Strategic Environmental Assessment

SIP Strategic Infrastructure Plan

SOEs State Owned Enterprises

SPC Spatial Planning Category

VIPL Ventilated Improved Pit Latrines

WC-PSDF Western Cape Provincial Spatial Development Framework

WSDP Water Services Development Plan

WWTWs Waste Water Treatment Works



28 October 2016

page 1

1. INTRODUCTION

1.1 PURPOSE OF THIS REPORT

The purpose of this report is to provide an understanding of the state of the

Mossel Bay Municipality (see Figures 1.1.1 and 1.1.2) and the various issues

facing it in order to prepare a Spatial Development Framework to help

address those issues from a Spatial Perspective.

The report is structured in the following manner:

Section 1 describes the purpose and need for an SDF.

Section 2 describes a number of national provincial, district and local

guidelines, policy documents and concepts, all of which have a bearing

on the SDF.

Section 3 describes the current state of the Municipality under the following

subsections:

Natural Systems;

Socio-economic systems; and,

Built Systems.

1.2 BRIEF OVERVIEW OF MOSSEL BAY MUNICIPALITY

The Mossel Bay Municipality is located in the eastern region of the

Western Cape Province, see Figure 1.1.1.

The main settlements in the Municipality are: Mossel Bay town,

Hartenbos, Vleesbaai, Dana Bay, Groot Brakrivier and Klein Brakrivier.

The Municipality has a population of approximately 89 412 people

(Census, 2011).

1.3 WHAT IS AN SDF AND WHY IS IT NEEDED?

The spatial management of growth in urban and rural environments due

to rapid urbanisation rates and the subsequent impact on resources was

previously done through the Guide Plans and Structure plans. These took

the form of rather inflexible master plans which were underpinned by the

principles of discrimination and separate development.

The new democratic government, post 1994, adopted a new system of

spatial planning described in the Development Facilitation Act, now

replaced by the Spatial Planning and Land Use Management (SPLUMA),

and Municipal Systems Act. This new system had two components to it.

The first is an indicative plan or Spatial Development Framework (SDF) that

was intended to show desired patterns of land use, directions for future

growth, indicate the alignment of Urban Edges, and depict other special

development areas.

The impact of SDFs is limited to providing policy to guide and informing

land development and management. They do not change or confer real

rights on land. This is done by the second component, the second

component is the Land Use Management System (LUMS). This is similar to a

town planning or zoning scheme. In many instances where they have not

been replaced or repealed these still take the place of LUMS. In contrast to

SDF’s LUMS have a binding effect on the development rights attributed to

land and confer real rights on properties.

Because development in Municipalities is dynamic and responds to

changing socio-economic and environmental circumstances, it is

impossible to predict the exact requirements of development rights in

every instance; therefore, LUMS may be amended from time to time to

take into account these changing circumstances. This is normally achieved

through the processing of rezonings, subdivisions and removal of title deed

restrictions applications.

It is in these instances where SDF’s play an important role in guiding

appropriate future change and helping to guide motivations as to the

need and desirability, or not, of proposed land use changes.

Because of their guiding and informing nature SDF’s also have a number of

other important functions in addition to guiding LUMS.



28 October 2016

page 2

Figure 1.1.1 Study Area



28 October 2016

page 3

These include:

Giving effect to the five spatial principles contained in SPLUMA, see

Section 2.1.1;

Setting out objectives that reflect the desired spatial form;

Defining strategies and policies to achieve these objectives which must

indicate, amongst others:

- the desired pattern of land use;

- how spatial reconstruction will be addressed; and

- providing strategic guidance in respect of the location and nature

of development. (In this regard it should be noted that the SDF’s

should inform the investment decisions of the public and the

private sectors.)

Set out a capital investment framework for development programs;

(this will mainly inform public sector investment priorities);

Include a Strategic Environmental Assessment (SEA) in the compilation

of the SDF;

Identify programs and projects for development of land;

Be aligned with neighbouring Municipal SDF’s; and,

Provide a visual representation of the designed spatial form with the

Municipality in the form of a map which must indicate the following:

- public and private land development and infrastructure

investment;

- desired and undesired use of land;

- may delineate the Urban Edge;

- identify areas for strategic investment;

- where policy intervention is needed; and,

- indicate where authority spending is required.

Informing the spatial location of budget spending in the IDP, see

Section 2.4.1.

1.4 LEGAL STATUS OF THE SDF

Within the limitations of a SDF as laid down by the Local Government

Municipal Systems Act, 2000 (Act 32 of 2000) i.e. that it should be a guiding

and informing document and does not confer real rights on land, it is

intended that the SDF should be a binding document endorsed by the

Municipal Council. The SDF must be approved by Council in terms of the

MSA, and as a sector plan of the IDP. This endorsement will assist with the

processing of development applications, demonstrating compliance with

different sectoral policies and motivating project funding and budgets.

SPLUMA stipulates, inter alia, that any authority mandated to make a land

development decision in terms of the Act or any other law relating to land

development, may not make a decision which is inconsistent with a MSDF

unless site-specific circumstances justify deviation from the provisions of

such MSDF.

1.5 RELATIONSHIP WITH OTHER PLANS

The SDF links the development objectives taken from the Integrated

Development Plan (IDP) and the Budget of a particular Municipality.

Therefore, the SDF becomes the spatial presentation of the IDP objectives

that guide projects funded through the budget of the local Municipality.

This link between the SDF, IDP and Budget is shown in Figure 1.5.1.

Figure 1.5.1 Link between SDF/IDP/Budget

The Mossel Bay Municipal SDF is further linked to other spatial policies at

different levels of detail depending on their level of jurisdiction. The

National Development Plan (NDP, 2030) and National Spatial

Development Perspective (NSDP) provides the broad national

development goals, objectives and strategies. This informs the Western

Cape Provincial SDF (WC-PSDF). The WC-PSDF in turn informs the Eden

District Council SDF. The Eden SDF then informs the preparation of the

Mossel Bay Municipal SDF.

SDF Budget

IDP



28 October 2016

page 4

Figure 1.1.2 Aerial Photograph



28 October 2016

page 5

It should be noted that the hierarchy is not only top down but also bottom

up, i.e. the lower level plans also inform the higher level plans through the

updating process as a result of more local level detailed information.

The lower the level of the plan the more detailed the plan becomes and

vice versa. This is illustrated in Figure 1.5.2.

Figure 1.5.2 Layers of SDF and Level of Detail

The SDF should consider the impact of the natural environment (rivers,

sensitive areas) as well as built environment aspects such as housing,

infrastructure and socio-economic issues relating to economy, human

development indicators, etc.

The SDF must guide all of the Municipality’s departments as well as national

sector departments, State Owned Enterprises (SOEs) and the private

sector.

Therefore, the SDF is informed by and in turn informs the plans and activities

of the various municipal line departments, see Figure 1.5.3.

Figure 1.5.3 SDF relationship to sector plans

1.6 CONSULTANT’S BRIEF

The consultants brief is to prepare an SDF for the Mossel Bay Local

Municipality.

The following methodology, in line with both the national and provincial

guidelines for the preparation of Spatial Development Frameworks, see

Figure 1.6.1, is used in this project:

Figure 1.6.1 Phases in the process of completing an SDF (source: CNdV, 2010)

The following serves as specific foci:

1.6.1 CRITICAL MILESTONES AND DELIVERABLES

Milestones mark the end of each phase of the project to ensure a credible

and comprehensive SDF as required by the above policy and regulation.

The four products mentioned above form the milestones for this project.

Inc

rea

sin

g le

ve

l o

f d

eta

il

1

2

3

OVERBERG DISTRICT SDF

EDEN DISTRICT SDF

WEST COAST DISTRICT SDF

OVERSTRAND

MUNICIPAL SDF

MOSSEL BAY

MUNICIPAL SDF

MATZIKAMA

SDF

WESTERN CAPE PSDF

Dis

ast

er

Ma

na

ge

me

nt

LED

SM

MEs

Tra

nsp

ort

atio

n

Hu

ma

n S

ett

lem

en

ts

En

vir

on

me

nt

Wa

ter

Ma

na

ge

me

nt

SDF

Are

a B

ase

d P

lan

(Dis

tric

t Le

ve

l)



28 October 2016

page 6

Figure 1.1.3 Mossel Bay Municipality in the Eden District Municipality



28 October 2016

page 7

It is expected that each milestone should cover several deliverables. Below

is a list of deliverables for each of the four milestones.

The following products of the SDF will be produced in the different phases

of the SDF as shown in Figure 1.6.1:

Product One: Inception Report

Product Two: Spatial Analysis of the Current Reality (Status Quo) Report

Product Three: Conceptual Spatial Development Framework (draft SDF)

Product Four: Final SDF Implementation Strategies and Programmes

PRODUCT 1 INCEPTION REPORT

The inception report should describe details pertaining to the project

process (contained in a work plan). As part of this phase a project

inception meeting will be conducted with the client to agree on a process

forward and deliverables/products of the SDF. The starting date of the

project and agreed payment schedule will also be noted in this report.

PRODUCT 2 SPATIAL ANALYSIS OF THE CURRENT REALITY (STATUS QUO)

This section should include a spatial analysis with maps, and indicate the

following:

Municipal-wide spatial issues (in relation to the needs identified) and

existing project proposals (including their locality);

The municipal investment and spending patterns. For example, are the

Municipality spending patterns:

o aligned with the DFA; and,

o biased towards urban areas or rural settlements?

The status of a Comprehensive Rural Development Programme (CRDP)

in the Municipality; and how does the proposals relate spatially and

economically to the adjacent settlements and towns? and,

A review, where necessary, of the existing municipal policies, plans,

resolutions and by-laws, pertaining to spatial planning, supportive of

what the Municipality wants to achieve in particular with regard to rural

development; or do they need to be revised?

Spatial implications of applicable provincial and national plans,

legislation, policies, strategies and directives including:

o the District SDF

o Provincial SDF

o the Growth and Development Strategy

Settlement spatial patterns and dysfunctionalities including:

o Evidence of urban sprawl, integration and spatial impacts,

effects of apartheid

o Status of the environment and its functioning as a system of

eco-system services

o Feasibility and progress with IDP proposals

Identification and analysis of existing nodal points indicating their:

o Viability and sustainability for promoting economic growth

Identification and analysis of strategic located vacant land and land

with development potential:

o Note, only important vacant land should be described.

Analysing every piece of land in the rural Municipality should be

avoided

Major structuring elements, urbanisation trends and their spatial

implication in the Municipality;

Strategic roads and transportation networks (district, provincial and

municipal roads):

o Level of functionality and contribution to the system as a whole

o A need for new roads

o Roads which need to be upgraded and for what reason.

o Roads whose upgrading will boost the economic growth of the

Municipality, etc.

Location and trends of basic services and infrastructure:

o Demand for services and infrastructure

o Alignment with other development programs including

highlighting dysfunctionalities

Housing (human settlements):

o Location of BNG housing

o Viability of locations from an economic and access point of

view?

o Existence of supporting infrastructure

o Restructuring Zones

o GAP/Social Housing

Environmental degradation, conservation and sensitive areas and the

impact which specific development may have on the environment:



28 October 2016

page 8

o No development areas

o Where some development could be allowed with strict

management

Agriculture:

o Agricultural potential

o Land currently affected by land claims

o Land requirements for other purposes

Land reform:

o Areas suitable for land reform purposes

o Clarify what type of land is more suited to land reform than

others

Sports:

o Location of major sporting nodes or areas and status of relevant

infrastructure

Spatial relationships between urban and rural areas:

o Nature of urban / rural interfaces

o Nature of relationship between the two

o Patterns of infrastructure, deficits of poverty, welfare grants,

markets thresholds, economic or cultural activities

The relationship between the spatial issues and the vision of the

Municipality:

o Alignments or contradictions including relationships with

surrounding municipalities.

SPATIAL PERSPECTIVE OF THE IDP OF THE MUNICIPALITY

Because the SDF should also include a spatial representation of the IDP,

understanding and interpreting the IDP spatially is seen as an important

phase of the process. Therefore, this section should also include the

following:

Highlight the vision and mission of the IDP and its spatial implications;

Confirm the interrelationship of the Municipality’s vision and that of the

district from a spatial planning point of view;

Identify key principles and strategies as contained in the IDP and how

they translate spatially;

Delineate the municipal boundary, settlements, farms and wards; and,

Map the area where the main pressing needs and the proposed multi-

sector project(s) are located.

PRODUCT 3 CONCEPTUAL SPATIAL DEVELOPMENT FRAMEWORK

This information should be summarised to determine the way forward in

terms of how the Municipality should be shaped from a spatial point of

view.

In this phase the conceptual proposals are developed. They should

indicate how the spatial form of the Municipality should be shaped and

links with the outcomes of the two phases mentioned above.

This section should include and map the following:

Relevant objectives and principles that will guide activities into the

desired spatial form;

The macro-conceptual framework showing the desired spatial form

including how the Municipality should be portrayed as to how it will

function sustainably as a system;

A micro spatial plan of key focus/growth/nodal points in the

Municipality;

Horizontal and vertical alignments of the conceptual SDF with other

relevant plans such as PGDS, NSDP, District SDF and District IDP, etc;

Priority settlements for the implementation of the CRDP;

Rural towns needing revitalisation;

Strategic located land for agri-villages and agro-industries;

Land to be acquired or reserved for land reform activities including

land for proactive acquisition (PLAS) by the Department of Rural

Development and Land Reform;

Strategic sites for Thusong Service Centres (formerly also known as Multi

Purpose Community Centres (MPCC’s));

Strategic development areas and priority areas for investment;

Viable land for housing and other economic development and

supporting infrastructure;

Viable and functional nodal points, and identify potential nodes and

how they should be developed;

Nodes without development potential. Name or identify the nodes;

Functional development corridors and how they should be developed

to support the nodes;

Urban edges and direction for growth for any of the different areas at

micro framework level and for the Municipality as a whole at macro

level;



28 October 2016

page 9

Functional and integrating municipal/district roads and public

passenger transportation network;

Proposals for upgrading of or new roads;

Proposed major bulk infrastructure for the whole Municipality;

Where appropriate, include new bulk infrastructure and the relevant

services;

Environmental conservation and sensitive areas;

Major sporting nodes as well as areas with tourism potential;

High agricultural potential and areas affected by claims which

Municipality needs the most for developmental purposes; and,

Areas needing urgent policy intervention.

PRODUCT 4 FINAL SDF WITH IMPLEMENTATION STRATEGIES AND

PROGRAMMES

This is the most important phase of the SDF in which the ideas as

conceptualised in the previous phases should be realised. For

implementation to succeed it is necessary to ensure the following from the

start of the process:

There should be a strategic vision for the spatial structure of the

Municipality as a whole shared by councillors, all the municipal

department’s officials, the district in which the Municipality is located,

national the sector departments and the private sector;

The development of the SDF should be consultative from the beginning

until to the end of the process; and,

There should be strategies and processes in place to involve the

relevant decision-makers and stakeholders.

From this work the following deliverables should be included in the SDF:

Relevant strategies and policies to implement the framework and

determine the points of intervention by the Municipality; and,

Amendments to the relevant sector plans to facilitate the

implementation of the SDF.

Note: Except for Land Use Management System (LUMS), most of the

implementation of the SDF will occur via the sector implementation

plans, e.g. HSP, SIP, PTP, disaster management, LED, EMF. The SDF

provides the spatial guidance to all of these plans.

Sector plans must always be aligned to advance the interests of the

SDF and hence the IDP, see Figure 1.6.2.

Land ownership with updated cadastral information that can be used

by the Municipality as part of a land audit;

Guidelines for transportation, infrastructure and other sector plans,

policies and plans;

LUMS guidelines or recommendations for the formulation of a land use

management scheme (not included in this brief);

Figure 1.6.2 Proposed Relationship between IDPs, Implementation Plans, including HSPs and

SDFs (source: CNdV 2010)

Tools (densification, infill, redevelopment, greenfields) to facilitate

development in strategic areas;

Recommend strategies to facilitate linkages between rural and urban

areas;



28 October 2016

page 10

Proposals on how to ensure the sustainability of land with high

agricultural production potential; and,

An Implementation Plan that summarises the following from the sector

implementation plans:

o Capital Expenditure Framework for the Municipality’s

development programmes and budget process;

o Prioritised list of developmental interventions and spatial

location;

o Cost and budget estimates;

o Timing and phasing of development;

o Sources of finance;

o Implementation agent and their roles and responsibilities;

o Recommendations for the revision of existing policies or

strategies, where necessary;

o Proposals on how the SDF can be used for the implementation

of projects by Sector Departments;

o Institutional capacity recommendations; and,

o Review of trends and alignment with adjacent municipalities

with those of the Municipality under consideration.

The following general deliverables are to be included:

i. Resumes of meetings;

ii. Powerpoint slide shows and hand-outs of presentations;

iii. Reports to be produced incrementally as project progresses;

o Inception Report;

o Status Quo Report;

o Conceptual Framework Report; and,

o Final Spatial Development Framework (complete report).

All of these products should be compatible with national, provincial and

district GIS databases.

PRODUCT 5 PARTIAL ENVIRONMENTAL MANAGEMENT FRAMEWORK (EMF)

A need to develop an EMF which will allow for the delisting of certain

activities will form part of this SDF process. The following environmental

factors will be addressed as well.

Sufficient detail to allow for all land within the urban edge to be

approved as an urban area in terms of NEMA;

Sufficient strategic environmental information in order for the

competent authority to consider approving a Strategic Environmental

Assessment (SEA) in terms of SPLUMA and/or NEMA which includes a

strategic assessment of the environmental pressures and opportunities

within the municipal area, including the spatial location of

environmental sensitivities, high potential agricultural land and coastal

access strips, where applicable, through which geographical areas are

identified to facilitate subsidized, informal housing or strategic municipal

infrastructure projects to be excluded from obtaining Environmental

Impact Assessments (EIAs) in future; and

A scenario plan which should consider the economic and spatial

impacts related to PetroSA activities within the Municipal area.



28 October 2016

page 11

1.7 THE ECOLOGICAL SOCIO-ECONOMIC RELATIONSHIP (ESER)

FRAMEWORK

Various references have been made to the importance of environmental

sustainability. This has to be achieved at the same time as urgently meeting

a number of socio-economic demands and requirements facing

Stellenbosch Municipality’s rural areas.

Therefore, there is a need to find a way to mediate all of these competing

requirements. This has given rise to the Ecological Socio-economic

Relationship Framework. This is used to inform the methodology in the

Status Quo section of this report, see Section 3.

1.7.1 Ecological Socio-economic Relationship

This framework is based on the principle that the relationship between

economic efficiency, social justice and human wellbeing, and ecological

integrity is not one of equal and overlapping spheres where losses in the

one can be set off by enhancements in another.

Rather, it recognises; firstly, that economic efficiency is wholly dependent

on the quality of human resources and their ability to deliver productive

into the economic system; and,

Secondly, economic activities and social development are in turn wholly

labour dependent on the availability of eco-system services (land, water,

arable land, and building materials). They cannot demand more from eco-

system services than their capacity to deliver on a long term sustainable

basis.

This is because there is only one planet and it operates within a closed

ecological cycle. Therefore, it is not possible to exceed the capacity of this

system in the long term. Any over-demand in the short term will lead to

long term negative consequences.

Figure 1.7 illustrates this relationship by depicting economic efficiency as a

circle nesting within social justice and human capital which, in turn, both

nest within the circle of ecological integrity. This illustrates graphically the

dependence of economic development and human reproduction on

available supply of eco-system services.

Figure 1.7 The Ecological Socio-economic Relationship

1.7.2 The Closed Ecological Cycle

The mediating relationship between the three components of the ESER

Framework is found within the Closed Ecological Cycle and its four

components of Extraction, Social Reproduction, Production and

decomposition, see Figure 1.8.

The only external input is solar energy. Everything else is found within the

confines of the planet’s finite resources. The closed ecological cycle

acknowledges that levels of production cannot exceed what is available

in terms of human resources (human reproduction) and what can be

extracted from the natural environment. In turn, for the cycle to remain in

balance, waste outputs from economic production and human

reproduction processes cannot exceed the capacity of environmental

sinks (decomposition) to absorb them, see Figure 1.8.

The interaction between the Ecological Socio-economic Relationship and

the Closed Ecological Cycle creates a framework on which the inputs and



28 October 2016

page 12

outputs of a number of economic activities and eco system services can

be measured and managed, see Figure 1.8.

Figure 1.8 The Closed Ecological Cycle

1.7.3 Extraction

Primary extractive economic activities such as mining, fishing, agriculture

and forestry are directly dependent on the capacity of land resources

such as geology, soil, and biodiversity as well as water resources from rivers,

groundwater and estuaries and coastlines for their production. The extent

and way in which these resources are extracted has a great bearing on

their sustainability.

Figure 1.9 Extraction



28 October 2016

page 13

1.7.4 Social Reproduction

There are two components under Social Reproduction, both of which

contribute to the extent to which this element is able to contribute to the

whole system or not.

1.7.4.1 Human Development (People)

Demographic indicators relating to education, health, housing,

employment, entrepreneurial development, spiritual aspects such as the

role of religion, and negative issues such as crime. If these indicators are

low human resources will be less productive thus limiting capacity.

Aspects of these indicators, for example health, are also dependent on the

availability of primary extractive resources such as water, food and fibre.

There are indicators available to measure all of these factors which can be

used to measure the success, or not, of policies programs and projects

aimed at improving the quality of human resources.

1.7.4.2 Urban Settlements

An important aspect of the ability of human resources to participate

effectively in the economy as well as interact socially and engage

spiritually lies with the structure of urban settlements and the extent to

which they are efficient, convenient and pleasant to live in or not.

Indicators relating to layout densities, the level of social and economic

spatial integration, the coexistence of functions, the appearance of

buildings and streets, urban environmental quality and the delivery of

services help to measure the extent to which urban settlements are positive

or negative contributors to the overall environmental socio-economic

system.

Figure 1.10 Social Reproduction



28 October 2016

page 14

1.7.5 Production

The main sets of indicators of economic production are found in the

tertiary and secondary economic sectors. The secondary economy sector

is largely rooted in the industrial age and has a considerable reliance on

extractive resources. Water, land, minerals and building materials as well as

skilled human resources. The tertiary sector relies more on highly skilled and

trained human resources.

Figure 1.11 Production

There has been much work done by economists and financial analysts

over the years measuring various aspects of the performance of economic

sectors and companies, but this is seldom done within a holistic context. As

a result narrow economic GDP growth and productivity imperatives have

tended to overshadow the need to ensure the ongoing ability of

ecosystem services and human resources to effectively continue to

contribute to the overall system.

1.7.6 Decomposition and Environmental Sinks

The final set of relationships in the closed ecological cycle relates to

decomposition and they focus on the performance of environmental sinks

such as waste water treatment works, landfill sites, stormwater and river

systems and the absorption of atmospheric and aquatic pollution. If

environmental sinks are unable to cope with the loads deposited in them,

this will lead to an increasing inability of the eco-system to continue to

provide the services that are required in terms of the various extractive

components. The exponential increase in global carbon production is an

example of this problem.

Figure 1.12 Decomposition



28 October 2016

page 15

1.7.7 External Drivers

There are four key external drivers to the framework, see Figure 1.13.

Figure 1.13 The Relationship with Key Performance Indicators

They include:

1.7.7.1 The Property Market

The dynamics of the property market in terms of tourism, residential,

industrial, commercial, agricultural and rural property has an enormous

bearing on the extent to which the system is able to keep in balance and

redistributive policies to be implemented. The issue of land reform and

spiralling land prices is an example of the impact of this driver. These

factors drive the need for ever increasing returns on investment that

creates pressure for the conversion of land from rural to urban uses.

Understanding property market dynamics should play a major role in the

compilation of spatial development frameworks.

1.7.7.2 Governance and Legislation

Governance and the efficiency with which it is able to take action,

administer development control, and have the capacity to implement

major projects has a major bearing on the operation of the framework, see

Figure 1.13.

An important aspect of this capacity is the extent to which the

administration of legal frameworks at national, provincial and local level is

enabling or is becoming so unwieldy that it creates blockages that destroy

rather than create value and opportunity.

1.7.7.3 Equity and Inequality

The third external driver of the relationship framework relates to the link

between the first and second economies and the extent to which all of the

various activities are structured in such a way that lessens or deepens the

barriers between the “haves” and the “have nots”. The increase in these

barriers arising from poor education and marginalisation of the informal

sector through a variety of development processes – for example, taxi

recapitalisation or development of regional shopping centres - are

beginning to create an economic underclass which is increasingly unable

to participate in the mainstream economy. Most activities in the

relationship framework can function in either more capital intense or more

labour intense modes of production. It is critical that the implications of

choosing a particular mode of production are understood. Examples



28 October 2016

page 16

include using pump jockeys or self-service at filling stations through to

promoting informal retail markets at regional shopping centres. There is a

great danger of deepening the divide between the first and second

economy and growing an underclass which could threaten the stability of

the entire socio-economic system.

1.7.7.4 Funding and Income

The fourth important external relationship driver relates to funding and the

need to achieve the following incomes:

Wages (labour);

Capital (interest);

Rent (land and property);

Profit (business enterprises); and,

Tax (municipal-rates, provincial-tariffs, fees and levies, national–

income, VAT, corporate, CGT).

Funding is important as it provides the money that lubricates the

Municipality’s economic system. Access to funding plays a major role in

decision making and the extent to which the ecological socio-economic

relationship framework is able to keep in balance. A particularly obvious

example of the impact of this driver is the perception of municipalities that

the main opportunity to balance their budgets lies with increasing their

rates income. To do this they believe they must encourage high income

property development. However, there is little clarity as to whether the

additional real costs of such development, often hidden or not fully

described, are in fact, covered by the additional rates income. This

approach also tends to side line the need to address the massive arrears

backlogs faced by most municipalities.



28 October 2016

page 17

2. GOVERNANCE AND LEGISLATION - IMPLICATIONS

There are a number of Acts, policies and guidelines to be considered in the

preparation of the SDF. The following section spells out the more important

documents in this regard.

2.1 NATIONAL LEGISLATION AND POLICY

NATIONAL LEGISLATION

2.1.1 SPLUMA PRINCIPLES

The Spatial Planning and Land Use Management Act (SPLUMA) (Act 16 of

2013) provides an important set of overarching guidelines in the

development principles contained in Chapter 2 of the Act, see Figure

2.1.1.1.

Figure 2.1.1.1 SPLUMA: Development Principles

Key themes contained in these principles include:

Spatial justice;

Spatial sustainability;

Efficiency; and,

Spatial resilience.

Development principles

Spatial justice:

(a) past spatial and other development imbalances must be redressed through improved access to and

use of land;

(b) spatial development frameworks must address the inclusion of persons and areas that were previously

excluded;

(c) spatial planning mechanisms, including land use schemes, must incorporate provisions that enable

redress in access to land by disadvantaged communities and persons;

(d) land use management systems must include all areas of a municipality and include provisions that are

flexible and appropriate for the management of disadvantaged areas, informal settlements;

(e) land development procedures must include provisions that accommodate access to secure tenure

and the incremental upgrading of informal areas;

Spatial sustainability:

(f) promote land development that is within the fiscal, institutional and administrative means of the

Republic;

(g) ensure that special consideration is given to the protection of prime and unique agricultural land;

(h) uphold consistency of land use measures in accordance with environmental management instruments;

(i) promote and stimulate the effective and equitable functioning of land markets;

(j) consider current and future costs for the provision of infrastructure and social services;

(k) promote land development in locations that are sustainable and limit urban sprawl; and

(l) result in communities that are viable;

Efficiency:

(m) land development optimises the use of existing resources and infrastructure;

(n) decision-making procedures are designed to minimise negative financial, social, economic or

environmental impacts; and

(o) development application procedures are efficient and streamlined and timeframes are adhered to by

all parties;

(p) Spatial resilience, whereby flexibility in spatial plans, policies and land use management systems are

accommodated to ensure sustainable livelihoods in communities most likely to suffer the impacts of

economic and environmental shocks.

Implications for Mossel bay Municipality (letters in brackets refer to relevant

SPLUMA principle)

● Compact and integrated urban areas that are vibrant and support a mix of

opportunities whilst optimizing the use of existing resources and

infrastructure should be encouraged. This has particular implications for

Kwanonqaba in Mossel Bay town and Wolvedans above Groot Brak’s

future growth patterns. (e)

● Environmentally sensitive conservation areas should be identified for

preservation and urban development effectively managed in rural areas.

Mossel Bay Municipality’s urban areas are closely integrated with sensitive

aquatic (river valleys) and marine (estuarine and coastal) systems. (h)(n)

● Promote high levels of access that could minimize the need for private

motor vehicles and provide safe NMT routes. This will require spatial

integration and a new urbanism approach to spatial planning, especially

along Louis Fourie Corridor. (f)(j)(k)

● The outward growth of settlements should be restricted to prevent the

consumption of valuable agricultural and natural environments. The

efficient use of centrally located vacant land within existing urban areas

becomes critical in this regard. Some difficult choices will have to be made

regarding conservation of CBAs and land for future urban expansion.

(g)(n)(p) ● Emphasise the creation of integrated settlements especially with regards to

poorer communities and their proximity to services and employment.

(a)(b)(c)(d)

● Create compact urban environments to reduce expenditure on

infrastructure and support public transport.(a)(f)(i)(j)(m)(p)

● Urban villages as a planning and design concept based on walking

distance, especially along the Louis Fourie Corridor, are likely to be an

important structuring element. (a)(b)(c)(f)(h)(j)(k)(m)(p)



28 October 2016

page 18

NATIONAL POLICY

2.1.2 NATIONAL DEVELOPMENT PLAN 2030, NOVEMBER 2011

The purpose of the National Development Plan 2030 is to guide the long

term development of South Africa in order to ensure a better future for all.

The plan was prepared by the National Planning Commission in November

2011 (National Planning Commission, 2011).

The approach of the plan is based on the following:

The active efforts and participation of all South Africans in their own

development;

Redressing the injustices of the past effectively;

Faster economic growth and higher investment and employment;

Rising standards of education, a healthy population and effective

social protection;

Strengthening the links between economic and social strategies;

An effective and capable government;

Collaboration between the private and public sectors; and,

Leadership from all sectors in society.

Ultimately the plan aims to create a prosperous country where poverty, the

effects of apartheid and colonial discrimination would be a thing of the

past.

A total of nine central challenges were identified:

1. Too few people work;

2. The standard of education for most black learners is of a poor

quality;

3. Infrastructure is poorly located, under-maintained and insufficient

to foster higher growth;

4. Spatial patterns exclude the poor from the fruits of development;

5. The economy is overly and unsustainable resource intensive;

6. A widespread disease burden is compounded by a failing public

health system;

7. Public services are uneven and often of poor quality;

8. Corruption is widespread; and,

9. South Africa remains a divided society.

The commission identified that increasing employment and improving the

quality of education available as the highest priorities. The plan identified

key demographic issues which need to be taken into account in national

planning:

The number of South Africans living in rural areas has decreased by 10%

resulting in about 60% of the population living in urban areas. More

than half of the poor live in cities. By 2030, it is expected that about

70% of the population will live in urban areas. Gauteng, eThekwini and

Cape Town are the fastest growing city-regions in the country;

Immigration will add between 0.1 percent and 0.2 percent to South

Africa’s population growth per year; and,

The HIV/AIDS infection rate has stabilized at about 10% and new

infections among young people have fallen. Improved treatment has

reduced the death rate and life expectancy is rising again.

External drivers of change affect South Africa’s fortunes in a number of

ways. These are briefly discussed below:

2.1.2.1 World Tourism Boom

Expected increase of between 15-20% in tourism; and,

Graph 2.1.2.1 shows the projected growth in global and regional

international tourist arrivals between 1950 and 2020.

Graph 2.1.2.1 Projected growth in global and regional international tourist arrivals between

1950 and 2020 (Impact Economix, 2012)



28 October 2016

page 19

2.1.2.2 Population Growth and migration

Of concern is the impact of HIV/AIDS and the size of the work force

(growing or declining).

2.1.2.3 International political and economic developments

South African policy makers did not adequately provide for the effects of

the world economy on the local economy. Urbanisation and

industrialization in China and India are likely to keep the demand for

natural resources high for a decade or more which will broaden the

opportunities for the South African economy.

2.1.2.4 South Africa’s political-economic dynamics

Electricity costs are likely to continue to rise;

Green House Gasses (GHG) emissions will increase by 25% to 2014;

From 2016, there will be oil shortages as global supply of fuel drops by

4% per annum;

Fuel shortage will be prevalent in the smaller cities in the interior of the

country and will present a strain on heavy industry and transport;

After 2025 there will be tougher energy laws and increased fuel and

food prices; and,

By 2050 the situation will improve due to more affordable renewable

energy, alternative transport, energy and waste recycling, and tourism

and local food production.

2.1.2.5 Globalisation

Globalisation has led to increased complexity for countries and the way in

which they contend with each other. South Africa should manage the

risks that could develop when emerging powers may seek to exploit our

vulnerabilities.

This refers to the fact that the developments in the Municipality are

affected by global trends, e.g. the price of agricultural produce that is in

turn affected by the international price of oil. Another factor is the fact that

the Municipality can potentially play a role in the global market.

2.1.2.6 Africa’s development

Strong economic growth on the African continent has opened up major

opportunities for South African firms and industries. Nevertheless, a number

of structural weaknesses must be overcome for South African firms to

increase the benefits they can derive from, and the contributions they can

make to, growth and development in Africa. Poor transport links and

infrastructure networks, as well as tariff and non-tariff barriers, raise the cost

of doing business and stifle both investment and internal trade. Weak legal

institutions and, in some cases, poor governance heighten the risks of

investing.

2.1.2.7 Climate Change

Climate change has led to parts of South Africa becoming noticeable

dryer over the last 30 years. This has mainly been due to rising

temperatures and changing rainfall patterns. These directly impact on

food production and water supply. In an attempt to reduce the impacts

of climate change, households and industries have to reduce their

negative impact on the environment. Other innovative means of

combating climate change should be sought with due consideration of

regional and national contexts.

Of most concern is the next 10-15 years which is called the energy

interregnum, a period of generally high energy prices and major

fluctuations as the world adjusts to an alternative energy scenario.

To cope Municipalities will NEED to plan for:

Public transport and rail freight;

Extensive use of solar water heating;

Stringent energy conservation in business and industry; and

Recycling of energy from waste.

2.1.2.8 Technological change

Technology has brought many benefits to South Africa. The commission

has raised their concern regarding the cost of broadband internet

connectivity to all South Africans. The plan has a number of key priority

areas in addressing current development trends in South Africa:

An economy that will create more jobs;

Improving infrastructure;



28 October 2016

page 20

Transition to a low-carbon economy;

An inclusive and integrated rural economy;

Reversing the spatial effects of apartheid;

Improving the quality of education, training and innovation;

Quality health care for all;

Social protection;

Building safer communities;

Reforming the public service;

Fighting corruption; and,

Transforming society and uniting the country.

The priority aim is to build, by 2030, a country that is fair, just, prosperous

and equitable.

2.1.2.9 Amazing new Technologies

Manufacturing will need fewer and more skilled workers;

Tele-processing will reduce the need for meeting travel;

50% of people will work from home by 2050;

Accelerated connectivity and economic growth of rural and urban

parts of Municipalities can be expected;

As technology continues to replace human labour and prosperity

allows more people in more countries to travel, tourism is set to

maintain its position as the world’s biggest and fastest growing industry;

and,

This means the design of towns needs to consider these potential

changes in human settlement patterns.

Implications for Mossel Bay Municipality

● Mossel Bay Municipality’s various environmental and heritage assets mean

that it is well placed to take advantage of the tourism boom.

● The Municipality should capitalise on the economic benefits offered by the

N2 national road and Louis Fourie Corridor its scenic mountainous

hinterland, historic CBD and eastern coastal strip to strengthen its economic

and tourism sectors.

● Architectural styles unique to the area together with the scenic beauty of

the natural landscape should be promoted to strengthen the tourism

sector.

● Off-grid and alternative energy sources should be considered in all new

development to reduce the rate and impact of climate change.

● The implications of climate change need to be considered not only from a

disaster management perspective but also from its impact on infrastructure

provision; such as buildings; agriculture; and the natural environment.

● Settlements are likely to experience an influx of people, e.g. Mossel Bay

town with a population of ± 62 000, is the main settlement in the

Municipality and will therefore require careful planning to ensure that it is

efficient and attractive and able to accommodate population growth.

● Local industries, particularly agriculture and petro-chemicals should be

strongly supported.

● The Municipality is well placed to offer tourism opportunities based on its

historic CBD, maritime history with the Diaz Museum, coastal settlements

(seaside holidays) and scenic, mountainous hinterland.

● Given the fact that tourism (local and international) is expected to

increase, the Municipality should prepare a comprehensive strategy to

assist in its marketing. Section 3.3.11 indicates that there are numerous

attractions that could help to draw tourists to the area.

● The design / spatial planning of the settlements need to consider that

people will tend to travel less and will need to plan taking the effects of

climate change into consideration. This can be addressed by reducing the

spread out nature of towns, and making it more environmentally

sustainable and economically efficient.

● The Louis Fourie Corridor settlement system extending into the R102 and

coast road to Groot Brakrivier together with the rail line offer important

opportunities here.



28 October 2016

page 21

2.1.3 2030 AGENDA FOR SUSTAINABLE DEVELOPMENT

In September 2015 the UN member states adopted the 2030 Agenda for

Sustainable Development. This contains the following 17 development

goals:

1. End poverty in all its forms everywhere

2. End hunger, achieve food security and improved nutrition and

promote sustainable agriculture

3. Ensure healthy lives and promote well-being for all at all ages

4. Ensure inclusive and equitable quality education and promote

lifelong learning opportunities for all

5. Achieve gender equality and empower all women and girls

6. Ensure availability and sustainable management of water and

sanitation for all

7. Ensure access to affordable, reliable, sustainable and modern

energy for all

8. Promote sustained, inclusive and sustainable economic growth, full

and productive employment and decent work for all

9. Build resilient infrastructure, promote inclusive and sustainable

industrialization and foster innovation

10. Reduce inequality within and among countries

11. Make cities and human settlements inclusive, safe, resilient and

sustainable

12. Ensure sustainable consumption and production patterns

13. Take urgent action to combat climate change and its impacts

14. Conserve and sustainably use the oceans, seas and marine

resources for sustainable development

15. Protect, restore and promote sustainable use of terrestrial

ecosystems, sustainably manage forests, combat deseltification,

and halt and reverse land degradation and halt biodiversity loss

16. Promote peaceful and inclusive societies for sustainable

development, provide access to justice for all and build effective,

accountable and inclusive institutions at all levels

17. Strengthen the means of implementation and revitalize the global

partnership for sustainable development

These goals are intended to address the root causes of poverty and the

universal need for development that works for all people.

Many of these goals have been spatial implications and must be

addressed in other policy arenas. Those that have spatial implications in

particular:

1. Good Health and Well Being

2. Clean water and sanitation:

Ensure access to water and sewerage infrastructure

Restore quality in surface and ground water

3. Affordable and Clean Energy:

Optimise building orientation and comply with SANS XA in

the National Building Regulations

Promote alternative and renewable energy sources

4. Decent work and economic growth

Promote a hierarchy of spatial access to economic

opportunities from formal office parks, industrial estates,

mixed use areas along major routes to informal street

trading and home businesses

5. Sustainable cities and communities

See above



28 October 2016

page 22

2.1.4 NEIGHBOURHOOD DEVELOPMENT PARTNERSHIP GRANT (NDPG)

REQUIREMENTS

The Neighbourbood Development Partnership Grant (NDPG) aims to

“stimulate and accelerate investment in poor and underserved

neighbourhoods.” (Republic of South Africa: National Treasury, 2007)

This stimulation is driven through technical assistance and capital grant

financing for municipal projects that are linked to distinctive private sector

elements or intended to create such a link.

The NDPG seeks to address the lack of development (primarily economic)

in townships, informal areas and low income settlements.

The following focus areas of challenges are identified:

2.1.4.1 Socio-Economic Challenges

The typical challenges on the socio-economic front, relating to townships,

are:

Large concentrations of poor households in both urban and rural

locations;

High levels of unemployment;

Poorly performing residential property markets;

Slower household income growth;

Limited income retention;

Undiversified and marginal local economies;

Limited private sector investment; and

Considerable fiscal burden

2.1.4.2 Planning and Investment Challenges

The challenges to coordinated public sector planning and investment and

its ability to creatively attract private and community investment include:

Exclusion by design which limits investment leverage;

Absence of township, and township nodal development plans and

limited municipal capacity to develop integrated projects;

Limited funding for capital works for public facilities and places;

Low levels of private sector investment;

Limited municipal capacity to assemble and align multiple funding

sources;

Risk of mismatch between capital investment made and

maintenance and operational budgets of municipalities; and

Focus on inner city metropolitan areas and established business

centres.

2.1.4.3 Interventions that the NDPG Supports

NDPG supports the following types of interventions:

Township area - to turn dormitory townships into fully functional

neighourhoods;

Strategic economic development projects;

Land use restructuring;

Stimulating property markets;

Purchasing power retention;

Public sector investment as catalyst;

Leveraging non-governmental investment;

Ensuring municipal support; and

Kick-starting township regeneration.

Given the above the target areas are:

• Township areas;

• New, post 1994 (generally), RDP housing and low-income housing

estates developed using the same principles prevalent prior to

1994;

• Areas and town centres that are populated mainly by Black

people and low-income; and

• Informal settlements.

2.1.4.4 Types of projects and eligibility

The focus is generally public infrastructure projects that will attract private

and community investment to help achieve township regeneration. These

projects include:

• Nodal and/or precinct projects;

• Linkage projects (internal and/or external); and

• Environmental Improvement projects.

Examples of these projects are:



28 October 2016

page 23

• Public transport interchanges and linkages;

• Libraries as hubs of information, education and e-government;

• Tourism precincts;

• Heritage, cultural, social, and traditional amenities and/or

precincts;

• Sports precincts (providing it can be demonstrated to fulfil a critical

community and

• economic role in the township);

• Educational precincts;

• Revitalisation of existing nodes/ centres/ precincts/ high streets/

economic activity centres;

• Multi-Purpose Community Centres (MPCCs), including town halls

and youth centres;

• Informal trading facilities; and,

• Any element that may be required in order to secure private sector

investment, providing it can form part of the project, and can be

demonstrated to be instrumental in securing that investment into

the project area.

A Township Renewal Strategy was prepared for the Mossel Bay Municipality

by the National Treasury Department in December 2011. The Strategy

proposed the following goals:

Introduce a land banking policy in support of targeted economic

development;

Increase the organisation and marketing of township opportunities;

Create unique attractions in and/or around township communities

that will create a sense of place and stimulate tourism;

Create a milieu and climate which is conducive for business to

operate and thrive;

Strengthen the commercial identity, organisation and co-ordination

of businesses located in the centre of townships;

Institute a long-term mechanism to provide funding for township

development initiatives and implementation projects;

Establish a local enterprise agency dedicated to the creation of

employment;

Increase the capacity of the Mossel Bay Municipality to support the

creation of new commercial developments;

Establish a Mossel Bay education and training partnership;

Develop or provide vocational training to community-based

individuals that indicate potential;

Enhance opportunities for job placement;

Actively promote and enhance the role of the Municipality in

community-based initiatives; and,

Enhance and promote environmental protection of open spaces.

2.1.5 NSDP SPATIAL GUIDELINES

The National Spatial Development Perspective (NSDP) is an effort by

National Government to find the best way of allocating scarce resources in

the various geographic regions in the country. The basic premise of the

NSDP is that if there are not enough resources to satisfy all needs wherever

they may occur then they should be allocated to where the benefits will

be greatest.

The NSDP takes the form of a spatial narrative, a set of maps and a

strategic response. Using these tools, the NSDP objectives are to:

Provide a framework within in which to discuss future development;

Act as a common reference point for national, provincial and local

government for the analysis of development potentials;

Identify areas of tensions/ priority in achieving positive spatial outcomes

with government infrastructure;

Provide governments response to the above mentioned for a given

time period.

“The NSDP is unique in the sense that it proposes a mechanism that will link

local, provincial and national planning in one integrated system of

planning for development.” (source: NSDP)

The NSDP contains five major principles:

Economic growth is most likely to continue where it has previously

occurred and therefore economic potential will be highest in these

localities (NSDP, pg 24);

Economically active people will tend to move to localities where jobs

or other livelihoods are available (NSDP, pg 24);

Efforts to address past social inequalities should focus on people and

not in places where it will be difficult to promote sustainable and

economic growth (NSDP, pg 24);



28 October 2016

page 24

It is important that people are trained and skilled to participate

effectively in the economy. Due to the tendency of people to move to

areas of greatest opportunity, especially when they have skills,

programs in areas with low economic development potential should

focus on enhancing people skills rather than the construction of fixed

infrastructure. This will avoid the risk of such investment becoming

redundant if people move away or there is not sufficient demand to

justify high levels of expenditure;

Future government spending on infrastructure and development

should be in localities that will not become poverty traps (NSDP, pg 25);

Figure 2.1.5.1 illustrates the principles of the NSDP Spatial Guidelines.

Figure 2.1.5.1 Principles of the NSDP Spatial Guidelines

Centres which have existing or potential economic growth should be the

priority for economic investment, i.e. fixed infrastructure such as housing,

underground services and roads. Centres with low economic potential

should not be priorities for fixed infrastructure. However, social capital

programs such as health, adult basic education and training,

entrepreneurship development, and business and technical training should

be directed to wherever people may require them. In this way, should the

recipients decide to move to other centres, they will, in effect, be able to

take this investment with them.

Facilities for the delivery of these programs in centres or areas of low

economic potential should use and share existing facilities. In many of

these locations there are under-utilised school buildings, clinics, etc. which

could be refurbished and used as multi-purpose centres.

The NSDP also recognises that development potential tends to be greatest

along linear corridors or axes, see Figure 2.1.4.2. This is as a result of the

relationship between urban nodes of opportunity and the transport and

communication routes that connect them. In some instances a river whose

banks also has enhanced economic opportunities could also give rise to

linear development corridors as zones of investment priority.

Figure 2.1.5.2 Development Potential along Linear Corridors

It shows Mossel Bay town as a secondary node with a rural town’s growth

status of GROWTH.

Figure 2.1.5.3 shows Mossel Bay Municipality in the context of a draft SDF for

the whole country.

A tertiary node is shown between Mossel Bay and George, presumably

Hartenbos / Groot Brak. It is located in a SANBI priority area and the

mountains forming its northern boundary are a SANBI escarpment.



28 October 2016

page 25

The traffic volumes on section of the N2 passing through the municipality

fall within the highest category (27800 – 105000 AADT). Volumes on the N2

east of George drop to the next category (14900 - 27800 AADT).

Difficult Choices and Decisions

The principle of allocating investment into areas of greater economic

potential is considered controversial in situations where there is a concern

that this might lead to socio-economic or spatial marginalisation of areas

of less economic potential. While this is a valid concern, it needs to be

clearly understood that in spatial terms resources are not equally

distributed.

Figure 2.1.5.4 illustrates the difference between ideal relationships where all

space is equal, people are distributed evenly across that space, and

resources and opportunities are also equally distributed and reality which is

that space is warped by topography, the unequal distribution of mineral

resources, and the greater concentration of ecosystem services such as

water, soil fertility, areas of biodiversity, in some areas than in others.

As a consequence of the warping of these patterns different parts of the

landscape have greater opportunities than others. This, in turn, is reflected

by the uneven development of infrastructure providing access to these

areas of opportunity. This leads to a similarly biased or uneven pattern of

economic potential and population distribution.

It is important that the uneven pattern of these very powerful underlying

forces is understood when resources are being allocated so as to minimise

wastage and inefficiencies.

Figure 2.1.5.4 Differences between Ideal and Actual Patterns of Resources and Opportunities



28 October 2016

page 26

Figure 2.1.5.3 Proposed Draft National SDF (source: DRDLR, 2010)

Study

area



28 October 2016

page 27

In summary, the NSDP aims to direct where government invests its money. It

targets areas that have high economic growth potential for the

infrastructural (major physical) and social investment. It proposes that other

areas that do not have high economic growth potential should receive

social capital investment i.e. investing in people, in educating,

empowering, and uplifting the people.

This policy direction attempts to avoid the possibility of people who are

located in areas of low or no economic growth potential moving to areas

of higher economic growth potential and, thereby, making investment

housing and infrastructure redundant.

Therefore, it promotes investing in people skills that empower people

should they migrate. By following this strategy government would have

invested wisely and ensured the best return for public investment.


Long term infrastructure investment feasibility studies in rural areas should

include a long term view of whether people are likely to migrate or not.

Mossel Bay Municipality’s areas of opportunity focus mainly on the Louis

Fourie corridor between and its surrounding seafronts, near the port.

The mountainous areas inland represent a challenge in terms of prioritising

capital expenditure for road upgrades.

Rural areas, where informal settlements are growing, should be the focus of

social development programs.

Mossel Bay’s rural area land use management will need to find a balance

between bio-diversity conservation and agricultural development in those

areas suited for grazing and cropping.

Mossel Bay Municipality contains a rich mix of dramatically scenic formally

or informally conserved mountainous areas and a dramatic coastline which

together create challenges for balancing urban expansion with reserve

conservation.

Mossel Bay town should be prioritised for fixed infrastructure investment.



28 October 2016

page 28

2.1.6 DEPARTMENT OF ENVIRONMENTAL AFFAIRS AND TOURISM:

SOUTH AFRICA’S NATIONAL BIODIVERSITY STRATEGY AND

ACTION PLAN

The Department of Environmental Affairs and Tourism prepared the

National Biodiversity Strategy and Action Plan (NBSAP) “to develop a plan

of action for the conservation and sustainable use of the country‘s

biological diversity.”

During the NBSAP preparation, the National Biodiversity Implementation

Plan identified objectives, outcomes and activities required for the NBSAP

to achieve its goals.

These objectives and targets include:

Strategic Objective One: A policy and legislative framework that

allows the integration of biodiversity management objectives into the

economy.

Targets:

o South Africa is to meet its international obligations with regards to

biodiversity

o Biodiversity issues become integrated in the macro-economy,

informing policy, planning, budgeting and decision making at all

levels

Strategic Objective Two: Ensure good governance in the biodiversity

sector by enhancing institutional effectiveness and efficiency.

Targets:

o Biodiversity concerns occupy a significant place on the national

agenda

o Government, stakeholders and role-players work together

(effectively and efficiently) to achieve biodiversity management

objectives

Strategic Objective Three: Integrated terrestrial and aquatic

management to minimise the impacts of threatening processes on

biodiversity, enhances ecosystem services and improve socio-

economic security.

Targets:

o By focusing on programmes aimed at poverty alleviation, effective

control of priority invasive species is achieved

o Meet biodiversity objectives within all biodiversity priority areas

o Produce disaster prevention and management plans incorporating

wise ecosystem management principles and practices

o Genetically modified organisms which threaten biodiversity, are not

to be released into the environment

o Consider biodiversity in all aspects of resource use

Strategic Objective Four: Enhance human well-being and

development by enhancing the sustainable use of biological

resources and equitable sharing of benefits.

Targets:

o Economies based on the use of species and genetic resources are

optimized and sustainably managed

o Priority fish stocks recover to sustainable levels

o No species status declines

o National products sector contribution to GDP grows by 50%

o With more effective and equitable resources, poverty is alleviated

Strategic Objective Five: Maintain key ecological processes across the

landscape and seascape.

Targets:

o Comprehensive biodiversity monitoring systems inform planning

o Protected area network in marine environmental hence

contribution to representation targets in priority areas

o No further loss of endangered ecosystems

o Establish protected environments and manage effectively


Allow for biodiversity management to stimulate the local economy and

possibly job creation.

Ensure that sensitive areas are mapped and their ongoing protection

ensured.

Aquatic and terrestrial CBAs to be effectively managed, see Figure 3.2.6.4.

There are 5 biomes in the Municipality, see Figure 3.2.6.1. Special policies

should be formulated to protect these vegetation types.

Guidelines need to be formulated, particularly with respect to the Critically

Endangered species located in the Municipality, see Figure 3.2.6.4.



28 October 2016

page 29

2.1.7 INDUSTRIAL POLICY ACTION PLAN (IPAP) 2014/15 – 2016/17

The IPAP provides the overall industrialisation framework in which South

Africa should operate but is not spatially or even sectorally specific.

Therefore, the RIDS overview is retained for its spatial context, see below.

Some of the core objectives of the IPAP include:

Diversify the economy – provide strong support for value added

manufacturing;

Promote labour-absorbing industries;

Industrialisation model focussed on inclusive growth; Contribute towards industrial development in Africa; and,

Movement towards a knowledge economy

Figure 2.1.7.1 indicates the growth multiplier in 2012, with focus on

manufacturing.

Figure 2.1.7.1 Growth Multiplier (Source: IPAP 2014/15 – 2016/17)

Figure 2.1.7.2 indicates the employment multiplier for 2012. It shows what

sector should be promoted to increase employment. Agriculture, forestry

and fishing are the 3rd best gross employment multiplier.

Figure 2.1.7.2 Employment Multiplier (Source: IPAP 2014/15 – 2016/17)



28 October 2016

page 30

Figure 2.1.7.3 Industrial Policy Action Plan: How it all fits together Source: IPAP 2014/15 – 2016/17)



28 October 2016

page 31

Figure 2.1.8.1 Determinants of Systemic Competitiveness (source: Draft Regional Industrial Development Strategy, DTI, 2006, pg20)

2.1.8 REGIONAL INDUSTRIAL DEVELOPMENT STRATEGY (RIDS)

The Department of Trade and Industries (DTI) Regional Industrial

Development Strategy (RIDS) seeks to move South Africa's industrial

development policy from the apartheid era's top-down localized

approach to a bottom-up approach that treats regions as functional

entities and builds on locally available skills and resources and relies on

external investment. (The DTI, Draft Regional Industrial Development

Strategy, June 2006, pg 16)

Therefore, it also seeks to strengthen world-class regions. These are high

performance regions that contain companies or networks of companies

which need to constantly upgrade so that they do not fall behind in global

competition. (The DTI, ibid)

One strategy here is to concentrate a critical mass of firms in a chosen

industry sector together with its upstream suppliers and service providers in

a specific geographic location. Necessary support infrastructure includes

transport, logistics, communications, education and training. Gauteng's

Blue IQ is an example of such a regional economic development strategy.

RIDS identifies four levels that determine systematic competitiveness, see

Figure 2.1.8.1.

National and regional industrial development policy is responsible for the

Meta and Macro levels. It is at the Meso and Micro levels where district and

local municipal policies can have the greatest effect.

Figure 2.1.8.2 indicates that the Mossel Bay Municipality is considered to

have significant economic growth.

Figure 2.1.8.3 indicates that the Mossel Bay Municipality has significant

levels of gross value along the N2 and coastal corridor.

Peaks of around R90m GVA / 50km² / pa are indicated around Mossel Bay

town.


Promote Mossel Bay town as the main driver of the municipal economy.

Mossel Bay town is the main business and administrative hub of the

Municipality.

These economic activities should be protected in the Municipality.

Forward and backward linkages need to be developed to support

economic activities.



28 October 2016

page 32

Figure 2.1.8.2 Medium to High Base Areas (source: CSIR, 2006)

Study Area



28 October 2016

page 33

Figure 2.1.8.3 Distribution of Economic Activity, based on GVA (source: CSIR, 2006)

Study Area



28 October 2016

page 34

2.1.9. NATIONAL ENVIRONMENTAL MANAGEMENT ACT 107 of 1998

As per SPLUMA requirements for the formulation of a Spatial Development

Framework, an Environmental Management Framework (EMF) should be

included in the SDF. The EMF for Mossel Bay will be completed in a

separate process and will be incorporated into the SDF as soon as it is

approved as an EMF, meeting all requirements within NEMA.

NEMA identifies the purpose and objectives of an EMF as follows:

Purpose of EMFs

The purpose of the EMF is to function as a support mechanism in the

environmental impact assessment process in the evaluation and review of

development applications, as well as decision making regarding land-use

planning applications.

EMFs that have been signed off by the Minister can therefore be used to

facilitate the compilation and consideration of application for

environmental authorisation in terms of the regulations. In this regard –

EMFs provide applicants with an early indication of the areas which it

would potentially appropriate to undertake an activity;

Co-operative government is facilitated through the identification of

different regulatory responsibilities and recommending mechanisms for

addressing the needs of the relevant authorities; and,

The competent authority has information which will guide and inform

decision-making.

In addition to above, EMFs must be considered in environmental

management:

EMFs can be used as a basis for the Minister or MEC to identify areas

where environmental authorisation will be required for certain

additional listed activities;

Where the undertaking for certain activities may be excluded from

requiring environmental authorisation; and,

For the co-ordinated management of strategic spatial environmental

information about a specific geographic area.

Objectives of EMFs

Support informed and integrated decision-making by making

significant and detailed information about an area available before

activity proposals are generated. Contribute to environmentally sustainable development by

anticipating potential impacts and by providing early warnings in

respect of thresholds, limits and cumulative impacts, and by identifying

already existing impacts to be addressed; Support the undertaking of environmental impact assessments in the

area by indicating the scope of potential impacts and information

needs that may be necessary for environmental impact assessments; Support the process of delineating geographical areas within which

additional specified activities are to be identified in terms of NEMA;

and, Support the process of delineating geographical areas within which

activities listed in terms of NEMA may be excluded by identifying areas

that are not sensitive to the potential impacts of such activities.



28 October 2016

page 35

2.2 PROVINCIAL LEGISLATION AND POLICY

PROVINCIAL LEGISLATION

2.2.1 WESTERN CAPE LAND USE PLANNING ACT, ACT 3 OF 2014

The Act seeks to clarify the functions of municipalities and provincial

government in respect to land use planning and deals with the Municipal

Spatial Development Framework slightly differently.

LUPA sets the same principles as are found in SPLUMA. These principles bind

all organs of state when preparing an application or function in terms of

LUPA or other legislation in respect of land use planning.

LUPA provides shortened procedures to establish less informal settlements

and less formal townships and for the settlement of indigenous tribes. LUPA

provides for the exemption from other legislation, for the suspension or

cancellation of title deeds that may hamper development.

PROVINCIAL POLICY

2.2.2 WESTERN CAPE PROVINCIAL SPATIAL DEVELOPMENT

FRAMEWORK (2014)

The Western Cape Provincial Spatial Development Framework was

approved by the provincial cabinet in December 2014 and aims to give

direction and guidance for spatial development within the Western Cape.

The PSDF states that the province’s approach takes its strategic direction

from the NDP and OneCape2040 initiatives and tries to align their

development agendas (Provincial SDF 2014).

The National Development Plan 2030 promotes “An inclusive and

integrated rural economy”, with the fourth target (by 2030) seeking to

transform urban and rural spaces.

The Cape Vision 2040 seeks to achieve a “vibrant, equitable and

sustainable rural communities and food security.

The Western Cape PSDF sets out to put in place a coherent framework for

the Province’s urban and rural areas that:

gives spatial expression to the national and Provincial development

agendas;

serves as basis for coordinating, integrating and aligning ‘on the

ground’ delivery of national and Provincial departmental programmes;

supports municipalities to fulfil their municipal planning mandate in line

with the national and provincial agendas; and

communicate government’s spatial development intentions to the

private sector and civil society.

The WCPSDF adopts spatial principles closely linked to the SPLUMA

principles. These are the following:

Spatial Justice;

Sustainability and Resilience;

Spatial Efficiency;

Accessibility; and,

Quality and Liveability.

These principles further inform the spatial logic that underpins the PSDF’s

spatial strategy through the following focus areas (4 Cs):

1. CAPITALISE and build on the Western Cape comparative strengths

(e.g. gateway status, knowledge economy, lifestyle offering) and

leverage the sustainable use of its unique spatial assets.

2. CONSOLIDATE existing and emerging regional economic nodes as

they offer the best prospects to generate jobs and stimulate

innovation.

3. CONNECT urban and rural markets and consumers, fragmented

settlements and critical biodiversity areas (i.e. freight logistics, public

transport, broadband, priority climate change ecological corridors,

etc.)

4. CLUSTER economic infrastructure and facilities along public transport

routes (to maximise the coverage of these public investments) and

respond to unique regional identities within the Western Cape.

Table 2.1 indicates how the 4 ‘Cs’ are applied at different spatial scales.



28 October 2016

page 36

Table 2.1 The spatial logic underpinning the spatial proposals of the PSDF according to

the four focus areas (4 C’s) (source: Western Cape PSDF 2014)

The spatial policy framework to which the spatial principles and logic are

applied is categorised into three (3) interrelated spatial planning themes

along with associated spatial objectives, namely:

1. Resources

1.1. Objective 1: the sustainable use of biodiversity and ecosystem

services.

1.2. Objective 2: The sustainable use of water.

1.3. Objective 3: the sustainable use of soil and mineral resources.

1.4. Objective 4: Sustainable resource consumption and disposal.

1.5. Objective 4: Sustainable use of landscape and the scenic assets.

2. Space Economy

2.1. Objective 5: Opening-up opportunities in regional economic

infrastructure;

2.2. Objective 6: Opening-up opportunities in the rural space-

economy; and,

2.3. Objective 7: Opening-up opportunities in urban space-economy

3. Settlement

3.1. Objective 8: Sense of place and settlement patterns;

3.2. Objective 9: Accessibility;

3.3. Objective 10: Land use and density;

3.4. Objective 11: Facilities and social services; and,

3.5. Objective 12: Informality, housing delivery, inclusion and urban

land markets.

Some of the issues the PSDF identifies for the Eden District include:

Land transformation (i.e. conversion from natural to man-made

landscapes), is the primary cause of biodiversity loss and deteriorating

ecosystems health. The main threat is in the lowlands, particularly in

areas intensively cultivated and subject to urban growth pressures.

Agriculture is being reduced to ‘islands’, visual cluttering of the

landscape by non-agricultural development is prevalent, and rural

authenticity, character and scenic value is being eroded (e.g. urban

sprawl into the Garden Route scenic corridors, particularly around

Mossel Bay town).

Some of the WC PSDF rural development policies included:

SDFs should be able to assist in the identification of strategically

located land for land reform purposes in terms of the Pro-active Land

Acquisition Strategy (PLAS).

Strengthen functional linkages between settlements and larger towns,

with specific attention given to introducing rural transport systems.

Promote the upgrading of existing rail infrastructure to offer higher

levels of service while developing combined road and rail transport

corridors to provide a real alternative to road transport for passengers

and freight.



28 October 2016

page 37

Study

area

Figure 2.2.1 Western Cape Province- Informality, Housing Delivery, Inclusion and Urban Land Markets (Source: Western Cape Spaial Development Framework



28 October 2016

page 38

Figure 2.5 Western Cape Province synthesis settlement focus areas- illustrating the relationship between areas of urban growth pressure and important natural and agricultural resources (Source: Western Cape Spaial

Development Framework, 2015 )

Figure 2.2.2 Western Cape Province synthesis settlement focus areas – illustrating the relationship between areas of urban growth pressure and important natural and agricultural land (WC-

PSDF, 2014)

Study

area



28 October 2016

page 39

Develop Integrated Public Transport Networks (IPTN) in the rural regions

of the Province that are connected to regional centres.

Prioritise remote rural areas, small towns and low income urban areas

for the roll-out of broadband.

Prioritise rural development investment based on the economic role

and function of settlements in rural areas, acknowledging that

agriculture, fishing, mining and tourism remain important economic

underpinnings of rural settlements.

Support emergent Independent Power Producers (IPPs) and

sustainable energy producers (wind, solar, biomass and waste

conversion initiatives) in suitable rural locations (as per

recommendations of the Strategic Environmental Assessments for wind

energy (DEADP) and renewable energy (DEA)).

Figure 2.2.3 Patterns of Economic Activity (source: PSDF, 2014)


According to Figure 2.4 the node of competitiveness in the Western Cape

pertains to the Cape Metropolitan Region - City of Cape Town, and

recommends that government spending should be targeted here, to retain

economic value, improve economic performance and maximise job

creations.

Thus, directing funding to areas such as the Eden District and more

specifically Mossel Bay Local Municipality is seen less favourably (as these

are considered areas with less economic competitiveness), see Figure 2.2.2.

The implications of such budget allocations require areas such as Mossel

Bay municipality to be self-sustainable and resilient through other means.

Mossel Bay’s resilience should be improved through careful settlement

planning and design consideration that may improve standards of living

and through alternative attractive investment into the area.

The emphasis on diversifying sustainable agricultural production for job

security and food security should be focused in rural areas.

It should be noted that the PSDF strongly emphasises the importance of

capitalising, preserving and celebrating a wide range of the province’s

rural spatial assets including iconic landscapes, rural and coastal lifestyles,

agriculture, events, unique regional identities, e.g. the Garden Route,

cultural landscapes, character areas and typologies and unique local built

form and natural typologies, character and heritage. This has implications

for the pattern and form of Mossel Bay’s growth along the N2, see Figure

2.2.3a, good example, and 2.2.3b, poor example.

Settlement growth is proposed to be “urban” and “suburban”, i.e. more

rather than less compact and intense.

Figure 2.2.3a Stormswael Str (Google Earth)

Figure 2.2.3b Hartenbos, south of R102, west

of N2



28 October 2016

page 40

2.2.3 WESTERN CAPE INFRASTRUCTURE FRAMEWORK (WCIF), 2013

The Western Cape infrastructure framework (WCIF) is intended to align the

planning, delivery and management of infrastructure, provided by all

stakeholders to the strategic agenda and vision for the province.

The objectives of the framework are to:

Align existing planning processes.

Outline strategic decisions and trade-offs that need to be made to

achieve the provincial 2040 vision in a complex and changing

environment.

Identify and guide the planning and execution of major

infrastructure interventions for the period 2012–2040.

Mobilise and direct new investments.

Facilitate partnerships and collaboration.

This framework has five focus areas:

Energy;

Water;

Transport;

Settlement; and

Information and Communication Technology (ICT).

The following have been identified as the key transitions in the respective

focus of areas:

Energy

Introduce natural gas processing and transport infrastructure to

make gas available as a transition fuel.

Promote the development of renewable energy plants in the

province and associated manufacturing capability.

Shift transport patterns to reduce reliance on liquid fuels.

Water

Have more stringent water conservation and demand-

management initiatives, particularly at municipal level.

Develop available groundwater resources.

Adopt more widely the reuse of wastewater effluent as standard

practice.

Adopt large-scale desalination once it becomes the “next best”

option to resolve inevitable water shortages in Saldanha, Cape

Town and the southern Cape.

Expand and diversify agriculture to increase availability of surface

water but reduce the water intensity of the sector, given the limited

availability of water for irrigation.

Transport

Invest in public transport and non-motorised transport (NMT)

infrastructure, particularly in larger urban centres.

Prioritise general freight rail over bulk rail freight.

Shift freight traffic from road to rail along major routes.

Settlement

Continue to provide basic services to achieve national targets.

Diversify the housing programme, with greater emphasis on

incremental options.

Integrate settlement development, prioritising public service

facilities in previously neglected areas.

About R49 billion is need till 2040 to address the housing need of

about 425 000 units

Improve energy efficiency in buildings through design standards.

Consolidate management of state land and property assets for

optimal use.

Distribute health and education facilities equitably.

Innovate in the waste sector to increase recycling and reuse,

including the adoption of waste-to- energy in the longer term

Information and Communication Technology (ICT)

Only 44% of households in the Western Cape have access to ICT. The

availability broadband infrastructure network is vital to efficient

communications and internet services and key to the economy.

The aim is to have all schools and government buildings connected by

2014. Also to have fibre optic connections to premises e.g. large

government buildings and targeted industries in the metropolitan area by

2014.

The WCIF summarized the spatial implications of the proposals as follows



28 October 2016

page 41

(WCIF, 2013):

“Better transport links with other provinces, Gauteng specifically.

The ports, in particular Saldanha Bay and Mossel Bay, are likely to

become significant if Liquified Natural Gas (LNG) is adopted as

transition fuel.

Continued emphasis on environmental sustainability along the

coast, with the understanding of the importance of tourism and

sector diversity.

Continued support for farming in the hinterland but with increased

diversity and water efficiency, on the understanding that water is a

major constraint.”

Infrastructure investment must unlock economic potential at all

scales); and

Housing allocations and public and social services facility

allocations must not be planned in isolation but be aligned with

infrastructure investment plans, growth areas and future

development projects.

2.2.4 PROVINCIAL URBAN EDGE GUIDELINE MANUAL

The following is extracted from the Provincial Urban Edge Guideline

Manual dated December 2005. (ref: DEA&DP, 2005)

An Urban Edge is a demarcated line to contain, manage, direct and

control the outer limits of development around an urban area. The

intention of an Urban Edge is to establish limits beyond which urban

development should not occur and to promote urban and environmental

efficiency, effectiveness and economy in the interest of all, see Figure 2.10.

The function of an Urban Edge is three-fold, namely:

to assist with restructuring the urban areas and integrating the currently

segregated social groups and urban uses;

as one of a number of growth management tools to assist with limiting

sprawl and the outward growth of urban areas, support densification

and infill development, and to ensure the more efficient use of

resources and land within the urban area; and

as a conservation tool to exclude certain parts of the environment from

the urban area in order to protect or preserve or to discourage

development in the short and medium term while the long term

implications are being understood.

Urban development includes all development of land where the primary

use of the land is for the erection of structures. Residential estates on farms

and golf estates would, for this purpose if located outside the Urban Edge,

be defined as urban uses, albeit that the "primary use" is "agriculture" or

"private open space" and the "secondary use" is residential.

Agricultural uses, open space uses, conservation areas, transport zonings

(excluding public transport interchanges, ranks and stations that consist

mainly of buildings) and many similar use zonings refer to the use of the

land rather than buildings erected on the land in order for the use to

occur. These are non-urban uses.

Smallholdings used for bona fide agricultural purposes would or should

typically be excluded from the urban area by delineation of an Urban

Edge.


Mossel Bay (and Saldanha Bay) are considered important in the

infrastructure plan both as parts and as LNG centres, particularly Mossel Bay

with its refinery. Obviously, if both these resources, the harbour and the LNG production

capability have uncertain futures MBM’s potential in this regard will be

severely diminished.



28 October 2016

page 42

Golf courses, polo fields and other sporting facilities with low ancillary

facilities are seen as rural in nature, whereas a golf estate, i.e. a golf course

with housing, is an urban use, unless it is a resort. Agricultural estates, i.e.

farms with a large residential component for owners or shareholders (as

opposed to bona fide labourer's residences) or for unrelated freehold or

sectional title ownership are seen as urban if the density exceeds one unit

per ten hectare.

The following issues, criteria and factors are regarded as informants when

considering Urban Edges for the urban areas:

Services infrastructure (barrier effect);

Services infrastructure (capacity and reach);

Vacant under-utilised land in urban area;

Availability of developable land in urban area;

Higher order roads, access routes and transport infrastructure;

Cadastral boundaries of adjoining land units;

Growth requirements over predetermined period;

Land use applications for new development;

Visual impact;

Cultural heritage resource areas;

Ownership of land and existing land use rights;

Informal settlements;

Urban agriculture and small scale farming;

Bio-regional spatial planning categories (core and buffer); and

Density policy for residential development in rural towns.

Given the criteria, issues and facilities for determining Urban Edges, Urban

Edges should be determined to:

Exclude prominent landforms and environmental character areas from

the urban area;

Exclude valuable soils for agricultural purposes;

Exclude valuable soils for mining purposes;

Exclude surface and ground water resources that could be used to

produce potable water;

Exclude surface and ground water features;

Exclude ecological resources and establish suitable; ecological

corridors to link resource areas;

Exclude all statutorily declared, proclaimed and protected natural

areas;

Exclude high intensity use and high potential agricultural resources and

activity areas;

Exclude scenic routes and routes of tourism significance;

Exclude cultural and heritage resource areas and sites;

Exclude areas that have visual sensitivity, skylines, mountainsides,

ridgelines and hilltops; and

Exclude the WC-PSDF defined core areas.


In the Mossel Bay Municipality the following elements play a critical role in

delineating the Urban Edge (DEA&DP, 2005):

Agricultural land: currently farmed land, high potential agricultural land,

agri-processing;

Rivers, wetlands and floodplains: 1:50 year flood plains, 1:100 year

floodplains and the 32m buffer zone around river corridors;

Heritage aspects such as landscapes, viewsheds, rural landscapes and

gateways;

Topography: Major topographical features (hills, ridgelines and focal

points), visual or aesthetic quality of scenery, slopes;

The policy plans for desired direction and pattern of growth; and,

Most of the settlements in the Municipality have challenges for future

growth and their lateral growth is limited because they are surrounded by

river corridors, critical biodiversity areas, productive farms and mountains.



28 October 2016

page 43

2.2.5 GUIDELINES FOR RESORT DEVELOPMENTS IN THE WESTERN CAPE

The term resort is understood to refer to holiday and recreational resorts

that carry, or require, a resort zoning in terms of the relevant zoning

scheme. (DEA&DP, 2005)

Hotels, guest houses, holiday apartments and bed-and-breakfast

establishments in urban areas, such as could ordinarily be permitted under

a business, general residential or other non-resort type zoning, are also not

seen to be included in these guidelines.

Given the above it is generally used as a departure point that

accommodation in resorts should be aimed at temporary occupation, to

give more people access to the natural resources of the Western Cape.

Care should therefore be taken that resort zone applications do not

become vehicles for covert, permanently inhabited township

establishments, which may often be described as “exclusively elitist”.

(DEA&DP, 2005)

As a general rule, the guidelines state, freehold ownership associated with

resort zoning (that is, holiday housing, such consent use in a Resort Zone, or

Resort Zone II, whether individual erf, sectional title, block sharing or other)

is not desirable in any area outside the Urban Edge. (DEA&DP, 2005)

The following are the most important criteria for the location of a resort:

Planning Policies

The planning policies include non-spatial policies such as IDP’s as well as

spatial policies such as WC-PSDF, Urban Edge Guidelines, SDF’s, Urban

Edges, Bioregional Planning policies, etc.

Availability of a Resource

Resort applications outside urban areas can only be considered for

approval if linked to a distinct resource (unless the area in question has

already been demarcated for, amongst others, resort development in

terms of an officially approved SDF or SDP). This mentioned resource relates

to any amenity that results in recreation, that is, an area with special

recreational attributes:

o Usually a natural feature that includes physical amenities such as a

hot water spring, sandy beach, lake, lagoon or river. The latter may

nevertheless, for example, only become relevant as a resource;

o Occasionally, an already existing, established, man-made feature,

either within Urban Edges or in rural areas;

o Of such nature that it makes the subject property particularly

favourable overall above any other in the area. (This means that it

must be advantageously comparably distinguishable from

surrounding properties) (ref: DEADP, 2005);

o Of high enough value for many holidaymakers to want to travel

thereto from afar and spend more than one day there

o Accessible for the benefit of the general public, and

o Inseparable from the proposed resort to the extent that the

permanence of access from the resort to the resource can be

guaranteed. (DEA&DP, 2005)

Lastly, it must be a unique resource and the carrying capacity of the

resources and surroundings must be taken into consideration. The guideline

further proposes densities and floor areas:

Small: 1-10 units - floor area not being more than 120m² per unit

Medium: 11-30 units - floor area not being more than 120m² (or up to

175m² in sensitive natural/cultural heritage areas within the Urban

Edge) per unit and total floor area of all buildings not being more than

3 600m²

Large: 30-50 units, or, should there be less than 30 units, but the total

floor area of all buildings still exceeds 3 600m² (approval of a resort of

more than 50 units, though not impossible, is not considered to be the

norm)

In terms of area densities the following are proposed:

Maximum permitted number of units

Generalized visual

carrying capacity

Landscape type Short term rental

accommodation

units

Units that can be individually

alienated / separately

allotted to individuals

High and medium Mountains & hills 1 unit per 10ha 1 unit per 20ha

Low Plains 1 unit per 50ha 1 unit per 100ha

Note: Local Municipalities, as part of their SDFs, or on a project basis funded by applicants,

should determine and map landscape types.

Table 2.2.4.1 Area Densities (DEA&DP, 2005)



28 October 2016

page 44

The maximum floor areas recommended for other buildings that may be

found in resorts are as follows:

Bed and breakfast 350m² (maximum 5 bedrooms per unit)

establishments (/guesthouses)

Farmstalls 100m²

Businesses 150m² (shops)

250m² (restaurants)

The following unit sizes are proposed:

Resort Zone

without holiday

housing consent8

Resort Zone

outside

urban edges

Resort Zone with holiday

housing consent9 within urban

edges (but still within natural,

relatively sensitive areas)

Maximum unit size

floor space (m²)

120m² 120m² 175m²

Maximum number

of storeys

Single storey

only

Single storey

only

Single storey, and possible

expansion of habitable space

into loft

Building height 6,5m 6,5m 6,5m

Individual

exclusive use area

n/a 250m² 300m²

Table 2.2.4.2 Unit Sizes (DEA&DP, 2005)

Environmental Opportunities and Constraints

When considering the environmental opportunities and constraints the

guidelines suggest that a “resort should not be permitted in a particular

location if its establishment will lead to damage or destruction of the

environment. The concept of resort zone was, from the outset, based on

the premise to give access to a greater number of people to areas of

natural or cultural amenity value not otherwise available to them, without

the potential destruction that may be associated with more formal

development.” (DEA&DP, 2005)

Implications for the Mossel Bay Municipality

Many natural resources and areas of scenic beauty are found in the area.

Areas that can be developed for resorts which would provide access to

these unique resources/areas should be identified. Resort developments

could be considered near the Groot Brak and Klein Brakriviere and in the

mountainous regions depending on the applicable SPC.

All proposed resort developments should comply with these provincial

guidelines.

Sites for caravans, when associated with resorts, should be located in non-

sensitive areas, preferably in the form of smaller, dispersed sites, screened by

earth mounding and for planting.

The number of stands should be related to the biophysical constraints of the

site and the carrying capacity of the amenities (such as tidal pools and boat

launching ramps).

Large camping / caravan sites should only be developed if dictated by

demand and if suitable, non-sensitive sites can be found.

NOTE: These are provincial guidelines. Each application for a resort will be

assessed on merit. (source: DEADP, 2005)



28 October 2016

page 45

2.2.6 GUIDELINES FOR GOLF COURSES, GOLF ESTATES, POLO FIELDS

AND POLO ESTATES IN THE WESTERN CAPE

The guidelines have been produced to help decision-makers when dealing

with applications for golf courses, golf estates, polo fields, polo estates and

other developments of similar scale and/or complexity and as a reference

for formulating SDF’s and IDP’s. (DEA&DP, 2005)

The objectives of the guidelines are:

To promote responsible development, taking into consideration the

imperative for transformation;

To protect, enhance and maintain the natural resources and unique

biodiversity of the Western Cape;

To support the implementation of sustainable development principles;

To support and enhance the implementation of bioregional planning in

the Province;

To promote well-functioning, integrated urban settlements, and to

prevent urban sprawl;

To inform decision-making with respect to golf courses, golf estates,

polo fields and polo estates in all spheres of government, based on the

principle of cooperative governance;

To provide clarity into the application and assessment process, by

clarifying requirements without creating expectations; and

To improve the effectiveness of public participation. (DEA&DP, 2005)

The purpose of the location principles is to facilitate the appropriate siting

or placement of development on the landscape. It should be noted that

each application for a golf courses, etc. will be assessed on merit.

Urban Areas

The term “Urban Areas” refers to all land designated for urban

development purposes within a demarcated Urban Edge. Developments

that include golf and polo could be considered when:

“In or immediately adjacent to the urban area, where it assists in

defining an Urban Edge;

It forms part of the municipal open space system (to be read in

conjunction with the following bullet point); and,

Where residential components are added to existing amenities in

urban areas, as a form of general/overarching densification, on

condition that the recreational and open space/green lung function of

such amenities is not compromised and provided that:

o The site does not fall within an area that has been identified by

the relevant Municipality concerned for urban densification;

o If the site is located within the open space system/network,

access to public amenities and open spaces is not disrupted;

o The site has not been designated as being of sufficient cultural

significance by heritage authorities to warrant it a “no-go” area

for development;

o The site does not fall within an area that has been identified as

being of conservation significance, within the urban context;

o The site does not negatively affect the role, function, public

enjoyment and status of open space systems/networks,

designated sites of cultural significance and/or sites identified as

being of conservation significance;

o The development or part thereof will not be located within the

30m development restriction area measured from the bank of a

river, stream, wetland or any other natural surface water feature

or within the following 1:50 year or 1:100 year flood lines,

whichever is the most restrictive;

o The water demand for the development is in accordance with

the Municipality's water services plan and that there is no risk of

stress being placed on the municipal water supply;

o Where water resources are required to supply the development,

that these are not considered as being stressed by DWAF and

other relevant authorities;

o The area does not fall within the coastal zone as defined by

relevant legislation, policies or plans, or within 30m of the edge of

a cliff located on the coastline, or within 30m of the high water

mark, or on primary dunes or on dune systems that are mobile (the

most restrictive criteria will apply);

o The development will not result in the removal of traditional

access used by local communities;

o The development will not result in existing public and/or traditional

access to and along the coastline being disrupted (unless

acceptable alternative access has been provided);

o The development will not result in or contribute to visually obtrusive

or ribbon development along the coastline or along cliffs and

ridges.” (DEA&DP, 2005)

Core Areas

Core areas include officially proclaimed nature reserves, ecological

corridors, critically endangered habitats and river corridors. No golf



28 October 2016

page 46

courses, golf estates, polo fields and polo estates should be located in

core areas, as identified through the WCPSDF's broad spatial planning

categories.

Buffer Areas

Buffer Areas include remaining natural habitat in endangered and

vulnerable ecosystems, including remnants, natural habitat in less

threatened ecosystems and extensive agricultural areas.

Development that includes a golf course or polo field component could

occur on the border between Buffer and Urban Areas provided it:

Results in long term Biodiversity offsets and / or heritage goals;

Result in securing the viability of a significant agricultural unit or

contribute significantly to land reform objectives;

Limits the number of units so that secondary developments (shops,

service stations, etc.) are not promoted;

Does not entail any form of township development outside the Urban

Edge;

Is not a significant heritage area;

Does not contribute to urban sprawl and or leapfrogging;

Is not in an area of medium or high value agricultural land;

Is not in an area designated for emerging farmers;

Does not use water resources (surface and ground) that are

considered stressed by DWAF and other authorities and

does not pollute the natural water resource by fertilizer or treated

effluent;

Does not negatively affect the open space network;

Is not in the coastal zone, within 30m of the edge of a cliff located on

the coastline or within 30m of the high water mark, or on the primary

dunes or dune systems that are mobile;

Does not impact on habitats / ecosystems that are defined as Critically

Endangered in terms of SANBI’s vegetation classification system;

Does not disrupt ecological corridors;

Does not fall within 30m of bank of river or 1:100 year flood line;

Does not negatively affect river, natural spring or the catchments of a

dam;

Does not derive water from rivers determined as being pristine / near

pristine or stressed by DWAF and authorities;

Does not remove traditional access, commonage etc.;

Does not result in the inappropriate alteration of the landform (e.g. cut

and fill); and

Does not result in / contribute to visually obtrusive / ribbon

development.

The following aspects must be considered in formulating development

applications:

Alternatives

Spatial planning – compliance

Land use – undertake a land use impact assessment

Cultural heritage and VIA

Biodiversity – how all biodiversity plans must be consulted

Water resources

Infrastructure and services

Social impacts

Employment and skills development

Economic impact

Management of planning, design, implementation and operational

activities

Social costs

Urban Edge principles

Intensive agricultural areas

These are areas with either agricultural potential or that are being

cultivated. They are considered an important resource for food security

and the agricultural economy.

No golf courses, golf estates, polo fields and polo estates should be

allowed in Intensive Agricultural areas.

The SDF needs to indicate Urban Edge proposals, and should make policies

to guide potential proposals for development outside the Urban Edge that

could be seen as leapfrogging or urban sprawl.



28 October 2016

page 47

2.2.7 PROVINCIAL STRATEGIC PLAN, 2014-2019

The Western Cape Government has identified the following strategic goals (source: Western Cape Government Provincial Strategic Plan 2014-2019)

PSG 1 Creating opportunities for growth and jobs by supporting strategic

sectors, improving artisan and technical skills, improving the

regulatory environment, nurture innovation throughout the

economy, optimising land use, ensure sufficient water and energy,

improve Broadband roll out and improve the transport system.

PSG 2 Improving education outcomes and opportunities for youth

development. The objectives highlighted include improving levels

of language and mathematics, increasing the number of quality

passes for national senior certificate, increasing the quality of

education in poorer communities, providing access to more social

and economic opportunities and improving family support to

children and youth and development programmes.

PSG 3 Increasing wellness, safety and tackle social ills. This can be done

by building inclusive, safe and healthy communities, nurture

resilient and healthy families and ensuring safe and healthy

children and youth.

PSG 4 Enable a resilient, sustainable, quality and inclusive living

environment. The objectives listed to ensure that this goal is

reached include facilitating improvements in settlement

development and functionality, improving management and

maintenance of the ecological and agricultural resource base

and improving the response to climate change.

PSG 5 Embed good governance and integrated service delivery

through partnerships and spatial alignment. This can be

promoted by enhanced corporate governance maturity in the

Western Cape Government and municipalities, significantly

improved stakeholder satisfaction with Western Cape

Government services and integrated management of the PSP

and the game changers in the Western Cape.

2.2.8 RURAL LAND USE PLANNING AND MANAGEMENT

GUIDELINES, MAY 2009

These guidelines were prepared with the purpose of complementing the

Guidelines for Rural Resorts, Golf Estates, Polo Fields and Polo Estates

(DEA&DP, 2009).

The objectives of the guidelines are:

To promote sustainable development in appropriate rural locations

while ensuring that the poor share in the growth of the rural economy;

To safeguard the functionality of life supporting ecosystem services;

To maintain the integrity, authenticity and accessibility of farming,

ecological, cultural and scenic rural landscapes and natural resources;

To assist municipalities with the management of rural areas;

To provide clarity on the type of development that is appropriate

beyond the urban edge, as well as the scale and form of such

development (DEA&DP, 2009)

The purpose of this document is to serve as a logical planning and

management guideline for all types of rural land uses.

The Rural Settlement patterns in the Western Cape include:

The farm homestead and associated outbuildings, historically

enclosing a farmyard or werf;

Workers accommodation (on-farm) i.e. labourers cottages located

away from the werf;

Villages and off-farm hamlets located along main movement routes;

Rural residential sprawl usually located along the outskirts of urban

centres;

The change of working farms to weekend leisure destinations.

Guidelines on Managing Rural Land Use Change

Decisions in terms of Rural Land Use applications are to be based on

the following sustainable land use principles:

social inclusion;

effective protection and enhancement of the environment;

prudent use of natural resources;

the maintenance of high and stable levels of economic growth;

Good quality and carefully sited development should be encouraged

in existing settlements;



28 October 2016

page 48

Accessibility should be a key consideration in development decisions;

New development in the countryside should be strictly controlled in

terms of scale, height, colour, roof profile etc.;

Prioritise the re-use of previously developed sites in preference to

Greenfield sites;

All development should be well developed and inclusive, in keeping

and in scale with its surroundings, sensitive to the character of the

landscape.

Rural Land Use Management Guidelines: Holiday Accommodation

Avoid fragmentation of the cadastral unit, instead use leasehold for 3rd

party ownership for holiday accommodation;

Land for holiday accommodation should be non-alienable (i.e. rental,

time-share, share block, fractional ownership);

Resort development outside Urban Edge to not include individually

alienable units;

Precinct plans are to be provided and address the impact on

agricultural activities and/or conservation and the impact of

agricultural activities on the proposal;

Development proposals to be considered on marginal farming land

and land of low environmental sensitivity and significance;

Municipalities should solicit comments of surrounding properties and

consider impact on rural landscape;

Municipalities to ensure approved precinct development plans are

adhered to and enforce the building regulations;

EIA regulations and flood line restrictions are to be enforced.

Rural Land Use Management Guidelines: “On-Farm” Settlement of Farm

Workers

Farms are to be subdivided in order to balance the interests of the

farm workers and its owners;

Subdivided portions are required to be affordable and sustainable to

their beneficiaries;

All dwellings (proposed, new and existing) are to comply with building

and engineering standards;

If right of way servitudes are required, they are to be entrenched in the

title deed of the parent farm.

Rural Land Use Management Guidelines: Tourist and Recreational Facilities

Development applications are to include:

- tenure arrangements, with leasehold used for 3rd party operators or

owners of facilities;

- buildings, landscaping and infrastructure provision;

- access and parking arrangements;

- nature and position of all proposed signage;

- Business Plan specifying BEE arrangements;

- Environmental, agricultural and visual impact assessments;

- Environmental Management Plan;

- Disaster Management Plan detailing search and rescues

procedures.

Consent use applications to be advertised for comment by interested

and affected parties and adjoining property owner’s;

Applicable EIA regulations to be enforced by the local authorities and

compliance with the approved EMP;

Local authority to apply building regulations and ensure conditions of

approval is adhered to.


There should be policies to manage appropriate rural land use change with

regards to holiday accommodation, on-farm settlements, residential and

tourist and recreational facilities, where needed.



28 October 2016

page 49

2.2.9 SETTLEMENT RESTRUCTURING: AN EXPLANATORY MANUAL

(MARCH, 2009)

The Settlement Restructuring Manual was approved as a Structure Plan in

terms of Section 4(6) of the Land Use Planning Ordinance (Ordinance 15 of

1985) on the 24th of June 2009. The purpose of this document is to guide

government, labour, business and civil society order to create human

settlements that are dignified and sustainable.

The document consists of the following:

Land use management tools for:

1) Auditing vacant and underutilised land;

2) Strategies for densification; and

3) Toolkits for applying tools and strategies;

Strategies for urban integration;

Toolkits for applying tools and strategies.

Vacant and underutilised land audit:

The purpose of a vacant and underutilised land audit it to provide

municipalities with a record of all the usable land parcels located

within the urban edge. By having access to this information, a

Municipality is able to understand its future land use and urban

restructuring opportunities;

Land is considered vacant and underutilised if:

- it has no identifiable land use;

- there are no building or improvements;

- its previous productive usage has ceased;

- it would benefit from improvement and development.

The following exclusion criteria is applicable to land audits:

- high potential agricultural land and productive agricultural land;

- land with a high biodiversity and conservation value;

- road reserves;

- protected nature areas;

- 30m river corridors and 1:50 year floodplains;

- land high in scenic value or that is visually sensitive;

- buffer areas from hazardous services.

Densification Strategy:

The purpose of the densification strategy is contain urban sprawl and

fragmentation in order to achieve efficient, integrated and

sustainable human settlements;

Densification should be encouraged in the following manner:

- within areas with high economic potential ( provincial, district and

local scale);

- along mobility routes in order to support public transport routes;

- along the periphery of open spaces in order to increase their

surveillance;

- within areas that have been identified as public-sector investment

areas;

- in selected areas of high private sector investment;

The following should be mapped per settlement for which an urban

edge is to be demarcated:

- agricultural land and agricultural processing around urban areas;

- smallholdings, rural land and small farms;

- urban and regional open spaces and natural areas;

- rivers and floodplains;

- coastal zones (i.e. sea level rise);

- landscapes that are considered to be high in value.



28 October 2016

page 50

Strategies for Urban Integration:

Integration is the mix of various land uses and/or income groups in

specific areas which contributes to creating a whole functioning

urban area;

Physical integration includes well designed dense development which

are linked to pedestrian friendly streets and a horizontal and vertical

mix of uses (which includes residential, non-polluting industrial services,

commercial and institutional uses);

Integration is encouraged in 1) spaces where social integration can

occur, 2) along public transport routes in order to improve access to

opportunities, services and facilities and 3) where concentrations of

major urban functions occur.

Implications for the Mossel bay Municipality

Ensure that proposals are prepared in accordance with the guidelines and

support the aims of the restructuring guidelines.

Establish appropriate densification targets and broadly identify areas

suitable for densification.

Prepare proposals for strategically located suitable land.

Utilize land and its development to help achieve national policy directives,

e.g. integration and restructuring.

Mossel Bay’s urban settlements should be:

- analysed to see whether they are performing satisfactorily in terms of

efficiency, equity and quality of place;

- the relevant guidelines from these reports should be applied

depending on the results of this analysis.



28 October 2016

page 51

2.2.10 THE PROVINCIAL LAND TRANSPORT FRAMEWORK,

PROVINCIAL GOVERNMENT: WESTERN CAPE DEPARTMENT OF

TRANSPORT AND PUBLIC WORKS, APRIL 2011

The Provincial Land Transport Framework (PLTF) sets out the longer-term

vision (20-30 years) for transport for the Western Cape Province in line with

the directives of the WC-PSDF. The long-term vision for transport is intended

to support:

A fully Integrated Rapid Public Transport Network (IRPTN) in higher order

urban regions through access to opportunity, equity, sustainability,

safety and multi-modal interchange;

A fully integrated rural Integrated Rural Transport Network (IRTN);

A safe public transport system;

A well maintained road network;

A sustainable, efficient high speed rail long distance public and freight

transport network;

An efficient international airport that links the rest of the world to the

choice gateway of the African Continent;

International – standard posts and logistics system;

A transport system that is resilient to peak oil; and

A transport system that is fully integrated with land us.

The PLTF goals and objectives are:

1. An efficient, accessible and integrated multi-modal public transport

system managed by capacitated and equipped municipal authorities

Develop a framework for the development of safe and accessible

IPTNs in district by 2014

Establish land-use incentives and NMT improvements around 10

underdeveloped public transport nodes of provincial significance

by 2014 (Provincial Key Projects).

Fully implement a universally accessible and multimodal IRT Phase

1a by 2014.

Increase user satisfaction of public transport facilities by 25% by

2014.

Organise courses and seminars dealing with infrastructure

management, transport planning and land-use planning for district

municipalities by 2014.

Bring minibus taxi recapitalization rate on national level by 2016.

Influencing parties in order to achieve a shift in contestable freight

haulage from road to rail freight by 10% by 2014.

2. NMT as a pivotal part of all forms of transport planning in urban and

rural areas

Dedicated NMT Expanded Public Works Program projects by 2014.

Every provincial road project in the province must include a NMT

component.

NMT Plans must be developed and implemented for each local

Municipality or the Province, as a part of the mobility strategy and

IPTN roll-out by 2014.

Dedicated cycle lanes in the Western Cape must be doubled by

2014.

3. A well maintained and preserved transport system

Reduce the road transport infrastructure backlog by 16% by 2014.

Bring commuter rail network from D+ to a C maintenance level on

A corridors by 2016

Introduce economic decisions support tools to facilitate decision

making with regard to road investment by 2014

4. A sustainable transport system

Shift in contestable freight haulage from road to rail by 10% by 2014.

5. A safe transport system

Reduction of the number of fatalities on the Western Cape roads

by 50% by 2014.

The provincial and the Cape metro incident management plan will

be expanded to include lower roads by 2014.

Implementation of an integrated transport safety management

system by 2014.

6. A transport system that supports the province as a leading tourist

destination

Introduce economic decision support tools to facilitate decision

making with regard to road investment by 2014.



28 October 2016

page 52


Ensure that there is sufficient capacity (human resources) within the

Municipality to manage transport requirements within the municipal area.

Promote Non-Motorised Transport (NMT) in and between settlements.

Ensure commuter safety on the various modes of transport within the

Municipality.

Invest in transport infrastructure as a means of promoting economic growth

and tourism.

Louis Fourie Road as a multi-nodal transport corridor and is a key driver of

the Mossel Bay economy in terms of accessibility and tourism.



28 October 2016

page 53

2.3 DISTRICT POLICY

2.3.1 EDEN DISTRICT SDF

Spatial Vision

The Eden DSDF has been reviewed in 2009 and states the following aims

and objectives for the review:

Alignment with the latest National and Provincial spatial planning

initiatives, policies, projects and programmes;

Alignment with the Spatial Development Frameworks of the local

municipalities;

Alignment with the Eden Growth and Development Strategy (Eden

Local Economic Development Strategy, 2006),

Alignment with IDP focus areas,

Issues common to local municipalities, (such as delineation of urban

edge, densification and integration, and vacant land audit, rural

development) at a policy and guideline level in order to achieve a

common approach to these challenges in the district;

The need for and strategies to facilitate speedy land reform in line

with the Department of Land Affairs’ “New Strategic Framework for

Land Reform” and Area Based Land Sector Plan Approach

Disaster Management,

The need for water demand management,

Identification of strategic projects, and

A Capital Investment Framework

The DSDF mentions that there has been a proposal for a deep sea harbour

in Mossel Bay which would have a district wide impact in terms of

economic development. There is an application to Eden DM to consider

Mossel Bay a regional/district harbour which can accommodate a range

of uses and provide a major access point to markets in the district.

Promotion of non-motorised transport is mentioned, where the repair of the

railway line between Knysna and Mossel Bay should be considered.

The DSDF also mentions that Mossel Bay can be considered as a regional

or district centre. The DSDF defines a regional/district centre as the

following:

innovative business environments;

centres of jobs and lifestyle;

have the highest concentration of work opportunities;

attract new shopping, health, education, business and cultural

facilities;

provide highly specialised services and a full range of business,

governments and retail services;

preferred location for activities that have significant impact on trip

generators; and,

majority of the public and private sector housing should be

concentrated within these towns' urban edges.

The Eden District SDF is to be updated in the 2016/2017 financial year.


The potential for Mossel Bay has been explored in the Eden District SDF.

However, the implementation of these proposals will need funding from

state resources to be realised.

The growth of Mossel Bay and particularly its harbour, will have a major

effect on the local economy of the municipality, the district and the

province.



28 October 2016

page 54

Figure 2.3.1.1 Eden District Municipality SDF Settlements and Citizens Framework

Study

area



28 October 2016

page 55

Figure 2.3.1.2 Eden District Municipality Framework SDF Natural Resources

Study

area



28 October 2016

page 56

2.4 MUNICIPAL POLICY

2.4.1 MOSSEL BAY MUNICIPALITY 4th GENERATION IDP & BUDGET

PLAN 2017 - 2023

The Integrated Development Plan (IDP) is a municipality’s principal

strategic plan that deals with the most critical development needs of the

municipal area (external focus) as well as the most critical governance

needs of the organisation (internal focus).

The IDP Process Plan incorporates all municipal planning, budgeting,

performance management, performance reporting and public and

stakeholder engagement processes. The preparation of a Process Plan,

which is in essence the IDP Process set out in writing, requires the adoption

by Council.

According to the IDP and Budget Time Schedule in this document, the final

capital budgets have not yet been released at the time of printing this

report. Therefore, this section will be updated as soon as the budget is

released by the municipality.

According to the 2016/2017 IDP, the following projects are envisaged up

until 2019.



28 October 2016

page 57



28 October 2016

page 58



28 October 2016

page 59


According to the 2016/2017 IDP, a total of R412 749 517.96 was spent from

2011 to 2015 on implementation of sewerage, streets and stormwater,

water, cleansing, electricity, caravan parks, public safety and rescue

services, cemeteries, sports and recreation and library services.

IDP items with spatial implications include:

Biodiversity management: R200 000 p.a, next three years

New police station for Kwanonqaba

Relocation of George Road clinic to new suitable building in CBD

(R3 million)

Mossel Bay Hospital replacement – land acquired

Upgrading of Friemersheim Road (R23 million); Louis Fourie Phase I (R1

million); Louis Fourie Phase II (R35 million); Louis Fourie Phase III (R30

million); Glentana Road (R2 million); Herbertsdale (R400 000) ;

Hartenbos – Great Brak R102 (R40 million); Herbertsdale Access Road

(R25 million)

Learner Transport: Rural Areas

Louis Fourie Corridor: Catalytic Human Settlement Project

All MIG Projects



28 October 2016

page 60

2.4.2 MOSSEL BAY MUNICIPALITY SPATIAL DEVELOPMENT

FRAMEWORK, 2013 (MBM IDP, 2016/17)

The 2013 SDF review takes cognisance of the existing (2008) SDF and the six

existing precinct plans that have been prepared for the sub-areas of the

municipality. The Conceptual SDF employs planning principles as

promulgated in the Provincial Spatial Development Framework (2009).

These principles include:

The implementation of an Urban Edge that takes into account new

environmental informants such as Critical Biodiversity Areas and flood

lines.

The principle of ‘smart growth’ that promotes compact settlements,

meaning that Mossel Bay should undergo large scale densification.

Smart growth allows the efficient provision of services, puts amenities

within walking distance of residences, and promotes mixed use

development, integration and fosters a sense of place.

Sustainability in terms of built form and the local environment

The SDF highlights nodes and intensification corridors for each of the main

settlements within the Mossel Bay municipal area, and advocates

pedestrianisation and upgrades to public streets, and highlights important

heritage areas. The Louis Fourie Corridor area is recognised as a strategic

area for upgrade with additional housing planned in this area and the

potential for a Neighbourhood Development Partnership Grant (NDPG).

The importance of the of Da Nova for connectivity between the Mossel

Bay CBD and Louis Fourie area and the growing medical node is

highlighted, therefore this area is targeted for residential densification and

expansion of business uses. The historical importance of Mossel Bay town

area and the revitalisation the CBD is highlighted. The link between Diaz

Industria and the beachfront and the introduction of tourist uses in the area

is recognised as important.

A New Hartenbos/Monte Christo nodal settlement is planned, while two

main nodes are proposed at either end of Kaap de Goede Hoop road are

proposed. A Heritage protection area is proposed in the centre of Groot

Brak with nodes and an activity corridor along the Long Street and in line

with the urban fabric towards the Friemersheim Road. 21ha of possible new

development land is identified in Groot Brak.

2.4.2.1 Urban Edge: Mossel Bay Town and Hartenbos

The 2013 SDF presents a new updated Urban Edge that is generally more

restrictive than either the 2008 Urban Edge (formulated by the 2008 SDF) or

the amendments to the Urban Edge presented in the 2010 Mossel Bay SDF

Review. The Comparison of Urban Edges Plan Series shows the proposed

2013 Urban Edge.

2.4.2.2 Classified Heritage Areas

Mossel Bay is one of the oldest towns in South Africa and therefore enjoys a

rich heritage with multiple heritage resources in need of careful

management and protection. The Heritage Plan identifies several areas

within the Mossel Bay Municipality that should be the focus of heritage

management that have been incorporated in the Mossel Bay Spatial

Development framework and other precinct plans including the Mossel

Bay Central Precinct Plan.

The Mossel Bay SDF (2013) recommends a heritage overlay area that

encompasses the built-up area of the CBD and portions of central Great

Brak.



28 October 2016

page 61

2.4.3 MOSSEL BAY MUNICIPAL PLANNING BY-LAW, 2015

The Mossel Bay Municipal Planning By-Law was adopted on 1 December

2015.

This By-Law addresses the following planning aspects in the municipality:

Interpretation and Application

Spatial Planning

Development Management

Application Procedures

Criteria for Decision-Making

Extension of Validity Period of Approvals

Municipal Planning Decision-Making Structures

Provision of Engineering Services

Enforcement

Miscellaneous Subjects

This By-Law will advise all planning applications made to the Municipality.

The Municipality is working on its Integrated Zoning Scheme.



28 October 2016

page 62

2.5 ABUTTING SPATIAL DEVELOPMENT FRAMEWORKS

Three local Municipalities abut the Mossel Bay Municipality, namely the

George Local Municipality, Oudtshoorn Local Municipality and Hessequa

Local Municipality.



28 October 2016

page 63

2.5.1 GEORGE LOCAL MUNICIPAL SPATIAL DEVELOPMENT

FRAMEWORK (DRAFT MAY 2013)

The George Municipal Spatial Development Framework (SDF) was

prepared in May 2013.

SDF Spatial Vision

“Develop George as a Destination of Opportunity”

SDF Spatial Mission

Facilitate a sustainable and quality living environment which will:

(1) Support Economic growth & vitality

(2) Contribute to Social upliftment and wellbeing

(3) Protect the environmental integrity

The SDF is based on five (5) spatial development objectives, namely:

Restructuring and integrating the dysfunctional urban fabric, together

with a public transport system and urban renewal interventions;

Strengthening the economic vitality by enhancing the regional and

local space economy, strategic developments to diversify and

strengthen the economy, consolidating and reinforcing nodes of

economic activity, and infrastructure services provision;

Creating quality living environments trough sustainable urban growth

management, managing a hierarchy of city activity nodes, the use of

strategic vacant land to take up new development demand, the

densification of urban areas, and the provision of housing and public

facilities;

Safeguarding the environmental integrity and assets by establishing a

city-wide open space system and environmental corridors,

maintaining the functionality of Critical Biodiversity Areas (CBAs) and

applying the principles of the Spatial Planning Categories (SPCs);

Mitigating against impacts of climate change, managing visual

landscapes and corridors as well as heritage resources; and,

Enhance the rural character and livelihood by protecting the

productive landscape, managing the subdivision of land and by

enhancing the rural livelihood and promoting integrated rural

development.

Figure 2.5.1 indicates the SDF prepared for the George Municipality.

Implications for Mossel Bay Municipality:

Some of George Municipality’s best agricultural land abuts MBM and care

must be taken to protect this use with appropriate land uses.

George Airport is located on the N2.



28 October 2016

page 64

Figure 2.5.1 George Local Municipality SDF (source: George LM, 2013)



28 October 2016

page 65

2.5.2 OUDTSHOORN LOCAL MUNICIPALITY, 2013

Oudtshoorn’s priorities are summarized into the 2030 vision statement as;

“Greater Oudtshoorn: a town to work, learn, play and prosper in.”

The vision is expanded into 5 Principles

1. Live: fostering social development, regeneration of wards,

infrastructure;

2. Work: fostering job creation, good governance, agriculture, industrial

development;

3. Learn: fostering earning and teaching and the knowledge economy;

4. Play: supporting and developing tourism, arts and culture;

5. Prosper: bringing together the principles of live, work, learn and play.


The Outeniqua Mossel Bay boundary mainly comprises the Outeniqua

Nature Reserve, a core SPC and this should be continued southwards into

Mossel Bay.

The Kayaking River and R328 regional route cut through the Outeniqua

mountains at the Robinson Pass.



28 October 2016

page 66

Figure 2.5.2 Oudtshoorn Local Municipal SDF, 2013

Study

area



28 October 2016

page 67

2.5.3 HESSEQUA LOCAL MUNICIPALITY SDF, 2012

Vision

"A cooperative society where everyone reap the benefits of a growing

economy through sustainable development and utilization of our human

potential and our natural resources."

Mission

Then the mission of the municipality defined as follows:

Being a cooperative and prosperous community;

Future generations will be able to share fairly in the abundance of our

region;

To ensure compliance of basic needs;

To preserve our environment, archaeological and cultural heritage;

and,

To live in harmony with nature and each other in honor of our common

ancestry in the place that gave rise to our humanity.

This mission provides clear direction the forward planning of the Hessequa

Municipality set to ensure sustainable development for the benefit of all

the inhabitants of the area.

The spatial planning concept reflects the ideal situation for future

development. This concept is illustrated by the structural elements or

building blocks in accordance with relevant guidelines and planning

concepts. The concept is the starting point in the formulation of planning

proposals. The detailed spatial proposals should be seen as the "complete"

of the concept. The spatial planning concept also does not have any

statutory / legal status given the guiding role of the concept.


MBM shares the Gourits River with Hessequa Municipality for much of its

eastern boundary.

Ideally watersheds and not rivers should form planning boundaries and

planning proposals in the Gourits River Valley should be carefully

coordinated by both municipalities.

The SDF notes the N2 as a primary movement and development corridor

along which its main settlements are located.

There are two important bands of conservation areas which also have

tourism potential, especially the coastal strip including Stilbaai, Witsands,

Jongensfontein and Gouritsmond.



28 October 2016

page 68

Figure 2.5.3 Hessequa Local Municipal SDF, 2012

Study

area



28 October 2016

page 69

2.6 ALIGNMENTS

The vertical and horizontal alignment between the Mossel Bay Local

Municipality SDF and the other planning policies affecting and affected

by this SDF are illustrated below.

2.6.1 Vertical Alignment

The vertical alignment shows the relationship and alignment between

the proposals and policies of the Western Cape PSDF, Western Cape

Growth and Development Strategy and the Cape Winelands District SDF.

Of importance are the following:

Develop the tourism potential of the Mossel Bay region;

The Louie Fourie road should be promoted as a continuous

combined road/rail transport corridor through the municipality and

enhance the road in order to be a part of the ‘garden route’;

The promotion of higher order services and urban densities should be

encouraged here;

Mossel Bay (and Saldanha Bay) are seen as important sports and

LJNG resources. However, Mossel Bay is currently on the back burner

in this regard given the uncertainties around PetroSA’s plans for the

refinery and Portnet’s lack of attention to Mossel Bay harbour.

2.6.2 Horizontal Alignment

The horizontal alignments of the relationship between the Mossel Bay

Municipality and the abutting municipal SDF’s are shown on Figure

2.6.2.1.

The main abutting proposals that could influence the formulation of a

spatial development plan for the Mossel Bay Municipality are:

Promote the Louis Fourie corridor as a continuous transport, business

and tourism corridor; (Note: township tourism, eg. Mzoli’s restaurant is

becoming increasingly popular as an alternative tourism offering)

Promote the extension of the conservation status of existing reserves

along the Outeniqua mountains and the coast into a series of

continuous biodiversity corridors;

Protect intensive agriculture areas to ensure food security.

Acknowledging the need for joint planning co-ordination with

Hessequa Municipality in the Gourits River Valley.



28 October 2016

page 70

Figure 2.6.2.1 Alignment with surrounding SDFs



28 October 2016

page 71

list and explanation of acronyms mpcc’s - … bay/sq/3 - chpt 1... · list and explanation of...

Documents