EXPERIENCES & LESSONS LEARNT ON LAND USE:

A SPATIAL PLANNING PERSPECTIVEpresentation to

Dept. of Rural Development and Land Reform workshop on Land Use

Classification, Methodology, Reporting and Notations

19 November 2012presented by

J KIEPIEL: SPATIAL PLANNING

THIS PRESENTATION

• Purpose of the workshop

• Relation between land use classification and

spatial planning: DRDLF and COGTA views

• Some spatial planning experiences of

relevance

• Summary: lessons learnt

PURPOSE OF THIS WORKSHOP

• ‘Development of a framework for standardising land

use classifications, methods, reporting and notations’.

• It is understood that the focus is on land use

description and not land use planning and

management.

• However, the use of land use descriptions for SDF and

scheme formulation and monitoring is recognized.

• Therefore, what are the conceptions of the SDF and

scheme?

SDF CONCEPTIONS: DRDLD

• Chief Directorate: Geo-spatial information report

(2009) recognizes MSA (Act 32 of 2000)

• The report adds: ‘The legislation according to which

these plans and programs are performed do not list

or specify the land uses (as in a land use legend) that

should be used in the compilation of these plans.

This leads to a complete lack of uniformity….’

• i.e: Assumes SDF primarily manages land use

• i.e: Assumes standardization of SDF legend is good

SDF CONCEPTIONS:

COGTA 2012 TRAINING MATERIAL

• ‘The focus of SDFs should not be on land use but on capital

investment ….

• ‘Spatial planning has little direct control over land use: land-use

plans can prevent certain activities from occurring in particular

places but they cannot make them occur, if market demand

does not exist.

• ‘While the focus of SDFs is not on land-use, they have profound

implications for land-use, since the capital web defines an

‘accessibility surface’ to which private investment responds.

• Space is also central…The primary role of buildings…is to make

and define the public space.’ i.e a qualitative dimension.

SCHEME CONCEPTIONS: DRDLD

• Chief Directorate: Geo-spatial information report (2009)

states:

• ‘Theoretically, the primary purpose of a LUMS is to segregate

uses that are thought to be incompatible; in practice, zoning is

used as a permitting system to prevent new development

from harming existing residents or businesses and to preserve

the “character” of a community.

• ‘A zoning is therefore not much more than a bundle of land

use rights’

SCHEME CONCEPTIONS: COGTA

• PDA SECTION 3: The purpose of a scheme is to regulate

land use and to promote orderly development in

accordance with the municipality’s integrated

development plan.

• Therefore, the scheme balances the public interest with

private interest in line with the policy framework and

the preferred spatial logic for the municipality.

WHAT DOES A SCHEME CONTAIN?

PDA SECTION 5: Examples of provisions:

• Maps and accompanying clauses (and other provisions)

• Defines applicable area

• Defines terms in maps and clauses

• Specifies land uses and development that may be

- permitted;

- not permitted and;

- permitted with municipality’s permission;

• Non-conforming uses

SOME IMPLICATIONS OF A POLICY-LED SCHEME

• A scheme is a mechanism that implements policy - it brings

inappropriate, historically-granted rights into line with current

policy priorities.

• A scheme must promote sustainable development (MSA – Act

32 of 2000).

• A scheme is concerned with spatial restructuring: The

ultimate purpose of the NSDP in the South African setting is to

fundamentally reconfigure apartheid spatial relations… (2006

NSPD page ii).

• Consequently, a scheme in the South African setting cannot

simply be the reflection of existing land use.

WALL-TO WALL SCHEME: WHERE TO BEGIN

• Because the public interest varies from place to place, the

nature and extent of rights and obligations vary from place to

place.

• A fundamental step in formulating a scheme is to distinguish

the wilderness and rural landscapes from the urban landscape.

• This implies the demarcation of SETTLEMENT EDGES (urban

edges).

• COGTAs Provincial Spatial Planning Guideline 5 and COGTAs

Ubuhlebezwe study assists in the demarcation of settlement

edges.

• Therefore, the management emphases inside and outside the

settlement edges differ.

SCHEME MANAGEMENT IN AND OUTSIDE

SETTLEMENT EDGES: SOME DIFFERENCES

INSIDE SETTLEMENT EDGES OUTSIDE SETTLEMENT EDGES

Higher levels of public capital

investment.

Settlement development is promoted

and intensified in alignment with

regional/subregional infrastructure

Cadastral basis for zonation may be

appropriate

Public capital investment is regulated

by the scheme in terms of hierarchical

packages of investment

Basic needs investment

Focus on restoring and maintaining

integrity of wild lands and agricultural

areas. Settlement is recorded as existing

uses in rural zones: e.g. POINTS in

agricultural zones

Natural boundaries are appropriate

basis for zonation e.g. landscape

character areas

Public investment is regulated -basic

needs investment

EXAMPLES OF THIS WAY OF THINKING

OF RELEVANCE TO CLASSIFICATIONS• Capital web: investment lines and services clusters

• Settlement edges: Urban and rural

• Ecosystem services: Types e.g. carbon sinks

• Climate change: Adaptation, mitigation, response types

• Community GIS: Scale issues, who owns the legend?

• Landscape character assessments: Character based zones –

parametric to genetic classifications

• Heritage uses e.g. mapping living heritage; associative cultural

landscapes – the historical dimension

• Periodic markets: The time dimension

From abstract concept to sub-regional analysis

ANALYSIS OF PUBLIC CAPITAL INVESTMENTSource: Dewar & Kiepiel, 2010; ISIK (2011) on behalf of COGTA

KIT OR CLUSTER OF PUBLIC PARTSSource: ISIK (2011) on behalf of COGTA

1) Single Facility 2) Primary Kit of Public Parts

3) Secondary Kit of Public Parts 4) Tertiary Kit of Public Parts

KWASANI CAPITAL INVESTMENT STUDY

SETTLEMENT EDGES STUDY

SETTLEMENT EDGES STUDY contd.

SETTLEMENT EDGES STUDY contd.

ECOSYSTEM SERVICES

• Grazing land or natural

veldt or wildlands or

carbon sink?

• Or all of these?

CLIMATE CHANGE WHITE PAPER

The South African Climate Change Response Strategy involves:

Adaptation: the adjustment in natural or human systems, in response toactual or expected climatic stimuli or their effects that moderate harmor exploit beneficial opportunities (IPCC).

Mitigation: an anthropogenic intervention to reduce the sources orenhance the sinks of greenhouse gases (IPCC).

‘Response measures’: managing any unintended negative consequencesof climate change policies and measures on other countries (NATIONALCLIMATE CHANGE RESPONSE WHITE PAPER OCTOBER 2011)

LANDSCAPE CHARACTER AREAS :CLASSIFICATION

LANDSCAPE CHARACTER AREAS

RESORT CATEGORY EXAMPLE

FR

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AN

GE

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or

bulk

TR

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AN

GE

LAN

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SE

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HA

NG

E

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TR

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A. Trail-related impermanent structures.

• Hiking trail.• Small rustic camp sites with access on foot only.• No permanent structures.

Tem

pora

ry

stru

ctur

es

(ten

ts,

toile

ts)

B. Homestead/farmstead accommodation – additional dwelling.

• Existing farm or umuzi accommodation.• Additional dwelling within existing farmstead or

umuzi envelope. (‘Granny flat’).

Per

man

ent

stru

ctur

es.

C. Farmstead/homestead expansion within existing envelope.

• Additional 2 dwellings within existing farmstead or umuzi envelope.

DISTURBED FOOTPRINT:D. Supplementary tourism without new roads

• Hiking hut on trail.• Single fishing cottage.

E. Supplementary tourism with new roads

• Small campsite with ablution block and lapha.• Single-building B & B up to 5 bedrooms.• 10 people.

New

ro

ads

F. Small tourism. • Backpackers hostel.• Community tourism centre (e.g. Mweni).• Country house, guest farm.• One cluster of up to 10 units.• 40 people.

G. Reserves and game farms • Game farms and eco-tourism, private game reserve -Up to 10 units or 60 beds.

• 60 people.

H. Retail outlets • Restaurants, arts and crafts markets, shops and workshops.

I. Medium tourism • 11-30 units• Hotel over 60 beds.• Camping and caravan park.• 120 people.

J. Large tourism • 31 – 50 units• Large resort development & large facilities e.g. go lf

course.• Time-share.• 200 people.

FRAGMENTED OWNERSHIP: URBAN, SUBDIVISION, SECTIONAL TITLE, SHAREBLOCK:K. Hill towns • 10ha high density 3 story pedestrian – 500 units.L. Suburban. • Gated estates, residential estates.

• Themed estates – golf-, equestrian-, eco-estates or retirement.

• New towns, theme parks, casinos.

HERITAGE USES

Deterioration of San Rock Art: New Findings, New Challenges Kevin Hall, Ian Meiklejohn, Joselito Arocena, Linda Prinsloo, Paul Sumner and Lyndl Hall South African Journal of Science 103, September/October 2007

PERIODIC MARKETS

LESSONS LEARNT• Description and management are categorically different e.g.

while difficult to describe ‘urban’ and urban edge,

management definition of an urban edge is achievable.

• SDF and scheme are conceptually different.

• Legends of management instruments are dynamic.

• Land use classifications should capture quality not just

quantity: ‘cultural turn’.

• For management purposes, classifications using functional

and uniform regions are all useful.

• If concepts underpinning legends are mediocre, then

standardized legends enshrines mediocrity.

• Who owns the legend? At what scale?

LESSONS LEARNT contd.

• Planning is a function of context and

creativity.

• Symbology is a function of context including

the creativity of the planners.

SOME INFORMATION GAPS

• Occupied/abandoned dwelling units

• Updated public capital investment especially

bulks

• Public squares/places

• Periodic services (routes and stops)

• Public transport routes

• Heritage

14th Floor, North TowerNatalia Building

330 Langalibalele StreetPietermaritzburg, 3200

Tel: +27(0) 33 395 2831Fax: +27(0) 33 345 6432

E-mail: hodenquiries@kzncogta.gov.za

Website: www.kzncogta.gov.za