Enhancing integrated development planning to alleviate the legacy of Apartheid planning

264 Pages·2016·2.22 MB·English

n
w
o
T

e
p
a
C
Enhancing integrated development planning

f
o

to alleviate the legyacy of apartheid planning
t
i
s
Dissertation presented as part fulfillment of
r
e
the degree of Masters of City and Regional
v
Planning
i
n
In the School of Architecture, Planning and Geomatics
U
University of Cape Town
2016-11-04
By: Samuel Mokgalong
n
w
The copyright of this thesis vests in the author. No
o
T
quotation from it or information derived from it is to be

published without full acknowledgeement of the source.
p
The thesis is to be used for private study or non-
a
C
commercial research purposes only.

f
o
Published by the Universit y of Cape Town (UCT) in terms
y
t
of the non-exclusive license granted to UCT by the author.
i
s
r
e
v
i
n
U
Declaration of Free License
I hereby:
a) grant the University free license to reproduce the above thesis in whole
or in part, for the purpose of research;
b) declare that:
i. the above thesis is my own unaided work, both in conception and
execution, and that apart from the normal guidance of my
supervisor, I have received no assistance apart from that stated
below;
ii. except as stated below, neither the substance or any part of the
thesis has been submitted in the past, or is being, or is to be
submitted for a degree in the University or any other University.
iii. I am now presenting the thesis for examination for the Degree of
Masters of City and Regional Planning.
Name: Samuel Mokgalong Student Number: MKGSAM009
Signature: Date: 2016-11-04
Acknowledgements:
I would like to thank A/Professor Tanja Winkler for supervising this research
project. I would also like to thank Nobukhosi Ngwenya who assisted with the
supervision. I would like to thank Professor JE Nel for proofreading and editing
the dissertation. Finally, I would like to thank the research participants who put
time aside to participate in the research.
i
Abstract:
Name Samuel Mokgalong
Address 53 Main Road, Claremont, The Claremont, Flat D732B
Dissertation Title Enhancing integrated development planning to alleviate the legacy of apartheid planning
Date 2016-11-04

The research serves to gain a deeper understanding as to the reasons behind
the persistence of the apartheid planning legacy. This is done through a
discourse analysis of integrated development planning, a planning tool
introduced into South Africa to address the consequences of apartheid. Thus
the aim of the Research is to:

1. Understand the underlying values and meanings of the discourses used
in the many iterations of the City's Integrated Development Plans (IDPs);
2. Explore if, and how, these values and meanings have changed since
2002;
3. Establish what has prompted a change in the adopted values and
meanings contained within the different iterations of the City's IDPs; and
4. Critically assess how altered values and meanings have impacted on
planning actions and outcomes.

Research Methods used are the case study method, discourse analysis,
institutional ethnography and archival research. More specifically, a case
study on Cape Town and a discourse analysis of different iterations of the City’s
IDP (a method done in conjunction with archival research). These IDPs being
the 2002, 2007 and 2012 IDP.
ii
The findings show that the values and meanings have indeed changed since
the 2002 IDP. This change is mainly attributed to the dynamic nature of Cape
Town’s political context over time, as well as its socio-economic context. This
change has resulted in the poor no longer being prioritized and empowered
through integrated development planning. It is also seen that the shift towards
a more managerial approach to planning, which is seen in the IDP, has come
at the expense of actions and outcomes which successfully redress the legacy
of apartheid planning. A result which clearly contributes to the persistence of
the apartheid planning legacy.
1 INTRODUCTION 1
1.1 THE PURPOSE OF THIS CHAPTER 1
1.2 THE BACKGROUND TO THE STUDY 1
1.2.1 REDRESSING THE LEGACY OF APARTHEID PLANNING 1
1.2.2 INTEGRATED DEVELOPMENT PLANNING 5
1.2.3 DISCOURSE ANALYSIS FOR URBAN POLICY RESEARCH 7
1.3 IDENTIFYING THE PROBLEM UNDER STUDY 8
1.4 ESTABLISHING THE AIM OF THE STUDY 8
1.5 ESTABLISHING THE MAIN RESEARCH QUESTION AND THE RESEARCH METHODS 9
1.6 STRUCTURE OF THE DISSERTATION 10
2 LITERATURE REVIEW 12
2.1 THE PURPOSE OF THIS CHAPTER 12
2.2 INTEGRATED DEVELOPMENT PLANNING IN SOUTH AFRICA: A HISTORIC ACCOUNT 12
2.2.1 INTEGRATED DEVELOPMENT PLANNING BEFORE 1994 13
2.2.2 INTEGRATED DEVELOPMENT PLANNING AFTER 1994 BUT BEFORE THE MUNICIPAL SYSTEMS ACT
2000 13
2.2.3 INTEGRATED DEVELOPMENT PLANNING AFTER THE MUNICIPAL SYSTEMS ACT 2000 17
2.3 INFLUENTIAL POLICIES AND LEGISLATIONS IN THE SOUTH AFRICAN CONTEXT 20
2.3.1 WHITE PAPER ON RECONSTRUCTION AND DEVELOPMENT (1994) 20
2.3.2 LOCAL GOVERNMENT TRANSITION ACT SECOND AMENDMENT ACT, 1996 [NO. 97 OF 1996]
22
2.3.3 DEVELOPMENT FACILITATION ACT [NO. 67 OF 1995] 24
2.3.4 THE CONSTITUTION OF THE REPUBLIC OF SOUTH AFRICA, 1996 27
2.4 INTEGRATED DEVELOPMENT PLANNING AS A PROCESS AND THE IDP AS A PRODUCT IN
CONTEMPORARY SOUTH AFRICA 30
2.4.1 INTEGRATED DEVELOPMENT PLANNING AS A PROCESS 30
2.4.2 INTEGRATED DEVELOPMENT PLANS AS A PRODUCT 30
2.5 PROBLEMS ASSOCIATED WITH INTEGRATED DEVELOPMENT PLANNING IN SOUTH AFRICA 32
2.6 INTEGRATED DEVELOPMENT PLANNING AS A DISCOURSE 34
2.6.1 DEFINING DISCOURSE AND RELATING IT TO INTEGRATED DEVELOPMENT PLANNING 34
2.6.2 VALUES, MEANINGS, AND ACTIONS IN DISCOURSE THEORY 36
2.6.3 INTERPRETATION OF VALUES, MEANINGS, AND ACTIONS 38
2.6.4 CHANGE IN VALUES, MEANINGS AND ACTIONS OVER TIME 42
2.7 CONCLUSION OF LITERATURE REVIEW 44
3 METHODS 48
3.1 INTRODUCTION 48
3.2 RESEARCH METHODS 49
3.2.1 DISCOURSE ANALYSIS 49
3.2.2 CASE STUDY 53
3.2.3 ARCHIVAL RESEARCH 55
3.2.4 INSTITUTIONAL ETHNOGRAPHY 57
3.3 RESEARCH TECHNIQUES 58
3.3.1 ANALYSIS OF THE ‘INTEGRATED DEVELOPMENT PLANNING’ DISCOURSE 58
3.3.2 SEMI-STRUCTURED INTERVIEWS 59
3.4 SAMPLING PROCEDURES 61
3.5 ETHICAL CONSIDERATIONS 63
3.6 DATA ANALYSIS 65
3.7 CONCLUSION 66
4 FINDINGS AND DISCOURSE ANALYSIS OF IDPS 67
4.1 THE CASE STUDY AREA AND A BRIEF REVIEW OF THE MUNICIPAL SYSTEMS ACT 69
4.2 ASSESSING THE COCT’S IDPS BASED ON THE CRITERIA FOR ‘INTEGRATION’ 72
4.2.1 ASSESSING THE COCT’S IDPS WITH REGARD TO HORIZONTAL AND VERTICAL INTEGRATION 72
4.3 ASSESSING THE COCT’S IDPS WITH REGARD TO CRITERIA FOR ‘SUSTAINABILITY’ 75
4.3.1 ASSESSING THE COCT’S IDPS WITH REGARD TO FEASIBILITY 75
4.3.2 ASSESSING THE COCT’S IDPS WITH REGARD TO ENVIRONMENTAL SUSTAINABILITY 77
4.3.3 ASSESSING THE COCT’S IDPS WITH REGARD TO USAGE OPTIMIZATION 79
4.4 ASSESSING THE COCT’S IDPS BASED ON THE CRITERIA FOR ‘PEOPLE DRIVEN DEMOCRACY’ 83
4.4.1 ASSESSING THE COCT’S IDPS WITH REGARD TO INCLUSIVITY 83
4.4.2 ASSESSING THE COCT’S IDPS WITH REGARD TO INVOLVEMENT AND PARTICIPATION 85
4.4.3 ASSESSING THE COCT’S IDPS WITH REGARD TO EMPOWERMENT 88
4.4.4 ASSESSING THE COCT’S IDPS WITH REGARD TO PRIORITIZATION 90
4.4.5 ASSESSING THE COCT’S IDPS WITH REGARD TO SAFETY AND HEALTH 91
4.5 ASSESSING THE COCT’S IDPS BASED ON THE CRITERIA FOR ‘GOOD GOVERNANCE’ 96
4.5.1 ASSESSING THE COCT’S IDPS WITH REGARD TO TRANSPARENCY 96
4.5.2 ASSESSING THE COCT’S IDPS WITH REGARD TO ASSESSMENT AND ACCOUNTABILITY 97
5 REASONS FOR CHANGED VALUES AND MEANINGS, ALONG WITH IMPACT ON
PLANNING ACTIONS AND OUTCOMES 100
5.1 CAPE TOWN’S POLITICAL CONTEXT 100
5.2 CAPE TOWN’S SOCIO-ECONOMIC CONTEXT 108
5.3 ADDITIONAL REASONS FOR THE CHANGE IN VALUES AND MEANINGS FROM INTERVIEWS 116
5.4 IMPACT ON PLANNING ACTIONS AND OUTCOMES 122
6 CONCLUSION AND RECOMMENDATIONS 145
6.1 ANSWERS TO RESEARCH QUESTIONS 146
6.1.1 WHAT ARE THE UNDERLYING VALUES AND MEANINGS OF THE DISCOURSES USED IN THE MANY
ITERATIONS OF THE CITY’S IDPS; AND HOW HAVE THESE VALUES AND MEANINGS CHANGED SINCE
2002? 146
6.1.2 WHAT HAS PROMPTED A CHANGE IN THE ADOPTED VALUES AND MEANINGS CONTAINED WITHIN
THE DIFFERENT ITERATIONS OF THE CITY’S IDPS? 150
6.1.3 HOW HAVE ALTERED VALUES AND MEANINGS IMPACTED ON PLANNING ACTIONS AND
OUTCOMES? 152
6.2 POLICY RECOMMENDATIONS 153
6.2.1 RECOMMENDATIONS FOR INTEGRATION 153
6.2.2 RECOMMENDATIONS FOR SUSTAINABILITY 154
6.2.3 RECOMMENDATIONS FOR PEOPLE DRIVEN DEMOCRACY 155
6.2.4 RECOMMENDATIONS FOR GOOD GOVERNANCE 156
6.3 REFLECTIONS 156
6.4 RECOMMENDATIONS FOR FUTURE RESEARCHERS 157
6.5 LIMITATIONS TO THE STUDY 158
6.6 CONCLUSION 158
REFERENCES 161
APPENDIX A: DISCOURSE ANALYSIS 171
A.1 DISCOURSE ANALYSIS OF THE IDPS 171
A.1.1 FINDINGS AND DISCOURSE ANALYSIS OF CAPE TOWN 2002/2003 IDP 171
A.1.2 FINDINGS AND DISCOURSE ANALYSIS OF CAPE TOWN 2007/2008 IDP 182
A.1.3 FINDINGS AND DISCOURSE ANALYSIS OF CAPE TOWN 2012/2013 IDP 194
APPENDIX B: TRANSCRIBED INTERVIEWS 198
APPENDIX C: SIGNED CONSENT FORMS 239
APPENDIX D: APPROVAL OF ETHICS IN RESEARCH 248
APPENDIX E: LETTER FROM EDITOR 250