CITY OF MBOMBELA LOCAL MUNICIPALITY A lot of people together in a small space * *Swati translation for Mbombela Report prepared by Maléne Campbell August 2017
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CITY OF MBOMBELA LOCAL MUNICIPALITY A lot of people together in a small space*
*Swati translation for Mbombela
Report prepared by
Maléne Campbell
August 2017
Mbombela | Page ii
TABLE OF CONTENTS
LIST OF FIGURES .................................................................................................................... III
LIST OF TABLES ......................................................................................................................IV
LIST OF ACRONYMS ................................................................................................................ V
1. INTRODUCTION ................................................................................................................... 1
2. DEMOGRAPHIC AND ECONOMIC OVERVIEW .......................................................................... 6
3. MAIN SPATIAL TRANSFORMATION ISSUES .......................................................................... 11
3.1 Spatial integration .................................................................................................................. 11
3.2 Inclusion and access ............................................................................................................. 11
3.3 Growth ................................................................................................................................... 12
3.4 Governance ........................................................................................................................... 12
4. ALIGNMENT WITH OTHER PLANS ....................................................................................... 14
5. AN OVERVIEW OF THE SPATIAL DEVELOPMENT FRAMEWORK .............................................. 16
5.1 Introducing a municipal open space system.......................................................................... 18
5.2 The protection of prime and unique agricultural land ............................................................ 18
5.3 Identification of focus areas for land reform .......................................................................... 19
5.4 The development of rural-based tourism ............................................................................... 19
5.5 The development of an integrated transport system ............................................................. 20
5.6 To promote compact and integrated development ................................................................ 20
5.7 Addressing development in economic opportunity zones ..................................................... 21
6. ASSESSMENT OF THE SPATIAL DEVELOPMENT FRAMEWORK ............................................... 22
6.1 Organisational structure......................................................................................................... 22
6.2 The quality of the planning process ....................................................................................... 23
6.3 The quality of the plan ........................................................................................................... 24
6.4 Degree of implementation...................................................................................................... 24
6.5 Spatial challenges .................................................................................................................. 25
7. SPATIAL TRANSFORMATION IMPLEMENTATION .................................................................... 25
8. GENERAL CONCLUSIONS .................................................................................................. 26
REFERENCES ....................................................................................................................... 27
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LIST OF FIGURES
Figure 1: Location of Mbombela in Southern Africa ............................................................................. 1
Figure 2: Location of Mbombela in the Ehlanzeni District Municipality of the Mpumalanga Province . 2
Figure 3: City of Mbombela Local Municipality ..................................................................................... 3
Figure 4: Diagram of the Maputo Development Corridor ..................................................................... 4
Figure 5: Traditional authorities in the Mbombela Local Municipality .................................................. 5
Figure 6: Urban growth of the Mbombela Local Municipality ............................................................... 8
Figure 7: The public participation process of the 2012 Spatial Development Framework review ..... 16
Figure 8: Spatial Development Framework for Mbombela Local Municipality (2007) ........................ 17
Figure 9: Strategy for a municipal open space system ...................................................................... 18
Figure 10: Former residential area rezoned to accommodate offices .................................................. 21
Figure 11: 2011−2030 Spatial Development Framework for Mombela Local Municipality .................. 22
Figure 12: Organogram of the City Planning and Development Department of Mbombela Local
Municipality .......................................................................................................................... 23
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LIST OF TABLES
Table 1: Designations of the participants in the qualitative study ....................................................... 6
Table 2: Mbombela population ............................................................................................................ 6
Table 3: Population of Kabokweni, Kanyamazane and Matsulu ......................................................... 7
Table 4: Urban growth 1990−2014 ..................................................................................................... 7
Table 5: Mbombela economy .............................................................................................................. 9
Table 6: Mbombela municipal expenditure ......................................................................................... 9
Table 7: Mbombela infrastructure ..................................................................................................... 10
Table 8: Mbombela – Gross value added ......................................................................................... 10
Table 9: Percentage of land under control of the traditional authorities in the Mbombela Local
Municipality .......................................................................................................................... 13
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LIST OF ACRONYMS
CBD Central Business District
CoGTA Department of Cooperative Governance and Traditional Affairs
GVA Gross Value Added
IDP Integrated Development Plan
MDC Maputo Development Corridor
MLM Mbombela Local Municipality
MOSS Municipal Open Space System
PGDS Provincial Growth and Development Strategy
SDF Spatial Development Framework
SPLUMA Spatial Planning and Land Use Management Act
Stats SA Statistics South Africa
TLC Transitional Local Council
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1. INTRODUCTION
Mbombela Local Municipality (MLM) is situated in the Ehlanzeni District Municipality of
the Mpumalanga Province (Figure 1 and Figure 2). The Mbombela Local Municipality
was formed in 2000 when the Hazyview Nelspruit and White River Local Councils
amalgamated (MLM, 2011). The local municipality is today referred to as City of
Mbombela Local Municipality (Figure 3) which consists of the former MLM and Umjindi
Local Municipality (City of Mbombela Local Municipality, 2017−2022).
Source: MLM (2012)
Figure 1: Location of Mbombela in Southern Africa
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Source: MLM (2012)
Figure 2: Location of Mbombela in the Ehlanzeni District Municipality of the Mpumalanga Province
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Source: City of Mbombela Local Municipality (2017−2022)
Figure 3: City of Mbombela Local Municipality
Gauteng is located 320 km along the Maputo corridor1 on the N4 road (Figure 4), inland
from MLM, with the Mozambican border post at Komatipoort about 120 km to the east,
and the Kruger National Park about 55 km in a north-easterly direction. Nine domestic
flights from Johannesburg, two flights from Durban and one from Cape Town land daily
at the Kruger Mphumalanga International Airport (Interviewee 1), while other flights fly
directly to the Skukuza Airport, adjacent to the Kruger National Park.
1In mid-2008, Trans African Concessions (Pty) Ltd constructed the Maputo Development Corridor (MDC) along the 630 km N4 toll road stretching from Pretoria in the Gauteng Province in South Africa, through the Mpumalanga Province to Maputo in Mozambique (Campbell, Maritz and Hauptfleisch, 2009; Nathan Associates, 2007). The southern Lowveld, which lies between
the southern boundary of the Kruger National Park and the Swaziland border, is part of the area also termed the MaputoNelspruit corridor.
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a: Pretoria f: Machadodorp k: Phalaborwa b: Johannesburg g: Mbombela l: Polokwane c: Bronkhorstspruit h: Malalane m: Rustenburg d: Emalahleni i: Komatipoort n: Vaal Triangle e: Middelburg j: Maputo o: Mbabane
Axis:
Border:
Source: Campbell and Hauptfleisch (2012)
Figure 4: Diagram of the Maputo Development Corridor
Urban areas in MLM include Mbombela, formerly known as Nelspruit2, White River,
and Hazyview, as well as former homeland towns such as Kabokweni, Kanyamazane
and Matsulu. Mbombela, the capital of the Mpumalanga Provincial Government, is in
the Lowveld3. This status of Mbombela as capital city of the Ehlanzeni District
Municipality gives Mbombela a competitive advantage in terms of growth and
development (MLM, 2016/2017). Mbombela is also home to the Lowveld National
Botanical Garden and hosts the Citrus and Subtropical Fruit Research Institute (South
Africa) (MLM, 2016/2017).
In the 1400s, an Nguni migration arrived from the north with herds of cattle, and built
stone-walled houses for their settlements in the area (Mpumalanga, 2017). Nguni
people comprises the Swazi and Ndebele nations of Mpumalanga. The Swazi nation
of today originated at the time of King Ngwane and therefore this area, demarcated by
tribal boundaries, was called KaNgwane (Mpumalanga, 2017). In 1873, the discovery
of gold about 80 km north of Nelspruit (currently Mbombela), brought many
prospectors to the area which was ruled by the Zuid Afrikaansche Republic – also
referred to as the Transvaal Republic (South African History Online [SAHO], 2013).
The goldfields in the land-locked Transvaal required strategic access to the Delagoa
Bay port in the neighbouring Mozambique. The Delagoa Bay railway line was built to
connect the goldfields with the port of Delagoa Bay, later renamed Lourenço Marques
2Nelspruit was named after the Nel brothers who owned land with a creek in the area. Creek is translated as spruit in Afrikaans. 3Glasson (1978) believed that the first step in outlining the concept of a region is to determine if the region, in this case the
Lowveld, is a natural phenomenon. In this regard, the objective view sees a region as a real entity, an organism that can be identified and mapped. Glasson (1978) also distinguished between three types of regions, namely formal, functional and planning regions. The Lowveld can be viewed as a functional region, which is a geographical area which displays a certain functional coherence and an interdependence of parts.
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and currently Maputo (SAHO, 2013). It was decided to run this railway line through the
area that eventually became known as Nelspruit, a village which would be become
Mbombela City a century later (Mpumalanga, 2017).
MLM is divided into five zones: three in Mbombela, one in Hazyview and one Nsikazi.
It has the following nine traditional authorities4 (Figure 5) which fall under Nsikazi:
• Gutshwa Traditional Authority.
• Lomshiyo Traditional Authority.
• Masoyi Traditional Authority.
• Mbuyane Traditional Authority.
• Mdluli Traditional Authority.
• Mpakeni Traditional Authority.
• Msogwaba Traditional Authority.
• Nkambeni Traditional Authority.
• Kgarudi Traditional Authority (MLM, 2012).
Source: Usembe (2016)
Figure 5: Traditional authorities in the Mbombela Local Municipality
4This is the former KaNgwane homeland and consists of about fifty towns such as Msogwane, Kabokweni, Swalala and Shabalala (Interviewee 2).
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In-depth, qualitative interviews were conducted from 8 to 11 June 2017 in the City of
Mbombela. The interviewees with their designations are listed in Table 1:
TABLE 1: DESIGNATIONS OF THE PARTICIPANTS IN THE QUALITATIVE STUDY
1. Mpumalanga tour operator
2. Professional planner: Partner A Consulting in Mbombela
3. General manager, MLM
4. Professional planner: Partner B Consulting in Mbombela
5. Sales specialist at the division of Business: Property Finance at a commercial bank in Mbombela
6. Chair, Mbombela Economic Development Partnership5
7. Official, National Department of Social Development in Mbombela
8. Senior manager A, MLM
9. Senior manager B, MLM
10. Manager of a lodge in Mbombela
11. Manager in the tourism industry
12. Manager in the tourism industry
Source: Author (2017)
2. DEMOGRAPHIC AND ECONOMIC OVERVIEW
Table 2 provides a detailed overview of the population of MLM which includes the three
local municipalities of Nelspruit, White River and Hazyview that have amalgamated in
2000.
TABLE 2: MBOMBELA POPULATION
Indicator 1996 2001 2011 2016
Total number of people 426 090 476 903 588 794 622 158
Total number of people: urban N/A N/A 104 346 82 009
Total number of people: rural N/A N/A 484 448 540 149
Rural: traditional N/A N/A 455 295 520 887
Rural: commercial farms N/A N/A 29 153 19 262
Total number of households 91 584 112 321 161 773 181 794
Average annual growth rate of population: since previous period
N/A 2,3 2,1 1,1
Average annual growth rate of households: since previous period
N/A 4,2 3,7 2,4
Source: Stats SA (1996−2011; 2016)
Evidence from Table 2 shows that the merger contributed to a 2,3% population growth
in the MLM in 2001. The respective figures for 2011 and 2016 show a slightly lower
growth rate in 2011 and a significantly lower growth rate in 2016. The number of people
in the urban areas decreased between 2011 and 2016, while the number of people in
the rural areas increased during this same period. A possible explanation can be
5Section 21 entity which represents all business chambers within the MLM area.
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contributed to the lower cost of living in the rural areas as residents in the regions under
traditional authority do not pay for municipal services or land tax.
Kabokweni, Kanyamazane and Matsulu were the townships of the former Nelspruit
(Interviewee 3). Table 3 provides an overview of the population growth and decline in
these former townships. Continued urban sprawl in the eastern part of the Nsikazi area
where these areas under traditional authorities are situated, poses spatial challenges
associated with sprawl such as long daily commutes. The population growth in these
areas is mainly due to illegal immigration (MLM, 2012).
TABLE 3: POPULATION OF KABOKWENI, KANYAMAZANE AND MATSULU
Former townships Census year
1996 2001 2011 1996 2001 2011
Matsulu 12 623 11 210 11 235 −2,3 0,0 −0,8
Kabokweni 11 545 11 491 12 992 −0,1 1,2 0,8
Kabokweni IA 7 296 11 660 17 981 9,8 4,4 6,2
Kanyamazane 15 601 12 408 14 557 −4,5 1,6 −0,5
Source: MLM (2012)
Figure 6 shows that most of the urban growth happened in the areas under traditional
authorities, while Table 4 shows the substantial increase in land cover from 1990 to
2014, possibly due to the inclusion of the former KaNgwane homeland.
TABLE 4: URBAN GROWTH 1990−2014
Municipality 1990 2014 Growth
Mbombela 24 081 28 054 3 973
Source: MapAble Urban Land Cover Data (2017)
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Source: MapAble (2017)
Figure 6: Urban growth of the Mbombela Local Municipality
Table 5 provides an overview of the economy of MLM. The Lowveld has a diverse
economy (Interviewee 5), with lower order services found in White River, while
Mbombela serves as a higher order regional node. Many children from Mozambique
and Swaziland attend private boarding schools in White River, where affluent residents
have homes in country estates (Interviewee 5). The residents in the areas under
traditional authorities live mostly on government grants and, because of their vast
numbers, have great buying power (Interviewee 5). There is also a large informal
economy in the area under traditional authority (Interviewee 2).
The employment rate increased by 5,1% between 2001 and 2011, while the
unemployment rate decreased by 9,6% from 2001 to 2011. The average household
income increased, while the dependency ratio decreased by 11,5 from 2001 to 2011
but increased again in 2016 (Table 5).
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TABLE 5: MBOMBELA ECONOMY
Indicator 1996 2001 2011 2016
Total population 426 090 476 903 588 794 622 158
Total number of people employed 100 186 108 652 164 000 N/A
Employed people as a percentage of total population
23,5 22,8 27,9 N/A
Unemployment rate N/A 37,7 28,1 N/A.
Youth unemployment rate N/A 46,9 37,6 N/A
Average household income N/A 38 173 93 739 N/A
Annual growth in household income (2001−2011)
N/A N/A 9,4 N/A
Average annual Consumer Price Index (2001−2011)
N/A N/A 5,9 N/A
Dependency ratio N/A 62,6 51,1 62,2
Source: Stats SA (1996−2011; 2016)
Five years ago, research was conducted by Campbell and Hauptfleisch (2012) to
determine whether the Maputo Development Corridor (MDC) acts as a channel
dispersing benefits between agglomerations of economic and industrial activities. The
respondents in this study agreed that economic growth, business improvement, wealth
creation, job creation and infrastructure development were all spin-offs of the MDC.
The number of individuals in the different income levels increased substantially
between 2007 and 2011, especially in the lower income levels, while the number of
individuals with no income also increased slightly by 0.63% (Stats SA, 2007, 2012).
Table 6 provides an overview of municipal expenditures. The total municipal
expenditure more than doubled from 2006/2007 until 2015/2016.
TABLE 6: MBOMBELA MUNICIPAL EXPENDITURE
Municipality 2006/2007 2015/2016
Total municipal expenditure 835 994 479 2 114 873 927
Total capital expenditure 129 454 466 0
Capital budget as percentage of total budget 15,5 0
Municipal expenditure on maintenance 57 684 962 183 926 438
Municipal expenditure on maintenance as a percentage of total expenditure
6,9 8,7
Municipal expenditure on salaries 176 301 175 520 920 770
Municipal expenditure on salaries as a percentage of total expenditure
21,1 24,6
Total municipal income 855 388 834 2 158 741 341
Total income from property rates 128 097 290 335 673 587
Municipal income from property tax as a percentage of total municipal income (self-generated income)
15,0 15,5
Source: RSA, Department: National Treasury (2015−2016)
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Evidence from Table 7 shows that the number of households almost doubled from
1996 to 2016. Although the number of households with indoor water access, flush
toilets and electricity increased from 1996 to 2016, the respective percentages did not
increase because of the substantial growth in the number of households. The number
of households in informal structures also nearly doubled from 1996 to 2016. (See also
5.7 for the investment in infrastructure as proposed in the 2011−2030 SDF).
TABLE 7: MBOMBELA INFRASTRUCTURE
Indicator 1996 2001 2011 2016
Total number of households 91 584 112 321 161 773 181 794
Number of households with indoor water access 36 834 23 283 60 097 43 427
Percentage of households with indoor water access
40,2 20,7 37,1 23,9
Number of households with flush toilet access 24 450 30 315 54 649 58 923
Percentage of households with flush toilet access 26,7 27,0 33,8 32,4
Number of households with electricity access 44 910 81 231 145 922 174 751
Percentage of households with electricity access 49,0 72,3 90,2 96,1
Number of households living in informal structures 7 182 10 003 7 816 14 289
Source: Stats SA (1996−2011; 2016)
Table 8 provides a Gross Value Added (GVA) overview for Mbombela.
TABLE 8: MBOMBELA – GROSS VALUE ADDED
Indicator 1996 2001 2011 2015 1996− 2001
2001− 2011
2011− 2015
1996− 2015
2001− 2015
Total 18 123 20 599 27 936 30 052 2,6 3,1 1,8 2,7 2,7
Agriculture, forestry and fishing
668 669 854 900 0.0 2,5 1,3 1,6 2,1
Mining and quarrying
256 321 465 734 4,6 3,8 12,1 5,7 6,1
Manufacturing 3 411 3 851 3 619 3 525 2,5 −0,6 −0,7 0,2 −0,6
Electricity, gas and water
656 610 798 812 −1,4 2,7 0,4 1,1 2,1
Construction 583 564 1 108 1 199 −0,7 7,0 2,0 3,9 5,5
Wholesale and retail trading, catering and accommodation
3 736 4 592 6 177 6 612 4,2 3,0 1,7 3,1 2,6
Transport, storage and communication
1 015 1 424 2 373 2 588 7,0 5,2 2,2 5,0 4,4
Finance, insurance, real estate and business services
3646 4 033 6 193 6 658 2,0 4,4 1,8 3,2 3,6
General government 3 233 3 412 4 933 5 513 1,1 3,8 2,8 2,8 3,5
Community, social and personal services
920 1 124 1 417 1 511 4,1 2,3 1,6 2,6 2,1
Source: Quantec (2016)
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The increase in the GVA for mining and quarrying is notable, while the decrease in the
GVA for manufacturing is a concern. A Strengths, Weaknesses, Opportunities and
Threats (SWOT) analysis showed that the Kruger National Park is one of the strengths
of the MLM; uncoordinated planning is a weakness; and that opportunities for growth
exist in the tourism sector, while unplanned human settlements are a threat (MLM,
2016/2017). International tourists are responsible for a steady inflow of money into the
region. They visit the top luxury safari lodges such as Sabi Sands Game Reserve and
the Timbavati Game Reserve, which are adjacent to the Kruger National Park and
mostly unaffordable to local tourists. There are no fences between the Kruger National
Park and these private game reserves and the game roams freely between them
(Interviewee 5). A new, fresh produce market is being built in Mbombela which will
serve, amongst others, clients from Mozambique and Swaziland.
About 47 000 households in the rural areas do not have any communication coverage
and are therefore, along with other challenges, unable to alert the Disaster and
Communications Centre during disasters.
3. MAIN SPATIAL TRANSFORMATION ISSUES
The areas under traditional authorities in MLM are far from employment opportunities
and these residents commute daily to Hazyview and Mbombela for work. Buscor
(Pty) Ltd. introduced five concertina busses with three sections for this area
(Interviewee 2). The public transport from these areas is frequent, generally reliable
and reasonably affordable. A taxi trip to work costs about R18 (Interviewee 10).
Additionally, approximately 39% of the households in the areas under traditional
authorities have built houses on wet lines and flood lines, putting them at serious risk
(MLM, 2016/2017). The municipality has established a unit to specifically manage
issues related to traditional leaders. The Transversal Unit has a budget and advocates,
facilitates and manages all issues of transformation (MLM, 2016/2017).
The following initiatives are attempts by the MLM to address spatial transformation:
3.1 Spatial integration
An Urban Edge Policy and the Residential Development Policy were both implemented
by the MLM. Development is further intensified in economic opportunity zones. The
Nsikazi Activity Corridor and the Nelspruit/White River Activity Corridor have been
identified and implementation has already started. Proposals were submitted for
mixed-use developments in the Mataffin Precinct. There are also plans for the Mataffin
Economic Opportunity node to create a desirable and sustainable residential
neighbourhood at the Matsafeni Village.
3.2 Inclusion and access
The Economic Opportunity Zones serve as investment locations. These zones have
higher thresholds associated with higher densities and concentrated flows of people
and are convenient and accessible as they are served by public transport.
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3.3 Growth
New development areas are identified within the urban edge to accommodate the
anticipated future growth of the urban areas, including future population growth. These
areas accommodate different land uses and accompanying infrastructure; schools,
and other community facilities and engineering services required to address new
growth in the area.
3.4 Governance
An objective of the 2011−2030 SDF, which entails the surveying of sites in the area
under traditional authority, will assist the chiefs and headmen to be able to allocate
stands suitable for human settlement (Interviewee 3). MLM began by surveying and
formalising government properties such as schools and police stations (Interviewee 3).
A thorough community engagement policy, namely the Community Engagement
Formalisation Process / Land Tenure Upgrade (MLM, 2017), was prepared to assist in
the formalisation process. The process involves the transformation of vacant land
which is suitable for residential uses. Although the proposed process does not involve
land tenure upgrading. it consists of township establishment and the approval of a
general plan. The Department of Rural Development and Land Reform appointed
Umsebe Development Planners to carry out a feasibility study of the land use
management systems and practices in the areas under traditional authority in the
Mpumalanga Province (Umsebe, 2016). These are the most underdeveloped areas
and in need of spatial development intervention (Interviewee 4). South African land
use management is fragmented along apartheid lines, with different levels of control in
different areas.
Traditional leadership is the form of governance experienced by the African people for
centuries. The National Party government (1948−1994) established ten self-governing
territories, called homelands, for different black ethnic groups under the Bantu
Authority Act, Act 68 of 1951 (RSA 1951) which allowed for the establishment of tribal,
regional and territorial authorities. These former homelands were reincorporated into
South Africa and absorbed into the newly established provinces. In these former
homelands, which were under the control of traditional authorities, all spatial planning
and land use control remained the sole responsibility of these traditional authorities
(Umsebe, 2016). The Constitution of the Republic of South Africa, Act 108 of 1996
(RSA, 1996) recognises traditional authorities and their role in local government. The
Traditional Leadership and Governance Framework Act, Act 41 of 2003 (RSA, 2003)
instructs that partnerships with local governments must be based on the principles of
mutual respect and recognition of the status and roles of the respective parties and be
guided on the principles of cooperative governance. The Spatial Planning and Land
Use Management Act, Act 16 of 2013 (RSA SPLUMA, 2013) also recognises the
critical role played by traditional authorities within a local government.
Table 9 shows that 9.2% of the MLM falls under traditional authorities.
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TABLE 9: PERCENTAGE OF LAND UNDER CONTROL OF THE TRADITIONAL AUTHORITIES IN THE
MBOMBELA LOCAL MUNICIPALITY
Traditional authority Size of traditional authority area
(km²) Percentage of traditional authority
area in municipality
Msogwaba 35 0.6
Lomshiyo 16 0.3
Gutshwa 179 3.3
Masoyi 45 0.8
Mbuyane 86 1.6
Mpakeni 39 0.7
Mdluli 37 0.7
Nkambeni 60 1.1
Total 496 9.2
Size of MLM in km² 5 394
Source: Umsebe (2016)
The Umsebe report (2016:86) found that:
[S]ince the advent of the post 1994 democratic government traditional
authorities are no longer assisted in the establishment of settlements in their
areas. As confirmed by the municipal officials, municipalities have no
capacity or financial means to assist traditional authorities in this regard.
Consequently and due to continuous pressure from their communities,
traditional councils has resorted in establishing new settlements and
extending the existing ones on their own. In general the village headman is
responsible for the demarcating of the sites for residential, business and
agricultural purposes. This is mostly done without consulting their respective
municipalities in terms of installation of bulk services … traditional authorities
were authorized to charge some fees on services rendered to their subjects.
The study has found that all the traditional councils do levy their subjects for
land allocation and this varies from one Traditional Authority to another.
The vast majority, about 500 000 of the population of 89 000 households, live in areas
under traditional authorities (Interviewee 2), where the land is not surveyed and is the
property of national government (Interviewee 9). Instead of paying land tax or for
municipal services, the residents in the regions under traditional authority are only
required to contribute a small annual fee, paid to the Tribal Chief (Interviewees 2
and 3). In MLM the traditional authorities charge a once-off fee of between R180 and
R350 for residential sites and R1 000 to R1 300 for business sites, along with an
annual levy of between R12 and R25 (Umsebe, 2016). MLM initiated a number of land
tenure upgrading projects in traditional authority areas (Interviewee 3), and despite
these projects being welcomed and accepted by the communities, most traditional
councils were strongly opposed to this, mainly through fear that they wold lose power
and control over their land and communities (Interviewee 3; Umsebe, 2016).
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4. ALIGNMENT WITH OTHER PLANS
The vision of the Comprehensive Rural Development Programme Framework (RSA,
2009) was to create sustainable rural communities. One of the ways this would be
achieved was through the upgrading of infrastructure which would also contribute
towards social transformation (2011−2030 SDF). As a consequence, agrarian
transformation is one of the priorities of the SDF. Since the National Development Plan
recognises tourism as one of the drivers of the national transformation agenda (RSA,
Department of Tourism, 2016), strengthening transformation and empowerment also
became one of the initiatives of the Mpumalanga Tourism Growth Strategy (2011−2030
SDF).
It should be noted that the current 2011−2030 SDF was compiled by Umsebe
Development Planners and approved by the MLM Council in 2012, a year prior to the
SPLUMA enactment (RSA, 2013) and four years before the Integrated Urban
Development Framework was implemented in 2016 (RSA, Department of Cooperative
Governance and Traditional Affairs [CoGTA], 2016). There was also no provincial SDF
available at the time, but the district SDF was available and consulted (Interviewee 2).
The 2011−2030 SDF is currently under review.
The current 2016/2017 IDP uses the New Partnership for Africa’s Development
imperatives as normative position. These include management and resolution at
subregional and continental level, participatory governance, diversification into agro-
industries, and manufacturing for domestic and export markets (MLM, 2016/2017). The
IDP is aligned with the strategic imperatives of the 2030 National Development Plan,
such as sustainable livelihoods, rural development and integrated human settlements.
MLM compiled a diagnostic report based on the National Development Plan on Vision
2030 (Interviewee 3). The IDP unit of MLM is the custodian of Vision 2013
(Interviewee 8).
The MLM SDF was based on the five principles of the National Spatial Development
Perspective (RSA, 2006). These principles addressed rapid economic growth;
government’s constitutional obligation to provide water and energy services, as well as
health and educational facilities; the notion that government should focus its spending
on fixed investment in localities of economic growth and/or localities with economic
potential to create long-term employment and also to stimulate sustainable economic
growth; efforts to address social inequalities that should focus on people rather than
places; and the development of activity corridors and nodes close to the main growth
centres in order to overcome the inherited spatial segregation (RSA, 2006). A service
provider was appointed to review the 2011−2030 SDF, and CoGTA will monitor the
reviewed 2017 SDF for compliance with SPLUMA. The following issues will be
addressed in the review:
Issues to be addressed in a capital investment framework will be the following:
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• Nodal development will be concentrated on the Eastern Corridor between
Mbombela and White River, allowing the residents close proximity to employment
(Interviewee 3).
• Demographic projections from 2011 onwards (Interviewee 8).
• A cargo section at the Kruger Mpumalanga International Airport (Interviewee 3).
To inform planning initiatives, the 2011−2030 SDF will be aligned with the following
development principles of the Mpumalanga Provincial Growth and Development
Strategy of 2009:
• Using indigenous resources to create jobs.
• Supporting the industrial and service sectors to create jobs.
• Reducing the impact of poverty through social services.
• Enhancing social cohesion and developing human capital.
• Strengthening sustainable environmental development.
• Maximising the provincial benefits from the mining and energy sectors.
• Governance and spatial integration.
The Mpumalanga Integrated Spatial Development Framework (Mpumalanga, 2007)
was consulted to guide the 2011−2030 SDF. As a result, the N4 Maputo Corridor was
identified as one of the key objectives to stimulate regional cooperation and economic
development by reviving this trade and tourism route. The N4 road which passed
through Mbombela was realigned about five years ago and a bypass was built outside
of Mbombela. This had the envisaged outcome of discouraging large freight vehicles
to pass through the city (Interviewee 5). The spatial development frameworks of
adjoining municipalities (Figure 2) were investigated to promote horizontal alignment
between municipalities (Interviewee 2).
The 13 development priorities upon which the MLM agreed, include integrated human
settlements as well as good governance and public participation (MLM, 2016/2017),
which are in line with the 2011−2030 SDF principles (MLM, 2012). The current budget
has prioritised these 13 priorities, and resources were allocated towards this (MLM,
2016/2017).
The establishment of a university was highlighted as a skills and development priority
for the growth and development of Mpumalanga (Mpumalanga, 2008). The former
Lowveld Agricultural College in Mbombela is now a university and offers programmes
which focus on qualifications such as forestry and agriculture, relevant to the Lowveld
and Mpumalanga Province (Interviewee 5). The investment in strategic infrastructure
such as roads, water and sanitation was also determined as a key theme
(Mpumalanga, 2008) and Table 5 shows improvement in this regard. The Draft
Mpumalanga Growth and Development Path (Mpumalanga, 2011) advocated for a
more equitable economy. This document relied on the Mining Charter’s rural enterprise
development and objectives regarding procurement to contribute towards
transformation.
Mbombela | Page 16
5. AN OVERVIEW OF THE SPATIAL DEVELOPMENT FRAMEWORK
A thorough public participation process (Error! Reference source not found.) was
followed during the 2012 review of the 2007 SDF (Figure 8), but the public participation
sessions were not attended well (Interviewee 2). The public participation process is in
line with the Stakeholder Participation Policy for MLM which was prepared according
to the Municipal Systems Act, Act 32 of 2000. The project steering committee included
the Lowveld Chamber of Business and Tourism (Interviewee 6), the nine traditional
authorities, and the municipal engineers (Interviewee 2). The implementation phase of
the 2011−2030 SDF incorporated a Capital Expenditure Framework with projects,
timeframes and implementation agencies.
Source: MLM (2015)
Figure 7: The public participation process of the 2012 Spatial Development Framework review
Mbombela | Page 17
Source: MLM (2012)
Figure 8: Spatial Development Framework for Mbombela Local Municipality (2007)
The following priorities were listed in the 2007 SDF:
• Nodal development.
• Integration of development nodes.
• Urban and rural regeneration.
• To link urban and rural development with social and engineering services.
• Environmental sustainability.
For the 2011−2030 SDF, the principles set out in the Development Facilitation Act were
adopted, namely efficiency, sustainability, equality, integration, as well as fair and good
governance. Strategic frameworks were developed for the following focus areas which
required further detailed planning:
• Rural service centres.
• Urban centres.
• Traditional authority areas.
The following key objectives have been set in the 2011−2030 SDF:
• Compiling a framework for private and public sector investment.
• Promoting sustainable development in the built environment.
• The compilation of a framework on natural resource management and land use
management.
Mbombela | Page 18
• To guide major movement routes.
• To facilitate the development of an aesthetic urban form.
One of the major challenges in achieving the above objectives is that in the
development process of the municipal SDF the municipality should consult with the
traditional authorities and afford them opportunity to provide feedback on those
proposals which will affect their land.
An implementation plan with basic guidelines for a land use management system was
proposed, while a monitoring framework was implemented to measure interventions
(MLM, 2016). MLM (2016/2017) identified the following seven spatial strategies which
are in line with the 2011−2030 SDF:
5.1 Introducing a municipal open space system
The residents use the open space and green areas for exercise, recreation, and
cultural and religious activities. Conservation-worthy natural resources and assets
within MLM were therefore identified (Figure 9) to determine where only limited
development would be permitted and where development would be discouraged.
Source: MLM (2012)
Figure 9: Strategy for a municipal open space system
5.2 The protection of prime and unique agricultural land
The constant demand for land for residential and industrial development is an ongoing
threat to economic development and national food security, which depend on the
Mbombela | Page 19
availability of prime agricultural land. Through a strategy for the protection of fertile
agricultural land, MLM tries to ensure that development does not compromise food
security or encroach on prime agricultural land within the municipality (MLM,
2016/2017). There is currently a boom in the demand for nuts, particularly macadamia
nuts, which are predominantly exported to China. There are about 100 000 ha of
macadamia orchards in MLM and the profit per hectare is between R20 000 and
R1 000 000 (Interviewee 2).
Balancing agricultural needs and the need for land for residential development
(Interviewee 9) still poses a challenge. The gradient in the area is also problematic and
much land is not developable because of the mountainous nature of the area
(Interviewee 9). To protect prime agricultural land with high yields, the Department of
Agriculture, Forestry and Fisheries refuse to approve development application outside
the Urban Edge (Interviewee 8). Urban sprawl is rife in Nsikazi where the areas under
traditional authorities are situated, but on the contrary, the retirement villages such a
Bateleur Estate are located within the urban edge although on the outskirts of
Mbombela (Interviewee 4). Areas reserved for new development, mainly for residential
purposes, are near the old Nelspruit airport and adjacent to the Bateleur Estate. The
question is: How much agricultural land can be compromised for residential
development? A trade-off between two pieces of land can be a solution (Interviewee 3).
5.3 Identification of focus areas for land reform
MLM states in its 2011−2030 SDF that they are obliged to identify areas for land reform.
According to the 2011−2016 IDP the Department of Rural Development and Land
Reform should work closely with the MLM to prepare an area-based plan to incorporate
land reform projects into its IDP and SDF.
5.4 The development of rural-based tourism
Local tourism is one of the aspects which influences spatial planning, and according
to the Municipal Structures Act of 1998, the local authority has to promote local tourism.
Completed projects which focussed on tourism in MLM are the Mbombela Soccer
Stadium, the construction of the N4 Northern Bypass and the expansion of the Kruger
Mpumalanga International Airport (MLM, 2012). Key objectives of the Maputo Corridor
were to revive tourism between South Africa and Mozambique and to direct investment
to localities of economic growth. Hopefully this will provide an integrated development
system to eradicate the dysfunctional spatial structure that was created by past spatial
policies.
The Kruger National Park, which is one of the top ten tourist attractions in South Africa,
attracts vast numbers of national and international tourists to MLM (Interviewee 1). To
strengthen rural-based tourism, the 2011−2030 SDF proposes that attractions such as
the Kruger National Park should be included in the broader Mpumalanga Tourism
Growth Strategy.
Mbombela | Page 20
The strategic objectives of the Kruger National Park conservation zone aim to improve
access to the Kruger National Park, to exploit the tourism potential provided by the
existing Kruger National Park entrance gates, and that the use of land in this zone
should be in support of and complimentary to the Kruger National Park (MLM, 2012).
5.5 The development of an integrated transport system
To ensure that all residents have convenient and affordable access to the MLM
resources and amenities, an integrated transport system was developed to increase
mobility, particularly between the eastern and western areas of the MLM, while also
promoting spatial reconstruction and integration. This system is aligned with the
Mbombela Integrated Transport Plan and Land Use Transportation Strategy (MLM,
2016/2017). The integrated transport system will focus on a taxi feeder system, a
commuter rail system, interventions on regional roads, as well as a Bus Rapid Transit
system.
5.6 To promote compact and integrated development
The Central Business District (CBD) of Mbombela is busy and vibrant with many
businesses which rely on large volumes of pedestrians. Offices of the National
Government Departments are also located in the CBD (Interviewee 5). A new High
Court was built in the precinct. The regional offices of, for example, Absa, Price
Waterhouse Coopers and First National Bank are located in the extended CBD. Single
residential houses were rezoned in this area (Figure 10) to accommodate the offices
of the above-mentioned companies (Interviewee 5).
White River, which is a 30-minute commute from the Mbombela CBD, serves as a
housing node (Figure 4). H.L. Hall and Sons (an agricultural pioneer of the Lowveld)
developed the Riverside Precinct, which is a compact and integrated live/play/work
node (Interviewee 5). This infill planning addresses the lengthy commutes
(Interviewee 7). The second phase consisted of a motor town, which was followed by
industrial developments. Thereafter the award-winning structure housing the
Mpumalanga Legislature were constructed, followed by the Riverside Mall. These
developments also resulted in White River and Mbombela growing closer towards each
other.
Mbombela | Page 21
Source: Author (2017)
Figure 10: Former residential area rezoned to accommodate offices
The 2011−2030 SDF encourages MLM to pursue compact development and to protect
environmentally sensitive land. The higher densities of a more compact MLM will
provide higher thresholds which will result in a viable public transport system. The 2007
SDF indicated that most people from the Nsikazi area had daily commutes of up to two
hours and it therefore suggested that jobs should be created close to where these
people were living or low-cost housing should be built close to places of employment.
Shorter travelling distances would also ensure healthier lifestyles as more facilities and
opportunities would be accessible by foot, bicycle or public transport. The 2011−2030
SDF argues for compact settlements which can be achieved through strategic infill
planning. To achieve the desired spatial pattern, an urban edge is proposed to achieve
a settlement pattern that is largely based on walking distance.
5.7 Addressing development in economic opportunity zones
This MLM strategy encourages all formal and informal economic activity to be located
within the identified accessible economic opportunity zones, where MLM will focus
investment in public infrastructure to attract the private sector (2011−2030 SDF).
These economic opportunity zones should therefore be considered as the logical
investment locations because of their concentration of people, accessibility and that
they are serviced by public transport. All seven spatial strategies are indicated in Figure
11.
Mbombela | Page 22
Source: MLM (2012)
Figure 11: 2011−2030 Spatial Development Framework for Mombela Local Municipality
6. ASSESSMENT OF THE SPATIAL DEVELOPMENT FRAMEWORK
6.1 Organisational structure
The Department of City Planning and Development which coordinates integrated
development planning is headed by a general manager and seven senior managers.
The seven divisions of this department as set out in the organisational structure in
Figure 12 are: land-use management; local economic development; rural planning,
traditional affairs and agriculture; human settlements; tourism, business regulations
and governance; spatial development planning; and real estate management.
The spatial planning division as well as the land-use management division are
capacitated by five geographic information systems each (Interviewee 8). Esri, an
international supplier of geographic information system software, web geographic
information systems and geodatabase management applications, update the MLM
software regularly (Interviewee 8).
Mbombela | Page 23
Source: MLM (2015)
Figure 12: Organogram of the City Planning and Development Department of Mbombela Local Municipality
6.2 The quality of the planning process
To address the needs and priorities of the MLM community, the 2011−2030 SDF was
prepared in concurrence with the municipal strategies, as included in the IDP. Umsebe
Development Planners was appointed to develop the SDF to which the municipal
engineers contributed significantly (Interviewee 2). A municipal team consisting of the
following representatives managed the project:
• Member of the mayoral committee for city planning and development services.
• Technical services.
• Local economic development.
• Tourism and trade.
• Community services.
• Urban and rural management.
• Corporate strategy.
• Office of the executive mayor.
The 2011−2030 SDF was aligned between the local municipalities within the Ehlanzeni
District Municipality. The development frameworks of adjoining municipalities (Figure
2) were consulted to promote horizontal alignment between municipalities (Interviewee
2). A vertical alignment was created between the district and the MLM SDF. There was
no provincial SDF available at the time, but the district SDF was available and
consulted to ensure vertical alignment (Interviewee 2).
Mbombela | Page 24
The Implementation Policies and Guidelines of the Implementation Plan of the
2011−2030 SDF include a residential densification policy; an infrastructure policy and
a sustainability policy. The 82 Strategic Framework Plans also indicate these
guidelines graphically. Proposals were submitted for mixed use developments in the
Mataffin Precinct. These proposals included bulk supply of services to address and
achieve integration, sustainability, as well as equity.
6.3 The quality of the plan
Although MLM received unqualified audit reports in the 2014/2015 financial year, the
Auditor-General has raised certain issues that needed to be addressed (Auditor-
General, 2015). To achieve a clean audit, MLM developed an intervention plan to
address the matters raised by the Auditor-General in 2014/2015 which was included
in their final IDP (MLM, 2016/2017).
The impact of these interventions was monitored to determine the influence on job
creation, the increase or decrease in applications for new businesses, the increase or
decrease in infrastructure upgrading (number of projects completed), and the increase
or decrease in the numbers of national and international tourists visiting MLM. The
large increase in approved building plans from 328 in 2011 to 828 in 2015 is proof of
the positive impact of the intervention plan.
6.4 Degree of implementation
The 2011−2030 SDF have been implemented in 2012. All approval of land use
applications were in line with the SDF and those applications which did not conform,
were referred to the Municipal Tribunal (Interviewee 2). In addition, the SDF served as
a framework for other detailed plans such as the structure plan for Nelspruit
(2011−2030 SDF).
The MLM does not allow any project to commence without the necessary inputs first
being received from the House of Traditional Leaders. Projects are suspended until
receipt of the inputs from the traditional authorities (Interviewee 2). There is prevailing
tension between the traditional authorities and the local municipality due to the
traditional authorities’ resistance to being placed under the jurisdiction of the local
municipality (Interviewee 4). This poses challenges to a local municipality such as MLM
where there are approximately 60 traditional leaders.
The infrastructure departments base their master plans on the current SDF
(Interviewee 8). A lack of bulk services poses a challenge to MLM (Interviewee 3),
heightened by residents’ demands for better services in areas such as Matsulu, which
is an area under traditional authority (Interviewees 11 and 12).
The impact of interventions is monitored to determine the influence on job creation,
applications for new businesses, infrastructure upgrading (number of projects
completed), and the increase or decrease in the numbers of national and international
tourists visiting MLM.
Mbombela | Page 25
6.5 Spatial challenges
The following seems to be the most prominent spatial challenges confronting MLM:
• Low residential densities resulting in low thresholds, which poses a challenge to
the public transport system.
• Long travelling times from the areas under traditional authorities to places of
opportunities and particularly jobs.
• The region is mountainous and therefore not all areas are suitable to infill
development, and although it is possible to develop on some of the steep slopes,
the engineering services for such developments are costly.
• In order to achieve its constitutional mandate, the local municipality and the
traditional authorities have to accept one another’s edicts to provide services and
to manage these communities.
• The vast majority, about 500 000 of the population, live in areas under traditional
authority on land which is not surveyed.
• About 47 000 households in the rural areas have no communication coverage and
are therefore unable to alert anyone during disasters.
The underlying causes of these challenges are the inherited spatial segregation of the
former KaNgwane homeland, the prevailing tension between the traditional authorities
and the local municipality due to the traditional authorities’ resistance to being placed
under the jurisdiction of the local municipality, and scarcity of land for residential
development.
7. SPATIAL TRANSFORMATION IMPLEMENTATION
The issue of land availability for residential development imposes constraints to
development and ultimately to transformation. A common dilemma for low income
housing worldwide is the high cost of well-located land. In MLM well-located land is
also costly and therefore unaffordable to lower income families. Land suitable for
residential development is also limited as a result of the topography in MLM. The
mountainous areas are not suitable to development and although it is possible to
develop on some of the steep slopes, the engineering services for such developments
are costly.
The areas under traditional authority are notably poorly serviced which is a constraint
to development and investments in those areas. The road infrastructure is generally
weak in these areas, along with a general lack of sanitation. Water scarcity is a general
cause for concern in MLM (2011−2030 SDF) with commercial agriculture, specifically
sugar cane and subtropical fruit, hydropower stations and mining consuming large
quantities of water.
Mbombela | Page 26
8. GENERAL CONCLUSIONS
Although traditional authorities manage and govern their area of jurisdiction
successfully, local governments should fulfil their constitutional mandate of
implementing SDFs in areas under the rule of traditional authorities. To achieve this
constitutional mandate, the Umsebe (2016) study recommended that local
municipalities and the traditional authorities accept one another’s mandates to manage
and service these communities. The Umsebe study further recommended that local
municipalities should enter into a service level agreement with each traditional
authority within its area of jurisdiction to ensure the delivery of municipal services.
In the development process of the municipal SDF the municipalities should adequately
consult with the traditional authorities and afford them sufficient opportunity to provide
feedback on those proposals which will affect their land. Local municipalities must also
ensure that traditional authorities are included upon commencement of implementation
of the municipal SDF directives. Traditional authorities should regard the municipal
SDF as a key land development policy document towards guiding their own decision-
making processes on land use issues concerning land under their authority. Umsebe
(2016) further recommended that traditional authorities require training in the
application of the municipal SDF.
Mbombela | Page 27
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