experiences & lessons learnt on land use: …...experiences & lessons learnt on land use: a...
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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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TR
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ES
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: [email protected]
Website: www.kzncogta.gov.za