housing leadership forum - sa cities · nelson mandela 2.6 no specific reference to backyarders...
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Informal Settlement Upgrading and Informal Settlement Upgrading and
Backyard ShacksBackyard Shacks
Housing Leadership Forum
Steve Topham, NUSP Technical Team, 9 February 2011
South Africa: Urbanisation 1960South Africa: Urbanisation 1960--20002000
• 2004: Breaking New Ground –
new comprehensive plan for
sustainable human settlements:
― New instrument - Upgrading
Informal Settlements
Programme – for incremental in-
situ upgrading
― UISP set out in Part 3 National
Housing Code
• BUT widely interpreted as target
to eradicate all informal
settlements by 2014
Breaking New Ground 2004Breaking New Ground 2004
N2 Gateway rental units
Blikkiesdorp Removal Area
1.5 m
16% of total
9.7m h/hs
1994
Backlog:
Number of
households
2.3 m
1994-2010
Subsidised
housing units
produced
2.1 m
17% of total
12.5m h/hs
2010
Backlog:
Number of
households
Great achievements… but running to stand still?Great achievements… but running to stand still?
2 700
300
1994 2010
Informal Settlements in
South Africa
4.5
persons
3.9
persons
Total:
9.7m h/hs
Total:
12.5m h/hs
1996 2007
Average household size
Household formation & informal settlement growthHousehold formation & informal settlement growth
2 700
300
1994 2010
Informal Settlements in
South Africa
4.5
persons
3.9
persons
Total:
9.7m h/hs
Total:
12.5m h/hs
1996 2007
Average household size
Household formation & informal settlement growthHousehold formation & informal settlement growth
4.7%4.1%
2001 2007
Backyard Shacks
Backyard shack statisticsBackyard shack statistics
Census 2001;
Community Survey 2007
• 2007 estimated 421 000 rented
shacks, of which:
• 282 000 are in backyards
• 139 000 are in informal
settlements
• But could be over 500 000
• So a highly successful segment
of national housing supply – but
complex, relationship based,
livelihoods and income source
.
Backyard Shack RentalsBackyard Shack Rentals
Income & Expenditure Survey 2006, in SHIFT Shack Rentals in SA, 2008
Municipality <R 850 R850-1 500 R1 500-3 500
Ekurhuleni 46% 31% 12%
Joburg 41% 30% 11%
Tshwane 42% 35% 12%
Cape Town 55% 35% 15%
Ethekwini 16% 11% 1%
Amatole DM 6% -2% -5%
Motheo DM 19% 8% -4%
Nelson Mandela 16% 10% 0.4%
Umgungundlovu DM 23% 8% -4%
Projected growth in households renting 2005Projected growth in households renting 2005--20122012
SHIFT Shack Rentals in SA, 2008
NB Highest rental demand in low-income bands in Gauteng
plus Cape Town, translates to more growth in backyard rentals
Backyard Shacks and 2010Backyard Shacks and 2010--11 IDP Reviews11 IDP Reviews
Municipality %Total H/holds
in Backyard
Shacks (2007)
2010-11 IDP stated interventions on backyard
shacks
Ekurhuleni 9.1 Formalisation of backyard shacks by 2015
Joburg 8.4 • Develop comprehensive backyard shack
strategy
• Housing allocation policy must include
backyarders
Tshwane 7.1 No specific reference to backyarders
Cape Town 6.2 • Housing Allocation Policy provides for
backyarders on housing database to be allocated
housing opportunities
• Provide second service connections
Ethekwini * 4.5 No specific reference to backyarders
* Ethekwini 2009/10 IDP review
Municipality %Total H/holds in
Backyard Shacks
IDP references to backyard shacks
Buffalo City 4.1 Establish housing needs database,
including backyarders
Mangaung 3.1 No specific reference to backyarders
Nelson Mandela 2.6 No specific reference to backyarders
Msunduzi 0.4 No specific reference to backyarders
Backyard Shacks and 2010Backyard Shacks and 2010--11 IDP Reviews11 IDP Reviews
• General picture is of response via Housing Database
and new unit provision
• Understanding of importance of rental livelihoods and
supporting small-scale landlords less well developed.
• ‘Upgrade and formalise informal backyard rental’
• Subsidised unit (two rooms, wet core, R25K) plus formal
landlord-tenant contracts
• Rollout 2 000 + units including Orlando, Alex, Mamelodi,
• Rents raised, poorer tenants displaced
• Number of rental units reduced (another reason why rents
increased)
• Contracts largely remained verbal
• Conclusion – programme didn’t recognise complex and
sensitive relationships and nature of market
One response One response –– Gauteng Backyard Rental Gauteng Backyard Rental
Programme Programme
Informal settlementsInformal settlements
• Poor GDP growth (<6%) not keeping
pace with population growth
• Poverty – still 40% real unemployment
• Decrease in revenue collection by
SARS – down by R65bn in FY09/10 –
pressure on dept budgets
• For DHS this means fewer home-
building projects (Minister’s speech,
17 Sep 09)
• Increasing number and frequency of
community protests –slow rate of
delivery, lack of ‘voice’, xenophobia
Current context and impacts Current context and impacts
• 1.1 million households in informal
settlements 2008 estimate (growing at 2-
6% pa across different councils)
• Full RDP package (40m2 top structure,
250m2 stand plus 30% for roads and
amenities) would need:
– 35 750 ha, plus bulk and connector
infrastructure
– R84bn - 70% of projected national housing
budget 09-15
• Current rate of UISP spend means would
take to 2037 to meet 2014 target
Informal settlements ‘eradicated’ by 2014?Informal settlements ‘eradicated’ by 2014?
National Upgrading Support ProgrammeNational Upgrading Support Programme
There are examples of good practice, but …
• Little awareness and use of UISP and Part 3 NHC at sub-national level
• Sectoral coordination is weak
• Implementation - ‘eradicate’ rather than ‘upgrade’, emphasis on top structures and full services
• No real information on communities, & how upgrading can strengthen livelihood strategies
• Little community-based participation
• Layouts are monotonous, low density & usually located at urban peripheries
• Service levels often inappropriate, entail high future costs to municipalities
NUSP Assessment FindingsNUSP Assessment Findings
• Services: emergency; basic; full service level –taking account of sustainability, operations and maintenance costs to municipality
• Tenure: recognition of informal settlement; interim tenure; rental; leasehold; freehold
• Social & Community Facilities: co-location in settlement or easy access for public
• Human-centred & environmentally sustainable planning layout – safe, good quality neighbourhoods, upgradeable, maximum use of renewable resources
• Community-based participation processes
• Crowd in support programmes (eg skills, business support, health & hygiene education)
Incremental Upgrade PackageIncremental Upgrade Package
National Delivery AgreementNational Delivery Agreement
• Performance Agreement between President &
National Minister May 2010 – April 2014
• Delivery agreement (operation of Performance
Agreement) accepted by PCC May 2010, and
approved by MINMEC
― 400 000 households in well-located informal
settlements to receive basic services and secure
tenure by 2014
― Provide 6 250 ha of public land for low-income
housing
― Accreditation of 6 metro and 21 large town councils
― Establish NUSP and publish upgrading Resource Kit
― Provide 80 000 public & private rental units
― Facilitate provision of 600 000 gap market units
Delivery AgreementDelivery Agreement
Upgrade 400 000 households: provincial targets Upgrade 400 000 households: provincial targets
ProvinceInformal Settlement Households
Share of National TargetEstimated Cost: R000
Eastern Cape 59 400 1 813 546
Free State 26 400 806 021
Gauteng 96 800 2 955 409
KwaZulu-Natal 76 200 2 326 468
Limpopo 31 200 952 570
Mpumalanga 26 480 808 463
Northern Cape 9 320 285 466
North West 28 840 880 516
Western Cape 45 360 1 384 890
Total 400 000 12 213 349
Budget to be secured from National Human Settlement Grant
allocation provided from NDHS to provinces
• Promote incremental upgrading as a major complementary housing programme, in line with Part 3 NHC (where possible, in-situ)
• Support Delivery Agreement target to improve basic infrastructure, services and land tenure for 400 000 informal settlement households by 2014
• Improve programmatic approach to upgrading, strengthening coordination with other sectors and partners
• Strengthen capacity of government and professional practitioners to implement community-based incremental upgrading
National Upgrading Support Programme: objectives National Upgrading Support Programme: objectives
• Upgrading
Forum
• Partnerships
(eg DCOG,
DBSA,
NDPG, ULM,
2E Project
• Promoting
Part 3 NHC
• Monitoring &
Evaluation
• Resource
Kit
• Research
• Information
circulation
• Targeted TA
at sub-
national
level
• Guidance
to prof &
technical
teams
• Implementation of good practice
• Programme roll-out at scale towards objective targets
National Upgrading Support Programme Unit
Policy
RefinementNetwork &
Forum
Guidance &
Tools
Technical
Assistance
NUSP elementsNUSP elements
• NUSP roll-out programme to 49 municipalities (across all
provinces, about 75% of all informal settlement
households) by March 2011
• Under construction www.upgradingsupport.org
• NUSP Resource Kit and Capacity Building Programme
being developed
• Political buy-in secured through National Deputy Minister
as champion, MECs signed Delivery Agreements
November 2010
• Provinces submitting project plans against Delivery
Agreement targets, looking to set up NUSP structures
NUSP and Delivery Agreement progress NUSP and Delivery Agreement progress
• Discussions with 15 agencies and partners about their
role in NUSP – including HDA, NURCHA, NDPG
• Alignment with Accreditation process – include other
municipalities in NUSP, use of NUSP to identify
potential accreditation candidates
• Discussions with community structures, NGOs and
CBOs on participation
• Inclusion of NUSP within Delivery Agreement
Programme Management Unit
• Technical challenges of next stage – project
identification (provincial and municipal), project-level
SHS transformation plans, technical assistance at scale
NUSP and Delivery Agreement progress NUSP and Delivery Agreement progress
Resources to support implementation Resources to support implementation –– subject to subject to
national budget processesnational budget processes
Major commitments by NDHS and National Treasury:
• Re-directing Human Settlement Development Grant
provincial allocations towards Delivery Agreement priorities
• Informal settlement upgrading including within National
Priority Programmes (Minister’s 20% reservation in HSDG)
• Creation of new Urban Settlements Development Grant (MIG
Cities replaced, plus contribution from HSDG)
• Allocation for NUSP from NDHS operations budget
Thank YouThank You