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Table of Contents
1) Introduction ....................................................................................................................................................... 5
a) Values and Principles .................................................................................................................................. 5
b) Method ......................................................................................................................................................... 6
2)Strategic Analysis .............................................................................................................................................. 6
a) Environment and landscape resources........................................................................................................... 6
i) Land Unit Analysis....................................................................................................................................... 7
ii) Material Flow Analysis ................................................................................................................................ 8
iii) Landscape Character Analysis ................................................................................................................ 10
b) Economy Analysis ........................................................................................................................................ 16
i) Economic Growth and Development ...................................................................................................... 16
ii) Primary Sector ....................................................................................................................................... 16
iii) Secondary Sector .................................................................................................................................. 17
iv) Tertiary Sector ...................................................................................................................................... 17
v) Informal Sector ...................................................................................................................................... 18
c) Settlement & Services Analysis .................................................................................................................... 18
i) Population Trends ................................................................................................................................... 26
ii) Densities ................................................................................................................................................ 27
iii) Urban Settlements ................................................................................................................................ 27
iv) Existing infrastructure and public services ............................................................................................ 30
v) Health .................................................................................................................................................... 31
vi) Education and Skills.............................................................................................................................. 31
3) Government and Institutional Context .......................................................................................................... 36
4) Constraints and Opportunities for Development ......................................................................................... 36
a) Constraints ................................................................................................................................................... 36
b) Opportunities ................................................................................................................................................ 39
5) Top Key Issues ................................................................................................................................................ 39
6) Vision ............................................................................................................................................................... 39
7) Programme ...................................................................................................................................................... 41
8) Theoretical Informants ................................................................................................................................... 43
9) Spatial Development Framework................................................................................................................... 43
a) Landscape and Natural Resource Framework ............................................................................................. 44
b) Economic Development Framework ............................................................................................................. 48
c) Settlement & Services Framework ................................................................................................................ 51
d) Regional Development Framework .............................................................................................................. 53
10) Implementation ............................................................................................................................................. 58
a) Overall Phasing ............................................................................................................................................ 58
b) Key Project Implementation .......................................................................................................................... 59
11) Conclusion .................................................................................................................................................... 61
12) References..................................................................................................................................................... 68

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List of Figures

1) Method………………………………………………………………………………………………………………………6
2) Swartland Municipality Risk Prioritization Table………………………………………………………………………..7
3) Swartland Municipality Residential Water Service Levels (Consumer Units)……………………………………….8
4) Swartland Land Unit Analysis Map………………………………………………………………………………………9
5) Swartland Municipality Agricultural Cultivation and Geological Formations Map…………………………………11
6) Material Flow Analysis Sankey Diagram. Swartland Municipality 2016/17 Water Consumption………………..12
7) Dutch Reformed Church, Malmesbury…………………………………………………………………………………12
8) Darling Spring Flowers Show…………………………………………………………………………………………...12
10) Swartland District Municipality Heritage Map………………………………………………………………………..13
11) Swartland Municipality Homogenous Character Landscape unit Descriptions……………………………….….14
12) Swartland Municipality Homogenous Landscape Units Map………………………………………………………15
13) Swartland Municipality GPDR Performance per sector 2015-16………………………………………………….19
14) GDPR Contribution per main sector 2016 in West Coast…………………………………………………………..19
15) Locational Quotient Interpretation and Locational Quotient in terms of GDPR and employment, West Coast
District 2016………………………………………………………………………………………………………………….20
16) Swartland Municipality Agricultural Households by type of Activity……………………………………………….20
17) West Coast District Winter Crops, Hectares under Production 2017……………………………………………..21
18) Swartland Municipality Skills Level 2016…………………………………………………………………………..…21
19) Swartland Municipality formal employment skill level contribution, average growth and number of jobs……..21
20) Percentage of households per income bracket in the West Coast District 2017 (%)……………………………22
21) Swartland Municipality Employment Growth Per Sector 2005-2016…………………….………………………..22
22) Swartland Municipality Primary Sector Map…………………………………………………………………………23
23) Swartland Municipality Secondary Sector Map……………………………………………………………………...24
24) Swartland Municipality Tertiary Sector Map………………………………………………………………………….25
25) Population growth rate of local district municipalities within West Coast District Municipality………………….26
26) Swartland Municipality Historical Population Trends………………………………………………………………..26
27) Population distribution in Swartland Municipality……………………………………………………………………27
28) Swartland Municipality Density………………………………………………………………………………………..27
29) Population and Household Projections for Swartland Municipality………………………………………………..28
30) Swartland Waiting List 2014…………………………………………………………………………………………...28
31) Swartland Municipality informal dwelling density, 2015…………………………………………………………….29
32) Swartland Municipality Informal Settlement Distance to Socio Economic Amenities……………………………31
33) Summary of Swartland Municipality Service Infrastructure………………………………………………………...32
34) Swartland Municipality ward delimitations……………………………………………………………………………32
35) Swartland Municipality Settlement and Services Map………………………………………………………………33
36) Swartland Municipality Child Health…………………………………………………………………………………..34
37) Swartland Municipality Learner Enrollment…………………………………………………………………………..34
38) Swartland Municipality No Fee Schools……………………………………………………………………………...34

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39) Swartland Municipality Constraints map……………………………………………………………………………..37

40) Swartland Municipality Opportunities
map………………………………………………………………………………………………………………...…………40
41) Swartland Municipality Population Projection………………………………………………………………………..42
42) Swartland Municipality Service Facility Projections 2050…………………………………………………………..42
43) Landscape and Natural Resources Framework Strategy…………………………………………………………..46
44) Landscape and Natural Resources Framework Map……………………………………………………………….47
45) Economic Development Framework Strategy……………………………………………………………………….49
46) Economic Development Framework Map……………………………………………………………………………51
47) Settlement and Services Development Framework Strategy………………………………………………………53
48) Settlement and Services Framework Map…………………………………………………………………………...55
49) Comprehensive Spatial Development Framework Conceptual Map……………………………………………...56
50) Comprehensive Spatial Development Framework Map…………………………………………………………….57
51) Overall Phasing…………………………………………………………………………………………………………58
52) Implementation Map……………………………………………………………………………………………………63
53) Implementation Table…………………………………………………………………………………………………..64

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1) INTRODUCTION

Located in the northern hinterlands of the City of Cape Town and south of the West
Coast District within the Western Cape, Swartland Municipality has prominent cultural,
economic, and social significance. Guided primarily by values and principles influenced by
Spatial Planning and Land Use Management Act and Sustainable Development Goals, this
spatial development framework analyzes the natural resources and land management layer,
economic development layer, and settlement and services layer to create appropriate proposals
and implementation strategy.

a) Values and Principles

1) The value of Spatial Equity encompasses SPLUMA principles of spatial justice and
spatial sustainability, along with SDG principles of no poverty, zero hunger, good health and
well-being, quality education, gender equality, clean water and sanitation (Hoole R 2016 ; United
Nations 2019). Spatial equity is defined as service access to basic needs, influenced by factors
of size, shape, spatial structure, political influence, and residential choice over facility siting
(Stanley et al 2015: 121).

a) Principle: Equitable access to social and physical infrastructure.

b) Principle: Reduction of distance between jobs and housing.
c) Principle: Access to adequate housing.

2) The value of Environmental Awareness and Integrity encompasses SPLUMA

principles of spatial resilience and SDG principles of climate action, sustainable cities and
communities, responsible consumption and production, life below water, and life on land (Hoole
2016; United Nations 2019). This value is essential due to the increasing frequency of natural
disasters as a consequence of city consumption patterns that produce greenhouse gases which
intensify climate change (United Nations 2019).

a) Principle: Protection of most vulnerable from environmental threats.

b) Principle: Promotion of compact and dense settlements.
c) Principle: Protection of environmentally sensitive habitats and natural heritage.

3) The value of Self-Determination is influenced by SDG principles of decent work and

economic growth, reduced inequalities, innovation and improved infrastructure (United Nations
2019). This value is defined as household capacity to create and invest income for its own
members (Friedmann 1979).

a) Principle: Increase access of knowledge, skill and social network distribution for
population.
b) Principle: Increase access of financial resources and assets for population.

4) The value of Efficient and Collaborative Governance is influenced by SDG principles of

peace, justice, strong institutions, and partnerships. Relevant SPLUMA principles include good

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administration and efficiency (Hoole 2016; United Nations 2019). The principles that define this
value are listed as:

a) Principle: Empowerment of community through popular participation.

b) Principle: Appropriate budgeting and implementation.
c) Principle: Promotion of partnerships.

b) Method

The method is primarily informed by the values and principles, in which aims to produce
a ‘golden thread’ tying the entire SDF together (see Figure 1).

Figure 1: Method

Source: Author's own

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2) STRATEGIC ANALYSIS

This section examines the sectoral analysis of the environment and landscape
resources, settlement and services, and economy.

a) Environment and landscape resources

This section analyses the environment and landscape resources of the municipality
through the three methods of land unit analysis, material flow analysis, and landscape
character analysis. These three methods aim to provide a holistic understanding of the
region.

i) Land Unit Analysis

A Land Unit Analysis examines interactions of climate, topography, vegetation, and

associated resources and hazards with a landscape to determine suitability for a variety of
land uses (Gasson 2007).

Climate change causes high risks of veldfire occurrence, sea level rise,
degraded/eroded land, and drought. Veldfire, particularly, is concerning since it is near
vulnerable informal settlements of Darling, Riebeek Casteel and Riebeek West (see figure 2)
(Cape Farm Mapper 2019; Western Cape Government 2014).

Figure 2: Swartland Risk Prioritization Table

Source: Africon 2006

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Figure 3: Swartland Residential Water Service Levels (Consumer Units)

Source: Swartland Municipality 2017

Key patterns include a high correlation between high slopes, protected areas, and
intact ecosystems, but with high fire risk. Meanwhile, High sea level rise risk coincides with
conservation areas of CBAs, protected areas, and ESAs on the coast as well (See Figure 4).
There is also poor groundwater quality in the north, likely due to the poor sewage system
and fertilizers and pesticides from intensive farming (see figure 4) (Duffell-Canham, A.
(2017) Leaner, J. et al. (2012). Rumboll, CK & Partners, 2019.)

ii) Material Flow Analysis

Inspired by the Law of Thermodynamics, material flow analysis (MFA) examines

energy sources, inputs, and outputs to a closed system. It is used to promote closed-looped
regional metabolisms to “reduce resource consumption, minimize waste, and prevent
pollution in order to live within nature’s carrying capacities” (Gasson 2007: 12).

This MFA will examine water. The Water Services Audit 2016-2017 list the various
sectors of water consumption as residential, business, agriculture, other and unaccounted
for water (See figure 3). The water consumption for agriculture is low since consumers on
informal farms utilize their own water sources and possess no sanitation services,
suggesting that there is high informal farming activity (see figure 3, 7) (Swartland
Municipality 2017). Adding to the already high consumption of water from the residential
sector (see figure 7), there is an increased demand for water from this sector that is
becoming difficult to address due to capacity restraint in the current two distribution schemes
of Withoogte and Swartland water systems in the West Coast District (Swartland Municipality
2017).

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Figure 4: Swarltand Land Unit Analysis Map

Source: Author’s own after Cape Farm Mapper 2019; Rumboll & Partners 2015; Africon 2006

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iii) Landscape Character Analysis

Landscape character analysis examines the “look and feel” of landscape typology.
This is considered to establish structure and patterns of places to determine character.
(Gasson 2007).

Swartland Municipality is located within the Central area of the West Coast District.
The majority of the landscape consists of outstanding rural gently rolling hills of wheat
farming, formed by the Malmesbury Group Shales. Grape farming coincides with the Cape
Granites (see figure 5). Indeed, the region is considered the ‘bread basket’ of the region.
Settlement was developed in response to water resources, topography and movement
routes. The main historic towns of Malmesbury (see figure 4, 10) and Mooreesburg were
founded as 19th century church settlements with rich slavery and labor histories and
accompanying regional architecture (See figure 8) (Oberholzer and Winter 2013 21-22).

Through examination of these geological formations, topography, agriculture, history,

and landscapes, Swartland can be divided into homogenous landscape units. Climate is not
a considering factor due to its relative homogeneity in the municipality (Cape Farm Mapper
2019) (see Figure 11, 12).

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Figure 6: Swartland Municipality Agricultural Cultivation and Geological Formations Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Provincial Government 2013

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Figure 7: Material Flow Analysis Sankey Diagram. Swartland Municipality 2016/17 Water Consumption.

Source: Author’s own after Swartland Municipality 2017

Figure 9: Darling Spring Flowers Show

Figure 8: Dutch Reformed Church, Malmesbury

Source: Gemeentegeskiedenisargief 2019 Source: City of Cape Town 2019

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Figure 10: Swartland District Municipality Heritage Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Provincial Government 2014; Rumboll &
Partners 2015

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Figure 11: Swartland Municipality Homogenous Character Landscape Unit Descriptions

Homogenous Description
Character
Landscape Unit

Wheat Coastal This area is formed by the coastal plain geological formation, with
Plain Character major grain cultivation. A scenic route overlooks this rural agricultural
landscape, departing from Darling nestled at the foot of mountainous
slopes towards the coastal town of Yzerfontein.

Spring Flowers This area possesses the quaint historic town church settlement
Character Darling which boasts a spectacular wildflower show of 1,200 different
endemic flora species (See figure 9). Grape and wheat cultivation
occurs on this Cape Granite formation as well.

Riverine This area consists of majority grain cultivation upon the Malmesbury
Character Group Shales formation. The Berg River runs along the Swartland
District Municipality boundary.

Mountainous Small historic settlements of Riebeek West and Riebeek Casteel are
Grape Character located among a mountainous backdrop upon the Quartzic
sandstones. The area is known for extensive grape cultivation.

Coastal This area possesses an pre-colonial archeological heritage with sites

Character including cave sites, rock art, and burials.The coastal town of
Yzerfontein is found within the coastal plain formations that dominate
this area. Colonial indigenous trade occurred near Yzerfontein.

Regional Center Both an important 19th century historical settlement (See figure 10)
Character and administration/finance center of the municipality, Malmesbury is
located in this region on Cape Graintes formation. Grape cultivation
surrounds this region. The N7 also cuts across the historic towns of
Malmesbury and Abbotsdale towards Bergriver District Municipality.

Inland Wheat Mooresburg, nicknamed ‘the bread basket’ of the West Coast, is
Character indeed nestled within the largest concentration of wheat cultivation in
Swartland. This wheat cultivation coincides with the Malmesbury
Group Shales. The N7 cuts through the Mooresburg towards Bergriver
Municipality.
Source: Author’s own after Cape Farm Mapper 2019; Western Cape Provincial Government 2014; City of Cape
Town 2019; Winter S and Oberholzer B 2013

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Figure 12: Swartland Municipality Homogenous Landscape Units Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Provincial Government 2014; City of Cape Town 2019;
Winter S and Oberholzer B 2013

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B) Economic Analysis

This section examines first economic growth and development within Swartland.
Then it looks at primary, secondary, tertiary, and informal sector of Swartland, broadly
examining sector/sub-sector analysis, income, employment/unemployment, economically
marginalized groups, and growth and development.

i) Economic Growth and Development

There is potential to improve both economic growth and development in Swartland

Municipality. Economist experts expect economic growth to bring human development
improvements. Indeed from 2014 to 2016, there was an improvement in the Human
Development Index, as a result of strong GDPR growth in Swartland between 2011 and
2014. The HDI drop in 2017 is likely a delayed effect of the negative real GDPR growth (that
was a result of the primary sector decline in 2016 - covered in the next section) in total
Swartland (WCGT 2018) (See Figure 13).

ii) Primary Sector

Despite the primary sector in Swartland possessing the least sectoral contribution to
GDPR in 2016 (see figure 14), its agriculture, forestry and fishing sub-sector employs the
majority of the low-skilled workers in Swartland and also has comparative advantage within it
(Swartland Municipality 2018). The agriculture, forestry and fishing sub-sector comprises the
majority of this sectoral contribution to GDPR (see figure 13) (Swartland Municipality 2018).

Despite this job shedding trend within this subsector, it possesses a comparative
advantage in exporting products and therefore has potential to increase economic growth,
with implications for clustering with the manufacturing sector as well (Swartland Municipality
2018) (see figure 15) (see Secondary Sector Section). Although the high locational quotient
for the agricultural, forestry and fishing sub-sector provided by the Western Cape
Government Treasury is for the West Coast District as a whole, Swartland produced the
most hectares under production of winter crops in 2017 (see figure 17, 22) (Swartland
Municipality 2018). This implies that Swartland also has a comparative advantage in
exporting crops, particularly grapes and wheat within the grains, legumes and oilseeds
category. This is because Swartland is the district municipality that produces the most
hectares of each of these crops within WCD (see figure 17, 22) (Swartland Municipality
2018). Besides crops, a significant portion of agricultural households also farm livestock and
poultry (see figure 16,17).

The majority of formally employed workers within the agriculture, forestry and fishing
sub-sector is low-skilled, which characterized half of Swartland formal employment in 2016
(see figure 18) (Swartland Municipality 2018). This percentage of low-skilled formally
employed workers coincides with the pattern of low income households in Swartland, (see
figure 20) (Swartland Municipality 2018). Unfortunately, the low-skilled job growth has been
slow (see figure 19) as a result of job shedding in the agricultural, forestry, and fishing

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sector within 2014 and 2016, which targeted low-skilled jobs (WCGT 2018). This implies that
low-skilled workers in Swartland have low job security.

ii) Secondary Sector

The secondary sector in Swartland has made a significant GDPR contribution to the
district municipality in 2016 (see figure 14). Of this sectoral GPDR contribution, the
manufacturing sub-sector is the largest, followed by the construction sub-sector, and then
the electricity, gas, and water sub-sector being the smallest (see figure 14) The largest
opportunities within this sector lies in the manufacturing sub-sector and the construction
sector, as a result of the clustering potential of the manufacturing sub-sector and the high
growth rate of the construction sector in 2012 and 2014 (see figure 14) (Swartland
Municipality 2018).

In 2016, all sub-sectors within the secondary sector experienced positive growth
except the electricity, gas and water sub-sector (see figure 13). The high growth of the
construction sector between 2012 and 2014 is a result of road construction, plus high-value
residential and non-residential spaces. As for the manufacturing sub-sector, this sub-sector
increases value of products from the agriculture, forestry and fishing sub-sector (see figure
14), implying a close relationship between both sub-sectors’ growths. Indeed in 2016, both
sub-sectors experienced a slowing of growth. While information on the locational quotient of
the manufacturing-subsector is only provided for the West Coast District, the fact that
Swartland possesses the highest concentration of agricultural infrastrastructure (see figure
23) supports the WCD high locational quotient for manufacturing in terms of GDPR (see
figure 15) (Swartland Municipality 2018; WCPT 2018). As a result, there is high potential for
increased clustering within the agricultural, forestry, and fishing sub-sector to improve the
value chain.

Even though the manufacturing sub-sector made a large significant contribution to

growth in 2015 of 24.4 percent, it only contributed 11.2 percent to employment as a result of
its capital-intensive nature (Swartland Municipality 2018). Meanwhile, construction made a
small, but significant, contribution to employment as well in 2015 while electricity, gas and
water made a negligible contribution to employment (see figure 21). All sub-sectors, except
for the construction sub-sector, made smaller contributions to employment in 2016, as
compared to 2015 (see figure 21). This does little to alleviate the increasing unemployment
rate (Swartland Municipality 2018).

iii) Tertiary Sector

The tertiary sector possesses the most sectoral contribution to GDPR in 2016 (see
figure 14). This sector is mainly located in towns, except for agri-tourism and eco-tourism
facilities (see figure 24). Every sub-sector exhibited Real GDPR growth in 2016, except for
the transport, storage and communication sub-sector, likely due to higher oil prices (see
figure 14) Indeed, the tertiary sector grew 1.8 percent in 2016, due to growth in wholesale,
retail trade, catering and accomodation sector and the finance, insurance, real estate, and
business sector (see figure 14). However, All sub-sectors, except for the general
government sectors, created fewer jobs in 2016 compared to 2015, coinciding with slow
national growth of 0.6% in 2016 (Swartland Municipality 2018).

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Wholesale and retail trade, catering and accomodation sub-sector is the largest sub-
sector, in terms of both contribution to GDPR and contribution to employment (Swartland
Municipality 2018)(see figure 13&21). There is potential to increase value chain and
clustering between the agritourism industry and the manufacturing subsector, and
agriculture, forestry and fishing subsector. This is evidenced by the extensive agricultural
infrastructure and agritourism facilities within Swartland (see figure 22 &23) Meanwhile the
employment growth in skilled workers within 2005-2015 can be attributed to sub-sectors of
general government, and finance, insurance, real estate and business services (see figure
19). Thus, it can deduced that these sub-sectors also employ a large proportion of high-
income workers (see figure 20) (Swartland Municipality 2018).

iv) Informal Sector

Although data on the informal sector is difficult to come by, acknowledgement of it is

necessary since it provides income for the poorest communities. In 2015, the informal
sector in total made a 20.2 % contribution to employment within Swartland (Swartland
Municipality 2018). Furthermore, the Swartland Municipality Water Service Audit does show
a significant portion of the agricultural, forestry and fishing sector (see figure 3&7) as
informal and lacking municipal services of water and sanitation. Aside from exclusion to
municipal services, this informal sector is also often excluded from mainstream economic
development (Swartland Municipality 2018). Despite this, there is high potential to increase
the HDI within informal employment in the agricultural, forestry, and fishing sub-sector due to
its high location quotient (see figure 15).

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Figure 13: Swartland Municipality GDPR Performance per sector 2015-16

Source: Swartland Municipality 2018

Figure 14: GDPR Contribution per main sector 2016 in West Coast

Source: Western Cape Provincial Treasury 2018

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Figure 15: Locational Quotient Interpretation and Locational Quotient in terms of GDPR and employment, West
Coast District 2016

Source: Western Cape Government Treasury 2018

Figure 16: Swartland Municipality Agricultural Households by type of Activity

Source: Stats SA 2011

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Figure 17: West Coast District Winter Crops, Hectares under production 2017

Source: Western Cape Government Treasury 2018

Figure 18: Swartland Municipality Skills Level 2016

Source: Stats SA 2011

Figure 19: Swartland Municipality formal employment skill level contribution, average growth and number of jobs

Source: Western Cape Government Treasury 2018

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Figure 20: Percentage of households per income bracket in the West Coast District 2017 (%)

Source: Western Cape Provincial Treasury 2018

Figure 21: Swartland Municipality Employment Growth Per Sector 2005-2016

Source: Swartland Municipality 2018

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Figure 22: Swartland Municipality Primary Sector Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Government 2014

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Figure 23: Swartland Municipality Secondary Sector Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Government 2014

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Figure 24: Swartland Municipality Tertiary Sector Map

Source: Author’s own after Cape Farm Mapper 2019; Western Cape Government 2014; Rumboll & Partners
2015; Davids et al 2004

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C) Settlement and Demography

This section will follow settlement and demography trends within the Swartland
Municipality. It will look at population trends, densities, urban settlements, existing
infrastructure and public services, education and skills, and health.

i) Population Trends

Swartland is the least populous region within the West Coast DIstrict (see figure 26).
The population growth rate had increased from 1.99% in 2001 to 4.56% in 2011, which was
faster than the West Coast District population growth rate (see figure 25) (Swartland
Municipality 2018). While half of the population is in Malmesbury and small settlements, a
third of the population resides within non urban areas. (see figure 27) (Stats SA 2011). This
suggests that a large proportion of the Swartland population lives in low density areas (Stats
SA 2011).

As for migration trends, there is no detailed information. The general trend follows the
out-migration of skilled individuals in search of employment elsewhere and in-migration of
relatively unskilled individuals, except for in-migration of professionals and retired people into
coastal and small inland towns (Swartland Municipality 2012).

Figure 25: Population growth rate of local district Figure 26: Swartland Municipality Historical
municipalities within West Coast District Population Trends
Municipality

Source: Western Cape Government 2014

Source: Stats SA 2011

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Figure 27: Population distribution in Swartland Figure 28: Swartland Municipality Density
Municipality

Source: Author’s own after stats SA 2011

Source: Author’s own after CK Rumboll & Partners
2015

ii) Densities

The Densities for Swartland show that the majority of the population live in high
density areas in towns (see figure 27), with about a third of the population living in low
density areas.The majority of Swartland possesses low density area, with the highest
densities being in Malmesbury and Moorresburg (see figure 27, 28) (Stats SA 2011)

iii) Urban Settlements

While the number of formal dwellings has increased from 2011 to 2016, there is still
significant housing backlog. The most recent 2011 population statistics estimated 16,486 on
the waiting list for the housing backlog, with the greatest need being in Malmesbury, Darling,
Moorreesburg and Riebeek Valley (CK Rumboll & Partners 2015: 68). From 1997 and 2011,
there were 6101 total units of houses built (including subsidized units, affordable/GAP units,
social housing). At that trend of averaging 435 houses built per year, it would take 38 years
to address the 2011 housing backlog. However, this waiting list is likely to increase,
according to 2031 population projections based on individual ward rates, and the 4.56
percent municipal growth rate projections (CK Rumboll & Partners 2015) (see figure 29).
Currently, there are 2789 houses planned, addressing only 17 percent of the housing
backlog (see figure 30) (CK Rumboll & Partners 2015).

In regards to informal dwellings, there are two main locations of informal settlements
located near Moorreesburg and Malmesbury. It is important to note that the only area
dictated with over 200 informal dwellings near Malmesbury possesses 1457 informal
dwellings, a number that is significantly higher than the other areas found (see figure 31)
(Western Cape Government Department of Human Settlements 2015). Informal settlements

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near Moorreesburg possesses the second highest density in informal dwellings. The
concentration of these informal settlements is due to relocation from the municipality to meet
service needs and loss of farm tenure.

Otherwise, informal dwellings experience relatively low density through out the rest of
Swartland. (see figure 31) (CK Rumboll and Partners 2015 & Western Cape Government
Department of Human Settlements 2015).

Figure 29: Population and Household Projections for Swartland Municipality

Source: CK Rumboll & Partners 2015

Figure 30: Swartland Waiting List 2014

Source: CK Rumboll & Partners 2015

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Figure 31: Swartland municipality informal dwelling density, 2015

Source: Author’s own after CK Rumboll & Partners 2015 & Alli 2017

iv) Existing Infrastructure and Public Services

In regards to public infrastructure provision, bulk water supply and sewerage are the
services that need the most upgrade, especially with consideration of the fast growing
population rate (CK Rumboll & Partners 2015) (see figure 33). While a majority of
households have access to electricity (98%), regional water distribution (95%), and flush or
chemical toilets (96.8%), the households that do not have access to these services are
mostly located in the informal housing types ( CK Rumboll & Partners 2015: 27).

The informal settlements near Malmesbury and Moorreesburg have poor access to
sewage, water, electricity, and solid waste collection (see figure 31). Furthermore , these
informal settlements generally have poor access to education, lack access to a district
hospital (see figure 32) (Alli 2017).

As for public transit, the minibus taxis dominate it. There is one long distance bus
service that operates from Cape Town along the N7 to Windhoek in Namibia and to
Upington in the Northern Cape. (West Coast District Municipality 2000).There is also a daily
bus service between Saldanha Bay and Cape Town. The passenger train service only

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operates to Malmesbury. However, PRASA proposed enhanced service between Cape

Town and Saldanha Bay and enhanced service towards Bitterfontein as well. As for freight,
the N7 is a major road freight carrier, and there is extensive rail freight within Swartland as
well (West Coast District Municipality 2000) (see figure 35).

v) Health

Swartland possessed 0.6 ambulances per 10 000 inhabitants in 2016, below the 0.9
ambulances per 10 000 of West Coast District. This is particularly concerning since a
significant portion of Swartland’s inhabitants are rural citizens, requiring greater ambulance
coverage in order to maintain adequate coverage for the lower population per square
kilometer (Western Cape Government 2017). Another concerning health indicator within
Swartland include the increased malnutrition rate from 2.2 percent (per 100 000) in 2014 to
2.6 (see figure 36) (Western Cape Government 2017).

vi) Education and Skills

As a result of steadily increasing learner enrollment, the learner-teacher ratio

dropped sharply from 2014 to 2016 (see figure 37). This could negatively affect learner
performance, and is likely a factor to the increase in grade 12 drop-out rates from 20.1
percent in 2015 to 23.2 percent in 2016. Indeed, the number of educational facilities and no-
fee schools remained unchanged from 2014 to 2016 as well (see figure 38) (Western Cape
Government 2017).. An increase in these educational facilities and no-fee schools would
likely affect academic outcomes positively, especially given the tough economic climate in
2016 of low-skill job shedding in the agricultural, forestry, and fishing sub-sector (see figure
21).

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Figure 32: Swartland Municipality Informal Settlement Distance to Socio Economic Amenities

Source: Author’s Own after Alli 2017

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Figure 33: Summary of Swartland Municipality Service Infrastructure

Source: CK Rumboll & Partners 2015

Figure 34: Swartland Municipality ward delimitations

Source: CK Rumboll & Partners 2015

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Figure 35: Swartland Municipality Settlement and Services Analysis Map

Source: Author’s own after Western Cape Government 2014; Cape Farm Mapper 2019; Western Cape Government 2017

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Figure 36 : Swartland Municipality Child Health

Source: Western Cape Government 2017

Figure 37: Swartland Municipality Learner Enrollment

Source: Western Cape Government 2017

Figure 38: Swartland Municipality No Fee Schools

Source: Western Cape Government 2017

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3) GOVERNMENT AND INSTITUTIONAL CONTEXT

At the national context, this SDF incorporates the SPLUMA principles and NDP
vision for rural communities. The five SPLUMA principles are mentioned in the values and
principles section. As for the NDP, the SDF seeks to promote the NDP vision of integrated
rural areas with economically active inhabitants, increased food security and access to basic
services, health care and quality education (National Planning Commission). This aligns with
Swartland IDP vision of “balanc[ing] devleopment and conservation in an economically
prosperous Swartland for all” (Swartland Municipality 2012: 28). Furthermore according to
the constitution, municipalities should provide free basic services to its inhabitants.
(Municipal Demarcation Board 2018).

This SDF seeks to fix the weaknesses of the 2017 Swartland SDF. While the 2017
SDF does briefly address agriculture, forestry, and fishing sub-sector and the mining sub-
sector, the perspective taken is not one towards harnessing potential to increasing economic
growth and development. Instead, the focus is a very generic take on agricultural land reform
towards promoting food security. For example, there is no specific mention on the
importance of upstream and downstream linkages in the grain, oil seed and livestock
industry within food security.

There is too much emphasis on towns within the spatial proposals. This is concerning
due to the large proportion of population residing within non urban areas. Also there is a lack
of regional connection to the City of Cape Town (Swartland Municipality 2017).

4) CONSTRAINTS AND OPPORTUNITIES FOR DEVELOPMENT

This section analyzes briefly the constraints and opportunities for development
through the SDF values lens, taking into consideration the sectoral analysis.

a) Constraints

The main constraints include poor access of socio economic amenities and lack of
basic infrastructure for informal dwellers, along with ecological constraints.

Value: Spatial Equity

In regards to the lack of basic infrastructure, informal dwellers lack access to water,
sewage, electricity, and solid waste disposal (CK Rumboll & Partners 2015). While the two
largest informal settlements are located near Moorreesburg and Malmesbury, with the
highest concentration of informal dwellers located near Malmesbury, it is important to note
that a third of the inhabitants in Swartland are located in non urban areas (see figure 39).
Thus it can be surmised that a significant number of informal dwellers are found within low
density, rural areas of Swartland (see figure 27, 28, 31) (Stats SA 2011)

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As for the the lack of socio economic amenities, there is only one district hospital in
Malmesbury for the entire Municipality. Satellite mobile health clinics are not resourced to
satisfy all of inhabitants health needs (see figure 32). (CK Rumboll & Partners 2015).
Furthermore, the N7 and trunk roads segment the breathtaking cultural landscape and form
physical barriers in creating social and racial divisions within towns and settlements. For
example, the N7 cuts across Malmesbury, dividing the high and low income areas (see
figure 39) (Winter S and Oberholzer B. 2013).

Value: Self Determination

The lack of medium hierarchy roads inhibit general access to amenities, including
primary, secondary, and adult education schooling (see figure 32) (Alli 2017). There is a
need for medium hierarchy roads to promote access to education, along with financial
resources and assets.

Value: Efficient and Collaborative Governance

Empowerment through popular participation is needed to ensure people have

equitable access to social and physical infrastructure, plus adequate housing. The current
Thusong initiative in Malmesbury has weak budgeting (Western Cape Government 2019).

Value: Environmental Awareness & Integrity

Environmental constraints are mostly located near the coastal region, with high sea
level rise threatening the coast, along with environmentally sensitive areas that have already
been degraded or possess high fire risk. There is also protected areas that possess high fire
risk in the mountainous regions near the east as well (see figure 39) (Cape Farm Mapper
2019).

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Figure 39: Swartland Municipality constraints map

Source: Cape Farm Mapper 2019; CK Rumboll & Partners 2015; Africon 2006

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b) Opportunities

The main opportunities include the public transit infrastructure, scenic routes,
heritage towns, archeological landscape, and economic activities.

Value: Self Determination

There is opportunity for diversification in the primary sector through oil seed
cultivation, grape cultivation, fishing at the Yzerfontein harbor, and sparse mining areas.
Furthermore, manufacturing facilities, eco-tourism and agri-tourism clusters are located near
main towns of Darling, Morreesburg, Malmesbury, and Riebeek Wes and Riebek Casteel
(see figure 40). There is opportunity for small, medium and micro enterprises to grow within
these areas. The transportation system has important linkages to nearby nodes of Saldanha
Bay, Paarl, Namibia, and the large metropolitan area of Cape Town. This presents large
opportunity for the tertiary sector, in which companies seek strategic location factors such as
affordable land, lower cost, less crime than the City of Cape Town, and the beautiful
landscape/heritage.

Value: Efficient and Collaborative Governance

In order to promote SMMEs, Swartland municipality would not have the capacity by
itself, there would need to be collaboration between all levels of government, and private and
NGO partnerships as well. Key projects would need to be identified for implementation as
well.

5) TOP KEY ISSUES

The identified 5 top key issues for the spatial development framework follows.

1) Increase access to adequate housing.

There is an extensive housing backlog, and a large number of informal dwellers

within Swartland (CK Rumboll & Partners 2015; Alli 2017).

2) Increase access to adequate health services.

The two main informal settlements lack access to the district hospital, despite the
informal settlement within Malmesbury being within relatively close proximity to it (Alli 2017).

3) Increase access to business skills and development.

There is a high rate of low income and unemployment within Swartland that can be
improved through increasing opportunities for small, medium, and micro enterprise
development (Swartland Municipality 2018).

4) Increase access to water, sanitation, electricity.

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Informal dwellers lack access to basic infrastructure (Alli 2017).

5) Improve mobility through public transit.

Public transit is lacking within Swartland, largely due to the lack of medium and local
hierarchy roads, and the lack of inter-modal transport hubs (Swartland Municipality 2018).

6) VISION

Swartland is a rural agricultural region with a diversified economy, and integrated

transportation system. Through popular participation and appropriate budgeting and
implementation, the most vulnerable inhabitants in informal dwellings have basic
infrastructure needs of sewage, electricity, housing, and sanitation met. These inhabitants
also have equitable access to social and physical infrastructure.

Appropriate partnerships and government action have diversified the economy

through creation of more employment opportunities in fishing, grape and oil-seed cultivation,
mining, and an industrial park. This diversification preserves the cultural heritage and
protects environmental landscape to draw more investors and migrants, to promote tourism,
and to preserve general pride in sense of place for inhabitants. Access to knowledge, skills,
social network and financial resources is also accessible for inhabitants to create small,
medium and micro enterprises.

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Figure 40: Swartland Municipality opportunities map

Source: Author’s own after Cape Farm Mapper 2019; Rumboll & Partners 2015; Western Cape Government
2014

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7) PROGRAMME

The programme looks at possible population projections within the future and
determines housing and service provision needs.

Population Projection

The following figure (see figure 41) utilizes a low estimate from the national
population growth rate from 2001 and 2011, the medium estimate is derived from Western
Cape population growth rate in the same period, and the high estimate is from Swartland
Municipality projected growth rate from 2011 (CK Rumboll & Partners 2015; Swartland
Municipality 2018). The most likely projection will be the high growth rate due to the
favorable location of Swartland near the City of Cape Town, which attracts businesses and
migrants alike (Stats SA 2011.

Housing Projection

Assuming a high projected growth rate into 2050, this would result in 647522 individuals (see
figure 41). If the low income rate of approximately 50 percent is to continue, this would result
in 323,761 low income individuals. Using current rates of household size which is, this would
translate into roughly 90, 600+ low income households. This is unlikely however, since the
large number of small households of 1-2 people suggest the possibility for chain migration.
Assuming all the low income households require formal housing and assuming the current
average annual rate of housing provision of 453 houses per year, it would take 200 years to
address the housing backlog (CK Rumboll & Partners 2015, Stats SA 2011) (see figure 29).

Service Facility Projection

Figure 42 demonstrates the big difference in social facilities needs in 2050, given
different growth estimates. It is important to note that the figure does not account for
acceptable travel distance ( CSIR 2012). Therefore, the figures are likely to be different
given that a third of Swartland’s population reside in non urban areas. Due to the limited
capital expenditure of Swartland municipality, there will need to be innovation in order to
meet this demand of the current high growth estimate.

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Figure 41:Swartland Municipality population projection

Source: Author’s own after CK Rumboll & Partners 2015; Stats SA 2011

Figure 42: Swartland Municipality Service Facility Projections 2050

Source: CK Rumboll & Partners 2015, Stats SA 2011, CSIR 2012

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8) THEORETICAL INFORMANTS

This section will identify briefly the theories relevant to the production of the spatial
development framework.

In-situ upgrading vs total redevelopment

This SDF takes on an in-situ upgrading approach for housing development for the
following reasons. Total redevelopment destroys social network due to the demolishment of
settlements of origin and the relocation of families to greenfield sites. This negatively affects
economic opportunities and network due to these greenfield sites being further from urban
opportunities. This also increases distance between homes and workplaces and schools,
often resulting in unemployment and increased school drop-outs (Del Mistro et al 2009: 338).
Thus, In-Situ upgrading seeks to avoid these disruptions of social and economic networks by
upgrading settlements incrementally (Del Mistro et al 2009).

Spatial Rebalancing

This SDF also uses a spatial rebalancing approach to address the uneven
contribution of cities towards economic growth. Particularly, this SDF utilizes high growth
cities to propose housing development for low income individuals. There is focus on steering
investment into poorer regions, or outside of big cities, to narrow income inequity. Private
firms would benefit from lower cost labor and land within this regard (Todes & Turok 2017).
This would however require improvement in physical infrastructure, such as roads, to
accommodate such projects as mobile manufacturing plants. Supporting local business
growth and formation is important for development to be sustained. For example supporting
township economic infrastructure would be relatively low cost and with high benefit (Todes &
Turok 2017 55-58).

Basic Needs

A basic needs approach is also utilized due to an emphasis on low income

individuals who are found in informal settlements. This approach focuses on people and not
regions. It seeks to transform consumption and production towards local development and
provision of needs for the rural industry. A common approach is using small urban
settlements for service provision, and seeks to determine locally appropriate form and level
of service provision (Dewar D, Todes A & Watson V 1986).

Place-Based

A place-based approach is utilized since this SDF recognizes burgeoning local sub
sectors (fishing, mining, grapes cultivation, oil seed cultivation, construction) and seeks to
diversify them. This approach focuses on utilizing indigenous knowledge and assets of each
territory and supporting diversification of the economy into new and sophisticated activities. It
seeks to understand and strengthen local potential through institutional action and policy
instruments (Todes & Turok 2017 6-7).

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9) SPATIAL DEVELOPMENT FRAMEWORK

This section will delve into the landscape and natural resources SDF, economic
development SDF, settlement and services SDF, and finally comprehensive regional sdf.

a) Landscape and Natural Resources Framework

The strategy for this framework entails connecting and creating a Coastal Eco-
Tourism Green Corridor at the coastline and creating a riverine buffer zone to emphasize
environmental protection, preserve heritage, and promote eco-tourism opportunities. The
green corridor connects critical biodiversity areas, protected areas, and ecological support
areas with critical biodiversity areas in the West Coast National Park and Koeberg Nature
Reserve (Driver A; Holness S; Daniels F. 2017. 2017).

Such green corridors have diverse ecological benefits such as biodiversity

preservation and climate change reduction, to name a few (Pool-Stanvliet, R. 2017). In
addition, there already is a current existence of multiple ecotourism opportunities, including
hiking and fishing, in the coastline area in which the designated green corridor would specify
(Cape Farm Mapper 2019).

This SDF utilizes the Durban Green Corridor precedent, which is a nonprofit that
focuses on youth development, economic uplift and environmental stewardship. This non-
profit targets uplifting marginalized communities through environmental stewardship and
eco-tourism promotion (South African Tourism Services Association 2019). In the same vein,
the two proposed green corridors would also not only target empowering youth, but
empowering women as well.

This is particularly due to the high contribution of housewives (who are very likely
unpaid for their duties) within the informal settlement employment profile (David Alli 2017).
Both youth and women would be empowered through teaching skills and knowledge within
environmental stewardship to improve their livelihood.

A riverine buffer zone within the Riverine Eco-Tourism Green Corridor is proposed
alongside the proposed restoration of the Berg River, primarily due to its benefits in reducing
impact on water resources from activities in adjoining land and upstream (Adams JB et al:
iii). Indeed, there is concentration of poor groundwater quality in the north of the municipality
already (see figure 4) and the Berg River is the main water source for this municipality as
well (Swartland Municipality 2017). Hence there is proposed restoration of perennial rivers
within the municipality. The riverine buffer zone designated (see figure 44) is conceptual and
there is no horizontal distance specified from the Berg River due to specific habitat
requirements of endemic species and the condition of the adjoining habitat (Adams JB et al
2015: 46).

Similar to the coastal zone, there is also plenty of eco-tourism activities aligning the
Berg River (see figure 22) Therefore, an existence of a riverine buffer zone would also
support protection of these eco-tourism activities.

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It is important to note that there is a formation of a coastal setback line being

proposed by the Western Cape Provincial Government and Department of Environmental
Affairs & Development Planning. This line would primarily protect coastal towns, bulk
infrastructure, and low lying areas (West Coast District Municipality 2014: 112)

Besides these two green corridors, economic diversification is promoted. Mining is

expanded upon slightly within south of the municipality to promote economic diversification
while still avoiding environmentally sensitive areas. This is particularly because mining
generally has higher income earning potential than agriculture (National Planning
Commission) (see figure 44) Agricultural diversification is also promoted primarily through
grape and oil seed cultivation through nonprofits such as Goedgedacht, taking care to
promote this within lands that have high capability.

Goedgedacht, located near Malmesbury, utilizes an olive farm as an income source

for their Path Out of Poverty Programme, targeting people from birth to adulthood to in
various interventions such as skill building, education, care, nutrition, and stimulation (Jones
2018). This SDF seeks to build partnerships between such non-profit income generating
small, medium, micro farms, municipal and provincial government, and private sector (like
large commercial farming) to promote mentorship and diversification.

Not only is agricultural diversification beneficial for the economy in increasing

development and growth, oil seeds and grapes are also less water-intensive than wheat,
which is the main crop of the region (Pool-Stanvliet, R 2017). Unfortunately spatial
designation for agricultural diversification does not extend due to the requirement of grapes
and oil seeds to occupy the Cape Granite formation of the Western Cape (see figure 5).

Finally in relation to human settlements, the historic settlement preservation of towns

of Darling, Abbotsdal, Malmesbury, Riebeek Kasteel, Riebeek Wes, and Moorreesburg is
promoted to preserve sense of place and unique history. The urban edge is also extended to
cater for the 4.56 percent municipality growth rate (Stats SA 2011). The SDF takes care not
to promote urban sprawl and promotes impact and dense settlements through the use of the
urban edge (see figure 44).

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Figure 43: Landscape & Natural Resources Framework Strategy

Objective Strategy Value

Preserve cultural ● Urban edge is extended to allow for ● Environmental

landscape and high projected growth but still Awareness and
heritage preserves cultural landscape. integrity
● Maintain distance between dwellings
and fire risk, degraded land/erosion,
sea level rise
● Low-impact tourism promoted to
protect sense of place
● Protection of historical settlements to
preserve sense of place
● Protection of rural agricultural
landscape.

Protection of the ● Reduce wheat monocropping since it ● Environmental

Environment is water intensive. Awareness and
● Promotion of community awareness Integrity
for environmental protection (such as ● Self
schools) Determination
● Promotion of agriculturally
sustainable practices with
commercial farmers.
● Promotion of a closed loop regional
metabolism through renewable
energy, recycling, etc.
● Create limit to mining extension to
reduce impact on the environment
● Promotion of Ecotourism green
corridor on coastline that links critical
biodiversity areas of West Coast
National Park and Koeberg Nature
Reserve. (e.g. Durban Green
Corridor)
● Designation of Riverine buffer zone.

Economic ● Increase current mining growth ● Efficient and

Diversification slightly to diversify economy and Collaborative
within the provide more job opportunities Governance
primary sector ● Diversification economy through ● Self
promotion of SMMEs through Determination
mentorship/partnership programmes
(e.g. Goed Ge Daccht) within grape,
oil seed, and fishing sub sectors.

Source: South African Tourism Services Association 2019; Adams JB et al 2015; Leaner, J. et al. (2012); Pool-
Stanvliet, R. et al 2017,

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Figure 44: Landscape and Natural Resources Framework Map

Source: Authors own after Cape Farm Mapper 2019, Western Cape Government 2013.

Swartland Municipality Spatial Development Framework

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a) Economic Development Framework

The Economic Development Framework proposes to link towns through integrated

transit, promote the fishing sub-sector within Yzerfontein, create an agripark within
Malmesbury, create two Thusong centres within Moorreesburg and Malmesbury, and finally
promote clustering, and backward/forward linkages between mining and the burgeoning
construction industry.

Regarding the tertiary sector, this SDF recognizes that the tertiary sector is primarily
located within towns. The proposal seeks to promote linkages of medium, high, and very
high growth potential towns (CK Rumboll & Partners 2015) to promote economic activity
along these routes.

Indeed, the Local Economic Development Strategy (Swartland Municipality 2018)

identifies the poor transport system as a main competitive disadvantage for economic
growth. As a result, the passenger rail line is extended upon the existing network of rail lines
throughout the municipality that is currently mainly used for freight (Western Cape Provincial
Government 2014). Of particular importance are linkages from Malmesbury to Saldanha Bay
and City of Cape Town, all high growth towns.

The promotion of sub sectors in mining and construction would be driven by growth
in the tertiary sector. Mining in the south of the municipality targets concrete sand, used for
construction (Winter S and Oberholzer B. 2013). Consequently, the SDF proposals of new
medium linkage roads (see figure 35) , along with current trends of increased construction of
retirement villages and increased logistics and finance companies locating to Malmesbury
(Swartland Municipality 2018) would help driven growth of these sub sectors.

As for the manufacturing and agriculture sub-sectors, this SDF proposes an agripark
to be located within Malmesbury to take advantage of Swartland being the municipality
within the West Coast District possessing the highest concentration of agri-infrastructure
(Western Cape Provincial Treasury 2018). Furthermore, the extensive wheat farming and
growing oil seed/grape sub sectors also provide opportunity for increased value chains
through manufacturing (Western Cape Provincial Treasury 2018: 430).

Luckily, the Department of Rural Development & Land Reform (2017: viii) had stated
that it was considering Malmesbury as future potential site for its extensive existing national
network of agri parks. These agri parks are essentially an innovation system of production,
processing, logistics, marketing, training and extension services. Its primary function is to
transform and contribute to the rural growth through enhancing value chains. Saldanha Bay
being an industrial development zone would further encourage manufacturing activity to
occur (Western Cape Provincial Government 2014).

Another proposal seeks to create a network of agglomeration by proposing

stimulation of fishing activity in the existing Yzerfontein harbor, which is close to the large
fishing harbor of Saldanha Bay. While large scale commercial fishing may not be feasible in
the near future for Yzerfontein due to the lack of capital and skills, fishing villages may offer

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opportunities to increase people’s quality of living. For example, Tzaneen and Port St John’s
in the Wild Coast offer tourism opportunities due to their unique culture as quaint fishing
villages (National Planning Commission 2018: 228). This SDF encourages partnerships
between West Coast Municipality, City of Saldanha Bay, Swartland Municipality, Yzerfontein,
private fishing enterprises, and nonprofit organizations to promote up-skilling and
asset/financial resource provision to start this initiative.

Finally, this SDF seeks to extend the current Thusong Center in Ilingelethu,
Malmesbury, to also be located within Moorreesburg. This strategic location would cater for
the existence of the two main informal settlement locations also located in these towns (see
figure 31). The Thusong Center is an integrated rural service center providing an array of
services such as police services, medical clinic, postal office, and legal help (Western Cape
Government 2019). This SDF will cover the Thusong Center and Agri Park in greater detail
within the implementation
section.

Figure 45: Economic Development Framework Strategy

Objective Strategy Value

Improve economic ● Propose agri park within ● Self

growth Malmesbury to promote Determination
clustering and agglomeration ● Efficient and
● Utilize stakeholder approach to Collaborative
identify agri hubs within more Governance
rural areas
● Increased investment within the
construction industry to support
knowledge economy growth,
retirement village growth, and
road construction.
● Promotion of investment and
partnerships between mining
industry for concrete sand and
construction industry
● Increase investment for
education programmes to enter
the government sub sector and
improve institutional thickness
● Promotion of Municipal backed
LED strategy

Improve inter ● Promotion of partnerships and ● Efficient and

district municipal clustering between Saldanha Collaborative
linkages. Bay IDZ and TNPA with Governance
diversification of Yzerfontein ● Self
SMME fishing economy Determination
● Promotion of linkages and
clustering between tertiary sector

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knowledge economy within

Malmesbury, Saldanha Bay and
and Cape Town

Ecologically ● Promotion of eco-tourism that ● Environmental

sensitive economy supports preservation of natural Awareness and
landscape, particularly along the Integrity
riverine and coastal green ● Self
corridor Determination
● Increase investment in SMME
involvement in oil seed and
grape cultivation to promote
polyculture benefits of reducing
soil degradation

Promotion of ● Extend existing Thusong service ● Self

economic centre in Illingelethu, determination
development Malmesbury to Moorreesburg ● Efficient and
through self-reliant ● Improve institutional weaknesses Collaborative
economy within budgeting and inter Governance
governmental collaboration in ● Spatial equity
Thusong service implementation.
● Utilize popular participation to
identify rural ‘silent centre’ within
more rural areas, and to identify
whether this will be mobile or
permanent
● Supporting the informal sector,
particularly the farming sector, to
improve food security

Source: Robinson 2005; Friedmann 1979; National Planning Commission; Swartland Municipality 2018; Dept of
Rural Development and Land Reform 2017

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Figure 46: Economic Development Framework Map

Source: Rumboll & Partners; Western Cape Provincial Government 2014; Department of Rural Development and
Land Reform 2017; National Planning Commission

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C. Settlement Development Framework

The Settlement & Services Framework proposes to utilize the minibus as a main form
of local transportation, and build local and medium hierarchy roads to integrate small and
informal settlements. In regards to housing infrastructure, this framework seeks to explore
short and long term interventions to improve the current poor infrastructure services within
the informal settlements of Moorreesburg, and Malmesbury. This includes exploring
renewable energy options, future eskom power lines, and existing regional landfills. As for
the informal dwellers residing in non urban areas, the proposal is land reform.

In terms of socio economic amenities, the main informal settlements of Sibanye

within Mooresburg and Phola Park, Goedgegun, and Polla Park Section B within
Malmesbury all list the lack access to a district hospital and primary and secondary school
as priority needs to be met (Alli 2017). There are close health clinics within 5 kilometers
away from them. However, district hospitals offer services that health clinics do not, including
in emergency situations. Furthermore, many primary and secondary schools are over 5 km
away from these informal dwellings. Interestingly, there is a district hospital located within
Malmesbury, and therefore relatively close in proximity to Malmesbury informal settlements.
However, the lack of access is compounded by the lack of movement routes between the
district hospital and these informal dwellers (Alli 2017: 5). Thus, this SDF framework seeks
to create local hierarchy road linkages to promote access and mobility for these informal
dwellers to access said amenities. This SDF leaves the exact location of the local road
linkages for local planners since this SDF focuses on the regional scale.

This SDF also seeks to promote access to socio economic amenities for dwellers in
small settlements with poor access to road infrastructure. Thus, proposed medium hierarchy
linkages link the small settlements of Riverlands, Chatsworth, Kalbaskraal and Rastasie to
trunk and national routes (see figure 48). Although information on the exact socio economic
amenities that these small settlements lack access to is scarce, this would particularly
increase access to the district hospital in Malmesbury.

As for housing infrastructure, this SDF takes the recommendation of the Swartland
Housing Settlement Plan to establish housing development within very high and high growth
potential towns (Rumboll & Partners 2015). This would improve the dispersion of income for
individuals since higher GDP means more available wealth to be distributed evenly (Western
Cape Provincial Treasury 2018) (see figure 48).

However this SDF also considers that a third of Swartland Municipality population live
within non urban areas (Stats SA 2011). Although the exact number is difficult to find, a
significant number of dwellers in nonurban areas in rural regions are found as workers on
farms. There is lack of tenure security due to a tenuous arrangement between employer and
employee in which the employee works for the right to live on the farm. As a result, there is
the trend within Swartland of employees on farms losing tenureship and moving to informal
settlements due to the lack of options (Alli 2017 ; National Planning Commission). Thus, this
SDF seeks to strengthen tenure reform mechanisms through exploring indigenous ‘extra-
legal’ property regimes that already have legitimacy. These include the relative and flexible

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nature of rights, and importance of assets in land and housing to improve livelihoods
(Cousins et al 2005:5-6).

As for the basic services of electricity, water, sewage, and solid waste, this SDF
seeks proposes further research into short and long term interventions to improve the
conditions of informal settlements. This SDF (see figure 48) looks at opportunities within an
existing wind farm in Darling, future eskom power lines near Malmesbury, a regional landfill
in Malmesbury, and wastewater treatment plant near Riebeek Wes and Riebeek Kasteel
(see figure 48). A future Saldanha Bay saltwater treatment plan is also planned (Western
Cape Government 2014). This SDF seeks to facilitate acceptable short term interventions
identified by the Western Government, such as installing 12 flush toilets and 2 communal
standpipes (Alli 2017: 1) for Goedgegun in Malmesbury. There is a tendency of infrastructure
provisions to be biased towards using technology appropriate for urban areas. Thus,
innovation is important (National Treasury 2011).

D) Comprehensive Regional Spatial Development Framework

The SDF overall actions are proposals of an eco-tourism green corridor running
alongside the coast and Berg River, an agripark proposal in Malmsbury that will capitalize on
the existing agricultural and manufacturing infrastructure in the middle of the region, housing
developments within key growth cities, and extension of the existing Thusong Center in
Malmesbury to one in Moorreesburg as well (see figure 49 & 50). Not pictured key actions
are land reform in non urban areas, promotion of short and long term interventions towards
basic infrastructure provision of water, electricity, sewage, and solid waste (see figure 49 &
50).

Figure 47: Settlement and Services Development Framework Strategy

Objective Strategy Value

Access to basic ● Utilize Expanded Public ● Spatial Equity

infrastructure and Works Programme towards ● Efficient &
socio-economic infrastructure goals Collaborative
amenities for informal ● Promote agricultural support Governance
settlements programs to enhance food
security and improve markets
for primary and secondary
sector products
● Creation of medium hierarchy
roads to link small
settlements with services in
large towns
● Integration of rail service
network with minibus taxi
route.
● Facilitate between
partnerships both to fulfill
short-term and long-term
infrastructure needs

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● Tenure reform in non urban

areas for dwellers on farm
lands
● Promotion of short and long
term interventions for basic
infrastructure (water,
electricity, sewage, solid
waste)

Compact and ● Provide in-situ house ● Spatial Equity

sustainable settlements upgrading for informal ● Environmental
settlements in 2 main awareness and
locations near Malmesbury integrity
and Moorresburg
● Promote increased density in
towns through zoning, and
building form.
● Promotion of observation of
urban edge through hard
edge due to proximity of
conservation areas

Institutional Thickness ● Improve transparency and ● Efficient &

coordination between Collaborative
different actors within Governance
Thusong Centers, Agri Park
Project
● Promote popular participation
and social dialogue
surrounding Thusong Centres
and Agri-Park

Source: Robinson 2005; Friedmann 1979; National Planning Commission; Swartland Municipality 2018; Dept of
Rural Development and Land Reform 2017

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Figure 48: Settlement and Services Framework Map

Source: Rumboll & Partners 2015; Western Cape Provincial Government 2014

Swartland Municipality Spatial Development Framework

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Figure 49: Comprehensive Spatial Development Framework Conceptual Map

Source: Rumboll & Partners 2015; Western Cape Provincial Government 2014

Swartland Municipality Spatial Development Framework

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Figure 50: Comprehensive Spatial Development Framework Map

Source: Rumboll & Partners 2015; Western Cape Provincial Government 2014; Cape Farm Mapper 2019

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10) IMPLEMENTATION

This section will cover overall phasing, and key project details including actors,
brief, budgeting, and implementation steps.

a) Overall Phasing

The Coastal and Riverine Green Corridors consist largely of administrative tasks in the
beginning, delineating land for continued protection or restoration. Therefore this can be
done as a key project (see figure 51).

As for construction of road and public transit integration, this must also be done as a
key project since it is a requirement for all other projects (see figure 51). This is needed
particularly for the agri hub and thusong centre linkage, in which the agri hub would be a
catalyst for economic development (Rural Development & Land Reform 2016).

Finally, housing development and basic service infrastructure development is an

incremental continuous process due to the extensive and continually growing backlog. Short
and long-term solutions must be sought (Alli D 2017) (see figure 51).

Figure 51: Overall Phasing

Projects 0-5 years 5-10 years 10-20 years 15-20 years

Road and
Public Transit
Integration
Agri Hub and
Thusong Centre
Linkage
Coastal and
Riverine Green
Corridor

Housing
Development

Basic Service
Infrastructure
Development

Source: Author’s own after Rumboll & Partners 2015; Rural Development & Land Reform 2016; Durban Green
Corridor 2015; Government Communication

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b) Key Project Implementation

The key projects will cover the Coastal and Riverine Green Corridor and agri hub and
Thusong Centre Linkage

i) Coastal and Riverine Green Corridor

Utilizing the precedent of the Durban Green Corridor nonprofit organization, the two
strips of Riverine and Coastal Green Corridors (see figure 52) will also focus on the same 4
strategic levels of institutional development, leisure and tourism economic development,
community and youth development and environmental stewardship (Buthelezi & Pritchard
2018). These green corridors seek to protect the main water source of Swartland, Berg
River, and also the network of sensitive critical biodiversity areas, ecological support areas,
and protected areas near the coast (see figure 52). This project will also seek to mitigate
risks of veldfire, invasive alien species, and eroded/degraded land that characterizes land
near the coast and riverine areas (Cape Farm Mapper 2019). Through environmental
stewardship and economic development, this project provides a way for stakeholders and
disenfranchised community members to demonstrate their pride in the rural agricultural
heritage and beautiful landscape within Swartland Municipality.

Implementation steps are:

1) Identify funding delivery and detailed costing schedule in relation to applying for
grants, and planning negotiations (see figure 53).

2) Public participation encouraged through voting process for individual to represent

each ward that would be covered by the green corridors (see figure 34).

3) Ward representative would attend meetings with Swartland Municipality, West Coast
Municipality, City of Cape Town Municipality, interested businesses who seek
partnership to create a joint business venture, and pertinent nonprofit organizations
(see figure 53) to create input for spatial framework.

4) Local planners would create detailed design of spatial framework and work with
engineers to determine costs.

5) Local planners would work with the three municipalities to determine an

implementation strategy, including detailed cost schedules, key priority projects,
actors, phasing, and locations.

6) When budgeting is available and appropriate land surveys finished by planners,

construction and implementation of construction can take place.

7) Further public participation through ward representatives, the three municipalities,

interested businesses and pertinent nonprofit organizations would attend meetings to
produce a management framework and short and long term maintenance plan to
encourage project longevity (Welwyn Hatfield 2016: 50)

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As for budgeting, operating expenditure has seen an increase in 69,9 percent

between 2016/17 and 2017/18 for economic development. Furthermore operating
expenditure for municipal parks increased by 27,14 percent between 2016/17 and
2017/18 while capital expenditure decreased by 53,46 percent. Given that capital
expenditure is only one-fifth of operating budget, it is useful that this project would
require minimal capital expenditure. Private businesses would have incentive to
contribute funding to construction of physical buildings required for skill development
and community and youth development (Municipal Demarcation Board 2018: 50-74).

Key Spatial Principles include:

1) Continue to enforce restoration or continued protection of land designated.

2) Utilization of 3 environmental analysis tools used in this SDF (land unit analysis,
material flow analysis, and landscape character analysis) is encouraged.

3) Land use management is particularly important due to the sensitive land in this
region. Attribute specific zones for specific uses.

4) Consider economic and environmental implications linking the green corridors to

areas outside of the municipality.

ii) Agri hub and thusong centre linkage

This SDF utilizes John Friedmann’s (2003) principle of social power, or ability for an
individual to set purpose in the world. Friedmann frames this principle as a means to achieve
economic development. This premise is based on the primary bases of knowledge and skills,
political and social organization, and productive assets (e.g. good health and tools of
production). This must be established before achieving the second base.

The secondary base consists of information, social networks and financial resources
(e.g. income and credit) that are tools to create social power (Friedmann 2003: 103). This
SDF seeks to integrate the proposed Thusong Centres and Agri park by utilizing the
Thusong Centres to primarily provide knowledge and skills and productive assets of good
health and the Agri park to provide the rest.

Thusong centers are integrated rural service centers providing various information
and services while agri parks are innovative networks for logistics, marketing, manufacturing,
education, asset building and financial resources (Western Cape Government 2019 &
Department of Rural Development and Land Reform 2017) . This SDF seeks to integrate
these two existing initiatives, with the Thusong Center existing in Illengethu, Malmesbury,
and a proposed agri park within Malmesbury (see figure 52).

These two initiatives are among respective wider networks. The Thusong centre in
Illengethu, Malmesbury, is one among 20 centres in the Western Cape and 400 across
South Africa. While there are over 50 agri parks across South Africa (Western Cape
Government 2019 & Department of Rural Development and Land Reform 2017). While

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Thusong Centres and agri parks are located in main towns providing main services, their
lower order respective silent centres and farmer production service units (FPSU) would be
located in more rural village clusters to provide appropriate services (Friedmann 2003).

Implementation steps include:

1) Identify funding delivery and detailed costing schedule in relation to applying for
grants, and planning negotiations.

2) Public Participation, and stakeholder involvement (Particularly through the private

sector and NGOs) would be encouraged through meetings with government
representatives to identify management, monitoring and evaluation, and sustainability
measures for proposed FPSU and silent Centre This includes cost schedules, key
priority projects, actors, phasing, and locations.

3) When budgeting is available and appropriate land surveys finished by planners,

construction and implementation of construction can take place.

4) Steps 2-3 are taken again, except with the targets of building the Thusong Centre in
Moorreesburg and Agri park in Malmesbury.

5) Further public participation with community members, municipality, interested

businesses and pertinent nonprofit organizations would attend meetings to produce a
management framework and short and long term maintenance plan to encourage
project longevity (see figure 53) (Welwyn Hatfield 2016: 50)

As for budgeting, it is not as clear for the Agri park development since it primarily
depends on partnerships with the private sector and the business plan (Rural Development
& Land Reform 2017).

For the Thusong Centres, on the other hand, high estimates for capital expenditure
are R B 13 100 000 and low estimate is B R4 800 000 for each main Thusong Centre. A
silent centre would each cost approximately R 600 000 to build (Public Service Commission
50).

Meanwhile, the operating budget has an estimate of R 674 664 R - R 723 266 per
year for a thusong centre. The silent centre has a cost of R 311 072 - R316 437 per year
(Government Communications 2006).

Key spatial principles for local planners are:

1) Place Agripark and Thusong Centers on Main Nodes (see figure 52).

2) Place Farmer Production Service Unit (FPSU) and Silent Centre in village cluster.

3) Agripark and Farmer Production Service Unit (FPSU) are ideally located on land with high
land capability.

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4) Reduce impact to critical biodiversity areas by not placing centres on land restoration,
land protection and river buffer zone.

5) Ideally place agri park and thusong centres in close proximity or in same location as inter-
modal transportation nodes.

6) Consider closest existing agri park of Stellenbosch and other agri parks to encourage
beads on a string approach.

11) CONCLUSION

This spatial development framework seeks to optimize on opportunities within the

boundaries of constraints by emphasizing economic diversification, provision of public
transportation and medium hierarchy linkages, and securing access to socio economic
needs and basic infrastructure. It seeks to not only preserve the beautiful cultural landscape
and heritage through proposed green corridors, but to utilize this to bring more eco-tourism
opportunities in the area and improve comparative advantage for firms seeking to relocate to
the municipality. Thus, it seeks to promote economic growth not only within the tertiary
sectors primarily located in towns, but also opportunities for small, medium, and micro
enterprises for low income individuals towards improved economic development.

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Figure 52: Implementation Map

Source: Author’s own after Rumboll & Partners 2015; Rural Development & Land Reform 2016; Durban Green
Corridor 2015; Government Communication

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Figure 53: Implementation Chart

Key Broad Actors Phasing Specific Government

Projects Role Players and
responsibilities

Riverine ● Environmental ● In 0-5 years ● Provincial

and Nonprofit companies Government
Coastal (e.g. Noordhoek (Coordination and
Green Environmental Action governance)
Corridors Group) ● District and local
● Women and Youth municipalities
Empowerment Non- (coordination and
profit Companies (e.g governance)
Woman Against ● South African
Poverty and Local Government
Unemployment) Association (
● General Community Coordination of
Development district and local
Nonprofit Companies municipalities)
(e.g. Richs Outreach ● Government
Ministries) Communication
● Swartland and Information
Municipality (e.g. System (overall
economic coordination)
development unit; ● National Treasury
Biodiversity planning (Funding)
branch) ● Department of
● Provincial Public Works
Government (Infrastructure roll-
(e.g.Environmental out)
Affairs & ● Department of
Development Provincial and
Planning) Local Government
● International (Municipal Grant)
Organizations (e.g. ● Department of
African Climate & Cooperative
Development Governance and
Initiative: Berg River Traditional Affairs
Climate Knowledge (food security and
Network) increase number
● Private enterprises of black
(e.g. Commercial entrepreneurs
farms, business
partners, commercial
banks, large
multinational
corporations like
Coca Cola)

Thusong ● Women and Youth ● 0-5 years ● Government

Center Empowerment Non- (Road Communication
and Agri profit Companies (e.g integration and Information

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Park Woman Against must be System (overall

Linkage Poverty and built first, coordination)
Unemployment). and ● National Treasury
● Agricultural Thusong (Funding)
Employment Non- Center and ● Department of
profit Companies Agri Park Public Works
(e.g. 7 Zizamele built (Infrastructure roll-
Agricultural Project) second) out)
● General Community ● Department of
Development Provincial and
Nonprofit Companies Local Government
(e.g. Richs Outreach (Municipal Grant)
Ministries) ● Departments of
● National Government Agriculture,
(e.g. Passenger Rail Minerals, Energy
Agency of South (Budget &
Africa; National Infrastructure)
Treasury;South ● Department of
Africa National Communications (
Roads Agency; ICT Strategy)
Department of Rural ● Provincial
Development & Land Government
Reform) (Coordination and
● Private governance)
Transportation sector ● District and local
(e.g. Go Metro) municipalities
● Swartland (coordination and
Municipality (e.g. governance.)
Civil Engineering ● South African
Department) Local Government
● Provincial Association (
Government (e.g. Coordination of
Department of Social district and local
Development) municipalities)
● Private commercial
farms

Source: Western Cape Government 2018; Green Corridors 2019; Government Communications 2006

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