T T R I TT TR RI I T T ra ining fo r T o wnship Re ne w - - PowerPoint PPT Presentation

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EXPLORING TOWNSHIP PERSPECTIVES OF URBAN MANAGEMENT IN SOUTH AFRICA ‘TURNING SPECTATORS FROM CONSUMERS TO CO- PRODUCERS’

François Menguelé TTRI

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AFRICAN PERSPECTIVES OF THE URBAN CHALLENGE

• THE WORLD POPULATION HAS DOUBLED FROM 3 TO 6 BILLION PEOPLE

OVER THE PAST 40 YEARS

• STEADY INCREASE IN PERCENTAGE OF POPULATION LIVING IN URBAN

AREAS (URBANISATION)

• AFRICA IS AT THE LEADING EDGE OF URBANISATION WITH

UNPRECEDENTED RATES AVERAGING 5% ANNUAL GROWTH

• URBAN POPULATION HAS DOUBLED IN THE LAST 15 YEARS (impact of

AIDS excluded!)

• THE PEAK HAS NOT BEEN REACHED AS YET
• NATURAL GROWTH, RURAL URBAN MIGRATION AND CIRCULAR

MIGRATION

• WITHIN THE NEXT 30 YEARS, THE MAJORITY OF AFRICA’S

POPULATION WILL LIVE IN CITIES

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AFRICAN PERSPECTIVES OF THE URBAN CHALLENGE

• ESTIMATES SUGGEST 4 BILLION PEOPLE ARE LIVING IN POVERTY WORLDWIDE (THE

‘BOTTOM OF THE PYRAMID’)

• INCREASING URBANISATION OF POVERTY IN AFRICA (LIMITED ACCESS TO WATER,

SANITATION, HEALTH CARE, HOUSING, NUTRITION, GROWING UNEMPLOYMENT, INFORMALISATION OF URBAN ECONOMIES)

• INCREASING PRESSURES ON URBAN LIVELIHOODS AS A RESULT OF GLOBAL

COMPETITION AND TRADE RESTRUCTURING (INCREASING MONETARISATION OF TRANSACTIONS)

• CAPACITIES OF LOCAL GOVERNMENTS OUTSTRIPPED BY THE MAGNITUDE AND

COMPLEXITY OF URBANISATION (URBAN MANAGEMENT CHALLENGE)

• URBAN HOUSEHOLDS INCREASINGLY DEPLOYING DYNAMIC COPING STRATEGIES

WHICH SPAN BEYOND THE ARTIFICIAL BOUNDARIES BETWEEN RURAL AND URBAN (FROM SAPTIAL CONFINEMENT TO FLUIDITY)

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SOUTH AFRICAN PERSPECTIVES TO THE URBAN CHALLENGE

• STEADY GROWTH OF URBAN POPULATION SINCE THE REMOVAL OF INFLUX CONTROL

MEASURES UNDER APARTHEID

• RATES OF URBANISATION GROWING AT 3-5% ANNUALLY
• TENDENCY OF HIGHER INCREASE AS A RESULT OF A RE-DEFINITION OF ‘URBAN’ TO

INCLUDE LARGE AGGLOMERATIONS AND URBANISING SETTLEMENTS IN FORMER HOMELANDS

• STEADY ECONOMIC GROWTH ALONGSIDE GROWING URBANISATION (POSITIVE

CORRELATION)

• URBAN AREAS ACCOUNT FOR APPROXIMATELY 80% OF GDP ON LESS THAN 7% OF

NATIONAL TERRITORY (ACCORING TO SOUTH AFRICAN CITIES NETWORK)!

• SERVICE DELIVERY NOT KEEPING PACE WITH MAGNITUDE AND COMPLEXITY OF DEMAND

DYNAMICS (URBAN MANAGEMENT CHALLENGE)

• HUGE SERVICE BACKLOG DESPITE GREAT STRIDES BY GOVERNMENT TO QUELL THE

INCREASING URBANISATION OF POVERTY

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STRUCTURAL CHALLENGES IN SA’S GOVERNANCE SYSTEM (REFORM OPPORTUNITIES)

• DOES EVERY MARGINAL IMPROVEMENT IN DELIVERY CAPACITY TRIGGER

ADDITIONAL DEMANDS?

• PRESSURES DERIVED FROM THE CONSTITUTIONAL IMPERATIVES (BILL OF

RIGHTS), e.g. GROOTBOOM COURT JUDGEMENT (2000)

• PRESSURES DERIVED FROM GOVERNMENT’S TARGET SETTING AS PER

EXISTING PLANS

• PRESSURES DERIVED FROM AN APPROACH TO PLANNING THAT IS NOT

ALWAYS ATTUNED TO DELIVERY CAPACITY (RISK OF EMPTY PROMISE AND UNDERSPENDING OF PUBLIC BUDGETS)

• PRESSURES DERIVED FROM LOCATING IMPLEMENTATION RESPONSIBILITY

(‘SERVICE DELIVERY’) IN THE SOLE REALM OF LOCAL GOVERNMENT

• PRESSURES DERIVED FROM LIMITED FLEXIBILITY OF REGULATORY

SYSTEMS

• PRESSURES DERIVED FROM OVER-RELIANCE ON REPRESSIVE

APPROACHES TO LAW ENFORCEMENT (DISPLACEMENT OF THE PROBLEM)

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THE URBAN CHALLENGE IN TOWNSHIPS

• TOWNSHIPS ARE INCREASINGLY NET RECIPIENTS OF MIGRATION FLOWS

(CIRCULAR AND RURAL URBAN)

• Peripheral location from the city, hence disconnected from the mainstream economy
• High costs of transport, depleting the disposable incomes of the working population
• Dormitory settlements, due to low level of investment in functions other than

housing

• Low levels of education and skills coupled with high levels of unemployment as well

as poverty and crime

• Formal engineering infrastructure installed but decayed and in need of

rehabilitation/ upgrading

• Mainly formal housing stock with an informal component
• Shorter life cycle of infrastructure and facilities due to poor investment in operation

and maintenance

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FEATURES OF THE URBAN CHALLENGE IN TOWNSHIPS CTD…

• Poorly connected to surrounding neighbourhoods
• Level of available services largely disproportionate to the size of the

resident population

• Limited enterprise due to low economic opportunities for the resident

population

• Low levels of social capital, exacerbated by a supply-driven approach to

service delivery which has encouraged dependency instead of enterprise.

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AFRICAN RESPONSES TO THE URBAN CHALLENGE

Limitations and Features of Traditional Responses

• Traditional approaches to urban development offer little in dealing with

scale, complexity and pace of urbanisation

• Traditional approaches are geared towards physical development

(buildings, bridges, roads, etc…)

• People’s and market dynamics (migration and economic transactions)

ignored and sometimes not adequately factored in planning and implementation

• Increasing informalisation of cities (“economies of piracy”)
• Misappropriation of public and private space

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AFRICAN RESPONSES TO THE URBAN CHALLENGE ctd….

• Repressive by-law enforcement: Evictions, Confiscation,

Demolitions, Avoidance of Constructive Engagement

• Laissez-Faire (ignore the problem to dissuade influx):

Informalisation of Settlements and Trade (up to 70% of urban Africa according to UNHABITAT)

• Partnerships and Coalition Building: Emergence of a Culture of

Joint Accountabilities for Delivery (cohesive communities and greater commitment to place)

From Repressive Enforcement via ‘Laissez-Faire’ to Partnerships ctd…

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Language Trends in Planning tradition & urbanisation induced shifts in paradigm

Traditional features: Build, Legislate, Regulate, Enforce, Demolish, Evict, Confiscate, Control, Demarcate, Shape, Exercise Power, Deliver Services, Input, Output Traditional tools: Master Plans, Land Use Plans, Structural Plans, Urban Design Plans, Area Plans, Infrastructural Plans New paradigms: Develop, Manage, Govern, Mediate, Negotiate, Enabling, Monitor, Influence, Outcome, Impact Evolving COMPLEMENTARY Tools: Action plans, Business plans, Strategic Plans (CC, CDS,IDP), Social compact, City Contract, PMS, Score Cards...

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FEATURES OF EMERGING APPROACHES TO URBAN DEVELOPMENT

• Combination of city-wide stakeholder analysis and consultations with sectoral

studies and strategies

• Long-term city visioning (15-20 years) with short to medium-term locality specific

actions

• Outcomes based approach to planning
• Programme based approach through the integration of sector specific projects

and locality specific actions

• Involvement of civil society and the business sector throughout the planning and

implementation process

• Selected attempts at participatory budgeting at the area level
• Leveraging of resource commitments from all stakeholders (funding, sweat

equity, materials)

• Fragmented and little attempts to apply the sustainable livelihoods (vulnerability

and asset-based) approach in the urban context

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DEFINING URBAN MANAGEMENT UNDER TTRI

• Urban Management has emerged during the past

20 years to illustrate an (i) astute mobilisation and combination of capabilities, local talent, ingenuity, resources by the local authority to steer the collective aspirations and initiatives of (ii) various urban actors (public sector, private sector and civil society) in a direction which (iii) maximises the benefits of city life for all citizens whilst enhancing competitiveness.

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PERSPECTIVES OF URBAN MANAGEMENT UNDER TTRI ctd..

• Inclusionary by nature throughout the delivery process
• Accepts urbanization and population increase as a natural

phenomenon rather than a crisis which must be controlled

• Organizes and facilitates the interplay between various

urban actors,

• Moderates conflicts over the use of public space and

facilities

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PERSPECTIVES OF URBAN MANAGEMENT UNDER TTRI ctd..

• Redressing the malfunctions that may occur in

the use of public and private environment

• Reversing potential threats to the quality of life

(livability)

• Adopts a managerial approach to planning and

implementation (planning becomes more predictable)

• Promoting competitiveness of localities through

territorial marketing

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PERSPECTIVES OF URBAN MANAGEMENT UNDER TTRI ctd..

• Promotes a positive and friendly use of public space

and socio-economic facilities such as markets, taxi ranks, bus stations, community parks, playgrounds, pedestrian walkways, open spaces, schools, public buildings, health facilities, etc.

• Encourages a positive use of private space which

promotes the peaceful living together of communities within their neighbourhoods

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SELECTED APPLICATIONS AND BENEFITS OF URBAN MANAGEMENT

• Effective involvement of civil society in the implementation, operation and maintenance of public

facilities

• If well structured, community-based operation and maintenance will expand the scope of

livelihood-making activities of resident communities through user fees for certain facilities such as public toilets, community gardens, parks, playgrounds, markets.

• Unlike in classic urban planning, some of the planned activities do not necessarily require the

availability of financial resources to start (sweat equity)

• Time lag between planning and implementation falls flat because of action orientation
• Quick demonstrative and symbolic measures include the cleaning of gutters, grass-cutting,

regular detection and repair of malfunctions in public lighting and other facilities, community clean-up campaigns with symbolic actions by high public figures such as the mayor and the city manager

• In a longer term successful urban management can trigger a culture of joint accountability

between the city authority and civil society, thereby reducing the potential for tensions that are usually associated with top down classic participatory urban planning.

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WHY URBAN MANAGEMENT IN TOWNSHIPS?

• Townships are pressure points of urbanization; and the massive

investment that went into them thus far through the housing programme presents an opportunity to use them as sites for activating the secondary property market to create livable environments

• Townships are the main spatial form of living of the majority of lower to

middle class South Africans; they are becoming appropriate sites for gauging the quality and pace of transformation of the country’s space economy

• The coexistence of two major dedicated public sector development

programmes such as URP and NDPG presents a unique opportunity to provide material evidence in government’s faith in Area based programming as an effective way to reverse poverty by restoring livability and competitiveness

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WHY URBAN MANAGEMENT IN TOWNSHIPS?

• Townships are host to a great majority of the country’s youth with a high potential

for civic disconnect, if not offered better perspectives

• Townships are the best demonstration sites for reverse-engineering the apartheid

settlement logic (laboratories of social cohesion, and sustainable human settlements)

• Townships present an opportunity to use state investment as a lever for public

investment crowd-in in a fashion which supports livelihood-making and commitment to place

• Government has made significant strides in re-organising the state to delivery

better quality services at a higher pace. The magnitude of the urban challenge, however, requires mobilizing the idle human and social capital in townships through a bold institutional approach to urban management in order to achieve the required economies of scale in combating poverty.

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The competing ideologies of Public Management and Governance

Traditional public administration “New” Public Management Network governance Context Stable Competitive Continuously changing Population Homogeneous Atomised Diverse Needs/ problems Straightforward, defined by professionals Wants, expressed through market Complex, volatile, prone to risk Strategy State and producer centred Market and customer centred Shaped by civil society Governance through actors Hierarchies Public servants Markets, Clients & Contractors Networks/ partnership Civic leadership Key concepts Public goods Public choice Public value

Source: Benington and Hartley 2001

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Urban planning and management across public management ideologies

Traditional public administration “New” Public Management Network governance Innovation Some large scale, universal innovations Innovations in process and content Innovation at central and local levels Improvement Initial ‘Breakthrough’ change but not sustained Improvements in processes & systems Transformational and incremental improvements Role of policy makers Commanders Announcers/ commissioners Leaders and interpreters Role of public managers “Clerks and martyrs” Efficiency and market maximisers “Explorers” Role of population Clients Customers Co-producers

Source: adapted from Benington and Hartley 2001

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Bureaucracy

Rules and Procedures

Self-Governance

Empowerment

Network Governance

Partnership

New Public Management

Managerialism

Decentralisation

South Africa

Complex

Source: Newman 2000

Simple Centralisation

SA’s Governance Trajectory

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Planning & management across governance paradigms

Traditional public administration -TIERS “New” Public Management – BUSINESS UNITS Network governance – SPHERES and external stakeholders

Planning and Management

Top down approach Administration of a hierarchy of plans Rigid systems Compliance based Religious adherence to rules and procedures Alignment via contract Scope and focus Intergovernmental and service level agreements Responsive “City contract” Alignment via relationships Network of plans Dynamic system Community contract People’s contract On-going adaptation

Development interpretation

“Welfare State” Infrastructure bias Interventionism “Market as provider” PPP bias Enabling “Co-Innovation” Social and human capital bias Engaging (Activist)

Performance

Instructions from above Indicators and targets score cards Vision and commitment Joint accountabilities Source: Adapted from D. Schmidt (unpublished document)

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Maturing Civil Society for Partnerships

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‘Give Us The Tools And We Will Do The Job’

Thank You !