1

Figure 1 Inner-City of Durban Local Area Plan, 2016 Source: eThekwini Municipality (2016)

Inner city housing

Learning Note:

March 2016

1. introduction

Focus on durban

This research was commissioned by

Oxfam in order for itself and its urban-

based partner organisations to

understand the national and municipal

processes that surround providing

decent housing to vulnerable groups

within the inner-cities of South Africa.

This research series consists of two

learning notes. Learning note one is

applicable to all South African partners

and provides general, high-level

information on inner-city housing. This

learning note, learning note two,

focuses on housing in the Durban Inner-

City in more detail. It provides an

overview of housing risks within the

inner-city of Durban and the plans and

policies currently in place to address

these risks.

The eThekwini Municipality has defined

the inner-city area as extending from

the Umgeni River in the north, the

Beachfront and Point to the east,

Victoria Embankment to the south and

Warwick Avenue, Umgeni Road to the

west. The image alongside portrays this

area.

2

Historically, the inner-city comprised mostly of commercial businesses, entertainment and

institutional uses, however, new development and massive investment north of the inner-city has

resulted in the exodus of these uses, in favour of more residential use. The flight of capital

investment out of the inner-city has led to high building vacancies, reduced property values and

lower rates revenue, which can lead to urban decay. Conversely, the flight of capital has also opened

up access and opportunities for small businesses and a variety of new uses, leading to greater

inclusion and transformation.

The residential housing profile is complex and includes formal residential accommodation for rental

and ownership, tourist accommodation, social housing, a hostel, transitional housing, student

accommodation, low budget overnight establishments, welfare shelters, workhouses and rough

sleepers. While those with little to no income are the major users of the inner-city, they are

inadequately catered for with regard to housing. Students, foreign nationals, and those who may

have permanent homes elsewhere, but need periodic or temporary accommodation in the inner-

city, are also inadequately catered for. The shortage of cheap accommodation fosters unscrupulous

practices such as inflated prices for increasingly overcrowded and unsafe accommodation. Non-

compliance issues include unlicensed accommodation, sex work, illegal liquor establishments, illegal

foreign-nationals, illegal building invasions, and business zoned premises being used for residential

purposes.

Human Settlements, which includes housing, is a national and provincial government mandate,

although eThekwini has been recognised as an accredited metropolitan municipality and has certain

delegated powers and responsibilities.1 eThekwini Metro’s strategy for dealing with these residential

issues is to promote new residential investment across the income spectrum, promote new models

of accommodation for very low income residents, reclaim dysfunctional housing stock and minimise

dysfunctional and exploitative residential practices. However, the focus of the metro, in line with

government housing policy, has been on greenfield developments and upgrading informal

settlements on the periphery of the city. An interview with the eThekwini Human Settlements

Department revealed that this emphasis has recently changed, and there is a current drive to

intervene in the inner-city, with a few projects currently in the feasibility stage. Initially, state-owned

properties are the priority but the potential to link the upgrading of ‘bad buildings’ with a public

housing program is being explored. Furthermore, the metro has initiated several projects, plans and

policies, which hope to appease the housing issues. These are discussed in more detail below.

1 SALGA (2012) Available: http://goo.gl/LIyCLL

2. Situational Analysis

3

The following plans, programs and policies are in various stages of development but have all been

instituted to leverage economic growth in the inner-city of Durban and to improve the conditions for

residents.

3.1. Integrated Rapid Public Transport Network (IRPTN)

Go!Durban is the name of Durban’s rapid bus transit system which is intended to improve

accessibility and reduce inequality in eThekwini. This project is a long-term (25 year) project and

implementation of the first phase began in 2014.2 Go!Durban will assist the housing problem by

making many of the peripheral residential locations more viable for individuals with lower income,

through cheaper and less time-consuming transport options.

3.2. Nodal Development

eThekwini is a polycentric city, and the current agreed development concept is to reinforce the

nodes, and promote intensification and densification along the transport corridors that link the

nodes together (referred to as Transit-oriented development, or TOD). The eThekwini Municipality

has recently adopted a Densification Strategy (2014)3 which is intended to direct and inform

development planning for the whole municipal area going forward.

The inner-city is one such primary node that will be receiving increased attention, therefore, the

eThekwini Metro has initiated an Inner-City Local Area Plan and Regeneration Plan. The LAP is in the

conceptual framework phase and the internal departments are currently undertaking specialist

studies to check feasibility of implementing development proposals. Once this process is

complete, the metro will then have a council approved document/plan to be circulated to all

stakeholders.4 The metro is taking queries and comments on InnerCity@durban.gov.za.5

The following areas within the inner-city have been earmarked for intervention by the private

sector, the metro and government.

Warwick Precinct: The South African National Treasury Department has identified the Warwick

Precinct as a priority area requiring intervention to support socio-economic improvement and

growth in Durban and the development of a precinct plan is underway.6

2 Go!Durban (2016). Available: http://www.godurban.co.za/

3 eThekwini Municipality (2013) Available: http://www.durban.gov.za/Resource_Centre/reports

4 Email correspondence with Zakhi Mkhize, eThekwini Municipality.

5 Also see http://www.durban.gov.za/Resource_Centre/Current Projects and Programmes/Inner City LAP/ for

further information and to sign up as a stakeholder.

6 See the Uban Land Institute’s recent research on Warwick Junction (2015) Available: http://uli.org/wp-

content/uploads/ULI-Documents/Durban-SouthAfrica_PanelReport_lo.pdf

1. 3. Municipal Interventions for the Durban Inner-City

4

DUT (Durban University of Technology): DUT has developed a masterplan, which includes the need

to address the housing shortage for students, and is hoping to collaborate with eThekwini Metro on

the plan.7

Rivertown: Proposals for the revitalisation of the motor-town area to the east of the Durban

International Convention Centre were initiated as a possible legacy project of the UIA World

Architecture Conference ‘Otherwhere’, held in August 2014.8 The proposed revitalisation area is

being referred to as ‘Rivertown’ as an acknowledgement of the large canalised water-course that

runs through the area. The intention is to promote the area as a high density, mixed-use urban

precinct, with a focus on residential and creative industries and entertainment.9

Pixley Kaseme Street: Propertuity, the development company responsible for initiating the

transformation of the formerly degraded Maboneng precinct in Johannesburg, is in the process of

converting 2 buildings (320 and Pixley House) in Pixley Kaseme Street (formerly West Street) to

residential spaces. Initially, the residential units were for sale and 129 units in Pixley House sold in 2

weeks, but they have subsequently been converted to rental due to difficulties obtaining end-user

finance for buyers. Propertuity are focusing on households earning above R15 000 per month.10

Albert Park: There have been a few proposals for new social housing in Albert Park. The park itself

has been identified as a potential site. However, the current status of these proposals is unknown.

Parts of the park are used as a place for rough sleepers, but the municipality has been trying to stop

this.

Point Precinct Plan: There is a current planning exercise underway for the Point precinct. The study

area excludes the Addington/South Beach area. The proposals indicate that the development bulk in

the area will be greatly increased, including residential accommodation and hotels, but the focus is

on the middle to upper-income market segment. Development will be driven by a private Malaysian

company, who owns the land, in partnership with the municipality. The re-zoning application is

currently in progress and plans are available to view as part of this municipal process.11

South beach/Addington Precinct Plan: The area is perceived to be unsafe, and is believed to have a

high level of illegal activities occurring there. In spite of concerted efforts and some successes in

dealing with dysfunctional buildings in this area, for the moment, urban management problems

persist. The current re-development of Addington Hospital, as well as the Children’s Hospital,

represents significant investments in the area, which seems to show that there are opportunities for

appropriate development of affordable accommodation. This area is included as a priority in the

current Inner-City Local Area Planning project.

7 Durban University of Technology Annual Report for 2014 (2015) Available:

http://ddt72ar9zv4px.cloudfront.net/wpcontent/uploads/corporate%20affairs/DUT%20ANNUAL%20REPORT%202014%20LOW.pdf 8 Otherwhere Regeneration Projects (2014) Available: http://www.uia2014durban.org/resources/docs/

1553_Turn_UIA_News_6_Download.pdf 9 See http://propertuity.co.za/property/rivertown-triangle/

10 Propertuity (2016). Available: http://propertuity.co.za/property/320-pixley/

11 See the Point Waterfront zoning application, economic impact assessment, development framework plan and

other related information here: http://www.durban.gov.za/City_Services/development_planning_ management/Documents/

5

Cornubia: The Cornubia project, north of the CBD, is one of the biggest new development projects in

South Africa, and is planned as a new integrated development node. While the Cornubia housing

project is not within the inner-city, it has the potential to reduce the inner-city housing demand. The

proposed development includes commercial and industrial, social facilities and recreation, as well as

24 000 residential units, the largest proportion of which are meant to address existing affordable

housing backlogs. The first phase of the residential project has recently been completed and the

next phase is currently in implementation. The project is a partnership between Tongaat Huletts and

the eThekwini Municipality, and is a pilot for denser greenfield development than has been the

norm.12

3.3. iTrump’s Better Buildings Program

iTrump is an area based management (ABM) unit of the municipality responsible for the

regeneration of the inner-city. Its Better Buildings Program is an inter-departmental program which

focusses on compliance with environmental health and safety (especially fire) regulations, and to

some extent, urban management issues. Mounting legal action against owners of dysfunctional

buildings is one of its core roles. iTRUMP has a building profile for all identified ‘bad buildings’ in the

city and has also identified dysfunctional Body Corporates as an important risk factor; it has

proposed Body Corporate training as a possible remedial strategy.13

3.4. Vulnerable Groups

eThekwini Municipality has developed a Vulnerable Groups Program14 to deal with issues affecting

vulnerable groups. The eThekwini IDP identified the following groups as vulnerable: people living

with disabilities, children, elderly, homeless, foreign nationals, including refugees, people living with

HIV or AIDS, youth and women.15 The municipality further initiated a Safer Cities Program in 2000.

This program, together with iTrump, has been responsible for working with street children to

provide, among other things, safe refuge, although this program is not intended as a housing

intervention. There is a shortage of appropriate accommodation and care for the elderly, especially

the elderly with little to no income, and there is no housing policy that specifically targets the

elderly.

The National Social Housing Projects (NSHP), who currently manage a number of shelters in the

inner-city of Durban, is currently working in partnership with the eThekwini municipality to develop

a project called Qalakabusha One Stop Centre, which they hope will be implemented at 16 Dr

Goonam Street.16 This is a pilot project and is targeted at 300 people who were living in and around

Albert Park, many of whom have substance abuse problems. The project will include rehabilitation

and other social and medical support, as well as skills development and job readiness support.

“According to the National Social Housing Projects NPC, 65% of the homeless people in the streets

are South African citizens, 35% consists of foreign nationals, refugees and illegal immigrants. From

12

eThekwini Municipality (no date) Available: http://www.durban.gov.za/City_Services/housing/Pages/ Cornubia.aspx 13

eThekwini Municipality (no date). iTrump. Available: http://goo.gl/FGEIHB 14

eThekwini Municipality (no date). Vulnerable Groups Program. Available: http://goo.gl/S3gp4E 15

eThekwini Municipality IDP (2013-2014). Available: http://www.durban.gov.za/Documents/ City_Government/ IDP_Policy/IDP_2006_07.pdf 16

eThekwini Municipality (2014). Qualakabusha. Available: http://goo.gl/p2YNFG

6

the statistics they have gathered at the centre, 28% is from Albert Park, 17% from Umgeni Road,

10% from Bertha Mkhize Street, 8,7% from South Beach, 8,3% Berea Park, 7% from Mansel Road, 3,8

% from Esplanade, 1% from JN Singh Street and 16,2% were found just living around the CBD”.17

3.5. Application of National Housing Subsidy Programs

eThekwini Municipality’s update on its social housing delivery plan (2015) focussed on the inner-city

of Durban (the inner-city is a ‘restructuring zone’, which means that the Social Housing Program

applies). Delivery on this program requires strong collaboration between the metro and social

housing institutions (SHI). First Metro Housing Company and the Social Housing Company (SOHCO)

are the most active social housing institutions in Durban. They have successfully implemented a few

inner-city social housing projects in the South Beach area and in Albert Park. First Metro’s Avoca Hills

Housing Project earned the city an award for best practice at the Govan Mbeki Human Settlement

Awards in 2015.18 The eThekwini Human Settlements Department has facilitated the establishment

of 5 new SHIs in Durban, and is looking forward to growing the capacity of this sector to ramp up

delivery. The land, buildings and number of units identified for social housing programs by the metro

is detailed in the Department of Human Settlements’ update to the City Manager.19

The first Institutional Housing Program project in South Africa was carried out within the inner-city

of Durban as a pilot project. The facility is called ‘The Strollers’ and is located on Mansel Road.20 An

NPO was set up in order to access the subsidy but the project has not proven to be financially

sustainable and The Strollers remains under-utilised. The only existing Community Residential Units

Program in the inner-city of Durban is the Thokoza women’s hostel where, although overcrowded,

space is in high demand.21 The feasibility of a few new CRU projects in the inner city, including in the

Warwick Precinct, is underway at present. The Emergency Housing Assistance Program could be

applied to the dangerous conditions in many of the more dysfunctional buildings in the inner-city as

a temporary solution, but has not been applied to date.

The inner-city of Durban has suffered from the flight of capital in recent years and the onset of

urban-decay is evident in certain areas. Dysfunctional buildings and insufficient housing create

unsafe living conditions for all residents. iTrump and the Safer Cities program have been

instrumental in preventing urban-decay and protecting vulnerable groups within the inner-city over

the past ten years but, only recently, have the metro as a whole targeted the inner-city for

17

Durban University of Technology (2015) Available: http://www.dut.ac.za/a-one-stop-intervention-centre-for-the-homeless/ 18

eThekwini Municipality (2015) Available: http://goo.gl/Y7nXDh 19

Department of Human Settlements (2015). Social Housing Update. Available: http://www.durban.gov.za/City_Services/housing/Social%20Housing%20Introductory%20Workshop/Status%20Upade%20Social%20Housing%20-%2008%2006%202015%20(latest).pdf 20

For more information on the Strollers see Urban LandMark’s report (2008). Available: http://www.urbanlandmark.org.za/downloads/case_studies_integration.pdf 21

IOL (2015). Available: http://www.iol.co.za/news/south-africa/kwazulu-natal/durban-hostel-children-living-in-fear-1830016

87%

4. conclusion

7

development. The development of a Local Area Plan and Regeneration Strategy for the inner-city

promises an influx of capital and investment over the next five to ten years. Development projects

that are already evident include Go!Durban, Rivertown, Pixley Kaseme Street, the Point Precinct and

Cornubia. The renewed focus of the Human Settlements Department on social housing projects

within the inner-city is also promising. Within this new era of capital investment, the metro should

be careful maintain the inclusivity and informality of the space through monitoring the activities of

property companies and investing in responsible spatial and economic frameworks for the inner-city.

Engagement by civil society and the public is critical to achieving this balance and also holding the

metro to account.

Urban Land Institute (2015) ‘Warwick Junction Durban, South Africa’ (2015) Available:

http://uli.org/wp-content/uploads/ULI-Documents/Durban-SouthAfrica_PanelReport_lo.pdf

Architecture Otherwhere (2014). ‘Urban Regeneration Projects in Durban’. Available:

http://www.uia2014durban.org/resources/docs/1553_Turn_UIA_News_6_Download.pdf [Date accessed: 14

March 2016]

Department of Human Settlements (2015). ‘Presentation to City Manager: Status Update on Social Housing

Delivery Plan’. Available: http://www.durban.gov.za/City_Services/housing/

Social%20Housing%20Introductory%20Workshop/Status%20Upade%20Social%20Housing%20-

%2008%2006%202015%20(latest).pdf [Date accessed: 15 March 2016]

Durban University of Technology (2015) ‘Annual Report: 2014’. Available:

http://ddt72ar9zv4px.cloudfront.net/wpcontent/uploads/corporate%20affairs/DUT%20ANNUAL%20REPORT%

202014%20LOW.pdf [Date accessed: 14 March 2016]

Durban University of Technology (2015). ‘A one stop intervention centre for the homeless’. Available:

http://www.dut.ac.za/a-one-stop-intervention-centre-for-the-homeless/ [Date accessed: 15 March 2016]

eThekwini Municipality (2013) ‘eThekwini City Density Strategy’. Available:

http://www.durban.gov.za/Resource_Centre/reports/Framework_Planning/Documents/eThekwini%20City%2

0Density%20Strategy%20-%20May%202013.pdf [Date accessed: 14 March 2016]

eThekwini Municipality (2014). ‘Qalakabasha Intervention Program Underway’. Available:

http://www.durban.gov.za/Resource_Centre/Press_Releases/Pages/Qalakabusha-Intervention-Programme-

Underway.aspx [Date accessed: 15 March 2016]

Further reading

references

8

eThekwini Municipality (2015). ‘City’s housing project receives accolade’. Available:

http://www.durban.gov.za/Resource_Centre/new2/Pages/Citys-housing-project-receives-accolade.aspx [Date

accessed: 15 March 2016]

eThekwini Municipality (2015). ‘Point Development Framework Plan’, ‘Zoning Application’ and ‘Economic

Impact Assessment’. Available: http://www.durban.gov.za/City_Services/

development_planning_management/Documents/ [Date accessed: 15 March 2016]

eThekwini Municipality (2016) ‘Draft eThekwini Inner-City Local Area Plan: Invitation to Open Day’

Available:http://www.sapi.org.za/sites/default/files/kwazulunatal/eThekwini%20Inner%20City%20

LAP%20invitation%20open%20day%2018%20March%202016.pdf [Date accessed: 14 March 2016]

eThekwini Municipality (n.d.). ‘Cornubia Integrated Human Settlement’. Available:

http://www.durban.gov.za/City_Services/housing/Pages/Cornubia.aspx [Date accessed: 15 March 2016]

eThekwini Municipality (n.d.). ‘iTrump’. Available: http://www.durban.gov.za/City_Government/

Administration/Area_Based_Management/Pages/iTrump.aspx [Date accessed: 15 March 2015]

eThekwini Municipality (n.d.). ‘Vulnerable Groups Program’. Available: http://www.durban.gov.za/

City_Services/Community_Participation/Pages/Vulnerable-Groups-Programme.aspx [Date accessed: 15 March

2016]

eThekwini Municipality IDP (2013-2014). Available: http://www.durban.gov.za/Documents/

City_Government/IDP_Policy/IDP_2006_07.pdf

IOL (2015). ‘Durban hostel children living in fear’. Available: http://www.iol.co.za/news/south-africa/kwazulu-

natal/durban-hostel-children-living-in-fear-1830016 [Date accessed: 15 March 2016].

Kitchen, F & Ovens, W (Urban LandMark) (2008). ‘Case Studies on Integration’. Available:

http://www.urbanlandmark.org.za/downloads/case_studies_integration.pdf [Date accessed: 15 March 2015]

SALGA (2012) ‘Municipal Focus’. Available: http://www.salga.org.za/pages/Municipal-Focus/Accreditation-

and-Assignment-of-Housing-Function# [Date accessed: 14 March 2016]