THE ROLE OF PHILIPPI HORTICULTURAL AREA IN ... -...

4titi REPORT TO ECONOMIC, ENVIRONMENT & SPATIAL PLANNING COMMITTEE

tlTY DF CAPE TnWK IISIXEKD SASEKAPA I sun KAAPSTAD

1. ITEM NUMBER: EESP 13/10/12

2. SUBJECT

THE ROLE OF PHILIPPI HORTICULTURAL AREA IN SECURING THE FUTURE OF THE CITY

ONDERWERP

DIE ROL VAN DIE PHILIPPI- TUINBOUKUNDIGE GEBIED IN DIE BEVEILIGING VAN DIE STAD SE TOEKOMS

ISIHLOKO

INDIMA ETHATYATHWE NGUMMANDLA WOKULINYWA KWEMIFUNO NEENTYATYAMBO WASE-PHILIPPI EKUKHUSELENIIKAMVA LESIXEKO LSU C4995

3. STRATEGIC INTENT

This report, concerning the endorsement of a policy to guide land use and activities in the Philippi Horticultural Area, and ensure long-term food, job, and water security, is aligned with Strategic Focus area 1: The Opportunity City, and specifically objective 1.3. The report is also aligned with objective 1.1: Create an enabling environment to attract investment that generates economic growth and job creation, as it supports the creation of a wider range of job opportunities, particularly for low skilled workers, and significant general job creation and economic growth, contribute in turn to creating a more sustainable and resilient city. Finally, the report is also aligned with objective 1.2: Provide and maintain economic and social infrastructure to ensure infrastructure-led growth and development, as it supports sustainable city development by promoting the development of already identified and planned for new development areas in the vicinity of the PHA rather than the unplanned for development of an acknowledged agricultural area of the city.

IZI Opportunity City

D Safe City

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o o o

Caring City

Inclusive City

Well-run City

467

4. PURPOSE

The purpose of this report is to gain an understanding of the value of the Philippi Horticultural Area to Cape Town's food security and economy in particular, and to point out the development pressures on the Philippi Horticultural Area and what alternative land has been identified to accommodate human settlements. In so doing the existing policies pertaining to the Philippi Horticultural Area are clarified.

5. FOR DECISION BY

[gJ This report is for decision by:

• Council

Not delegated: for decision by Council

6. EXECUTIVE SUMMARY

The Philippi Horticultural Area (PHA) is a critical resource in Cape Town due to: • its exceptional horticultural production (linked to unique local climatic and

water availability conditions); • the current and future possibilities of the high quality subsurface mineral

resources in the form of silica sand and important, though lower value, building sand; and

• its role in contributing to securing affordable food, which is becoming increasingly important, as well as holding potential for long-term water supply in Cape Town.

The labour-intensive horticultural sector is currently a major employer of especially lower-skilled workers. Currently 2350 - 3760 people are employed (varying seasonably), and this has the potential to grow as more horticultural land becomes available after mining operations are completed.

The impact of climate change on food production, and fuel security on the affordability of food, heightens the value of the PHA to the City's food security.

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468 The area does, however, have significant management challenges and urbanisation pressures, most notably competing land demands for housing. Given the nature of the central location of the PHA and the housing need in Cape Town, the PHA is under significant pressure to be developed for residential purposes.

This is reflected by the pockets of informal settlement on parts of the PHA and non-conforming land uses in some areas. In this context, consideration of a "broader urban development scenario" for the PHA is a potential opportunity to address the need for affordable housing.

However, several risks and implications exist for the City in relation to this possible outcome. The most significant of these is the opportunity cost of foregoing the current exploitation of the PHA's economic resources. Beyond this, urban development, and specifically affordable housing, carries risks associated with the high water table on the majority of the PHA as a result of mining. Apart from increased costs of development there are challenges associated with the management of storm water so as not to impact on the water (aquifer) resource. The City will need to consider various service and infrastructure implications should this broader urban development scenario be pursued.

Given the value of the PHA resource in respect of food security and as an employment area of unskilled women, the current policy limits urban development in the PHA. The aim is to secure the resource for future generations and provide the certainty required for farmers to continue to invest in their horticultural operations in the long term. This is based on a body of research that quantifies its resource value and provides evidence that contradicts the notion that the area's horticultural role is declining. This policy approach does not ignore the new realities on the PHA, including the need to consider carefully how other land use pressures are managed. Various initiatives are aimed at complimenting the overall policy aim, including:

• a rationalization of the area retained for horticulture and mining has been included in current planning to allow for urban development on the western and eastern edges of the area, where resource values are low.

• the various City-owned urban development opportunity areas identified nearby the PHA should be aggressively pursued.

• further local area policy work is underway in the Schaapkraal and environs area to review the urban edge line and provide guidelines for use on either side of it to maximize economic and social benefits.

7. RECOMMENDATIONS

Not delegated: for decision by Council:

Recommended that:

"Council endorse the City's policy position on the Philippi Horticulture Area in light of its value to the City.

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This policy position includes endorsement of:

a) protecting and enhancing the identified PHA as highly productive horticulture area into the future;

b) preserving and exploiting the very important mineral reserves into the future within the area identified by the urban edge line as PHA;

c) the preparation of a PHA "resource management plan", covering aspects of safety, productivity and municipal servicing, among others, to be prepared as follow-up to this policy on the PHA, to assure its sustainability as a resource in the long run. This plan will need to deal inter alia with the following: i) enforcing all planning regulations and by-laws in the area; ii) taking legal action against land owners and communities as

appropriate. iii) relocating existing informal settlements in the PHA out of it; iv) not providing further municipal services to such settlements;

d) releasing the land already identified (in the CTSDF and draft Cape Flats District Plan) for new urban development in areas around the PHA (see Annexure A). To this extent emphasis will be on prioritizing and maximizing the urban infill development potential of these sites and minimizing their biodiversity reservation potential, in lieu of stronger biodiversity protection of already identified biodiversity sites elsewhere.

i) These potential urban infill sites include the following: • Ottery • Strandfontein East • Zeekoevlei • Pelican Park (excluding the 180ha already set aside for

conservation) • Strandfontein coastal node • Youngsfield

ii) Also included are the following potential urban intensification areas: • Strandfontein erf 1212 • Weltevreden Road 'wedge' • Schaapkraal Small holdings area • Lansdowne industrial area

e) the urban edge line as indicated in the Cape Town Spatial Development Framework,

i) however, this is subject to the urban edge line being refined in the vicinity of the Schaapkraal Small holdings area (in the west of the PHA) upon endorsement by Council of the 'Schaapkraal


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470 Small holdings and Environs Urban Edge and development Guidelines' study currently underway.

AANBEVELING

Nie gedelegeer nie: vir besluitneming deur die Raad

Aanbeveeldat:

Die Raad die Stad se beleidstand oor die Philippi- tuinboukundige gebied (PTG) onderskryf in die lig van die waarde daarvan vir die Stad.

Die beleidstand sluit die onderskrywing van die volgende in:

a) Die bewaring en ontginning van die baie belangrike minraalreserwes vir die toekoms binne die gebied wat deur die stadsoomlyn as PTG gerdentifiseer word.

b) Die beskerming en bevordering van die gerdentifiseerde PTG as hoogs produktiewe tuinboukundige gebied in die toekoms.

c) Die opstel van 'n PTG-'hulpbronbestuursplan', wat onder andere aspekte soos veiligheid, produktiwiteit en munisipale dienste behels, in opvolging van die beleid oor die PTG om die volhoubaarheid van die laasgenoemde as hulpbron op die lange duur te verseker. Die plan sal onder andere die volgende moet dek: i) Toepassing van aile beplanningsregulasies en -verordeninge in die

gebied ii) Die instelling van regstappe teen grondeienaars en gemeenskappe

na gelang dit toepaslik is iii) Verskuiwing van bestaande informele nedersettings in die PTG uit die

gebied uit iv) Die staking van verdere munisipale dienste aan sodanige

nedersettings

d) Die beskikbaarstelling van die grond wat reeds (in die Kaapstadse ruimtelike-ontwikkelingsraamwerk en die Kaapse Vlakte se konsepdistriksplan) vir nuwe stedelike ontwikkeling in gebiede om die PTG (sien bylae A) geIdentifiseer is. In die verband sal die klem geplaas word op die prioritisering en maksimalisering van die stedelike grondopvulpotensiaal van die terreine en die minimalisering van hul biodiversiteitsbewaringspotensiaal ten gunste van sterker biodiversiteitsbewaring van biodiversiteitsgebiede wat reeds elders gerdentifiseer is.

i) Die potensiele stedelike grondopvulterreine sluit die volgende in: • Ottery • Strandfontein-Oos

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471 • Zeekoevlei • Pelican Park (met uitsluiting van die 180 ha wat reeds vir

bewaring opsygesit is) • Strandfontein-kusnodus • Youngsfield

ii) Die volgende stedelike-intensiviseringsgebiede is ook ingesluit: • Strandfontein, erf 1212 • Weltevredenweg-'wig' • Schaapkraal-kleinhoewegebied • Lansdowne- industriele gebied

e) Die stadsoomlyn soos aangedui in die Kaapstadse ruimtelikeontwikkelingsraamwerk.

i) Dit is egter onderhewig daaraan dat die stadsoomlyn in die omgewing van die Schaapkraal-kleinhoewegebied (ten weste van die PTG) heromskryf word by onderskrywing deur die Raad van die studie oor die 'Schaapkraal-kleinhoewes en -omgewing se stadsoom en ontwikkelingsriglyne' wat tans onderneem word.

ISINDULULO

Azigunyaziswanga: Isiggibo seseBhunga:

Kundululwe ukuba:

"IBhunga maliqinisekise uluvo IwesiXeko ngokoMgaqo-nkqubo ngokumalunga wase-Philippi noMmandla ongokuLinywa kweMifuno neeNtyatyambo

ngokumalunga nexabiso lawo kwisiXeko.

Olu luvo ngokoMgaqo-nkqubo luquka ukuqinisekiswa:

a) kolondolozo nOkusetyenziswa kwemithombo ibalulekileyo kwixesha elizayo kummandla womqukumbelo wedolophu njenge-PHA;

yezimbiwa ochongwe

engeyona ngumda

b) kukhuselwe kwaye kuqiniswe i-PHA echongiweyo njengommandla ongowona unemveliso ephezulu kuLimo Iwemifuno neentyatyambo kwixes ha elizayo;

c) ukulingiswa. kwe-PHA "isicwangciso solawulo Iwemithombo", esithi sichaphazele imibandelo yokhuselo, uveliso nenkonzo kamasipala, ezinye eziphakathi kwazo, njengezilandelisayo kulo mgaqo-nkqubo onge-PHA, ukuze kuqinisekiswe ubuqilima base njengomthombo kwisithuba sexesha elide. Esi sicwangciso kuyakufuneka sijongane ngokungqinelana noku kulandelayo:

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472 i}. sinyanzelise yonke imigaqo engocwangciso nemithetho kamasipala

kummandla; ii}. sithabathe abanyathelo omthetho ngakubanini bomhlaba nakuluntu

njengokufanelekileyo. iii}. kufuduswe/kumiselwe ngokutsha amatyotyombe aphantsi kwe-PHA

ukuba abangaphandle kwayo; iv}. Kungabonelelwe kwakhona ngeenkonzo zikamasipala kuloo

matyotyombe/kwezo ndawo zokuhlala;

d} kunikezelwe ngomhlaba ekungokunje osele uchongiwe (kwisiCwangciso se-CTSDF nakwisiCwangciso esiluyilo sesiThilii sase-Cape Flats) kulungiselelwa uphuhliso olutsha Iwedolophu kwimimandla engqonge iPHA Gonga kwisiHlomelo-A}. Ukuzakuthi ga ngoku, ugxininiso Iwakuthi lubekucwangciso nokusebenzisa ngokumandla isakhono sophuhliso kumabala edolophu ngokujoliswe kwezi ziza kwaye kucuthwe isakhono sazo sezolondozo kwiindidi zezityalo nezilwanyana ezahlukeneyo, ithathwelwe indawo lukhuseleko oluluqilima lolondolozo Iweendidi zezityalo nezilwanyana oluselwe luchongwe kwenye indawo.

i} Ezi ziza zamabala edolophu zilindelekileyo, ziquka: • I-Ottery • I-Strandfontein East • I-Zeekoevlei • I-Pelican Park (ngahandle kweehektare ezili-1BO esele

zibekelwe ecaleni kulungiselelwa ezolondolozo Iwendalo) • Umqukumbelo wonxweme lase-Strandfontein • I-Youngsfield

ii} Kwakhona kuqukwe Ie mimandla ilandelayo: elindelekileyo yezodolophu oluxinanisiweyo: • Isiza-1212 esise-Strandfontein • Umhlatyana' we-Weltevreden Road • Ummandla ongeMimandla yase-Schaapkraal • Ummandla womzi-mveliso wase-Lansdowne

e} komda ongomqukumbelo wedolophu njengoko kubonakaliswe kwisakheko soPhuhliso IwamaBala saseKapa,

i} nangona kunjalo, oku kuxhomekeke ekubeni umda womqukumbelo wedolophu ukuba ulungelelanisiwe embindini wommandla weMimandlana yase-Schaapkraal (kwintshona ye-PHA) emva kokuba kuqinisekiswe IiBhunga 'iMimandlana yase-Schaapkraal noMqukumbelo oNgqonge iDolophu kunye noPhando olungeZikhokelo zoPhuhliso ekungokunje oluqhubekekayo.


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473 8. DISCUSSION

8.1. Background

Farming first commenced in the Philippi area with the arrival of German immigrants in 1877/8 and 1883 from the Uineburger Heide in northern Germany, a region with similar sandy and marshland conditions to the Cape Flats. By the 1950's the Philippi area had become the primary vegetable supply to Cape Town, and comprised an area considerably wider than the Philippi Horticultural Area (PHA) of today, although at significantly lower intensity and productivity.

In the following decades expansion of Cape Town increasingly began to intrude into this farming area, and as a result it diminished in extent. Despite this, the PHA has become increasingly significant as a critical and unique resource base for continued job creation and economic development, both in the Metro South East, but also in the context of the wider metropolitan area.

In terms of current trends relating to resource extraction and use (e.g. water demands and food production), if well managed, the value of the PHA to Cape Town's people, is likely to grow, rather than reduce.

8.2. The PHA: a unique resource - unpacking its current value and future potential

8.2.1. Economic Role: Agriculture

For over a century the PHA has been the principal vegetable supplier to Cape Town. In recent decades its farmed area has diminished, but the tonnage supplied has increased as the remaining land has been more intensively farmed.

Today the PHA produces an estimated 50% of all vegetables supplied to the cityi. This includes the production of over 50 different horticulture cropsii. It is estimated that just under 100000 tons of fresh produce is grown in the PHA annuallyiii. In 2008 estimated production value from the PHA 'at the farm gate' was R150 millioniv.

By comparison with any other farming in South Africa, the horticultural farming in the PHA is by far the most productive per hectare (in 2008 R90 aOO/ha vs R18 000 for viticulture)". Similarly, nett farm incomes and gross margins are the highest in the country by far for comparable agricultural areas. This is a unique, highly specialized, and very successful farming system and involves a complex network of farm-based and off-farm economies.

This includes input suppliers such as seedling suppliers, fertilizer and infrastructure suppliers, and compost suppliers, as well as food chain

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474 interventions such as processing plants, pack-houses, wholesalers, transportation suppliers, and formal and informal marketsv,.

Although farming in the PHA has been consolidating in recent times in line with 'economies of scale' trends countrywide, the ability for small commercial farmers in the PHA to 'contract in' to larger farming concerns is more favourable than on bigger farms elsewhere (re- use of machinery, access to packaging facilities, and general operational oversight). The potential opportunities for new and emerging farmer entrants is therefore arguably that much greater, as is indeed proving the case.

The PHA employs between 2350 and 3760 peoplevii, almost all of whom would be classified as unskilled labour, and the majority of whom are women (Le. from the most vulnerable groupS)Viii. A significant opportunity exists in the PHA for food production and employment increases, given the patch-work of under-utilised land with significant potential as productive horticultural land.

8.2.2. Food Security

The City of Cape Town, like all cities in South Africa, is a highly dualistic and inequitable urban area, with a high percentage of poor households living in generally uniformly poor areas. It has been estimated that up to 80% of all households in these poor areas are 'food insecure', in not being assured of regular and sustainable foodix.

Not only is this a question of access to food but access to nutritious food. For many households vegetables are often simply too expensive to afford. Predicted climate change may potentially exacerbate food production and food access in the Western Cape.

The PHA, notwithstanding negative externalities such as crime and urban intrusion, has a number of significant competitive advantages. It has a local climate conducive to multiple cropping per annum (between 2,5 and 5 per annum) due to cooling sea breezes in summer, the like of which does not exist within a radius of at least 400km of the cityx.

The aquifer and high water table provides easy access to free water. And it's very close access to market gives a transport cost advantage and therefore relative pricing advantage.

Furthermore, the close access of poor communities to the PHA provides greater (potential) access to vegetables, and most particularly damaged I 2nd grade vegetables. Employees on PHA farms enjoy an average 'food basket supplementation' of 2,5kg of 'damaged' vegetables daily".

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475 8.2.3. Economic Role: Mining

The PHA is the site of a substantial mineral resource. This comprises building sand and silica sand. Of the two the silica sand is the most important as it is the best quality glass sand deposit in the country.

The silica sand deposits are entirely subsurface (i.e. not in but under the dunes). The minimum accessible reserve is 120 million tons, with an estimated total value of R8.04 billion (in 1999)Xii, and located in the middle and northern parts of the PHA. Extensive further deposits exist elsewhere under the PHA, but are not likely to be feasible to extract. In 1998 nearly 30% of all high grade silica for glass production was drawn from the Philippi area"" (the existing Silica Sands extraction site just north of the PHA).

Building sand deposits in the Philippi area have been heavily mined over the years (approx. 33,5 million tons to date). An estimated 26 million tons remain in the Philippi area, of which 20 million tons are within the PHA, almost entirely concentrated in the as yet unfarmed south-east partXiv. In terms of the former Guide Plan building sand extraction was permitted down to 'a level no deeper than the general surrounding area'. In terms of the Minerals Resources Act (50 of 1991) mining could occur down to 1m above the water table, for use thereafter as agricultural lands.

The Philippi and PHA areas were, and remain, most favoured extraction areas due to their proximity to the growing metropolitan area (and related lower transport costs).

8.2.4. Water Security

The PHA overlays a part of the Cape Flats aquifer, most of which is already 'covered' by urban development, including Mitchells Plain and Khayelitsha. The PHA area forms the largest remaining area of the aquifer not yet built over, and the south-east of the PHA is the area of greatest transmissivity (absorption) of the aquifer.

The estimated annual yield of the aquifer is 18 million m3 per annumxv and, due also to its high water table, is a readily accessible source of free irrigation water for farmers in the PHA.

However, given that Cape Town is a rapidly growing metro in a water scarce region, and' that available potable water supply is limited, this resource has been identified by the City as one of a number of potential future potable water supply sources (currently ranked fourth in terms of costs in the Water Services plan for investigation)XVi.

Climate change predictions, and the view that the Western Cape is a climate change 'risk area', merely underscores the potential value of this aquifer to the City into the future.


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The aquifer is acknowledged to be negatively impacted upon by both urban development and agriculture. However, the toxin and contaminant infiltration does not exceed acceptable levels. This will need to be investigated in detail from time to time in future.

8.3. The PHA: a resource under threat - implications and risks associated with urban development and current management challenges

8.3.1. Pressures on the resource

There are several significant pressures which threaten the PHA's current role and future potential. (see table below). The threats are reflected in the "proliferation of illegal and non-conforming land uses", and "urban externalities" are to a significant extent management issues. Addressing these challenges is not insurmountable. Concurrently, significant pressures exist relating to land speculation and housing demand. The former in particular is more fundamentally linked with the perception that urban development will be allowed on the PHA.

In the context of these pressures, it is necessary to consider an alternative urban use for the PHA, and related to this, the potential opportunity cost and possible implications of, and risks related to, a broader urban development scenario for the bulk of this land.

Pressure Type Entity

Rapicorp Pty Ltd structure plan (urban edge line) amendment for

Land speculation 470ha in south-east of PHA MSP structure plan (and urban edge line) amendment aoolication Other (past & ootentiail arouos Individual owners

Community I public pressure

Housing land demand City's Human

Settlements (unofficial) policy position, including Human

Council's policy on the PHA in light of its value to the city IAugust 2012)

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•

•

•

•

•

Impacts

Usually results in farming activity on land being stopped, resulting in immediate job losses (This includes the case of the MS P land). The farming activity is stopped by the speculative developer as it improves the chances for planning approval if the land is unproductive and becomes a problem area - similar to 'block busting' in urban areas. Creates uncertainty among neighboring farms as to whether to invest as much in medium & long tenm future agricultural production Distorts land pricing for agricultural land to the extent that eventually the future income stream of agricultural production is cashed in for the short-term gains of land sales. Housing subsidies also distort the pricing in the absence of aaricultural subsidies. PHA targeted as flat land for potential new subsidy liousing, despite it having inherent urban agriculture value, & also being entirely orivately owned Uncoordinated City policy position & approach to development management in the PHA area Support of land speculators who expect to obtain easier planning approvals from Council and Province with linkaaes to affordable

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477 Settlements' land housing elements. option (now lapsed) Informal • An enormous threat requiring constant settlements monitoring and action.

• Associated with negative environmental externalities (dumping & land in-filling; waste

Illegal and non- water groundwater pollution) conforming land • Requires (retrospective) servicing into an area use activities not otherwise considered to warrant such

(being a rural area)

• I ronically, the agri-job opportunities add to the pressure for accommodation which in turn reduces the number of available jobs -potentially a vicious circle.

Industrial & • Noxious (air & groundwater) pollutants commercial associated with certain activities activities • Undermining integrity of agriculture area

• Undermines management authority & its effectiveness

• Distorts land pricing in a rural I agricultural area I market to the extent that eventually agriculture effectively becomes unviable on such land

Petty crime (food or • Ranges from nuisance impact to risk to life. vandalism of • Potentially massive equipment replacement equipment I costs. Has resulted in alternative vandall theft property) and -proof equipment (plastic rather than steel etc.)

Urban Externalities organised crime • Greater costs on security (personnel & fencing etc.)

Transport • Over-utilised rural roads (exacerbated by lack (commuter) access of recent investment in new routes e.g. R300)

• Open access through the area by the public, some of whom are responsible for criminal activity.

8.3.2. Risks relating to a broader urban development scenario for the PHA

The opportunity presented by the PHA for urban development warrants careful consideration. This Is in the context of urban development pressure in the PHA which has been steadily increasing, particularly in the west where the designated Schaapkraal Small holdings area is problematic to manage and non-conforming land uses, including a number of informal settlements, have proliferated.

There is a perception that the PHA should be favoured for future urban infill, particularly low income housing, given its location in the city and also the massive demand for large tracts of land for affordable housing. This perception is based on the land price appearing cheaper per hectare before adding the costs of servicing and stormwater management due to constraints peculiar to the PHA.

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(78 However, a broader urban development scenario for the PHA holds a number of potential implications and risks to the City and several considerations in this regard are relevant. These include:

• Opportunity cost: The broader urban development scenario for the PHA implies a conversion of the majority of the land from horticulture to urban development. Once urban development has eroded the horticultural area to below a critical mass the change is irreversible. This would not only have more immediate impacts on the economic benefits related to the resource, but also threatens longer term potential benefits that may yet be derived from the resource, which will become even more significant over time.

Global and local analysts concur that food security will be increasingly one of the most critical issues in the foreseeable futureXVii

• Protecting food security linked directly to unskilled jobs must inevitably be played off against large scale housing development.

• Suitability of the land for affordable housing: Considerations regarding the particularly high water table on the PHA are a significant risk to urban development, particularly affordable housing. Issues relating to the high water table are linked to sand mining activities administered by the Department of Minerals and Energy in terms of the Minerals Resources Act (50 of 1991).

Mining activities in the PHA were permitted such that at conclusion rehabilitation areas are 1 m above the high water table. Mining permits issued for more than two decades did not take into consideration· the possibility of future urban development as the Guide Plan indicated a post-use for this area as agriculture.

As a means of comparison, in the Macassar Dunes area, the Department of Water Affairs and Forestry (DWAF) has recommended that, to adequately address problematic stormwater infiltration, a minimum depth of 6m above the water table should be preserved in considering urban development. (see Macassar Dunes Management Plan).

This permission to mine up to 1 m from the water table is low in relation to high seasonal winter rainfall events and consequent water inundation and flooding. For future urban development, this is considered extremely low with the very high water table, artificially created through extensive sand mining, having substantial implications for built development, including:

o Flooding, and expensive stormwater management given limited fall/gradient. Whereas construction of large-scale urban developments on land with such a high water table is


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not technically impossible, the cost implications will be significant and densities will need to be low so as to provide for flood attenuation mechanisms with consequent expensive infrastructure service runs.

o Building foundations and service infrastructure (Le. for stormwater and wastewater) intruding down into the water table, with potentially serious implications for the water (aquifer) resource.

o Little room remaining for management of stormwater infiltration, including contaminants, into the water table.

To this extent, and as experience in the Ottery area has previously indicated, these costs could potentially exclude the possibility of subsidised housing from being built here due to feasibility constraints. However, no detailed feasibility study has yet been conducted to assess this impact.

• Potential service implications of urban development: If major new urban development were to occur on large parts of the PHA there would be significant implications for infrastructure provision elsewhere in the city. This relates to:

o Water: Although the aquifer underlying the PHA is not considered a large potential potable water resource, and as a result has not yet been investigated in detail, given the predicted future water scarcity in the Western Cape it nevertheless needs to be reserved for future consideration. Whist urban development is not considered to necessarily impact more negatively on the aquifer than horticulture if correctly designed, built and managed, it is acknowledged that it is very difficult, if not impossible, to manage, particularly where informal settlements are prevalent.

o Waste water: With regards to waste water reticulation and treatment, there is, firstly, a major pipeline running southwards along Strandfontein Rd to the Cape Flats Waste Water Treatment Works (WWTW) which could accommodate flow from major new development in the PHA. There is also considerable spare capacity at the Cape Flats WNTW itself which could accommodate for major new development in the PHA. However, should major new urban development in the PHA occur this excess capacity, which is currently expected to accommodate flow from new development on already identified urban infill sites and the servicing of backyarders and other urban densification (nodes and corridors) areas, will be severely diminished.

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o Transport infrastructure: The impact of major new urban development in the PHA on transport infrastructure would be considerable. This would not be confined only to the PHA and immediate surrounds, but rather to the entire south-east metro region and even beyond. Planning for transport infrastructure over recent decades has not considered the possibility of major new development in the PHA. As it is, the south-east metro region area is already considerably underserved by major transport link infrastructure, including expressways / freeways, major connectors, and also possibly rail. Furthermore, the new urban infill development areas and node and corridor densification areas identified in the CTSDF and draft Cape Flats District Plan are generally aligned with major transportation routes, and therefore supportive of urban efficiencies. On the other hand, however, any development on the remaining PHA, and particularly the southern areas thereof, would be considered from a transportation perspective as development on outlying, and potentially isolated and fragmented urban periphery areas.

8.4. Alternative land for affordable housing close to the PHA

In the context of these pressures, specifically that of land for affordable housing, the consideration of alternative land presents both a challenge and opportunity. Significant portions of land have been identified for future urban development in the direct vicinity, but outside, of the PHA in recent City policy planning. This includes through the CTSDF and draft Cape Flats and Khayelitsha & Mitchells Plain District Plans.

Both the private and public sector have over time developed the easier and the cheaper sites. It is acknowledged that these sites are not without challenges (most notably biodiversity aspects). However, these sites were identified with due regard for both meeting the intense demand for public / low income housing somewhere in the city, as well as retaining valuable natural resource areas, including the PHA, against intense development pressure. In seeking to maximize the development opportunities, and minimize the environmental constraints, on these sites the Directorate: Economic, Environment and Spatial Planning will strive to minimise the biodiversity reservation potential on these sites, in lieu of stronger biodiversity protection of already identified biodiversity sites elsewhere ..

Apart from the obvious advantage of continued realization of the economic benefits of the PHA resource, detailed planning of these alternate sites is potentially further supported by the fact that:

• Most of these areas are government-owned as opposed to all land within the PHA which is in highly fragmented private ownership.

Council's policy on the PHA in light of its value to the city !August 20121

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481

• The areas identified through the City planning process are endorsed for potential future development (see maps 5.3 and 6.1 in the approved Cape Town SDF, and Figure 4.2 in the draft Cape Flats District Plan, which is aligned with those in the CTSDF). See Annexure A which identifies these proposed potential urban infill areas, including sites in Strandfontein East and Strandfontein coast, and in Zeekoevlei and Ottery, and at Pelican Park and Youngsfield. This also includes the proposed urban development intensification of large hitherto under-developed areas, including the 'Schaapkraal Smallholdings' area, the Weltevreden Road 'wedge' area (between Vanguard Drive and Weltevreden Road), and erf 1212 in Strandfontein. .

• The Directorate EESP will do all in its power to prioritize, support and simplify the attainment of land use rights.

8.5. Policy response, past and present

8.5.1. Historic policy approach to the PHA

The recognition of the economic and food security value of the PHA by public sector policy of a metropolitan-wide scale, has consistently reflected more than 40 years of protection to this resource:

• In 1968 an area inclusive of today's Philippi Horticultural Area (PHA), Philippi industrial area, and Brown's farm area was reserved in terms of the Physical Planning and Utilisation of Resources Act (88 of 1967) for future agriculture, but also for the exploitation and refining of silica sands as the area was found to contain some of the best glass sand nationally.

• Under continued urbanization pressure, a new Guide Plan was approved in 1988, which reduced the 1968 reserve area to largely the current PHA area, reserving it as 'horticulture area'. This Guide Plan (Cape Metropolitan Area Guide Plan, Vo1.1: Peninsula) was initially approved in 1988 in terms of the Physical Planning Act (1967), but later also approved as a structure plan in terms of section 4(6) of the Land Use Planning Ordinance (LUPO, 15 of 1985).

• Subsequent city-wide planning, including primarily the Metropolitan Spatial Development Framework (Council approved policy 2001), reaffirmed the importance of the PHA.

• This metropolitan level significance has been supplemented over the years by various multi-sectoral policies, studies and plans all focused on protection, management and/or enhancement of the resource, specifically relating to its horticultural and mining value including:

o the Future of the PHA (draft policy, 1995);

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4B2 o the PHA Management Plan (draft policy, 2000); o the Interim Policy Statement on Development within the

Protected PHA (Council approved policy, 2007); o the Agricultural Land Study Review (policy informant, 2008);

and o the PHA Rapid Planning Review (endorsed by Council, 2009).

8.5.2. Current policy and recent review

Historic policy regarding the PHA has been the subject of recent review. This review has occurred with an awareness of the resource value of the PHA (section 8.2), but supplemented by more recent research pointing to its increasingly important role as an economic resource, now and into the future. It has been furthermore developed with an understanding of the various pressures on the PHA and associated considerations regarding implications of alternate urban development use (section 8.3).

In summary, the current policy reflects:

• Reaffirmation of the resource value (food security, agri-jobs and mining) of the PHA. In support of deriving continued benefit from the PHA resource, the current policy for the PHA area reflects an urban edge line (see Annexure B), which contributes to its reservation for the most part for mining and agricultural use wherein conventional urban development is not supported.

• Some rationalization of the boundaries of the PHA. This has made allowance for urban development on its western and eastern boundaries where horticultural and mining potential are more limited and urban pressure has undermined the resource.

• The identification of further planning work. It has been recognized within current policy that the planning response to challenges needs to evolve and deal with new realities. Local area policy work was prioritised in the PHA Rapid Review (2009) to review the urban edge line and compile development guidelines specifically in the Schaapkraal Smallholdings and environs area (western edge of the PHA) - see Annexure C for study area map. This initiative involves the appointment of a multi-disciplinary consultant team, including primarily town planners and municipal engineers. The study is underway. and includes a full public participation process, and the study recommendations are anticipated to be submitted to Council in early 2013.

For convenience, further detail regarding the content of the Cape Town SDF (2012) as it pertains to the PHA is provided below:


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483 • The CTSDF, approved by PGWC in May 2012 as a 4(6) urban

structure plan in terms of LUPO (1985), and also approved in terms of the Municipal Systems Act (MSA, 32 of 2000), reserves the PHA for agricultural purposes by designating it as an 'agricultural area of significant value'.

• The PHA area as reserved by the CTSDF is bounded by an urban edge line delineated along the Sheffield Road alignment in the north, Weltevreden Road in the east, Strandfontein urban area and boundary of 472ha Rapicorp owned land in the south, and in the west, provisionally, the eastern edge of Schaapkraal Small holdings area or otherwise Strandfontein Road (subject to a detailed urban edge study in this area). See Annexure B for a map indicating the delineated urban edge line in the CTSDF (2012)

• The CTSDF designates the Schaapkraal Smallholdings area and also an area between Weltevreden Road and Vanguard Drive, for urban development.

• The CTSDF contains policy statements, with specific relevance to the PHA. These are:

o Policy 28: 'Protect valuable agricultural areas, existing farmed areas and horticultural areas from urban encroachment and support urban agriculture'. The associated policy guidelines include Policy 28.2: 'The section of the PHA area that is excluded from urban development by the urban edge should be retained for horticultural purposes and the exploitation of silica in the long term'; Policy 28.3: 'Discourage the further subdivision of land in the PHA below what is permitted by the zoning and no further township development should be considered'; Policy 28.4: 'Discourage development that undermines agricultural activity in Philippi, ... .'.

o Policy 29: 'Adopt a proactive approach to mining resource management'. The associated policy guidelines include P29.1: 'Protect ... specific mineral deposits .. , to permit their future extraction. Only uses related to the extraction of materials and farming should be considered in the extraction areas'.

B.S. Comments by other City Directorates on PHA Policy Report (and PHA Presentation)

Input into this PHA Policy Report (and also the associated PHA presentation) was received from a few key relevant City directorates, namely Human Settlements, Water and Sanitation, and Transport Roads and Stormwater. See section 8.7 as to how these comments were responded to and where this report was amended.

Council"s policy on the PHA in light of its value to the city IAugust 2012J

0129

In summary the comments of the key relevant City directorates were as follows:

8.6.1 Human Settlements

Sufficient cognizance should be given to urban development pressure in the area, and more specifically human settlement development pressure, which is reflected in informal settlements, major development applications, and steadily rising land prices within the PHA.

The Human Settlements Directorate believes that preservation of the Cape unique floral kingdom is critical. To that end all areas proclaimed for the purpose, especially the Peninsula mountain range should be protected from growing informal settlement. The PHA, however, being undeveloped and non-pristine, is considered by the Human Settlements Department to be well located to relieve much of the said settlements pressure experienced. Nevertheless, the opportunity cost of not developing the PHA and retaining it as an economic resource must be acknowledged.

This policy position on the PHA is weak on safety and security with respect to continued farming and employment practices. Recommendations on who and how farming equipment is protected, how personal safety is assured, and produce is kept from theft, are urgently required to make the PHA sustainable. The Directorate, via feedback from its Informal Settlement Department has registered this as a reality and as severe. It is suggested that these recommendations should be followed up with the tabling of an integrated PHA management plan.

8.6.2 Waste Water

There is significant spare hydraulic and organic capacity at the Cape Flats waste water treatment works, and also some further capacity at the Mitchell's Plain waste water treatment works.

8.6.3 Bulk Water

Although the Cape Flats Aquifer (CFA) is not considered as one of the next bulk water schemes for implementation, it may become necessary or desirable to implement a scheme abstracting from the CFA, and then these challenges will need to be addressed.

8.6.4 Transport Roads & Stormwater

There is a tendency to perpetuate historic development patterns of lower density social housing on vacant land, which result in very high operational costs in perpetuity. This temptation should be resisted, with an insistence on a densification approach along existing transport infrastructure.

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485 Significant new urban development in the PHA would require major additional transport infrastructure, including roads supporting the R300 extension across the PHA, major additional BRT capacity to that already planned for Strandfontein Road, including new routes, and even a rail connection linking the Cape Flats and Southern rail lines.

8.7 Consideration of comments by the Spatial Planning & Urban Design (SPUD) Department

It is considered necessary that SPUD responds to some of these issues.

8.7.1 Response re- Human Settlements Directorate comment

• This report now makes more specific and detailed reference to the urban development pressures impacting on the PHA, including particularly informal settlement and major private developer speculation and development applications (see section 8.3.3).

• The situation of existing informal settlements located in the PHA is one of the reasons for the new (& currently underway) Schaapkraal urban edge study for the western parts of the PHA (see section 8.5.2 above). The proposed resource management plan (see recommendation in section 7.d.) will recommend their removal and further non-servicing, since they are not horticultural.

• With regard to increasing human settlements pressure possible new infill development sites in the area have been identified (see sections 7.e and 8.4, and also the draft Cape Flats District Plan). Detailed feasibility assessments are required for all these sites. These would be expected to be undertaken by the developer. Notwithstanding this, the Spatial Planning & Urban Design Department (SPUD) has undertaken a preliminary assessment of the identified sites in close proximity to the PHA, which sought to identify all major site informants. This has been communicated to the Human Settlements Directorate.

• It is noted that 'green' biodiversity issues within the city are often perceived to have greater importance than food security issues. A careful balance needs to be sought where contextually appropriate in this regard. In the case of PHA, food, security and employment is regarded as more critical than either biodiversity issues or relieving settlement pressure.

• Increasing land trading and rising land values within the PHA have been as a direct result of increased land speculation in the area. This is not related to the existing policy regime in the area, but to risk-taking by speculators in a metro-wide environment of high and rising land values relative to those for rural farm areas in close proximity to the city. This is to be expected. This is now also reflected in this report (see section 8.3). Policy clarity and unequivocal support by the City for this policy, allied with better support for the farmers, is essential for suppressing and negating land speculation.


0129

486 8.7.2 Response re- Bulk Water & Waste Water Directorate

The input received addressed issues in terms of availability of bulk capacity within the catchment area. From a spatial planning perspective the existing waste water treatment spare capacity at the Cape Flats WWTWs, and to a lesser extent at the Mitchell's Plain \fWIITINs, should be reserved for identified future infill sites (e.g. Ottery 44ha site) and densification areas (e.g. Main Road corridor).

8.7.3 Response re- Transport Roads & Stormwater Directorate

The TR&S comment indicated that should major development occur in the PHA then further infrastructural requirements in the area would need to include the rail link between the Cape Flats and Khayelitsha lines, the R300 extension, substantial Bus Rapid Transit (BRT), and a substantial road network in support of the R300 and surrounding existing roads.

B.B Conclusion

The PHA is a key unique city resource of construction and glass manufacturing sand mining potential and, more importantly, food production that contributes significantly to the economy and employment in the metro south-east, as well as building both long term urban food resilience and climate resilience. These are key factors towards developing a sustainable city. Decisions about the PHA have implications that could undermine livelihood strategies and the resilience of a far wider set of stakeholders than merely farm owners and those employed on those farms.

A major issue over the years has been that the PHA and its complex system of flows and networks are often misunderstood, confusing, and underestimated. Conflicting understandings and perceptions have contributed to creating a sense that the area is in crisis with little value in its current state.

However, significant work in recent years has clarified much of this, and generally concluded that despite significant problems the PHA is far from being in decline, and is an area of great value, and considerable future potential value, to the city. The most recent of this research being a study undertaken by UCT's African Centre of Cities in April 2012 (attached as Annexure D).

The City's policy position for the PHA has recently been revised, but essentially remains aligned to realizing and enhancing the value that this area has to offer the city and its inhabitants.

On the other hand, whilst most farmers are not planning to leave the PHAxviii

, they do require policy certainty and associated protection of an

Council's pOlicy on the PHA in light of its value to the city IAugust 20121

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487 agricultural zone so as to commit to, and invest in, farming operations into the medium and long term.

8.9. Constitutional and Policy Implications

This report does not seek to replace or amend any existing policy for the Philippi Horticulture Area. The endorsement of the policy for the Philippi Horticulture Area is occurring within the appropriate legislative and policy frameworks and is aligned to the approved Cape Town Spatial Development Framework.

8.10. Environmentallmplications

r-~-··----·-··~·-··-····-·· ... - ... - _ ...... - ...... '--, ! Does your report have any : No rgJ , Yes 0 • I environmental imJW.cations: ___ J .. _.___.:..- ... __ .J

This report has no environmental impact However, should any area within the Philippi Horticultural Area as designated in the CTSDF be considered for urban development there will be environmental implications as indicated in the body of this report.

8.11. Staff Implications

Does your report impact on staff resources, budget, grading, remuneration, allowances, designation, job description, location or your organisational structure? No rgJ

Yes 0

8.12. Other Services Consulted

See section 8 6 above Human Settlements Bulk Water Waste Water Transport Roads Stormwater


&

Jens Kuhn (021 40042171 Paul Rhode (021 487 2487) Kevin Samson (021 487 2606) Gerhard Hitge (0214004784)

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488 ANNEXURES

Annexure A: Draft Cape Flats Spatial Development Plan indicating identified potential future development areas near the PHA

Annexure B: Extract from CTSDF (2011) of PHA indicating Council approved urban edge line

Annexure C: Schaapkraal Smallholdings and Environs urban edge and development guidelines study: study area map

Annexure D: Philippi Horticulture Area: A city asset or potential development node?: Summary Report

Annexure E: References

FOR FURTHER DETAILS CONTACT'

NAME Kier Hennessy CONTACT NUMBERS w. 021 7108049 c. 072 288 6105 E-MAIL ADDRESS [email protected] DIRECTORATE Economic Environmental and Spatial Plannino FILE REF No SIGNATURE: DIRECTOR

CrllnA~ I (Delete if not necessary)

E ECU VE DIRECTOR E C IVE DIRECTOR: ECONOMIC ENVIRONMENT AND SPATIAL PLANNING J. Hugo

DATE 14.09. ;2t2J12.

Council's policy on Ihe PHA in lighl 01 ils value 10 Ihe cily IAugusl2012]

Comment:

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LEG A PLiANCE

NAME ""onnet ~ TEL o 2J l\:\JJ ~ ~ DATE I'll o~ I 'l0\l-

MAYORAL COMMITTEE MEMBER Ald. B Walker

NAME

DATE lq'OC('dol~


489 D REPORT COMPLIANT WITH THE PROVISIONS OF

COUNCIL'S DELEGATIONS, POLICIES, By-LAWS

AND ALL LEGISLATION RELATING TO THE MATTER

UNDER CONSIDERATION.

D NON-COMPLIANT

Comment:

Based on the contents of the report.

COMMENT:

0129

Annexure A:

490 Draft Cape Flats Spatial Development Plan indicating identified potential future development areas near the PHA

---~ ----;;;: =:.--=... -

PeliCan Park Strandfooleln Coa~

6 Strandfontein EaS! POTENTIAL URIIAN .. T£HSlflCAnON AREAS

Strlndfontein 1212 WelleVf8den 'Wedge' 5cI1aapkraal

10 Lansdowne IncIu$IfiaI

0.-_, ,' .... _0_._ ---~=:::: 0--.... ilitillil ~~ - .-0'''' -'-'''' .- ... 0- ......... --.--

. --_._,--

. ---0--0----, . -- --------

Council's policy on the PHA in light of its value to the city [August 2012)

0129

Annexure B:

491

Extract from CTSDF (2011) of PHA indicating Council approved urban edge line

Log'" •. .,.,. .. G_'_....-. .... I .. I' ........... ~ _ 8I'aoocc ... , _ 8I'aOOCC ... l

_ ~'11'_ ... 'u_ ............ , .... ---,-"'-__ ooc ..... '

-"""'f'''' ,.......,.&10"'" ··· .. __ ,_iT .... __ · ..... __ T'_<1 .... ~_1 --"_ .... • _ ... ...,.$0 __ .. _.R .. ' .... -.-_1 ....

......... _h .. -,~ ..... ~f ......... 'NeO_At_ ~rw. ..... e- .. _

_ _ '11" ... z-. (fIo.!._ .... z· ..... , ---,'-,_ . .. _"_ ............ _"",,'SI'oo ef. __ _ IX} """ __ ...... , .....

1ZiI ..... -.

b~:=:-::~. 8-c----.,._ .. ----"'-'--c-.. ' .... . ··_ ...... f· .... ---·_c_ ... _ .. ...........,~_f_. +e.. __ _ ai ::..~= ~

Extract from the Cape Town Spatial Development Framework


0129

492 Annexure C: Schaapkraal Smallholdings and Environs urban edge

and development guidelines study: Study area map

Study area map

Study Area: r'" \ \ .. --

\ ,

-

--

\1:::\ \

-\ -- \ '-'\-' t 1


i ,.

\

...... i, •

0129

493 Annexure 0: Philippi Horticulture Area: A city asset or potential development node?: Summary Report

Council's policy on the PHA in light of its value to the city [August 2012]

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Philippi Horticultural Area

A City asset or potential development node?

Summary Report

A report commissioned by Rooftops <:anada Foundation Inc. - Foundation Abrllntematlonalln partnership with the African Food security Urban Network.

Dr Jane Battersby·Lennard and Gareth Haysom

April 2012

This report h~s be • ., drafted U iI result ofworlr. carried out by II number of r<!Searchers,. I!ilch contributing specific casl!

studi." Ind r.selrch ~rU to the process. These rl!searehl!rs indudl!d: Dr J ..... 8atMrsby L"nnllrd, Garl!th Hay.om, JI!SS

Rittle and Francl!!s 0;11';"'. The rl!search r!!port has be!!" drafted by Dr Jlne Battl!rsby Lannard lind Gareth Haysom

(correspondl.,. author).

A pro;act of Rooftops canada _ AbrllnterNtlonal, und .. rtaklln with thO! flnancial.upport of the Govtlrnment "fcanada

provid.cl thfOUlh the Uonadian lntl!rnltlonai D~lIlopm.nt Agency (aDA) In pannership with the African Food SKurity

Urb<ln Nlltwork (AFSUN).

TM opinions 1!Xpr<!5sed In the report are those orthe authors and do not neceWlrl1y renect thl! views of thl! African Food

Sea.trity urban Network,. Rooftops u.n.d.· Abri InMrnational, the canadian Intl!rmtlDnal DevelopfTll!nt Aal!ncy (CIDA), thl!

Sustl!IAllblllty InStftuM, the African Cent~ for CIU"s Or thl! University of u.pe Town.

ContKt: Glmh Haysom

Afrlciln Food SKurfty Urban Nl!twork Afrlea," Centre for CItIes Enpo Buildlne,. Upp!!r Campus University of Cap!! Town Tel: +V 216S0 5903 Ema": garl!th.ha'WImt!!!!rt jIC la

W .. b: www.afsun.org

~ H,,,,h"I" (:;,,,"<1,, t.:.I.:.I AI>" ,,,"',,,;01,.,,,;,1 .<f1..')I" •• :a:: .. n .. ~ ~!I '" ~

IIlOoo <:.:;:>

IIlOoo

Introduction

The City of Cape Town faces a unique challenge, one not faced by any other city or urban

management area in South Africa. The challenge is one of seeking ways to manage and administer a

large portion of land, land carrying rural status, located within the immediate urban environment,

within an area of significant poverty and need, namely the Cape Flats.

This pressure is further compounded by a lack of current and accessible information about the

viability, sustainability or potential of the area. Due to the nature of production and complex links

between the Philippi Horticultural Area (PHA) and the food system of the City of Cape Town, the

challenge of the Philippi Horticultural Area is of importance to more than the specific Philippi

stakeholders, but to a far broader group of Cape Town and regional stakeholders, as this report will

demonstrate.

DeCisions about the area have far broader implications, implications that could undermine livelihood

strategies and resilience of a filr wider set of stakeholders. This chailenge is made all the more

urgent by iln increase in requests for 20nin8changes and land use departures within the PHA. The

dynamic mix between what is argued to be a viable food production area1, perceptions of an

opportunity for potential housing developments for those living in informalitY and need, an

opportunity for developers to capitalise on strategically located land3, and conflicting perspectives of

what is urban or non urban and what is part of the city landscape and what is not, adds to the

tensions and ongoing debates about the PHA, its value, viability and status in the longer term.

This report is a summary of a larger and more detailed report on the PHA.

Report focus

The primary focus of this report is on the role of the Philippi Horticultural Area in the Cape Town

food system. Regardless of the multiple needs and perspectives on the Philippi Horticultural Area

(see figure I), the area is first and foremost a food production area, one with a long history of food

production, a history dating back to the mid 1800'S4, and even earlier5• This research sought to

assess the importance of the Philippi Horticultural Area in terms of its overall value to the entire

Cape Town food system. While mentioned as secondary information, citing specific specialist

reports, this report does not engage directly in the other aspects pertaining to the PHA such as sand

mining, aquifer management nor the technical merits, or lack thereof, of housing within the area.

These aspects are beyond this research brief and skills of the iluthors of this repOrt.

Previous assessments of the PHA have not taken an explicit food lens. It is argued that a n~mber of

the previous reports, primarily those motivating for certain developments within the area, have

implicitly argued, or, due to the focus of the reports, created (although not necessarily intentionally)

a view that the food value of this area is negligiblei and that the broader glob ali sed South African

food system would cover any slack created by the loss of this area. This report sought to understand

'Inrormed by ",eardl findings 8nd volume off·take. AI~o Van der W~"-lluisen. 2012. , Pollack, M. 2008 • As ev;d~n"'d by the land vse d~parture requ~st •. Also inclUded a. part of the CoCT dept of Housjn8 wbmi .. ion to Joint PEPCO and HOUsing Com lV)S,O')

• Rabe, L, 1992 , Pula, ~6 April • for ~"ample .• ubml .. .,n b'I M5P lor the area In the 50uth Eastern .ectlon of tIl~ PHA

the current PHA/Cape Town food system relationship, the opportunities and challenges that this

offered, the beneficiaries of this system and other potential but previously ignored values and

challenges presented by the PHA.

In the context of the PHA, it was also necessary to investigate the local and PHA based flows and

systems at work within the area "footprint". The research sought to ilssess and understand the net

of beneficiaries emanating from the PHA system, questioning the broader set of consumers within

the Cape Town region, who these consumers would be and what would the consequences be, both

locatly and within the broader system, if this food source was removed from the food chain7

.

The research found that these questions are essential as the PHA and its systems are generally

misunderstood8. These misunderstandings inhibit effective engagement in the area and result in

confusion as to how current decisions specific to the area should be made. More importantly this

misunderstanding creates significant confusion and contestation In terms of what the future of the

area should be in the conte)(t of broader Cape Town development plans and processes. These

conflicting narratives, perceptions and views as to use, viability and necessity all converge to create a

sense that this is an area in crisis with little value in its current state.

~;~~, ·at ""rJj I This research found that this perception was

untrue and misinformed. The research found the PHA to be an area of high cultural, social and ecological significance9

• The area was found to have a variety of areas of critical heritage importance, even uncovering reports of recent discoveries of Khoisan artefacts in the PHA 10. This fact appears in no documentation

about the PHA.

Although previously documented, ecologically, the importance of the Cape Flats Aquifer, to food production, the preservation of access and the recharge of this resource, highlighted the links between a variety of anthropocentric and ecosystem service relationships.

Reviewed reports indicated viable and sustainable use of this ecolOgical resource, while calling for monitoring and management systemsll. The importance of the Cape Flats Aquifer and the relationship between this, the

I'V_ 1·---·_· .. -·......... l'I-'-'--~' land, the city as a whole and climate change, i:: .. :;.-..•.. _ '! •• =::::-. _'7_ .. i ~~.~_N were found to be of critical importance re.,- __ ~ :! -,,,,-,-,_., :::::::..,.:.=_~. '

Figur~ l:Re~earch~site and"Ph;llp~i· Ho'rtlcultural Area and particularly in the context of the links between specific use typology designations (SOUft~: my ofC3pe Town"l food production, food prices and the building of

climate related resilience.

, Eoir:koen'. 12007) MpictiOIl onhe food system used in rt!'5earch proc~ ... nd included food Sy<tem Driver<, Activiti ... and Outcome. 'f", ex8mple cblims lIIatthe PHAIs no longer productive. th~ farme .. ailw"nt 10 ... 11. I8rlcuUure h damaging the wat~r table. etc • CI!yof c.p~ Town, 2007 to In"''''I..w with r.rmer. MrGeorce. 26 April20i2 "Par<ons, W09. "Map pro'lided by Ci!yof Cape Town. Dlrectorat~ of Spatial Planning.

~

~ I:.Tl

Research methodology

The research methodology applied three core strategies. The first strategy entailed the feview of

existing written reports and publications linked to the PHA. Secondly, alternative data sets were

reviewed and assessed. These sets included, for ex.ample, data on the off-take from the PHA through

the Cape Town Fresh Produce Market (CTFPM)ls. lastly, a contextual underStanding of the broader

area was sought through a process of key Informant interviews across sectors and stakeholders.

These stakeholders included emerging smallholder farmers, large scale farmers, store owners in the

area and tradefS whose product is derived from the area, directly or Indirectly. These interviews

were further supported by a process of immersion into certain place - based processes and activities.

Philippi HortkulturalArea flndlngs

Currently the general perspective offered by certain city officialsl4, the broader public and certain

commentators on the area1§, Is that the PHA iS,an area with declining production and disgruntled

farmers who are simply waiting for the best price for their land before sellingl6. This view was not

supported in the research findings.

The research noted increases in production, new land being farmed and signiflcant Investments in

infrastructure being made on the part of the farmers, by both the larger scale farmers and by the

new emefging smallholder farmers i1. The area produces well over 50 different horticultural crops

and many farmers are also active in livestock production. The farmers have realigned their

production to new markets and market systems and are now actively seiling direct to the major

retailers, retailer agents and other sources such as restaurants and speciality stores. Farmers are

also actively involved in on-farm value addition1a•

While estimating production figures is arguably SUbjective, it was estimated that just under 100 000

tonnes of fresh prodUce is grown in the PHA annuall~. This included an estimated figure of over

2 OOCI tonnes of produce that Is given free to farm workers in a year10 - a flow of food that plays a

critical role inthe broader food access of the communities in the Vicinity of the PHA. All this has

been achieved on the back of innovative and proactive farm management strategies. These

strategies are further supported by an endogenous economic system. This Is a highly specialised

system designed to be mutually supportive of a number of farm based and off-farm economies, and

services all farmers In the PHA. Active within the area are seedling suppliers, Input suppliers such as

fertiliser and infrastructure suppliers and other input suppliers such as compost producers; food

chain Interventions such as beneficiation and wholesalers, packhouses and transportation suppliers.

"This data w ... provided by CTFPM and Included PtlA throughput betwHn April 2011 and Marth 2012. "For e.ample .rticulltlonl afthe PliA offered by hotKlng offidlh in p'oceue.ieodlnllO PEPCO 2009 meetlnlls on thoo PHA "This Is a lIene .... 1 dl<cou...., and reflects \/Iews offered by" number oIcape TtJW1\ .... ident. offered to the rHurchers in Informal con .... rsation. about the PHA.. "Asper PEPCO meeting. 2009. Van de, We.thuhen, 2011. Some farme ... partlcularlvthme with poor aue .. to water ",.n farm. who.e .i.e makeo p<oduction difficult may fall into thh amp but theoe do not account for the majority oIthe lind under production. "The.e proce ..... were confirmed In the Interview proces .... and by on .ite olKervation and confirmed byV ... der Westbuls.n, 1012 "Informed by fumer IntefViews.nd re.earch procHS ,. F'cu ... in~ by int."';"" with farm.,. and ,,"rmer's .s ...... tlon. calculated .n estimated th,ouKh put to CTfPM and IntefView. with farmers to ucertlln the p...-centaKe of thool, crop ..... d to the CTFPM (S15%]. "Info.-med by ,,",me, Interviews. calculated on Htlmated lSkK' per employee pe, week multiplied by 3000 emplO\'e-esfactorinllln hofliculturll lind use and ""'","'"ry empio'f"'entcyclH.

AU these activities reflect an integrated and mutually beneficial set of economic system s that add

economic integrity to the area. These systems ail have linkages beyond the PHA.

In respect of the broader economic system, the research found that the increasing pressures

imposedon the global food system reverberate through local food systems. These pressures are

compounded by crises beyond the control of local food system actors. These crises include climate

driven food shortages elsewhere In the world that impact on the local food supply, shifts in diet

driven by rapid developing world urbanisation, and most critically, significant increases in the oil

price and thus price increases in all Industries and systems reliant on oil. The PHA allows for control

at the local scale, buffering communities from these crises and providing resilience from the

associated shocks.

Philippi Horticultural Area challenges

While the farmers are generally positive abOut the opportunities in the PHA, there is Significant

frustration at the confusion about the future of the area. This frustration is compounded by a real

challenge of continuous theft of farming Infrastructure and increasingly large scale theft of

produce11. The challenge of theft is made worse by ineffective control in the area, aggravated by

reports, from all farmers, of ineffective and selective police services in the area. These challenges are

further aggravated by the constant debate as to the future of the PHA, and as a result the future of

the farms and all support operations. Regardless of these challenges, farmers remain active and

engaged in the business of farmingl1.

The Philippi Horticultural Area In the broader Cape Town Food System

The PHA was found to be playing a critical role In the broader food security within the settlements

adjacent tothe PHA. Informed by reported flows of food from the PHA, retail networks that source

the bulk of their product from the PHA and due to the food distribution networks in place, there is

real potential for fresher and nutritionally dense food to flow into these COmmunities. It was also

reported that while food prices do not necessarily differ when compared to food prices from other

production areas, should the produce from the PHA be removed from the distribution system, there

Is a real risk of significantly higher food prices for all Items currently grown in the PHA23• Certain

farmers interviewed suggested that currently the PHA plays a key role in moderating prices for all

soft leaf green vegetable types, regardless of source14.

The areas surrounding the PHA e)(perience high levels of food insecuritl5• This research argues that

in the absence of the PHA, this challenge would be significantly worse. This research found a

definite case arguing the importance of the PHA to food security specifically, and to a more resilient

food economy, more generally. Additional review is required in order to effectively assess the scale

and influence that the PHA has in the local food economy and how these flows of food impact on the

livelihoods and general food security of the members of the communities surrounding the PHA. Far

"This w ... an issue raised by ~ farmer InteNiewed as well a •• uppliefS and otherstakeholdersin the area "Here the ,epon I, 'pedfiaflvreferring tothe fa, ..... rs who .... Interen"d In ... malninK in the PHA and hi .... invened in their farm •. '" Horstmann, 2012; Rlx L, 2012. 1'Ibld

"Batteroby, 2011, Frayne et ai, 2010: Franye. et ai, 2009

~ c:.c ~

more work is required in this field and speclfically in respect of the role of a number of components

within the food system, for e)(ample, livestock production and its use within the communities.

A review was carried out, interviewing a number of food sales outlets selling fresh produce in the

vicinity of the PHA. These outlets included street traders, spaza shops, farmstalls, small wholesalers

and traders operating outside established retail stores. For certain stores, specifically the farmstalls

and certain street traders, the PHA is the primary source of vegetable produce. However, for many

of the other retail outlets, food travels from the PHA, through various other market mechanisms

(such as the People's Market in Epping) before being sold by these stores. This reflects the

comple)(lty of the food system but research found that the PHA played a key role in these processes.

The research also engaged with a new and active group of committed emerging smallholder

farmers~6 actively seeking ways to establish themselves In the PHA farming community -a number

of whom are already established. Most of these farmers have Identified alternative markets and

reflect the market opportunities that remain for fresh produce and other agricultural products,

particularly their already identified market of the ethical and local consumer. These farmers are also

enabling access to a number of other low income customers, some of whom are abie to access food

from these farmers at far lower prices, and at times at no cost, enabling a variety of survivalist food

access strategies on the part of communities ~djacent to the PHA. These farmers see their roles as

farmers differently and while they currently engage in multiple livelihood strategies in order to make

a success of their farming operations, they are Investing significantly in the land and in their

communities. These farmers represent a new view of the area, linking other services provided by the

area to their immediate communities. These activities inciude nature baSed e)(cursions for speCific

groups, school outings, certain remedial activities and educational interventions. These activities,

linked to chalienges e)(perlenced in the source communities of these groups, indicates a far more

nuanced set of values associated with the PHA.

This finding reflects the potential opportunity of the PHA. This cadre of committed urban farmers

have shown both great interest, made significant investment In the PHA and are generating multiple

benefits, although smail, at this time. This learning offers opportunities to other such farmers

wanting to enter the area. This entry remains a challenge though and if land prices are to be set at

an anticipated development potential cost; this would e)(ciudethe entry of such farmers. For the full

potential to be realised, two key aspects are required: That the PHA is zoned as rural and the rural,

agricultural land use status upheld, and secondly, that there is appropriate and dedicated support

provided to these farmers from all public entities mandated to provide such support. This support

needs to be aligned to the conte)(tual realities of the PHA and the PHA farming systems.

From a broader food security and city food system perspective, the research has found that while

the majority of the produce cultivated, and the livestock reared, on the PHA enters more general

markets, the food that is retained within the local economy has significant value tothat economy

from both a financial and food security perspective. The localised food economies active as a result

of the PHA feed multiple channels and are aU mutually supportive. It is argued that should the PHA

be removed from this process, while the market mechanisms would ensure that food would be

'"Th .. IfOUP c<>n.ln<!il 017 newfarmeN. 2 of whom are lond ~form recipient. wIlile the others h~ purcha<@dlandwiththelrown fund .. All are Investlng'ill"'ificanlly In the land. both ~nanciolly end thmu!!h own labour.

available within the system, this would be at a far higher cost to the city and In particular to the poor

and vulnerable within the city.

Notions of an area In decline are false, the Phllippi Horticultural Areas Is a key production zone

This research demonstrated a number of critical aspects pertinent to the PHA. Primarily, the

research has allowed for the emergence of a more recent picture of the PHA, one that counters a

number of other narratives about the PHA, narratives that argued that the area was in decline. This

research has found that this Is certainly not the caSe. A further narrative that has been debunked is

the notion that the commercial farmers are simply waiting for offers from developers and will then

leave the land as they are old and their children are not interested in farmini7. This is certainly not

the case with a number of farmers, larger scale and emerging smallholder, investing heavily in the

land and actively working to improve the areas viability and their livelihoods. A number of the

farmers are young, two of whom were under the age of 3028 and see the area as having a real future

(conditional of a number of institutional certainties). A further narrative was that the net levels of

agricultural production are declining. This was certainly found to be untrue and while levels of

produce through the CTFPM are certainly declining29, off-take from the farms is Increasing as new

markets are identified and engaged with directly by the farmers.

The farmers reviewed, although elrtremeiy frustrated at Institutional challenges, poor policing and

zoning concerns, see themselves as playing a long term role in the PHA. A number of the farmers

cited a 30 year horlzon:lO. While certain farmers have ieft the land, these farm areas are not idle, they

have been purchased by the current farmers who are growing their land holdings in order to

respond to e)(ternal Input price pressures, but also to position themselves to respond to the

emerging markets into which they now supply.

All farmers require certainty as to the future of the Philippi Horticultural Area

While the general views of the PHA are positive, these are constrained by e)(treme frustration at the

fact that the area is not protected, secured and resourced as an agricultural zone. The numerous

zoning request changes n and the fact that there is clear disagreement on the part of officials as to

the future of the area, precipitating more requests for change, is a cause of great frustration. The

overwhelming request from all the farmers is for certainty and clarity as to the future of the PHA.

Most of the farmers interviewed in this process, larger scale and emerging, are not planning or even

aspiring to move from the PHA. Many farmers have invested Significantly in their farming operations

and even if they were to be bought out at this time, this would not cover their Investments.

"It should be n",Old thlt ..... hile certain farme .. , particularly those On Ie" productive land. would certainly ac","pt financial offe .. made 'or th@wllnd,intllemaln.thee-!ltlbllshedfarmerswholredrlvlnBlh@ resurtlence of the arU remain c(fT1mill<!illO famlin!! and fu"h~r, the ~@Is ofinVe-!ltmentln the I .... d and ~sukant lin .... cinl would me..n thaIland pnc:@swouldn@@dtobe.i!!nificantlyhi!!h@rthancul'fentiy offe.-<!iI iewn by prospective d@veIoperslforthe"'farmerslomo""(RiIe,2012;H(lI'$lmann,20121 ,. Fehlmann Ind L Rile Jnr

"Confirm<!il byCTFPM PHA offtake d<>(;Um ... t compari50n 2009 and 2012 '" Rh •• 2012 MId Hor-<Im .... n. 2012 "PIortk:ularly MSPin 2009 and H!!adline PIortner< (Pty! LId (p«"nndal 6a,elte. Number 69S1)

~

= -.J

The PHA in the context of Bsrkultural zones wtthln the cape Metropolitan Area

The perspective of the value of the PHA has been informed by a number of narratives, oftentimes

deliberately alisned to undermine the value of the area. However, followinS the City of Cape Town's

own research, the 2008 Agricultural land Reportn , It was found that when compared with all the

other farming areas failing under the auspices of the City of Cape Town and Cape M@tropolitan Area,

the PHA was found to be of significant importance. The PHA was found to be of far greater

importance overall when compared to other areas within the CMA and was rated as fourth overall

(and only 0.02% below the 3"" rated area, Philadelphia (figure 2)). In assesSing the agricultural zones

within the CMA, the Agricultural land Report of 2008 reviewed 5 Areas of Signiflcance. The PHA

scored above average on 3 of the S areas of significance (figure 3) and white it scored lower than

average for Environmental Significance, a review of the Cape Flats Aquifer and the positive

relationship between the CFA and the PHA in 2009" would potentially alter this findin& providing

greater scores to the PHA in the area of environmental significance. Coupled with the findings from

the farmer reviews and the assessment of the value that the PHA offers the city, this research

strongly suggests that any plilns to remove the PHA from the food system require serious

reconsideration. The PHA is a valuable asset to the city and should be retained. In order to do this

the area needs to be secured in accordance with all the means available to the city and the province.

1111111-. , ~.<-0~";~~~'.~~~~"" . :#'''. ,~Z,p .-' '/ 0 J ~#' Ci~'+J t-.r"/~'

.;!f" J'

Filufl!2: Rating of CoCT agricultural gfl!as as per the 2008

Agricultural Land Report

f ............ -.-.co ............ "'"

. -. -:- . _-,,£0 ..

.._-..... ""'--

figure 3:PHA V$ Average Area orSlgnlficance Scores

When considering the future of the PHA. the generalised and often used assessment of value

excludes a number of intrinsic and other value assertions, thus labelling the PHA as an area of less

value than other CMA agrl-zones. This Is a fundamentally flawed assertion and is incorrect.

The PHA is a key city resource that contributes in a significant way to building both longer term

urban food resilience but critically, climate resilience. The PHA is a critical component in any

assertion of Cape Town being a sustainable city. Removal of the area would undermine not just

livelihoods, food security and a culturally important area, removal of the PHA, even In part, would

fundamentally erode any notion of Cape Town as a sustainable city.

"CoCT -AlR, 2001. "Parwn .. 2009.

Due to the PHA geography. production takes place at a greater scale but also spans the seasons. This

fact is a critical benefit. There are times of year when other agd-zones, both within the CMA and

even nationally, are removed from production due to water scarCity, climate, heat, cold, etcS4• This

does not apply to the PHA and contributes to price normalisation but more importantly, to a

continual and consistent supply of food items (see flgure 4 for a detail of the Cape based dynamics).

• T_~. , I~"'~~ Id..,q

H

IV" /yH U

A

~.

C· ... ·_VOOlllS ·~e._lEpp/ng ........ , lIoMn __

I L_ •• "" .......... m day ......... n .. If.

, I"" I 13· II 1.·U

;::"!;!I,g ·11 .- :~~:~ H.~

'1 ·'3 _:W.37

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Filillure 4: Cllmatil:. zonas ~nd dlsUnCI!!SIO other markets

Employment

.~

This research process found a general trend of high labour usage with an average of 2, S full time

workers per hOI and an additional 1, 5 temporary workers per hOI in the months from December to

the end of April. Using the estimated land area used for horticultural production of 940hai!6, this

would translate to 2 3S0 full time employees and 1410 part time employees, a total of 3760 job

opportunIties from the horticultural businesses alone. If this figure is broken down further, this

would translate into an estimated 2 630 jobs allocated to female workers (at 70 percent of

workforce calculatlon)!7_ Specific farms do make use of labour In different ways and as such. this

flgure should be read as a potential employment estImate. In calculating employment, a more

conservative number (supported by the EESP 2012 report)3S was applied resulting in an estimate of

2000 full time employees, translating into net per annum wages of R 36 000 000 for full time

employees and R 7 500 000 for part time employees (1 000 employees), a total wage opportunity of

R 43 500 000". If other mandatory (leave, sick pay, etc) and non mandatory benefits (loans, etc) are

.. Honlm"'~, 2012

'" Kleynhans, T. ZOO9 .. C.kv'-ted Dn a 7S/2S pertent Iplil oIl..,d .... b.lw.en hortitut1vrll and liveslock producbcm - an nlim.te <Dnfirmed by farmer. tllrouch rh. int.rvi._ proces .. "CoCT, 2011. EESP DIr«1or-. .nd Van dllfWnlhui ... n, 2009 50 CoCT. ZOll, EESP Presentation on the PHA .. AllIi& ..... uIcu'-ted usinl CoL minimum llricuttu,,1 wage ... d <on~rmed by firmer mle ..... ~ (Hternallyverified bV ... lailers in tt8C@llbIHIVProces ... ol,upplierappointmentl

~ ~

00

".

calculated, this figure will further increase. A further trend is that ther.e does aiso appear to be a

distinct shift, one that runs contrary to current market trends - that of Increasing the full time

(permanent) staff compliment.

Farmers reported that the majority of employees were women, many of them having only bask

education and many only speaking IsiXhosa. However, on certain farms it was reported that while

this had been the trend, the shortage of employment opportunities within the region has resulted in

most temporary workers now having a grade 12 certificate.

The smallscale emerging farmers draw on labour from local communities and pay according to legal

requirements but are actively seeking to develop the staff within their operations. Furthermore, all

emerging farmers expressed a desire to ensure as many full time employment opportunities as

possible. This desire is further supported by the farming style, that of using more labour and less, or

no, external inputs.

The general trend Is that staff employed In the PHA are from neighbouring communities including

Crossroads, Philippi and Browns Farm and Samora Machel, speCifically, but also Grassy Park, Nyanga, .

langa and Gugulethu.

Informed by the flndlngs of the review of the PHA, the follOWing recommendations are made:

These recommendations are made up of three key themes, the flrst is a set of issues that need

immediate resolution, second, Is a set of needs that require further review and analYSis and lastly, a

set of potential alternative uses of the PHA have been included.

The issues that require immediate resolution Include the following:

The urban edge needs to be clearly defined and the PHA secured as an agricultural area:

Resolution as to the extent of the urban edge in respect of the PHA Is urgently required. Work to this

effect is currently underway with a first draft for public comment expected in October Z012. This

study, the Schaapkraal Smailholdings and Environs Urban Edge and Development Guidelines Study Is

essential and would assist greatly In resolVing issues pertaining to illegal use and use encroachment.

Once this project is complete, the urban edge should then be formalised and secured.

It needs to be stressed that while this is deemed a horticultural area, activities that result in

successful horticultural activities fall within a broader agricultural remit. Thus, what is required is the

cessation of non-agricultural activities and.not non-horticultural activities. Such a response to the

area would be counter-productive and limit the farmers' viability. The City further needs to engage

with farmers to better understand what kind of land-use regulations are Useful for them and their

particular economic and spatial constraints. A finer scale, more locally informed assessment of

existing land use patterns needs to be considered. For example, all plots with transport on them are

not alike, some are used to support the agricultural activities and are thus necessary, but others are

simply used as scrap yards and even cheap parking areas for the film industry. The PHA Is unique

from an urban governance perspective and current rural zoning ruies are not necessarily appropriate

for the PHA/urban/agricultural context. working with all farmers a~d agricultural stakeholders could

11

serve to assist in the generation of mutually agreeable and applicable land use and zoning

regulations that are In the Interest of all parties.

This process should then be followed up with a resolution and cessation of non-agricultural activities

within the PHA and through a consultative process, timelines given for the elimination of these

activates.

Aft areas currently deemed ta be viable and productive agriculture areas need to be retained for

agriculture:

The viability of productive agriculturailand is critical to the broader food system of the city of Cape

Town and as such, this land needs to be secured. Further, the chalienges in Input cost increases and

climate related disasters that have been experienced in the region (drought In Eden District, severe

flooding in Theewaterskloof region) all point to extreme climatic volatility. The PHA offers a measure

of reSilience, acting as an insurance policy to protect city residents from the consequences of these

climate related events.

Further, the Cape Town food system Is embedded within the global food system and global food

related issues pose a real threat to the city and particularly the poor residents within the city.

Recently, extreme events such as fires in the Russian Federation, resulting in wheat price volatility,

flooding in the USA, resulted in Significant lost crops and price increases. These price fluctuations

place the residents of Cape Town at the whim of the market and while faith in other market

mechanisms to address this are generally argued, recent global issues have disproved this (the role

that food has been found to play in the Arab Spring, as one example).

lastly, global food prices have recently passed those experienced in Z008 and are expected to

continue rising. This coupled with the other threats place the citizens of Cape Town in an extremely

vulnerable situation, one that currently has a cushion, namely the PHA, and should this no longer be

accessible, this would place the city in extreme risk.

The Departments 0/ Agriculture and Rural Develapment need ta be engaged and called on their

lock 0/ suppart/or the farmers Within the area:

While this may be deemed to be eKtreme and others may wonder Ifin fact the support from these

departments is required, they have a constitutional mandate and as such, a fiscal mandate, to

Support the area. This Support needs to be directed at making the emerging farmers as sustainable

as possible but also needs to be directed to supporting the broader PHA as a key agricultural asset.

The recent placement of a DoAWC office in the PHA is recognised but this needs to be part of a far

larger and engaged process of support, research and investment.

The PHA farmers are small in comparison to other farming typologies in South Africa but are highly

successful in horticultural agriculture that is economically viable, highly Intensified and responsive to

the specific climatic, market and ecological context. These aspects make the PHA farmers the best

suited and some of the most experienced farmers in the support of smallscale agrlcultu reo With the

current policysh1fts and the focus on the development and support of smailscale agriculture, the

PHA farmers are Indispensible and potentially hold the key to the viability and success of the

~

c:.c> c:.c>

"

smallholder programmes. For the success of the Zero Hunger Strategy and other such Initiatives, the

PHA farmers, large scale and emergin& are vital, key strategic partners; partners that need to be

recognised for their experience, insights and value.

Greater police visibility, resources and effort Is required within the PH.A:

The nature of the police responses to the needs of all farmers and broader stakeholders within the

PHA needs serious attention. Existing policing challenges notwithstanding, regardless of how

effective zoning changes may be or the potential positive Impact from required further support from

the DoAWC and DRD&lR, these would be In vain If the area were not effectively policed. As an

Identified asset with multiple benefits accruing to a wide variety of citizens, not protecting the PHA

would result in Its ultimate demise. Further, if the PHA was removed from the Cape Town food

system, it is argued this would result in an even greater safety and security challenge than those

experienced currently, In the PHA area and the broader Cape Town environs. What is required is

proactive and collaborative policing that assists in securing the area, and the current and future

benefits that are, and will be, derived for all Capetonians from the area.

Within the City, one specific governance structure should be given full responsibility for the PHA. In

addition, on intergavemmental task team needs to be established, with full decision maldng

mandate ta support and coordinate activities within the PHA:

City documentation in 2002 argued that "the different spheres of government generally have

adequate legislation and policies In place to regulate rural land usage and ensure sustainable rural

resource utilization. The problem experienced is a lack of consistency between different policies, a

lack of capacity to enforce and Implement, poor co-ordination between different authorities, and

poor political commitment to the rural areas of Cape Town".a. However, currently in the case of the

PHA, this is no longer the case. The policy and frameworks to protect the area are clear but a real

challenge exists in speCific competing land use needs within the city and the lack of relevant

information that could support the protection of the area4l• These Issues are made all the more

complex by varying priorities and perspectlves,withln the different spheres of government and city

departments on the value of the current PHA landuse to the urban fabric.

This Issue rteeds immediate resolution and effective management. One structure needs to be given

full authority for the PHA and the challenge of coordination between the different spheres of

government needs immediate resolution. Similar governance structures exist currently within the

city, such as the City Improvement District structures, Mayoral task teams or potentially structures

similar to the Coastal Management Branch.

A pracess is required to facilitate a different perspective an how the PHA and other residential

areas align and are managed and governed, through bath policy and practice:

The ongoing challenge associated with the'PHA, the divergent views on its value, the challenges with

policing and the fact that developers see this as an ideal opportunity for development raises

"CoCT, RMf, 2002:6 "Cu~Mlyd .. partur .. ch~il" decisions III''''' to be mad .. lnforml!d by "'Islinl inform~lion.,d dala available to the citv.

13

concerns as to the way in which the area is viewed, the management systems that are in place to

protect it and the limitations placed on both residents and officials in how these areas are managed.

Practices from other regions ofthe world could be reviewed to assess if in fact the current

governance processes are in fact relevant in a changing city context. in other regions, different

approaches are adopted:

The Japanese metropolitan edge / rural area offers on interesting experience of a dense

intermixture af supposedly incompatible land uses, jorexomple horticulture, industry, schools,

housing, garages and offices, as well as a refreshing absence af social aggregation. This land use

mix or mosaic reflects a distinctive cultural tradition, but is regarded as a failure by European and

American planning criteria.

Instead the Japanese emphasize the pasitive aspects of a development philosophy based on

expansion and an urban / rural mixture and regard it as a more useful and realistic prato-type for

the rapidly urbanizing and industrializing countries of Asia than the segregationist restrictive

notions of land use planning embodied in the West42•

While these may appear to offer opportunities, the appropriateness of these would need to be

evaluated from a developmental, zoning, historical and cultural perspective. This challenge also

speaks to a number of other conceptual challenges faced by the PHA. This research found that the

PHA is of significant value but also found that regulations to ensure its protection and regulations to

police use are arguably inappropriate in terms of contemporary urban governance. Alternative and

arguably radical urban governance perspectives are required to mediate the different use

requirements but also, to enable a set of poliCies that have a positive impact on the PHA.

Alternative actions necessary in order to assist In more effective and robust governance of the

PHA

Effective and proactive Land Reform Interventions:

The South African land Reform process is falling well short of the 2014 targets. As certain farmers

leave the PHA, due to small farm sizes and other market related challenges, new Black farmers could

be provided with land in the area. The case of the existing new emerging farmers in the area offer

insights into opportunities that could be unlocked through this process. The development of a cadre

of new land reform urban farmers could playa positive role in changing land holding and thus enable

effective land reform.

This transition however, would only be possible if effective and appropriate support and assistance

is afforded to these farmers by the designated government departments. The struggles faced by the

current emerging farmers need to be addressed and alternative support mechanisms put in place to

enable this. The emerging farmers have seen themselves as the trail blazers in this regard and need

to be consulted in order to develop proactive and innovative land development interventions.

.Q Herbert, 1988, in CoCT, RMF, 2002:22

c:Jl c:= c:>

"

New market systems and governance structures need to be developed:

Linked to the above land reform potential, developing new farmers and then assuming that the

current market options would be the most appropriate for them would be wrong. As evidenced by

the new market networks developed bvthe emerging farmer group, new and alternative market

opportunities should be considered ..

This approach would require a fundamentally different perspective on the part of most in authority

of the so called informal sector. This is the sector that supplies most of the daily food needs to the

communities in the vicinity of the PHA and as such, these entities need effective and market relevant

support.

This support would require very different forms of engagement and policy regimes. The current by~

laws often serve to criminalise these groups and drive customers to inappropriate retail centres

where the poor are unable to attain food that is appropriate or affordable (due generally to

alternative sales regimes). The current mini mall model needs a fundamental review as this has been

argued to be inappropriate to the needs most residents within the areas of most need43•

Seeking out mechanisms and options to support and build a robust informal sector would serve both

the potential land reform farmers with a market but provide appropriate access points to the

communities that make the most use of these outlets.

Areas of review that require further review and analysis:

Significan tly more information is required In on order ta effectively understand the rale a/ the PHA

in the broader food system and how this impacts on the various stokeholder graups reliant on this

area bath dIrectly and Indirectly,

This research process has only started to generate an understanding of the PHA area and the role

that the PHA plays In the region. Making decisions about the area without this information would be

irresponsible. Further while those stakeholders that beneflt from the area are not fully understood,

no systems are in place to support these citizens. The region is fortunate to have access toa number

of research institutions, the (HEC university network, the ARC, the MRC and the CSIR. These groups

should be approached and speclflc research requests made of these groups in order to generate the

necessary data to fully understand the area. The area Is currently misunderstood and as such, its

importance to the region and the city is underestimated.

Identification and mobilising o/graups that could actively participate In and support the PHA

currently and into the future:

The role of civil society and In particular, the non-governmental organisations active in issues of land

access, food security, social justice and other social and economic rights advocacy has not been

addressed within this report. These groups have a critical role to play within the PHA and while there

"Inform@<! bV three kooy facton: ftntly, mon of the entrv le"el"'pI!rm~rket$ ha ..... been found 10 b"."rvlng the second tierquintlle and not the PODteot reoidenls within the city (Battersby. In press). This research found thlll only limited In!sh produce w •• ~¥allable" theoe outlet, and the produce ""allable (onlypotatoe •. onions .."dtomatolH were reported) was 01 poor quality. Lastlv. these outlets did not respond tD customers buying needs - slnale items, credit" times. sp«ials .nd speclflOll1y ffeshness.

"

may be certain differences of opinion as to what the future of the PHA may resemble (aligned to

their own organisational mandates and imperatives), these groups need to be mobilised in order to

firstly understand the net value of the PHA to ail citizens within the city and secondly, to then

assume a far greater responSibility for the attainment of an ultimate vision for the area.

These organisations have a speCific and critical role to play in securing the area. They also have a key

role to play in deflning how the future of the area emerges and how the relationships between the

PHA and its stakeholders are facilitated. These civil society groups need to become a voice for the

voiceless.

Through the research process, the PHA was found to be an area of critical importance. Further,

when the current and future chailenges that the city will face are considered, the PHA is a key city

asset. This understanding exists within the city as the 2007 statement in the heritage brochure

demonstrates. While this statement was drafted over 5 years ago, it remains true today:

The PhilippI market garden Is stili active. It produces tans of vegetables and flowers annually for lawl consumption and export. It Is labaur·lntensive and, a saurce of employment for the wmmunltles In the vicinity.

This distinctive farming londscape Is unique In the city. Ir farms a large green lung within a dense urban enviranment. It provides 0 valuable resource far diverse emplaymenr opportunities, recreational enjoyment and

cultural activities (CoCT, 2007:2).

ReferenceS

Battersby, J., 2011. The state afurbon/ood if!5~urity in Cupe Town. AFSUN 11. African Food Security Urban N.twork. Cape Town, Idasa Publishing

Battersby, in press. Food Insecurity In Ward 3<1. in Brown-luthango. M. A Perspective orthe philippi Area. AI"rk:an Centre forC!tles.

City of Cape Town, 2002. Rural Management Fr.lmework for the City of Cape Town, Volume I: Findings and Recommendations. CMCAdmlnlstr.ltlon, Report 1283/R7, May 2002.

City QfCape Town, 2007. Philippi Herltag" Information Brochure, City orCape Town Heritage adVice pamphlet 1116.

City of Cape Town, 2008. Ailrlculturalland Report. Olrectorate of Pianning, City orCape ToWll

City of Cape Town, 2009. Presentation to Joint PEPCO and Hoosing PortfoliO committees meeting: Response to rapid planning review for Philippi Horticultural Area. Internal presentation document. 30 July 2009. Internal working document.

City of Cape Town, 20l2a. EESPOirector"e. presentation on PHA to Inform key decision making processes, April 2012.

EricUen, P. 2007. Conceptualizing food systems for global environmental change research. Global Environmental Change. 2007.09.002. Elsevier.

Frayne, B., Battersby-lennard, J .• Fincham, R., Haysom. G., 2009. Urban Food Security In South Africa: Case study of Cape Town. Msunduzi and Johannesburg. Development Planning Division Working Paper series No.1S, DBSA: Midrand

Frayne, B., et al. 2010. The State of urban Food Insecurity In Southern Africa. , Urban Food 5~urity In 50lJthem Africo, Urban Food Security Series No. 2. African Food Security Network (AFSUN) .• dna publlshl'"@:,CapeTown.

Herb"rt. M and N.kal, N. 198B. How Tokyo Grows: land Oevelopment and Planning on the Metropolitan Fringe. london: Santory-Toyota International Centre for Economics and Related Disciplines. London S<:hool orEoonomlc •.

~

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"

Jackson, A. 2010. The complu food system: A case study of soft vesetables produced In the Philippi Horticultural Area and

soft vesetables ptJrchased II different links In the food system. Unpublished Muters thesis. MPhiI In Environmental

Management. School of Environmental and Geographical Science •. University of Cape Town.

Kleynhans, T. 2009. Graphics provided and used In, City of Cape Town, Presentation to Joint pEPCO and Housing PortfolIo committees meeting: Response to rapid planning review for Philippi Horticultural Area. Internal pra-entatlon document. 30 July 2009. Internal working document.

Parsons, R. 2009. Philippi Horticultural Area Review - Groundwater. Preliminary report documents to support presentation to Joint PEPCO and Housll1ll Portfolle cemmltte-es meeting: Re$ponse te rapid planning review for Philippi Horticultural Area. Unpublished Internal workln8 document, 26June 2009.

Philippi Horticultural Area Management Plan of 2000.

http://books.Soogle.cO.la/bookSlabout/PhilippihortICUlturalarea.html?ld-G6sQHAAACAAJ&red ir esc =y [24 April 2012]

Pollack, M. 2008. City plan. for hOusing. Press release from tM City of Cape Town. Online, ntlO.!lwww.capetown.gov.la/en/pasesICltypla nsforhouSlnS.aSpx [10 May 2012]

Rabe, L 1992. Ole Groenteboere van PhilippI. tantun, Special Edition, 1992

Republic of South Africa, 2012. GOYernment Galette 34946, 18 January 2012. Department of labour. Sectoral

Oelermination, Minmum wage inagrlcultural sector. Online http://www.labour.gov.za/downloads/legi.la~on/sectora I·

determ Inatlons/baSlc·conditions·of·employm ent/Farm%2DWorker%20amendmen!%202DI2.pdf [30 April 2012]

Repvbllc of Savth Africa, 2012. Prevlnelal Galette 6951, Western Cape proyince. Friday, 10 February 2012

Intervll!Ws:

Small Fume,s Commercial F;t1"mers Other stakeholders; Angus, Ottery Road. 26 April. Johan Terreblanche, at philippi Neville van der We.thullen, Setplan, at

Groenteverpakkers, 12 April. Country Manor,18 April. Holmes, at Aa:rlmark philippi Philip Horstmann, at Marydale farm, 24 April. Henk Conrad;", Philippi AgriMark

Manaler Aa:rlMark, 12 April. Jonathan, 800m Road Loon RI~, at Geduld farm, 23 April. Kelr Hennesey, planner CIty of Cape

Town, at City offices, plumstead, 13 April. Pula, 26 April. Skye Fehlmann, at Gumtree, 2S April. Swart, 27 April. Gunther RI~, at Groenewald plus, 30 April. George, 24 April. Johan Boch, at Rietvell Farm/Montagu Gift,

09 May 2012

.. Pseudonym. u.ed for the small farmers: que.tion. pertaini<lg toquOled remarks .hould be dlr~ed 10 the corre.pondlnl ""thor

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503 Annexure E: References

; PHA Rapid Review, Setplan Consortium, 2009

;, Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

;;; Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

;, PHA Rapid Review, Setplan Consortium, 2009

, PHA Rapid Review, Setplan Consortium, 2009

,; Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

,;, Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

,;;; PHA Revised Final Draft Management Plan, Setplan, 2000

~ The Western Cape's Hungry, Jacobs, 2009

, PHA Rapid Review, Setplan Consortium, 2009

,; PHA Revised Final Draft Management Plan, Setplan, 2000

~; PHA Revised Final Draft Management Plan, Setplan, 2000

~r; PHA Revised Final Draft Management Plan, Setplan, 2000

~, PHA Revised Final Draft Management Plan, Setplan, 2000

X'I Present Situation and Future Needs, Water SeNices Dept: CoCT, April 2012

X'I; Present Situation and Future Needs, Water SeNices Dept CoCT, April 2012

X'I' Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

X'lit Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and Gareth Haysom, April 2012

Council's policy on the PHA in light of its value to the city [August 2012[

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