Table Of ContentADDENDUM TO
KNYSNA MUNICIPALITY’s
SPATIAL DEVELOPMENT FRAMEWORK
PREPARED UNDER THE AUSPICES OF
THE BUILT ENVIRONMENT SUPPORT PROGRAMME
August 2010
EXECUTIVE SUMMARY
Knysna Municipality’s Spatial Development Framework (SDF), prepared by MCA Planners, was
approved by Knysna Council in 2007 in terms of the Municipal Systems Act (MSA). In 2009 Knysna
Municipality engaged in the Built Environment Support Programme (BESP). The BESP is an initiative
of the Western Cape Department of Environmental Affairs and Development Planning (DEA&DP), in
partnership with the Department of Human Settlements (DHS), in terms of which support is
provided to municipalities to improve the credibility of their SDFs and Human Settlement Plans
(HSPs).
The BESP assists municipalities incorporate the policies of the Provincial Spatial Development
Framework (PSDF) into their SDFs and HSPs, and apply these policies. The central themes the BESP
promotes are urban integration (i.e. redressing the spatial legacy of Apartheid on the Western
Cape’s towns), and sustainable human settlements (i.e. environmentally, socially and economically).
The BESP process started with an initial desk-top review of Knysna’s SDF, followed by on-site, in-
depth discussions with the municipality on the issues identified in the review, and new planning
studies initiated by the municipality since their SDF was approved in 2007. In the absence of a
completed and agreed Provincial Spatial Development Framework (PSDF) manual for municipal SDFs
– outlining, inter alia, a common “table of contents” – the desk-top and on-site review processes
were undertaken in terms of a Credibility Framework, developed early on during the BESP process.
The Credibility Framework assisted to ensure that all elements of SDF contents and processes were
considered during the review.
The BESP’s review of Knysna’s current SDF established that it is underpinned by the principles of
growth and equity, integration and sustainability – all of which are consistent with the BESP’s
objectives. Its vision for the Knysna municipal area is “creating a community which co-exists within a
unique natural, socio-economic and cultural environment that is a model of sustainability”. The SDF
is informed by a sound understanding of the development challenges facing Knysna in 2007/8,
explores the implications of the municipality following a ‘business as usual’ development scenario,
and builds an argument for the municipality to embrace a new approach to spatial development –
which it refers to as a ‘smart growth’ approach.
The SDF recognises that following this new approach will take time to deliver results, and
recommends a strategy of focusing on certain key sectors as opposed to trying to address all the
challenges at once. To this end the SDF presents a conceptual framework for managing growth that
is made-up of the following spatial structuring elements: a municipal open space system that needs
to be protected from urban development pressures; reinforcing the importance of the municipality’s
existing principal towns; promoting the development of activity nodes and corridors to integrate
human settlements; and delineating urban edges as growth management boundaries.
The BESP review came to the conclusion that the version of the SDF approved by Council in 2007 was
a credible document at the time. The BESP review also established that subsequent to the SDF’s
approval by Council, the municipality has taken forward its urban restructuring and urban
conservation initiatives by undertaking detailed studies in this regard. These studies are currently
being reviewed by interested and affected parties, and once approved by Council they provide a
sound base for enhancing the credibility of Knysna’s 3rd generation SDF.
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
Whilst the BESP review established that the current SDF presents a logical argument for the
municipality to embrace a new ‘smart growth’ approach, it identified various considerations that
should be factored-in to improve its credibility (see Appendix A: Consolidated SDF Gap Analysis and
Work Plan). This Addendum to the SDF identifies what additional aspects need to considered in the
municipality’s SDF, and it provides details of the additional content needed to close the gaps
identified in the review. The municipality intend submitting this Addendum to the SDF to Council for
adoption so that it can inform preparation of Knysna’s 3rd generation (2011 -2015) Integrated
Development Plan (IDP), SDF and Human Settlement Plan (HSP).
The BESP review came to the conclusion that in the quest for credibility it is appropriate to build on
and take forward the considerable work that was undertaken in the past in preparation of the
Knysna municipal SDF. Accordingly this SDF Addendum report serves as a tool for the conversion of
the current SDF into a credible 3rd generation product that warrants statutory approval and allows
for the delegation of authority to the municipality.
Accordingly the SDF Addendum sets out the steps to be followed in converting the current SDF into a
credible new product that can replace the plethora of historic spatial plans that remain in place. The
approval process proposed is aligned with the provincial law reform process in that approval in
terms of LUPO can be automatically converted into LUPA approval once the new legislation is
promulgated.
Towards the conclusion of the Knysna SDF BESP process it is recommended that municipal and
provincial officials review and comment on the findings and proposals of this report, and reach
agreement on the process that will be followed for the preparation and approval of Knysna’s 3rd
generation SDF. On this basis the SDF Addendum can then be finalised for sign-off between the
parties.
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
Contents:
EXECUTIVE SUMMARY ............................................................................................................................. i
FOREWORD ............................................................................................................................................. 1
Section A – Introduction ......................................................................................................................... 1
1.0 Introduction and Background ....................................................................................................... 1
1.1 Knysna Municipality in Context................................................................................................. 1
2.0 Key Developmental Challenges for the Knysna Municipality ....................................................... 4
2.1 Demographic and Socio-economic Profile ................................................................................ 4
2.2 Natural Systems ........................................................................................................................ 4
2.3 Settlement Hierarchy ................................................................................................................ 4
Section B – Concepts ............................................................................................................................... 5
3.0 Possible Development Scenarios .................................................................................................. 5
4.0 Key Municipal Spatial Informants ................................................................................................. 5
5.0 Conceptual Framework ................................................................................................................. 8
Section C – Spatial Development Framework ......................................................................................... 8
6.0 Knysna Municipality Spatial Development Framework ................................................................ 8
6.1 Knysna Municipality .................................................................................................................. 8
6.2 Application of the SDF Concept to Towns ................................................................................ 9
Section D – Policies ............................................................................................................................... 11
7.0 Policies for Development ............................................................................................................ 11
Section E – Implementation .................................................................................................................. 11
8.0 Implementation Framework ....................................................................................................... 11
Section F – Conclusion .......................................................................................................................... 12
9.0 Conclusion and Recommendations............................................................................................. 12
APPENDIX A: CONSOLIDATED SDF GAP ANALYSIS & WORK PLAN ........................................................ 13
APPENDIX B: RECORD OF EXTERNAL STAKEHOLDER CONSULTATION ................................................. 20
APPENDIX C: CONTENTS OF MUNICIPAL SPATIAL DEVELOPMENT FRAMEWORK ................................ 39
APPENDIX D: ENVIRONMENTAL INFORMANTS to KNYSNA’S SDF ........................................................ 40
APPENDIX E: SPATIAL PLANNING CATEGORIES & LAND USE GUIDELINES ........................................... 58
APPENDIX F: BULK INFRASTRUCTURE ASSESSMENT ............................................................................ 69
APPENDIX G: GUIDELINES FOR MANAGING CLIMATE CHANGE ........................................................... 88
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
FOREWORD
This Addendum to Knysna’s SDF is structured in the same sequence of Sections and Chapters
presented in the original SDF. The Addendum highlights key findings of the BESP review of the
current SDF, as well as contributions made through the BESP process to improve its credibility by
officials from the municipality and DEA&DP, as well as and the BESP service providers.
Section A – Introduction
1.0 Introduction and Background
1.1 Knysna Municipality in Context
The BESP’s SDF review identified the following procedural and process considerations:
i. Conformity to Prescribed Legal Procedures:
Knysna’s current SDF was adopted by Council in November 2007 as a component of the
municipality’s Integrated Development Plan (i.e. it was approved in terms of the Municipal
Systems Act (MSA)). Whilst the SDF has been approved in terms of the MSA and conforms to
its procedures, the BESP review highlighted the following inconsistencies between the
approved SDF and other historic statutory spatial plans impacting on the Knysna municipal
area that are still in force:
The Knysna-Wilderness-Plettenberg Bay Regional Structure Plan (i.e. the former
Guide Plan prepared and approved in the apartheid era in terms of the Physical
Planning Act), deviates significantly from Knysna’s SDF.
The South Cape Sub-regional Structure Plan for rural areas is inconsistent with the
Western Cape’s Provincial Spatial Development Framework (PSDF), the PSDF’s Rural
Land Use Planning and Management Guidelines, as well as the Knysna SDF.
The Sub-regional Structure Plan for the Humansdorp Coastline, prepared by the
former Cape Provincial Administration, is also still legally in force. This document
also contains proposals that are inconsistent with the Knysna SDF.
The overlap and contradictions between Knysna’s SDF and these historic plans causes
uncertainty, complicates the work of the municipality and province, delays the
implementation of development projects, and perpetuates apartheid spatial patterns.
Component 2 of the BESP is addressing these anomalies through the provincial law reform
process. As part of this initiative to introduce a new enabling regulatory environment in the
W Cape, provincial legislation (the Land Use Planning Act (LUPA)) is being drafted with a
target promulgation date of 1 April 2012.
Pending the introduction of this legislation there is an urgent need to replace the historic
spatial plans that are still in place with an integrated and credible spatial plan for the Knysna
municipal area. To this end, as part of the BESP process, province and the municipality are
collaborating to facilitate the SDF’s statutory approval. Legal opinion has been sought on the
possibility of either withdrawing these historic plans in their entirety, or only those parts
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
that impact on the Knysna municipal area. In this scenario the historic statutory plans will be
replaced by a municipal SDF that has been approved as a Section 4(6) plan in terms of the
Land Use Planning Ordinance (LUPO). As both Bitou and George municipalities also support
the withdrawal of these historic plans, it is preferable that they are withdrawn in their
entirety.
DEA&DP and the municipality are due to discuss the implications of the legal review that has
been undertaken, and will then decide on the appropriate legislative procedures to follow in
replacing the historic spatial plans that are still in place with a new credible municipal SDF.
The municipality’s preferred ‘road map’ to a credible SDF is as follows:
a. To submit this Addendum to Knysna Municipality’s Spatial Development Framework
to Council for adoption.
b. To use the inputs made by the BESP on improving the credibility of Knysna’s current
SDF (as documented in this report) and HSP (as documented in the HSP Addendum
report), as points of departure for the preparation of Knysna’s 3rd generation IDP in
2011.
c. To incorporate the BESP inputs into Knysna’s 3rd generation SDF, and align it with the
IDP and HSP.
d. To submit this SDF for approval in terms of both the MSA and LUPO (or LUPA once
promulgated), thereby allowing for the replacement of the various outdated spatial
plans and delegated authority to the municipality.
ii. Involvement of External Statutory Authorities in the SDF Process:
The BESP review noted that Volume 1 of Knysna’s current SDF cross-references to Volume 4
(SDF Process - Record of Consultation and Meetings), but there is no evidence of the
involvement of external statutory authorities in the preparation process. As a result the
municipality’s SDF is not being properly used by national and provincial departments, as well
as other state owned enterprises. This reduces its value as means of facilitating cooperative
governance by spatially aligning the initiatives of different spheres of government within the
municipal area.
To address this shortcoming under the auspices of the BESP in May 2010 DEA&DP convened
a SDF indaba with George and Knysna municipal officials and external statutory
stakeholders. At the indaba the role of municipal SDFs in facilitating cooperative governance
was explained, an overview of George and Knysna’s SDF was presented, and delegates
presented their current programmes and projects in the municipal areas.
Appendix B records the proceedings of the SDF indaba as well as the inputs subsequently
submitted by external statutory authorities on their current initiatives in the Knysna
municipal area. As part of the BESP process the input submitted by MTO Forestry on the
long term urban growth direction reflected in Knysna’s current SDF is being addressed by the
municipality and DEA&DP.
The indaba successfully opened-up channels of communication between the municipality
and statutory authorities, transferred information between parties, and established a
platform for further engagement in the finalisation of the SDF and preparation of the 3rd
generation IDP.
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
Moving forward the outcomes of the indaba establish a basis for the municipality to engage
with external statutory authorities in the preparation of its 3rd generation IDP and SDF. In
accordance with the Inter Government Relations Framework Act, it is proposed that the
municipality establish a multi-party steering committee as basis for managing collaboration
on the IDP, SDF and HSP processes.
iii. Alignment with the Municipal IDP and other Sector Plans:
The BESP review noted that the 2008 SDF was informed by Knysna’s 2020 visioning initiative
and IDP, but these links are not explicit and need to be clearly stated upfront in the
document. In addition, in its current format the SDF’s linkages to other IDP sector plans (i.e.
Local Economic Development, Human Settlement, Transport, Infrastructure, and Disaster
Management) are also not apparent. With the start of Knysna’s 3rd generation IDP cycle in
2011 the opportunity exists to specify upfront the nature of alignment sought between the
IDP and its sector plans to give effect to the strategic direction taken in the municipality’s 3rd
generation IDP. Whilst the relationship between the IDP and its sector plans should be
clarified in the introductory sections of the SDF, the spatial implications of the alignment
sought should be dealt with in Section B (as part of 4.0 Key Municipal Spatial Informants).
iv. Structuring of the SDF Document:
The BESP review noted that Knysna’s 2008 SDF document is structured differently to the
format proposed in the draft Provincial SDF Manual (2009). Prior to the statutory approval of
the PSDF, there were no clear guidelines on the content and organisation of municipal SDFs
in the province. As a result, most municipal SDFs have been “overburdened” with
information (based on an assumption that it is better to include everything available); have
become voluminous and not easy to follow for many of its intended users. Each municipality
largely followed its own “contents sheet”.
Critically, the difference in focus, scope and contents of SDFs from municipality to
municipality inhibits easy comparison, and most importantly, consistent development and
application of policy across areas of geographic focus in the province (from higher scale
regional planning to local planning).
To overcome the issues of user friendliness and consistency, the Provincial SDF Manual was
commissioned in parallel to the BESP process. The manual is intended to provide a
consistent, province-wide approach and focus to the preparation of SDFs, including
contents, within the overarching policy context provided by the statutory PSDF. The SDF
manual was only substantially completed late during the BESP Round 1 process. The manual
includes a proposed contents sheet for SDFs, attached as Appendix C.
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
When preparing their 3rd generation SDF for approval in terms of LUPO, the municipality
should structure the document in line with the Provincial SDF Manual.
2.0 Key Developmental Challenges for the Knysna Municipality
2.1 Demographic and Socio-economic Profile
The BESP review noted that although there is no new data available to update the demographic and
socio-economic profile presented in the 2008 SDF, the recent global economic recession has resulted
in a decline in the rate of in-migration to the Knysna municipal area1. Accordingly the SDF’s
projected average population growth rate of 3.7% per annum in the municipal area should be
revised downwards when the new SDF is prepared.
2.2 Natural Systems
Whilst the 2008 SDF recognises Knysna’s natural assets as its greatest strength, since it was prepared
the Garden Route Initiative (GRI) has provided new insights into the significance, importance and
threats to biodiversity in the municipal area. Towards incorporating these insights into the
municipality’s new SDF, Appendix D sets-out key biodiversity informants extracted from the GRI’s
Biodiversity Sector Plan, including the implications of climate change and the S Cape’s current water
crisis.
In addition, the first draft of the Garden Route Environmental Management Framework (EMF) report
was made available by the Department of Environmental Affairs and Tourism in January 2010. This
project builds on the biodiversity aspects contained in the GRI and incorporates additional
environmental considerations regarding management of topographically and visually sensitive
landscapes. These guidelines, which are relevant to the Knysna municipal area, are also included in
Appendix D.
2.3 Settlement Hierarchy
Whilst the current SDF identifies the Knysna municipal area as having a well functioning hierarchy of
settlements, the BESP review noted that it is not explicit on how the settlements within the
municipal area relate to one another, which settlements will provide the best return on public
investment, nor how specific towns (like Knysna) could be restructured to give poorer communities
greater access to work opportunities and urban amenities.
An overriding feature of the municipality’s settlement system is the primacy of Knysna as the
economic engine of the local economy and the largest population concentration. The SDF’s spatial
strategy is to focus human settlement investments here to reinforce its role as regional service
centre. Human settlement challenges include securing land suitable for development, managing
urban growth to protect its natural assets, urban restructuring, and bulk services augmentation.
The human settlement challenges in Sedgefield, the municipality’s secondary node, include growing
the local economy to reduce its dormitory function, urban restructuring towards the functional
integration of the settlement’s poor and marginalised communities, securing suitable land without
comprising the natural environment, and bulk services augmentation.
1 Information presented by Knysna municipal officials at the BESP Rapid Planning Initiative in January 2010
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
Rheenendal and Karatara, in contrast, are lower order tourism and retirement settlements that
have a narrow economic base and function as dormitory towns. The SDF identifies Rhenendal and
Karatara as not being sustainable (e.g. they are pockets of low income housing that offer few
economic, social and recreational opportunities to their residents). Human settlement challenges
here relate to local economic development, and addressing the basic housing, facility and services
needs of impoverished households. The SDF’s spatial strategy is to contain their outward growth in
order to safeguard their attraction as tourism destinations, and promote integration within the
towns. Furthermore the strategy here is also to invest public resources in addressing the basic needs
of the poor, those inadequately housed, and those living in vulnerable conditions.
The BESP review of Knysna’s SDF and SHSS endorsed their strategic direction, but called for the
refinement of their strategies to reflect current economic realities. Knysna’s SDF and SHSS were
prepared when the local property development industry was exhibiting strong growth. The global
economic recession has impacted negatively on Knysna’s middle to upper income property market,
necessitating a review of the drivers of local economic growth. To address this shortcoming the
DEA&DP has commissioned a review of the 2004 provincial study into the growth potential of towns
in the W Cape. The outputs of this review will provide valuable insights to Knysna’s 3rd generation
SDF.
In addition the BESP’s review of both the Knysna and George SDFs highlighted the need for a study
into the economic growth prospects of the S Cape that clarified the respective roles and economic
development prospects of George, Knysna and Mossel Bay. The outputs of such a study will provide
valuable insights to their 3rd generation IDPs, SDFs and LED plans.
Section B – Concepts
3.0 Possible Development Scenarios
The BESP review noted that the 2008 SDF explores plausible development scenarios and correctly
concludes on the necessity of the municipality adopting a new approach to managing spatial growth.
As the economic climate has changed significantly since the SDF was compiled, current realities need
to be factored into Knysna’s 3rd generation SDF.
4.0 Key Municipal Spatial Informants
The BESP review identified that the 3rd generation SDF should cover the following additional spatial
informants:
(i) Consistency and conformity to the core objectives of the Western Cape Provincial Spatial
Development Framework (PSDF), which was approved as a statutory provincial plan in 2009.
(ii) Alignment with the IDP and its sector plans.
(iii) Updated data on the status and prospects of the local and regional economy.
(iv) Updated data on critical biodiversity areas
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
(v) Data on scenic landscapes and visual considerations
(vi) Data on the spatial implications of the availability of bulk infrastructure
(vii) Data on productive agricultural landscapes in the municipal area
(viii) Climate change informants.
(ix) Impact of the proposed N2 bypass.
Details of these spatial informants are explained below.
(i) PSDF Consistency and Conformity: Whilst Knysna’s 2008 SDF is not inconsistent with the
PSDF, it needs to explicitly reflect how it aligns with the PSDF’s core objectives. To this
end the PSDF’s core objectives are tabulated below, and for each objective
recommendations are made on how the SDF should demonstrate alignment.
PSDF Objective Consistency and Conformity of SDF
Settlement pattern aligned Whilst the role and function of the different towns is adequately
with economic potential addressed in the SDF, as identified in Section 2 updated
and the location of information on the underlying drivers of economic growth and
environmental resources their spatial implications is needed. The findings of the proposed
economic studies will provide the basis for addressing this
shortcoming. In addition the current S Cape water crisis is also not
addressed in the 2008 SDF. As input to Knysna’s 3rd generation
SDF, Appendix D provides insights into the conservation of scarce
water resources.
Basic human needs Adequately addressed in the current SDF and in Knysna’s
programs delivered where Sustainable Human Settlement Strategy (SHSS). The BESP’s
required Addendum to the SHSS provides further detail on where basic
needs programs should be delivered.
Channels public investment Whilst the SDF (Section 8) provides a spatial framework for public
where highest socio- investment, greater specificity on community facility requirements
economic returns can be (especially for space extensive land uses) is required.
achieved
Addresses land reform Whilst this objective is not adequately addressed in the 2008 SDF,
it is recognised that the Department of Land Affairs & Rural
Development, who have statutory responsibility, have not been
proactive in facilitating land reform and engaging with knysna
municipality. To address this shortcoming DEA&DP have facilitated
their involvement in the SDF process (see Appendix B).
Addresses conservation & This topic is addressed in the 2008 SDF, including reference to the
strengthening of Knysna’s significance of the Western Heads. Since 2008 the municipality has
sense of place, and prepared urban conservation guidelines, which provide a basis for
importance of its natural, strengthening their conservation efforts. In addition data on
cultural and productive productive agricultural land is being sought from the Department
landscapes and buildings of Agriculture (see (vi) below.
Addresses urban The need for urban restructuring is stated in the 2008 SDF.
restructuring in order to Subsequently the municipality undertook a Densification Study
undo apartheid’s legacy on (not yet formally adopted) which provides area specific details on
human settlements implementation of urban restructuring.
Locates urban activities for Adequately addressed in the 2008 SDF and in the SHSS. Further
convenience & promotes details are provided in the BESP’s SHSS Addendum.
public & non-motorised
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Built Environment Support Programme (Round 1): Component 1 – Support to Knysna Municipality
Addendum to Knysna’s SDF: Draft 2 August 2010
Description:Knysna Municipality's Spatial Development Framework (SDF), prepared by MCA
Planners, was .. format proposed in the draft Provincial SDF Manual (2009).
