The Role of Philippi Horticultural Area in Securing The Future of The City

4titi
REPORT TO ECONOMIC, ENVIRONMENT &

SPATIAL PLANNING COMMITTEE
tlTY DF CAPE TnWK IISIXEKD SASEKAPA I sun KAAPSTAD
1.
ITEM NUMBER:
2.
SUBJECT
EESP 13/10/12
THE ROLE OF PHILIPPI HORTICULTURAL AREA IN SECURING THE

FUTURE OF THE CITY
ONDERWERP
DIE ROL VAN DIE PHILIPPI- TUINBOUKUNDIGE
BEVEILIGING VAN DIE STAD SE TOEKOMS
GEBIED
IN
DIE
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
Safe City
Council's policy on the PHA in light of its value to the city

IAugust 2012]
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467
o
o
o
4.
Caring City
Inclusive City
Well-run City
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.

[August 20121
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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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469
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.
e)
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
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

[August 20121
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470
Small holdings and Environs Urban
Guidelines' study currently underway.
Edge
and
development
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

lAugust 2012J
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471
ii)
e)
Die
Zeekoevlei
Pelican Park (met uitsluiting van die 180 ha wat reeds vir
bewaring opsygesit is)
Strandfontein-kusnodus
Youngsfield
volgende stedelike-intensiviseringsgebiede is ook ingesluit:
Strandfontein, erf 1212
Weltevredenweg-'wig'
Schaapkraal-kleinhoewegebied
Lansdowne- industriele gebied
Die stadsoomlyn soos

ontwikkelingsraamwerk.
i)
aangedui
in
die
Kaapstadse
ruimtelike-
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
se stadsoom en
die 'Schaapkraal-kleinhoewes en -omgewing
ontwikkelingsriglyne' wat tans onderneem word.
ISINDULULO
Azigunyaziswanga: Isiggibo seseBhunga:

Kundululwe ukuba:
"IBhunga maliqinisekise uluvo IwesiXeko ngokoMgaqo-nkqubo ngokumalunga
noMmandla
ongokuLinywa
kweMifuno
neeNtyatyambo
wase-Philippi
ngokumalunga nexabiso lawo kwisiXeko.
Olu luvo ngokoMgaqo-nkqubo luquka ukuqinisekiswa:
a)
kolondolozo nOkusetyenziswa kwemithombo yezimbiwa engeyona

elizayo
kummandla
ibalulekileyo
kwixesha
ochongwe
ngumda
womqukumbelo wedolophu njenge-PHA;
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:

IAugust 2012J
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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}
e}
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:

yezodolophu oluxinanisiweyo:
Isiza-1212 esise-Strandfontein
Umhlatyana' we-Weltevreden Road
Ummandla ongeMimandla yase-Schaapkraal
Ummandla womzi-mveliso wase-Lansdowne
elindelekileyo
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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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
[August 2012]
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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 people vii , 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 food ix .
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".
Council's pOlicy on the PHA in light of its value to the city

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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 annum xv 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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476
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.
Impacts
Pressure
Type
Land speculation
Housing land
demand
Entity
Rapicorp Pty Ltd
structure
plan
(urban edge line)
amendment
for
470ha in south-east
of PHA
MSP structure plan
(and urban edge
line)
amendment
aoolication
(past
&
Other
ootentiail arouos
Individual owners
Community I public
pressure
City's Human
Settlements
(unofficial) policy
position, including
Human

IAugust 2012)
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
Page 11 of29
477
Settlements' land
option (now lapsed)
Informal
settlements
housing elements.
Illegal and
conforming
use activities
nonland
Industrial
commercial
activities
&
Urban Externalities
Petty crime (food or

vandalism
of
I
equipment
property)
and
organised crime
Transport
(commuter) access
An enormous threat requiring constant

monitoring and action.
Associated with
negative environmental
externalities (dumping & land in-filling; waste
water groundwater pollution)
Requires (retrospective) servicing into an area
not otherwise considered to warrant such
(being a rural area)
Ironically, the agri-job opportunities add to the
pressure for accommodation which in turn
reduces the number of available jobs potentially a vicious circle.
Noxious (air & groundwater) pollutants
associated with certain 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
Ranges from nuisance impact to risk to life.
Potentially massive equipment replacement
costs. Has resulted in alternative vandall theft
-proof equipment (plastic rather than steel etc.)
Greater costs on security (personnel & fencing
etc.)
Over-utilised rural roads (exacerbated by lack
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.

IAugust 20121
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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
future XVii 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 1m 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 1m 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

IAugust 20121
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479
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.

[August 20t21
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480
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.

!August 20121
Page 15 of 29
481
8.5.
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.
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);

[August 2012)
Page 16 of 29
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:

IAugust 2012J
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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
Page 180129
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.

[Augusl2012j
Page 19 of 29
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.

IAugust 20121
Page 20 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
system of flows and networks
underestimated.
Conflicting
contributed to creating a sense
its current state.
has been that the PHA and its complex

are often misunderstood, confusing, and
understandings and perceptions have
that the area is in crisis with little value in
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
Page 21 of 29
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?
rgJ
No
Yes
8.12. Other Services Consulted

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

IAugust 20121
Jens Kuhn (021 40042171

Paul Rhode (021 487 2487)
Kevin Samson (021 487 2606)
Gerhard
Hitge (0214004784)
&
Page 22 of 29
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
CONTACT NUMBERS
E-MAIL ADDRESS
DIRECTORATE
FILE REF No
SIGNATURE: DIRECTOR
I (Delete if not necessary)
Kier Hennessy
w. 021 7108049 c. 072 288 6105
Kier.Hennessy@capetown.gov.za
Economic Environmental and Spatial Plannino
CrllnA~
Comment:
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]
Page 23 of29
489
LEG A
NAME
TEL
DATE
PLiANCE
""onnet ~
l\:\JJ ~ ~
I'll o~ I 'l0\l-
REPORT COMPLIANT WITH THE PROVISIONS OF

COUNCIL'S DELEGATIONS, POLICIES, By-LAWS
AND ALL LEGISLATION RELATING TO THE MATTER
UNDER CONSIDERATION.
NON-COMPLIANT
Comment:
o2J
Based on the contents of the report.
COMMENT:
MAYORAL COMMITTEE MEMBER
Ald. B Walker
NAME
DATE
lq'OC('dol~

[August 20121
Page 24 0129
490
Annexure A:
Draft Cape Flats Spatial Development Plan indicating

identified potential future development areas near the
PHA
PeliCan Park
Strandfooleln Coa~
Strandfontein EaS!
POTENTIAL URIIAN ..THSlflCAnON AREAS
Strlndfontein 1212
WelleVf8den 'Wedge'
_0_._
-----. -----_._,-;;;: =:.0-.
--,
-=. -- ------... - --.-5cI1aapkraal
10
0 . - _ , ,' ....
0 - -....
ilitillil
~~
.-0''''
-'-''''
.- ... 0 - .........

[August 2012)
Lansdowne IncIu$IfiaI
--
~=::::
0--
Page 250129
491
Extract from CTSDF (2011) of PHA indicating Council
approved urban edge line
Log'"
-"""'f''''
.,.......,.&10"'"
..__ ,_iT.... __
. . . ._ _ T'_<1 ....
. _.R. ....'. .....

---,-"'-- --"_
-.-_1
_
8I'aoocc... ,
8I'aOOCC ... l
~'11'_
... 'u_ ............ ,....
_ _ ooc ..... '
....I ..I '........... ~
. .,.,. .. G_'_....-.
Annexure B:
......,.$0__
......... _ h..
-,~
..... ~f .........
~rw.
..... e - .. _
'NeO_At_
---,'-,_
.._"_.............
_ _ '11" ... z-.
(fIo.!._ ....z .....,
ef. __ _
_"",,'SI'oo
IX} """ _ _ ......, .....
1ZiI ..... - .
b~:=:-::~.
8-c---.,._..
--_c___. __
---+e..
-"'-'- c -..' .....
_......f ....
...........,~_f_.
ai ::..~=
~
Extract from the Cape Town Spatial Development Framework

[August 2012J
Page 260129
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,

[August 2012J
Page 27 0129
493
Annexure 0:
Philippi Horticulture Area: A city asset or potential
development node?: Summary Report

[August 2012]
Page 28 of 29
Philippi Horticultural Area

A City asset or potential development node?
Summary Report
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 report commissioned by Rooftops <:anada Foundation Inc. - Foundation Abrllntematlonalln

partnership with the African Food security Urban Network.
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!
Dr Jane BattersbyLennard and Gareth Haysom
April 2012
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
W..b:
www.afsun.org
~ H,,,,h"I" (:;,,,"<1,,
t.:.I.:.I
AI>" ,,,"',,,;01,.,,,;,1
jIC
la
:a::. ~
.<f1..')I"
n ..
~!I
'"
IIlOoo
<:.:;:>
IIlOoo
the current PHA/Cape Town food system relationship, the opportunities and challenges that this
Introduction
offered, the beneficiaries of this system and other potential but previously ignored values and
The City of Cape Town faces a unique challenge, one not faced by any other city or urban
challenges presented by the PHA.
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,
In the context of the PHA, it was also necessary to investigate the local and PHA based flows and
within an area of significant poverty and need, namely the Cape Flats.
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
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
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 chain
7
.
between the Philippi Horticultural Area (PHA) and the food system of the City of Cape Town, the
stakeholders, but to a far broader group of Cape Town and regional stakeholders, as this report will
The research found that these questions are essential as the PHA and its systems are generally
8
misunderstood . These misunderstandings inhibit effective engagement in the area and result in
demonstrate.
confusion as to how current decisions specific to the area should be made. More importantly this
challenge of the Philippi Horticultural Area is of importance to more than the specific Philippi
misunderstanding creates significant confusion and contestation In terms of what the future of the
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
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
opportunity for potential housing developments for those living in informalitY and need, an
""rJj
opportunity for developers to capitalise on strategically located land 3 , and conflicting perspectives of
I This research found that this perception was

untrue and misinformed. The research found
the PHA to be an area of high cultural, social
9
and ecological significance 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.
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
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.
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
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
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)
i
a view that the food value of this area is negligible 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 offtake. 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 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
a.
1---_ ..-.........
I'V_
i::re.,. :;..... _
__
l'I-'-'--~'
=::::-._'7_ ..
~~.~_N
'!
i
:!
- , , , , - , - , _ . , :::::::..,.:.=_~.
Figur~ l:Re~earch~site and"Ph;llp~i Ho'rtlcultural Area and

specific use typology designations (SOUft~: my ofC3pe Town"l
land, the city as a whole and climate change,

were found to be of critical importance
'
particularly in the context of the links between

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
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.
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
In respect of the broader economic system, the research found that the increasing pressures
reviewed and assessed. These sets included, for ex.ample, data on the off-take from the PHA through
imposedon the global food system reverberate through local food systems. These pressures are
the Cape Town Fresh Produce Market (CTFPM)ls. lastly, a contextual underStanding of the broader
compounded by crises beyond the control of local food system actors. These crises include climate
area was sought through a process of key Informant interviews across sectors and stakeholders.
driven food shortages elsewhere In the world that impact on the local food supply, shifts in diet
These stakeholders included emerging smallholder farmers, large scale farmers, store owners in the
driven by rapid developing world urbanisation, and most critically, significant increases in the oil
area and tradefS whose product is derived from the area, directly or Indirectly. These interviews
price and thus price increases in all Industries and systems reliant on oil. The PHA allows for control
were further supported by a process of immersion into certain place - based processes and activities.
at the local scale, buffering communities from these crises and providing resilience from the
associated shocks.
Philippi HortkulturalArea flndlngs

Currently the general perspective offered by certain city officials l4, the broader public and certain
commentators on the area
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 selling l6. This view was not
supported in the research findings.
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
11
produce . The challenge of theft is made worse by ineffective control in the area, aggravated by
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
Philippi Horticultural Area challenges
i1
The area produces well over 50 different horticultural crops
and many farmers are also active in livestock production. The farmers have realigned their
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.
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 addition 1a
The Philippi Horticultural Area In the broader Cape Town Food System
While estimating production figures is arguably SUbjective, it was estimated that just under 100 000
The PHA was found to be playing a critical role In the broader food security within the settlements
tonnes of fresh prodUce is grown in the PHA annuall~. This included an estimated figure of over
adjacent tothe PHA. Informed by reported flows of food from the PHA, retail networks that source
2 OOCI tonnes of produce that Is given free to farm workers in a year10 - a flow of food that plays a
the bulk of their product from the PHA and due to the food distribution networks in place, there is
critical role inthe broader food access of the communities in the Vicinity of the PHA. All this has
real potential for fresher and nutritionally dense food to flow into these COmmunities. It was also
been achieved on the back of innovative and proactive farm management strategies. These
reported that while food prices do not necessarily differ when compared to food prices from other
strategies are further supported by an endogenous economic system. This Is a highly specialised
production areas, should the produce from the PHA be removed from the distribution system, there
system designed to be mutually supportive of a number of farm based and off-farm economies, and
Is a real risk of significantly higher food prices for all Items currently grown in the PHA 23 Certain
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.
farmers interviewed suggested that currently the PHA plays a key role in moderating prices for all
14
soft leaf green vegetable types, regardless of source .
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
"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
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.
farm.,.
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
available within the system, this would be at a far higher cost to the city and In particular to the poor
within the food system, for e)(ample, livestock production and its use within the communities.
and vulnerable within the city.
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.
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
The research also engaged with a new and active group of committed emerging smallholder
leave the land as they are old and their children are not interested in farmini7. This is certainly not
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,
the case with a number of farmers, larger scale and emerging smallholder, investing heavily in the
particularly their already identified market of the ethical and local consumer. These farmers are also
(conditional of a number of institutional certainties). A further narrative was that the net levels of
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 30
28
and see the area as having a real future
enabling access to a number of other low income customers, some of whom are abie to access food
agricultural production are declining. This was certainly found to be untrue and while levels of
from these farmers at far lower prices, and at times at no cost, enabling a variety of survivalist food
produce through the CTFPM are certainly declining
access strategies on the part of communities ~djacent to the PHA. These farmers see their roles as
markets are identified and engaged with directly by the farmers.
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
29
off-take from the farms is Increasing as new
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
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
While the general views of the PHA are positive, these are constrained by e)(treme frustration at the
wanting to enter the area. This entry remains a challenge though and if land prices are to be set at
fact that the area is not protected, secured and resourced as an agricultural zone. The numerous
an anticipated development potential cost; this would e)(ciudethe entry of such farmers. For the full
zoning request changes n and the fact that there is clear disagreement on the part of officials as to
potential to be realised, two key aspects are required: That the PHA is zoned as rural and the rural,
the future of the area, precipitating more requests for change, is a cause of great frustration. The
agricultural land use status upheld, and secondly, that there is appropriate and dedicated support
overwhelming request from all the farmers is for certainty and clarity as to the future of the PHA.
provided to these farmers from all public entities mandated to provide such support. This support
Most of the farmers interviewed in this process, larger scale and emerging, are not planning or even
needs to be aligned to the conte)(tual realities of the PHA and the PHA farming systems.
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.
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
"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
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)
~@Is
'"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.
=
-.J
Due to the PHA geography. production takes place at a greater scale but also spans the seasons. This
The PHA in the context of Bsrkultural zones wtthln the cape Metropolitan Area
fact is a critical benefit. There are times of year when other agd-zones, both within the CMA and
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 Report n , It was found that when compared with all the
even nationally, are removed from production due to water scarCity, climate, heat, cold, etc
S4
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).
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
, I~"'~~ Id..,q
greater scores to the PHA in the area of environmental significance. Coupled with the findings from
IV"
/yH
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
C ... _VOOlllS
lIoMn _ _
~e._lEpp/ng
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 .-' '/ J
~#'
Ci~'+J
.;!f"
-:-
_-,,0 ..
.._-
f ............
t-.r"/~'
.-.co............"'"
J'
Filufl!2: Rating of CoCT agricultural gfl!as as per the 2008

Agricultural Land Report
.....
~.
T_~.
""'--
........ ,
I L _ "" .......... m day ......... n ..I f .
,I""
I
13 II
1.U
;::"!;!I,g 11
-
:~~:~
'",
.~
H.~
'1 '3
_:W.37
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
figure 3:PHA V$ Average Area orSlgnlficance Scores
the end of April. Using the estimated land area used for horticultural production of 940hai!6, this
~
~
00
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
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.
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
The PHA is a key city resource that contributes in a significant way to building both longer term
2000 full time employees, translating into net per annum wages of R 36 000 000 for full time
urban food resilience but critically, climate resilience. The PHA is a critical component in any
employees and R 7 500 000 for part time employees (1 000 employees), a total wage opportunity of
assertion of Cape Town being a sustainable city. Removal of the area would undermine not just
R 43 500 000". If other mandatory (leave, sick pay, etc) and non mandatory benefits (loans, etc) are
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.
.. 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 DIr1or-. .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
".
calculated, this figure will further increase. A further trend is that ther.e does aiso appear to be a
serve to assist in the generation of mutually agreeable and applicable land use and zoning
distinct shift, one that runs contrary to current market trends - that of Increasing the full time
regulations that are In the Interest of all parties.
(permanent) staff compliment.

This process should then be followed up with a resolution and cessation of non-agricultural activities
Farmers reported that the majority of employees were women, many of them having only bask
within the PHA and through a consultative process, timelines given for the elimination of these
education and many only speaking IsiXhosa. However, on certain farms it was reported that while
activates.
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.
Aft areas currently deemed ta be viable and productive agriculture areas need to be retained for
The smallscale emerging farmers draw on labour from local communities and pay according to legal
agriculture:
requirements but are actively seeking to develop the staff within their operations. Furthermore, all
The viability of productive agriculturailand is critical to the broader food system of the city of Cape
emerging farmers expressed a desire to ensure as many full time employment opportunities as
Town and as such, this land needs to be secured. Further, the chalienges in Input cost increases and
possible. This desire is further supported by the farming style, that of using more labour and less, or
climate related disasters that have been experienced in the region (drought In Eden District, severe
no, external inputs.
flooding in Theewaterskloof region) all point to extreme climatic volatility. The PHA offers a measure
The general trend Is that staff employed In the PHA are from neighbouring communities including
of reSilience, acting as an insurance policy to protect city residents from the consequences of these
Crossroads, Philippi and Browns Farm and Samora Machel, speCifically, but also Grassy Park, Nyanga, .
climate related events.
langa and Gugulethu.
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,
Informed by the flndlngs of the review of the PHA, the follOWing recommendations are made:
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
These recommendations are made up of three key themes, the flrst is a set of issues that need
mechanisms to address this are generally argued, recent global issues have disproved this (the role
immediate resolution, second, Is a set of needs that require further review and analYSis and lastly, a
that food has been found to play in the Arab Spring, as one example).
set of potential alternative uses of the PHA have been included.
lastly, global food prices have recently passed those experienced in Z008 and are expected to
The issues that require immediate resolution Include the following:
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
The urban edge needs to be clearly defined and the PHA secured as an agricultural area:
accessible, this would place the city in extreme risk.

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
The Departments 0/ Agriculture and Rural Develapment need ta be engaged and called on their
study, the Schaapkraal Smailholdings and Environs Urban Edge and Development Guidelines Study Is
lock 0/ suppart/or the farmers Within the area:
c:.c>
c:.c>
essential and would assist greatly In resolVing issues pertaining to illegal use and use encroachment.
While this may be deemed to be eKtreme and others may wonder Ifin fact the support from these
Once this project is complete, the urban edge should then be formalised and secured.
departments is required, they have a constitutional mandate and as such, a fiscal mandate, to
It needs to be stressed that while this is deemed a horticultural area, activities that result in
Support the area. This Support needs to be directed at making the emerging farmers as sustainable
successful horticultural activities fall within a broader agricultural remit. Thus, what is required is the
as possible but also needs to be directed to supporting the broader PHA as a key agricultural asset.
cessation of non-agricultural activities and.not non-horticultural activities. Such a response to the
The recent placement of a DoAWC office in the PHA is recognised but this needs to be part of a far
area would be counter-productive and limit the farmers' viability. The City further needs to engage
larger and engaged process of support, research and investment.
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
The PHA farmers are small in comparison to other farming typologies in South Africa but are highly
existing land use patterns needs to be considered. For example, all plots with transport on them are
successful in horticultural agriculture that is economically viable, highly Intensified and responsive to
not alike, some are used to support the agricultural activities and are thus necessary, but others are
the specific climatic, market and ecological context. These aspects make the PHA farmers the best
simply used as scrap yards and even cheap parking areas for the film industry. The PHA Is unique
suited and some of the most experienced farmers in the support of smallscale agrlcultu reo With the
from an urban governance perspective and current rural zoning ruies are not necessarily appropriate
current policysh1fts and the focus on the development and support of smailscale agriculture, the
for the PHA/urban/agricultural context. working with all farmers a~d agricultural stakeholders could
PHA farmers are Indispensible and potentially hold the key to the viability and success of the
11
"
smallholder programmes. For the success of the Zero Hunger Strategy and other such Initiatives, the
concerns as to the way in which the area is viewed, the management systems that are in place to
PHA farmers, large scale and emergin& are vital, key strategic partners; partners that need to be
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
recognised for their experience, insights and value.
governance processes are in fact relevant in a changing city context. in other regions, different
approaches are adopted:
Greater police visibility, resources and effort Is required within the PH.A:
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.
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
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
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.
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
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
speaks to a number of other conceptual challenges faced by the PHA. This research found that the
mandate ta support and coordinate activities within the PHA:
police use are arguably inappropriate in terms of contemporary urban governance. Alternative and
PHA is of significant value but also found that regulations to ensure its protection and regulations to
arguably radical urban governance perspectives are required to mediate the different use
City documentation in 2002 argued that "the different spheres of government generally have
requirements but also, to enable a set of poliCies that have a positive impact on the PHA.
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
Alternative actions necessary in order to assist In more effective and robust governance of the
lack of capacity to enforce and Implement, poor co-ordination between different authorities, and
PHA
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
Effective and proactive Land Reform Interventions:
challenge exists in speCific competing land use needs within the city and the lack of relevant
information that could support the protection of the area 4l These Issues are made all the more
The South African land Reform process is falling well short of the 2014 targets. As certain farmers
complex by varying priorities and perspectlves,withln the different spheres of government and city
leave the PHA, due to small farm sizes and other market related challenges, new Black farmers could
departments on the value of the current PHA landuse to the urban fabric.
be provided with land in the area. The case of the existing new emerging farmers in the area offer
c:Jl
c:=
c:>
insights into opportunities that could be unlocked through this process. The development of a cadre
This Issue rteeds immediate resolution and effective management. One structure needs to be given
of new land reform urban farmers could playa positive role in changing land holding and thus enable
full authority for the PHA and the challenge of coordination between the different spheres of
effective land reform.
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
This transition however, would only be possible if effective and appropriate support and assistance
similar to the Coastal Management Branch.
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
A pracess is required to facilitate
enable this. The emerging farmers have seen themselves as the trail blazers in this regard and need
a different perspective an how the PHA and other residential
to be consulted in order to develop proactive and innovative land development interventions.
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.
.Q
13
Herbert, 1988, in CoCT, RMF, 2002:22
"
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.
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 ..
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
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
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:
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
43
argued to be inappropriate to the needs most residents within the areas of most need
The PhilippI market garden Is stili active. It produces tans of vegetables and flowers annually for lawl
consumption and export. It Is labaurlntensive 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).
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:
ReferenceS
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
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
area bath dIrectly and Indirectly,
Battersby, in press. Food Insecurity In Ward 3<1. in Brown-luthango. M. APerspective orthe philippi Area. AI"rk:an Centre
forC!tles.
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.
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.
Identification and mobilising o/graups that could actively participate In and support the PHA
EricUen, P. 2007. Conceptualizing food systems for global environmental change research. Global Environmental Change.
2007.09.002. Elsevier.
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
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.
"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. spials .nd speclflOll1y ffeshness.
Herb"rt. Mand 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.
"
"
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
determ Inatlons/baSlcconditionsofemploym 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
Angus, Ottery Road. 26 April.
Holmes, at Aa:rlmark philippi
Commercial F;t1"mers
Johan Terreblanche, at philippi
Groenteverpakkers, 12 April.
Philip Horstmann, at Marydale farm, 24 April.
Jonathan, 800m Road
Loon
Pula, 26 April.
Swart, 27 April.
George, 24 April.
Skye Fehlmann, at Gumtree, 2S April.

Gunther RI~, at Groenewald plus, 30 April.
Johan Boch, at Rietvell Farm/Montagu Gift,
09 May 2012
RI~,
at Geduld farm, 23 April.
Other stakeholders;
Neville van der We.thullen, Setplan, at
Country Manor,18 April.
Henk Conrad;", Philippi AgriMark
Manaler Aa:rlMark, 12 April.
Kelr Hennesey, planner CIty of Cape
Town, at City offices, plumstead, 13 April.
=
l'.:I
.. Pseudonym. u.ed for the small farmers: que.tion. pertaini<lg toquOled remarks .hould be dlr~ed 10 the corre.pondlnl ""thor
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
;, 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
,;, Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and
,;;; 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'
X'lit
Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and
Philippi Horticulture Area: A city asset or potential development node?, Dr Jane Battersby-Lennard and

[August 2012[
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The Role of Philippi Horticultural Area in Securing The Future of The City

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The Role of Philippi Horticultural Area in Securing The Future of The City

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4titi

REPORT TO ECONOMIC, ENVIRONMENT &

THE ROLE OF PHILIPPI HORTICULTURAL AREA IN SECURING THE

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

This report is for decision by:

Not delegated: for decision by Council

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

Not delegated: for decision by Council:

protecting and enhancing the identified PHA as highly productive

the preparation of a PHA "resource management plan", covering aspects

These potential urban infill sites include the following:

Also included are the following potential urban intensification areas:

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

Die beskerming en bevordering van die gerdentifiseerde PTG as hoogs

Die opstel van 'n PTG-'hulpbronbestuursplan', wat onder andere aspekte

Die potensiele stedelike grondopvulterreine sluit die volgende in:

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

Die stadsoomlyn soos

Dit is egter onderhewig daaraan dat die stadsoomlyn in die omgewing

Azigunyaziswanga: Isiggibo seseBhunga:

kolondolozo nOkusetyenziswa kwemithombo yezimbiwa engeyona

kukhuselwe kwaye kuqiniswe i-PHA echongiweyo njengommandla

ukulingiswa. kwe-PHA "isicwangciso solawulo Iwemithombo", esithi

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

sinyanzelise yonke imigaqo engocwangciso nemithetho kamasipala

kunikezelwe ngomhlaba ekungokunje osele uchongiwe (kwisiCwangciso

Ezi ziza zamabala edolophu zilindelekileyo, ziquka:

I-Pelican Park (ngahandle kweehektare ezili-1BO esele

Umqukumbelo wonxweme lase-Strandfontein

Kwakhona kuqukwe Ie mimandla ilandelayo:

Umhlatyana' we-Weltevreden Road

Ummandla ongeMimandla yase-Schaapkraal

Ummandla womzi-mveliso wase-Lansdowne

komda ongomqukumbelo wedolophu njengoko kubonakaliswe kwisakheko

nangona kunjalo, oku kuxhomekeke ekubeni umda womqukumbelo

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

8.2.1. Economic Role: Agriculture

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

The PHA: a resource under threat - implications and risks associated

8.3.1. Pressures on the resource

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

Usually results in farming activity on land being

Petty crime (food or

An enormous threat requiring constant

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

Opportunity cost: The broader urban development scenario for the

Suitability of the land for affordable housing: Considerations

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

Potential service implications of urban development: If major

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

Alternative land for affordable housing close to the PHA

Most of these areas are government-owned as opposed to all land

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

The Directorate EESP will do all in its power to prioritize, support

Policy response, past and present

8.5.1. Historic policy approach to the PHA

In 1968 an area inclusive of today's Philippi Horticultural Area (PHA),

Under continued urbanization pressure, a new Guide Plan was

Subsequent city-wide planning, including primarily the Metropolitan

This metropolitan level significance has been supplemented over the

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

Reaffirmation of the resource value (food security, agri-jobs and

Some rationalization of the boundaries of the PHA.

I environmental imJW.cations: ___J.._._.:..- ... .J