VOLUME 1 HUMAN SETTLEMENT PLANNING AND ... - CSIR

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GUIDELINES FOR HUMAN SETTLEMENT PLANNING AND DESIGNA “living document”: the Red BookworkshopsIn terms of its mandate, the Division of Building andConstruction Technology has undertaken to maintainthe Red Book as a continually updated “livingdocument” (Schlotfeldt 1995a). Standards should beseen as a reflection of society’s values at any giventime; moreover, values and priorities are not inflexiblebut rather in a constant state of change. Technologyalso develops and changes and the Red Book shouldreflect this evolution. A series of five workshops wereheld in February and March 1995 in Bloemfontein,Cape Town, Pretoria, Durban and Port Elizabeth,where users and other interested parties wereafforded the opportunity to discuss the applicability ofthe guidelines and provide constructive criticism with aview to the document’s improvement and furtherdevelopment. Other forums, such as conferences andmeetings of a number of professional societies, werealso used as platforms for discussion and informationconcerning the book.The workshops were attended by nearly 700 delegatesrepresenting a wide range of interests (e.g. consultingengineers, urban planners, local and regionalauthorities, provincial and central governmentdepartments, universities, technikons, developers,manufacturers, financiers and NGOs). The result of thedeliberations was a great number of valuablerecommendations and suggestions for improving theguidelines, as well as many requests for additionalguidelines on various subjects. All therecommendations received serious consideration andthe vast majority have been taken up in this reviseddocument. There was consensus amongst all partiespresent at the workshops that, in any development, aholistic, integrated planning process is an essentialrequirement and that planners, engineers and otherprofessionals need to work together right from theconceptual stage of a project to achieve this. It islargely as a result of the input from the planningprofession during these and later deliberations thatnot only was a framework for the redevelopment ofthe urban planning guidelines produced, but also theguiding philosophy for the entire document.Investment in infrastructure is crucial to the efficiencyand habitability of our urban areas. World Bankresearch (South Africa 1995) indicates that investmentin infrastructure stock has a significant impact on GDPgrowth, as infrastructure raises general levels ofwelfare and health. It is also realised, however, thateliminating - or even just reducing - the housingbacklog will simply be beyond reach if the highestlevel of infrastructure (i.e. fully reticulated water andelectricity supply, full waterborne sanitation, etc) isregarded as the norm. There needs to be space forincremental approaches to provide sustainable andaffordable levels of service while ensuring acceptableand adequate functionality. Creative and variedsolutions are thus required, and it is not necessary toconfine housing strategies to conventional methodsand technologies. A balance between establishedpractices and new ideas and developments is thusrequired.PURPOSE AND LEGAL STATUS OFTHIS DOCUMENTUrban planners and engineers are continuallyconfronted with the dichotomy of the needs oraspirations of communities versus their ability to payfor housing and services (Austin 1996). The centralgovernment has set limits on its ability to providegrants and subsidies for services. Local governmentswill therefore be largely responsible for makingprovision for access to most of the engineering servicesand amenities by persons residing within their area ofjurisdiction. Furthermore, these services and amenitiesmust be rendered in an environmentally sustainablemanner and must also be financially and physicallypracticable. Information is thus required on allavailable service technologies and complementaryspatial settlement planning, so that informed decisionsmay be made on what is most suited to a particularcommunity and what is sustainable.The need for this information is not confined totechnical professionals only. All those who arerequired to take decisions on policy at the variouslevels of government or within non-governmentalorganisations can benefit substantially by havinggreater insight into the possibilities and limitations ofvarious available options. Such insights will enablethem to interact more effectively with consultants andcommunity structures, and the Red Book is also aimedat providing these insights in a manner that is bothunderstandable and useful to non-technical persons.For sustainable progress, as well as for the generalhealth and well-being of the population, settlementsshould be coherently planned; there shouldfurthermore be a choice between a range ofaffordable technologies, particularly in the watersupplyand sanitation fields. Service levels should beappropriate, as a high level of service which fails (forwhatever reason) may well pose a greater threat topublic health and the environment than aninadequate lower level of service. Various factors, forexample high population densities or adversegeotechnical conditions, may also dictate thatconsideration be given to alternative types of servicetechnology. However, only proven designs should beused and, ideally, communities should be able toexercise choice within a range of approved designs. Inthis context, appropriate technology may be definedas “meeting the needs of a particular community at aparticular time”.2Chapter 1Introduction
GUIDELINES FOR HUMAN SETTLEMENT PLANNING AND DESIGNIn order to achieve the above objectives, engineersand urban planners need to be provided withguidelines, as opposed to standards. Guidelines areintended to assist decision-making, whereas standardsare enforceable absolute limits (Schlotfeldt 1995a). It isrecognised that both the rigid application ofguidelines as well as the setting of inappropriatestandards can have the opposite effect to thatintended. The inter-departmental coordinatingcommittee tasked with overall direction of the revisionof the Red Book, as well as the steering committeesinvolved, were of the opinion that the concept of“guidelines” should continue to prevail, and that theprovisions of this document could thus not be legallyenforceable. The use of these guidelines by the variousdisciplines involved in the design, supply andmanagement of serviced land for residentialdevelopment would be strongly encouraged, however.It should be noted that only “local” services andplanning issues are considered. Bulk services andamenities - for example main water supply pipelines,outfall sewers, treatment works, landfills, freewaysand so forth - are considered beyond the scope of thisdocument.The intention of the new Red Book is to provideperformance-based guidelines for informed decisionmaking.The purpose is essentially to indicate thequalities that should be sought in South Africansettlements, and to provide practical guidance onhow these qualities can be achieved. The document istherefore intended to be educative, providing ideasand useful information, and not as a substitute forinnovative planning and engineering practice(Behrens 1997).ROLES AND INTERACTION OFPROFESSIONALS INVOLVED IN THEBUILT ENVIRONMENTThe primary readers of this book will be the range ofprofessional and other persons that contribute to theplanning and design of human settlements (i.e.architects, urban designers, town and regionalplanners, civil, transportation and electrical engineers,energy practitioners, etc) from both the private andpublic sectors. The document attempts to integrateinformation that is relevant across different disciplinesand, unlike its predecessor, moves away from havingseparate and exclusive sections on “engineering” and“planning”.The fullest cooperation between the variousprofessionals engaged in human-settlement planningis crucial to achieving sustainability, and thus alsoreplicability (Austin and Biermann 1998). A commonstrategy is required in order for the developmentprocess to be geared towards meeting the particularneeds of communities in a manner which is acceptableto them, and not merely acceptable to the planner,designer, financier or local authority. The guidelinesrepresent a balanced and integrated approach tosettlement planning and, although unlikely to satisfyeverybody, represent the culmination of four years ofintensive planning, research, writing, debate,questioning, criticism and rewriting. Engineers,architects, urban planners and academics haveworked together and achieved basic agreement onthe requirements for housing the nation in asustainable manner.This document is the result of input from a wide rangeof participants. Relevant national and provincialgovernment departments were involved throughrepresentation on the coordinating committee. Localgovernment, the private sector, academics andorganised professional bodies participated throughthe various steering committees. Academic andpractising experts contributed by authoring sections ofthe book. Specialist workshops, involving a broaderspectrum of expertise, were held at key stages duringthe process to debate concepts and drafts. Universities,professional engineering and planning bodies,relevant national, provincial and local governmentdepartments and bodies, as well as selected practisingconsultants, all formed part of a beta-testingprogramme, where the final draft was distributed to asample of potential users of the book for comment.HOW TO USE THE DOCUMENTThis document is explicitly not intended to be anadministrative “check list” for local authority officials(Behrens 1997). It will instead provide guidance onappropriate practices and technologies. Emphasis isplaced on assessing “performance” (in relation toissues like health, safety, recreation, education andtrade) as opposed to simply assessing the quantitativedimensions of the plan to ensure some form ofcompliance with stated norms. Once again it isemphasised that these are guidelines, notspecifications. The document therefore does notremove professional responsibility from practitioners,and certainly does not replace the need forprofessional experience and judgement. The contentsshould therefore not be rigidly applied, but ratherperceived as an aid to preparing one’s own projectplans and specifications.Various national and provincial governmentdepartments, statutory bodies and local authoritiesmay also have their own sets of guidelines for use byplanners and engineers. It is not the intention of thisdocument to take the place of these other guidelines.Rather, the Red Book should be considered as beingsupplementary to them, because local conditions andexperiences can often dictate what procedure shouldbe followed in specific cases.Introduction Chapter 13
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