Critical analysis of sustainable community planning 
and development principles as applied within the 
Tlokwe Municipality 
 
 
 
BB VAN SCHALKWYK 
20665350 
 
 
 
Dissertation submitted in fulfilment of the requirements for the degree               
M.Art et Scien at the Potchefstroom campus of the North-West University 
 
 
 
 
 
 
Supervisor:   Prof CB Schoeman 
 
November 2012 
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ABSTRACT 
 
Critical analysis of sustainable community planning and development principles as 
applied within the Tlokwe Municipality 
 
Due to the current high levels of urbanisation and the lingering effects of Apartheid, South 
African municipalities have experienced difficulties in planning for sustainability and more 
specifically sustainable community development.  Sustainable community development is 
needed in order to achieve more integrated and sustainable towns and cities with an 
improved urban environment and a higher quality of life.  Due to this sustainable community 
development is of particular relevance to South Africa.  Although policies and legislation 
exist at international, national and local level, there is a lack of suitable planning instruments 
to guide sustainable community development.   
 
Tlokwe Local Municipality is researched as study area to test and develop planning 
instruments for sustainable community development.  An assessment matrix of sustainability 
indicators is linked to Multi-criteria analysis (MCA) and applied to identify the themes and 
sub-themes applicable to sustainability in which intervention is required to improve the 
sustainability rating of the municipality.  A Goal Assessment Matrix (GAM) approach is used 
to score and prioritise municipal projects, plans and strategies according to sustainable 
community development fundamentals.  The top scoring projects are indicative of the 
achievement of sustainable community development goals and objectives.  The result of the 
sustainability assessment is that the Tlokwe Local Municipality is considered to be relatively 
sustainable, performing overall better than the three spheres of government against which it 
was measured.  Subsequent to the GAM assessment a lack of alignment between the 
sectoral plans was identified as well as the duplication of projects.  The projects, plans and 
strategies of the municipality are found to not have been formulated with sustainable 
community development framework as a guiding goal. 
 
It is recommended that municipalities use the assessment matrix methods to determine its 
level of sustainability when developing respective sectoral plans (SDFs, ITPs, EMFs and 
IDPs).  Areas in which there is a lack of sustainability are highlighted and can consequently 
be addressed through intervention strategies.  Prioritising municipal projects, plans and 
strategies through the use of GAM identifies crucial projects that need special attention to 
ensure their successful implementation as this will largely aid sustainable community 
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development.  Both the assessment matrix method and the GAM approach are valuable 
planning instruments with which to achieve sustainable community development.   
 
KEYWORDS: 
Sustainability, Sustainable development, Sustainable community development, Multi-criteria 
analysis, Goal achievement matrix.   
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OPSOMMING 
 
Kritiese analise van volhoubare gemeenskapsbeplanning and –ontwikkelings 
beginsels soos toegepas binne die Tlokwe Munisipaliteit. 
 
Weens die huidige hoë vlakke van verstedeliking en die oorblywende effekte van Apartheid 
ondervind Suid-Afrikaanse munisipaliteite dit moeilik om te beplan vir volhoubaarheid en 
volhoubare gemeenskapsontwikkeling.  Volhoubare gemeenskapsontwikkeling is van uiterse 
belang ten einde meer geintegreerde en volhoubare dorpe en stede met „n beter stedelike 
omgewing en hoër kwaliteit van lewe te verseker.  Volhoubare gemeenskapsontwikkeling is 
daarom van spesifieke belang vir Suid-Afrika.  Al bestaan daar beleide en wetgewing op 
internasionale-, nasionale- en plaaslike vlak, is daar „n tekort aan toepaslike 
beplanningsinstrumente om volhoubare gemeenskapsontwikkeling te rig.   
 
Tlokwe plaaslike munisipaliteit is gebruik as studie-area om beplanningsinstrumente vir 
volhoubare gemeenskapsontwikkeling te toets en te ontwikkel.  „n Asseseringsmatriks van 
volhoubaarheidsindikatore is met multi-kriteria analises gekoppel.  Dit word gebruik om die 
temas en sub-temas van volhoubaarheid te identifiseer waarin intervensie nodig is om die 
munisipaliteit se volhoubaarheidsvlak te verbeter.  „n Doelwit bereikings matriks benadering 
is gebruik om die munisipaliteit se projekte, planne en strategieë te beoordeel en te 
prioritiseer volgens volhoubare gemeenskapsontwikkelings prinsiepe.  Die projekte met die 
hoogste puntetoekenning word gesien as noodsaaklik vir die bereiking van volhoubare 
gemeenskapsontwikkeling.  Die resultaat van die volhoubaarheidsassesering is dat die 
Tlokwe plaaslike munisipaliteit gesien kan word as redelik volhoubaar aangesien dit beter 
gevaar het as die drie sfere van die regering waarteen dit gemeet is.  Na die toepassing van 
die doelwit bereikings matriks is „n tekort aan oriëntasie tussen die sektorale planne so wel 
as „n duplisering van projekte geïdentifiseer.  Daar is bevind dat die projekte, planne en 
strategieë van die munisipaliteit sonder „n volhoubare gemeenskapsontwikkelingsraamwerk 
as „n leidende maatstaf opgestel is.   
 
Daar word aanbeveel dat munisipaliteite die asseseringsmatriks metode vir die bepaling van 
volhoubaarheid gebruik wanneer hulle hul sektorale planne opstel.  Areas waarin daar „n 
tekort aan volhoubaarheid is word uitgewys en kan gevolglik deur ingrypende strategieë 
aangespreek word.  Die prioritisering van munisipale projekte, planne en strategieë deur die 
gebruik van die doelwit bereikings matriks identifiseer kritieke projekte waaraan spesiale 
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aandag gegee moet word om hul suksesvolle implementering te verseker.  Dit sal grootliks 
bydra tot die realisering van volhoubare gemeenskapsontwikkeling.  Beide die asseserings 
matriks metode en die doelwit bereikingsmatriks is waardevolle beplanningsinstrumente 
waarmee volhoubare gemeenskapsontwikkeling behaal kan word.   
 
SLEUTELWOORDE: 
Volhoubaarheid, Volhoubareontwikkeling, Volhoubare gemeenskapsontwikkeling, Multi-
kriteria analise, Doelwit bereikingsmatriks 
 
 
  
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ACKNOWLEDGEMENTS 
 
It is my name that appears on the front of this dissertation, but behind every chapter has 
been a group of people who?ve contributed unstintingly of their time and talents, support and 
friendship.  Each of these people have, in one way or another, enriched this dissertation, and 
enriched my life. 
I am deeply indebted towards my supervisor, Prof. Calie Schoeman, who provided 
encouragement, insight, guidance, support and challenges throughout the years.  Anybody 
that knows his opinions will immediately recognize his influence on my writings. Years of 
study under him could not be anything else than fruitful.  
I am immensely grateful to all my friends and especially my family who encouraged and 
supported me during my studies and provided me with enthusiasm when it was most 
needed.  To my nearest and dearest I say heartfelt thanks. 
A special thank you to Sakkie and Anna who volunteered their time and knowledge to act as 
guides in Primosa, Mohadin and Ikageng, without which I would quite literally be lost.  Your 
warm hospitality still leaves me with a fond smile.  Ke a leboga.  
A special note of gratitude to Me. Erica Roodt of the Ferdinand Postma Library, North-West 
University, who gave me answers when I couldn?t find them anywhere.  
Sincerest love and thanks to “The Meesters Musketeers”, Karin, Leatitia and Louis, for all the 
frantic midnights you worked beside me; the pep talks when I needed it most and your ability 
to comprehend the fact that a dissertation has a life of its own.  We did it, guys! 
To Roland Szafraniec, thank you for never losing your patience or your humor; and for never 
losing track of me! 
Last but not least I would like to thank my Lord and Saviour for keeping true to His promise: 
The will of God never leads you where the grace of God can?t keep you.   
 
  
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TABLE OF CONTENT 
 
ABSTRACT i 
OPSOMMING iii 
ACKNOWLEDGEMENTS v 
TABLE OF CONTENT vi 
LIST OF FIGURES xii 
LIST OF IMAGES xiv 
LIST OF MAPS xiv 
LIST OF TABLES xv 
LIST OF ABBREVIATIONS xvii 
Chapter 1: Introduction 1 
1.1 Literature overview and background to the study 1 
1.2 Problem statement and motivation 3 
1.3 Research objectives 4 
1.4 Delineation of the study area 5 
1.5 Research hypothesis 7 
1.6 Methodology and research structure 7 
1.6.1 Literature analysis 7 
1.6.2 Empirical research 7 
1.6.3 Structure of research concept 8 
Chapter 2: A background on sustainability and sustainable development 11 
2.1 The concept and definition of sustainability 11 
2.2 Dimensions of sustainability 13 
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TABLE OF CONTENT (Continued) 
 
2.2.1 Social sustainability 14 
2.2.2 Economic sustainability 15 
2.2.3 Environmental sustainability 17 
2.2.4 Spatial sustainability 17 
2.3 Sustainable development 18 
2.4 Millennium Development Goals and sustainable development 21 
2.4.1 Background on the Millennium Development Goals  21 
2.4.2 The correlation between the Millennium Development Goals  
         and sustainable development. 23 
2.5 Sustainability and sustainable development in South African context 26 
2.5.1 South Africa?s progress towards the Millennium Development Goals  29 
2.6 Conclusion 37 
Chapter 3: Sustainability and spatial planning principles 39 
3.1 The sustainability and integration imperatives 40 
3.2 Integration 40 
3.2.1 Functional integration 41 
3.2.2 Social integration 43 
3.2.3 Economic integration 44 
3.2.4 Spatial Integration 45 
3.3 Sustainability and integration translated into planning principles 46 
3.4 Planning principles of sustainable community planning 48 
3.5 Conclusion  54 
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TABLE OF CONTENT (Continued) 
 
Chapter 4: Strategic spatial planning for sustainability 56 
4.1 Functional elements 56 
4.1.1 Human settlement development 57 
4.1.2 Employment 63 
4.1.3 Services 67 
4.1.4 Transport 72 
4.1.5 Community 75 
4.1.6 Character and Identity 76 
4.2 Planning process for sustainable development. 81 
4.3 Smart Growth for sustainable development 84 
4.4 Conclusion 85 
Chapter 5: Sustainable community development 86 
5.1 Definition of sustainable community development 87 
5.2 Challenges in realizing sustainable community development 89 
 5.2.1 Integration 90 
 5.2.2 Scale 90 
 5.2.3 Governance 91 
 5.2.4 Inclusion of the community 92 
 5.2.5 Western concepts and methodologies of development 92 
5.3 Urban planning structures for sustainable development 93 
5.4 A history of community development in South Africa 95 
5.5 Sustainable community planning in South Africa and the World 96 
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 TABLE OF CONTENT (Continued) 
  
 5.5.1 Canada 98 
 5.5.2 England 101 
 5.5.3 Nelson Mandela Bay – South Africa 107 
 5.5.4 Specific case study: Motherwell – Port Elizabeth – South Africa 109 
5.6 Conclusion 112 
Chapter 6: An assessment of sustainable community planning and  
                  development 114 
6.1 National policy guidelines for sustainable community planning and  
      development 115 
 6.1.1 The national Framework for Sustainable Development 115 
6.1.2 A comprehensive plan for the development of integrated and       
         sustainable human settlements 118 
 6.1.3 The National Development Plan 120 
 6.1.4 The Upgrading of Informal Settlements Programme 122 
  6.1.4.1 The National Upgrading Support Programme 123 
6.1.5 Other policies and legislation for sustainable community planning  
         and development 123 
6.2 Sustainability indicators 123 
6.3 Multi-criteria analysis application 127 
6.4 The Goal Achievement Matrix approach 129 
6.5 An assessment matrix of sustainability indicators to assess the sustainability  
      of community development projects and planning 130 
 6.5.1 Methodology of indicator selection 130 
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 TABLE OF CONTENT (Continued) 
 
 6.5.2 Assessment matrix compilation 133 
 6.5.3 Empirical application to case study 138 
6.6 Applying Multi-criteria analysis as an evaluation tool 140 
6.7 Applying the Goal Achievement Matrix as an evaluation tool 141 
6.8 Conclusion 143 
Chapter 7: Application of the principles of sustainability within the Tlokwe  
Local Municipality  145 
7.1 Background on the Tlokwe Local Municipality 145 
7.2 Local and provincial policy guidelines for sustainable development within the  
      Tlokwe Local Municipality 150 
 7.2.1 North West Land Use Management Bill  150 
 7.2.2 Provincial Growth and Development Strategy 151 
 7.2.3 Integrated Development Plan 152 
 7.2.4 Spatial Development Framework 154 
  7.2.4.1 Provincial Spatial Development Framework 154 
  7.2.4.2 Local Spatial Development Framework 158 
7.3 Applying the sustainability assessment matrix to the Tlokwe Local Municipality 161 
7.4 Interpretation of the results from the assessment matrix 164 
 7.4.1 Tlokwe Local Municipality measured against the national sphere  
                     of government 164 
7.4.2 Tlokwe Local Municipality measured against the provincial sphere of      
         government 166 
  
  
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TABLE OF CONTENT (Continued) 
 
 7.4.3 Tlokwe Local Municipality measured against the district sphere of  
                     government 167 
 7.4.4 Conclusion 168 
7.5 Prioritising project for sustainable community development for the Tlokwe  
      Local Municipality 170 
7.6 Conclusion 184 
Chapter 8: Conclusions  187 
8.1 Sustainability on the African continent 188 
8.2 The Integrated Development Plan as an instrument of sustainable development  
      and sustainable community development 188 
8.3 Data limitations  189 
8.4 Prioritizing projects and strategies 189 
8.5 No perfect strategy for sustainability 190 
8.6 Research hypothesis 190 
Chapter 9: Planning recommendations 191 
9.1 Achieving sustainability on the African continent 191 
9.2 Adjusting the decision making framework 191 
9.3 Overcoming data limitations 192 
9.4 Prioritizing projects and strategies for sustainable community development 192 
9.5 Best practice guidelines for sustainable community development 193 
ANNEXURE 194 
LIST OF REFERENCES 218 
 
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LIST OF FIGURES 
 
Figure 1.1: A concept map of Chapter 1 1 
Figure 1.2:  Structure of the research document 9 
Figure 2.1: A concept map of Chapter 2 11 
Figure 2.2: The aspects of sustainability 12 
Figure 2.3: Dimensions of sustainability 14 
Figure 2.4: Dimensions of social sustainability 15 
Figure 2.5: Three pillars of sustainable development 16 
Figure 2.6: The Millennium Development Goals and Targets 22 
Figure 2.7: The Correlation between the Millennium Development Goals and  
                   sustainable development 23 
Figure 2.8: Progress made toward eradicating extreme poverty and hunger 30 
Figure 2.9: Progress made toward achieving universal primary education 31 
Figure 2.10: Progress made toward promoting gender equality and empowerment  
                    of women  32 
Figure 2.11: Progress made toward reducing child mortality 33 
Figure 2.12: Progress made toward maternal health  34 
Figure 2.13: Progress made toward combating HIV/Aids, Malaria and other diseases 35 
Figure 2.14: Progress made toward ensuring environmental sustainability 36 
Figure 2.15: Progress made toward a global partnership for development 37 
Figure 3.1: A concept map of Chapter 3 39 
Figure 3.2: The components of integration 40 
Figure 3.3: Functional integration 42 
Figure 3.4: Planning principles of integration and sustainability and the  
                   implementation thereof 47 
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Figure 3.5: Simplification of application instruments relating to planning principles 54 
Figure 4.1: A concept map of Chapter 4 56 
Figure 4.2: Manifesting integration in human settlement development 57 
Figure 4.3: A small housing cluster 59 
Figure 4.4: Economic activities that make up work opportunities  64 
Figure 4.5: Essential services  67 
Figure 4.6: Service distances from home 72 
Figure 4.7: Phases of an IDP  82 
Figure 4.8: Application of the planning framework for sustainability  83 
Figure 4.9: Phases of the planning and implementation process  84 
Figure 5.1: A concept map of Chapter 5  87 
Figure 5.2: The seven key areas of sustainable cities  89 
Figure 5.3: Human settlement levels  91 
Figure 5.4: Stakeholders in community development in South Africa through its  
                   History  95 
Figure 5.5: Spheres of a sustainable community  97 
Figure 5.6: Integrated Community Sustainability Plan process outline 99 
Figure 5.7: Levels of decision making and participation within the Motherwell  
                   Pilot Project  110 
Figure 6.1: A concept map of Chapter 6  114 
Figure 6.2: Five strategic focus areas for sustainable development  116 
Figure 6.3: Challenges to achieve development in South Africa  121 
Figure 6.4: Sections of the National Development Plan that directly and indirectly  
                   effect sustainable community development  122 
Figure 6.5: Steps for implementing multi-criteria analysis  141 
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Figure 6.6: Assessment matrix compilation process  143 
Figure 7.1: A concept map of Chapter 7  145 
Figure 7.2: Abbreviated history of Potchefstroom  146 
Figure 7.3: Population pyramid for Tlokwe Local Municipality   147 
Figure 7.4: Potchefstroom?s profile   148 
Figure 7.5: Pillars of the Provincial Growth and Development Strategy 151 
Figure 7.6: Tlokwe Local Municipality?s sustainability performance when measured  
                   against the three spheres of government within which it falls 164 
Figure 7.7: Sustainability performance profile for the Tlokwe Local Municipality 185 
Figure 8.1: A concept map of the research document   187 
Figure 9.1: Decision making frameworks   191 
 
LIST OF IMAGES 
 
Image 1: Row housing in Johannesburg, South Africa 61 
Image 2: Urban agriculture in Cape Town 66 
Image 3: Urban agriculture in Cape Town 66 
Image 4: Solar geyser in Ikageng, Potchefstroom  69 
 
LIST OF MAPS 
 
Map 1.1: Location of the Tlokwe Local Municipality within the bigger scope  
of the North West Province 5 
Map 1.2: The demarcation of the Tlokwe Local Municipality and the delamination 
 of the Wards therein. 6 
Map 5.1: Ward demarcation of the Nelson Mandela Bay Municipality 107 
Map 5.2: Position of Motherwell within the Nelson Mandela Bay Municipality 109 
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Map 7.1: Main municipal land uses within the Tlokwe Local Municipality 149 
Map 7.2: Main urban land use within the Tlokwe Local Municipality 150 
Map 7.3: North West Provincial Spatial Development Framework  156 
Map 7.4: Spatial Development Framework for Dr Kennith Kuanda District Municipality 157 
Map 7.5: Proposed spatial framework for Tlokwe 159 
Map 7.6: Spatial Development Framework of Tlokwe Local Municipality 160 
 
LIST OF TABLES 
 
Table 2.1: International, national and local perspectives on sustainable  
Development 20 
Table 2.2: Correlation between cities and the achievement of the Millennium  
Development Goals  24 
Table 2.3: A summary of the problems influencing the application of sustainable 
development in South Africa 27 
Table 2.4: Alignment of strategic priorities of the MTSF and the MDGs 29 
Table 3.1: Planning principles of sustainable communities 49 
Table 4.1: Quantitative guidelines for public service facilities 71 
Table 4.2: Requirements for recreational and sport facilities 73 
Table 4.3: Sustainability considerations in transport planning for communities 74 
Table 4.4: Correlation between the planning principles and functional elements  
                 of sustainable communities 78 
Table 5.1: Five dimensions of sustainable community development 88 
Table 5.2: Structural elements of sustainable community 93 
Table 5.3: Steps for guiding the development of an ICSP 100 
Table 5.4: Focus components of sustainable communities according to the  
                 Communities Plan 102 
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Table 5.5: Summary of the 2003 Communities Plan 104 
Table 5.6: Projects and project cost within the Motherwell Case study 111 
Table 5.7: Obstacles, solutions and lessons learnt for each case study 113 
Table 6.1: Proposed interventions and actions for creating sustainable human  
                 Settlements 117 
Table 6.2: Plans to aid housing delivery 119 
Table 6.3: Advised action to the challenges faced in development by South Africa 121 
Table 6.4: CSD?s sustainable indicators framework 125 
Table 6.5: Multi-criteria analysis evaluation matrix 128 
Table 6.6: Indicator selection matrix 132 
Table 6.7: Indicators and inter-thematic linkages 134 
Table 6.8: Methodology and application sheet  137 
Table 6.9: Ideal assessment matrix  139 
Table 6.10: Goal Achievement Matrix for IDP and sectoral plan evaluation 142 
Table 7.1: Refined assessment matrix  162 
Table 7.2: Performance matrix of the refined assessment matrix 163 
Table 7.3: Spatial Development Framework projects  172 
Table 7.4: Environmental Management Framework projects 173 
Table 7.5: Integrated Transport Plan projects  175 
Table 7.6: Integrated Development Plan projects  177 
Table 7.7: Integrated priority project list for the promotion of sustainable community 
development  182 
Table 7.8: Intervention areas within the Tlokwe Local Municipality and the  
                 corresponding sectoral plans? projects  186 
 
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LIST OF ABBREVIATIONS 
 
AIDS – Acquired immune deficiency syndrome 
BEE – Black economic empowerment 
BNG – Breaking New Ground 
CBO – Community Based Organisations 
CSD – Commission of Sustainable Development 
CSIR – Council of Scientific and Industrial Research 
DBSA – Development Bank of South Africa  
DKKDM – Dr Kennith Kuanda District Municipality 
EIA – Environmental Impact Assessment 
EMF – Environmental Management Framework 
EPWP – Extended Public Works Programme 
FCM – Federation of Canadian Municipalities 
GAM – Goal Achievement Matrix 
GDP – Gross Domestic Product 
GNP – Gross National Product 
HIV – Human immunodeficiency virus 
ICSP – Integrated Community Sustainability Plan 
IDC – Industrial Development Corporation 
IDP – Integrated Development Plan  
ISC – Institute for Sustainable Communities 
ITP – Integrated Transport Planning 
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LED – Local Economic Development  
LUMB – Land Use Management Bill 
MCA – Multi-criteria analysis 
MDG – Millennium Development Goals 
MIG – Municipal Infrastructure Grant 
MOSS – Municipal Open Space System  
MSA – Municipal Systems Act 
MTSF – Medium term Strategic Framework 
NATMAP – National Transport Master Plan 
NDH – National Department of Housing 
NDOT – National Department of Transport 
NEMA – National Environmental Management Act 
NFSD – National Framework for Sustainable Development  
NGO – Non government organisation 
NMBM – Nelson Mandela Bay Municipality  
NUSP – National Upgrading Support Programme 
NWDARD – North West Department of Agriculture and Rural Development 
NWDEDT – North West Department of Economic Development and Tourism 
NWDHS – North West Department of Human Settlements 
NWDL – North West Department of Labour 
NWDPW – North West Department of Public Works 
NWP – North West Province 
NWU – North West University 
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ODA – Official development assistance 
PGDS – Provincial Growth and Development Strategy 
PPP – Public Private Partnerships 
PSDF – Provincial Spatial Development Framework 
PTIF – Public Treasurers Investment Fund 
RSA – Republic of South Africa 
SANRAL – South African  National Roads Agency 
SCDF – Sustainable Community Development Fundamental 
SCU – Sustainable Community Unit 
SDF – Spatial Development Framework 
SEA – Social Economic Analysis 
SIDA – Swedish government grant agency  
SMME – Small medium and micro enterprises 
SSETA – Services Sector Education and Training Authority 
TB – Tuberculosis   
TLM – Tlokwe Local Municipality 
UISP – Upgrading of Informal Settlements Programme 
UN – United Nations 
UNECE – United Nations Economic Commission for Eurpoe 
UN-HABITAT – United Nations Human Settlement Programme