Académique Documents
Professionnel Documents
Culture Documents
N SERIES
||
A Kruger
N5
Municipal Administration
Telephone: 086 12 DALRO (from within South Africa); +27 (0)11 712-8000
Telefax: +27 (0)11 403-9094
Postal Address: P O Box 31627, Braamfontein, 2017, South Africa
www.dalro.co.za
ISBN 978-1-77581-042-1
This book was compiled for students studying towards the National Certificate in Public Management N5
at FET colleges. The book was compiled using the syllabus for Municipal Administration N5.
First published 2013
FutureManagers
Published by
Future Managers (Pty) Ltd
PO Box 13194, Mowbray, 7705
Tel (021) 462 3572
Fax (021) 462 3681
E-mail: info@futuremanagers.net
Website: www.futuremanagers.net
Contents
Module 1 The origin of municipal authorities
1. Origin of municipal authorities............................................................................................................................. 2
1.1 Introduction................................................................................................................................................... 2
1.2 Development of urban areas........................................................................................................................ 2
1.2.1 Up to the end of the 18th century.................................................................................................. 2
1.2.2 The 19th century............................................................................................................................... 2
1.3 The stages of development of urban areas.................................................................................................. 3
1.3.1 Division of urban areas into sections or parts ........................................................................... 4
1.3.2 Squatter camps.................................................................................................................................. 4
1.3.3 Slums.................................................................................................................................................. 5
1.3.4 Tribal villages.................................................................................................................................... 5
1.4 Origin of towns and cities............................................................................................................................ 6
1.4.1 Characteristics of the development of towns and cities.............................................................. 6
1.5 Procedures and conditions for development in a town/city.................................................................... 8
1.5.1 The procedure for the establishment/development of a town or city ....................................... 9
1.5.2 Conditions imposed on applications for new development....................................................... 9
1.5.3 Control over buildings and requirements for buildings.............................................................. 9
1.6 The emergence of local authorities............................................................................................................ 10
1.6.1 Local authorities during the transfer of authority from the Dutch to the British ................ 11
1.7 Regional services councils.......................................................................................................................... 11
1.7.1 Financing of regional service councils......................................................................................... 11
1.8 Conclusion.................................................................................................................................................... 11
Review questions ......................................................................................................................................................... 12
Module 2 Reason for existence of municipal authorities
1. The reason for existence of local government................................................................................................... 14
1.2. Reasons for existence of municipalities.................................................................................................... 14
1.3. Summary....................................................................................................................................................... 15
Review question ........................................................................................................................................................... 15
Module 3 Environment in which municipal authorities function
1. Environment in which municipal authorities function................................................................................... 18
1.1 Introduction................................................................................................................................................. 18
1.2 Environmental factors................................................................................................................................. 18
1.2.1 Physical factor................................................................................................................................. 18
1.2.2 Social factor..................................................................................................................................... 20
1.2.3 Economic factor.............................................................................................................................. 21
1.2.4 Judicial factor ................................................................................................................................. 22
1.2.5 Political factor................................................................................................................................. 22
1.3 Conclusion.................................................................................................................................................... 23
Review questions ......................................................................................................................................................... 23
Module 4 The structure of a local authority
1. Services rendered by and powers of, municipal authorities............................................................................ 26
1.1 Introduction................................................................................................................................................. 26
1.2 Structure of a local authority...................................................................................................................... 26
1.3 Characteristics of services.......................................................................................................................... 27
1.4 Classification of services............................................................................................................................. 27
1.4.1 Ambulance services........................................................................................................................ 28
1.4.2 Cemeteries and crematoria........................................................................................................... 28
iii
1.4.3 Electricity......................................................................................................................................... 29
1.4.4 Environmental pollution............................................................................................................... 29
1.4.5 Health services................................................................................................................................ 30
1.4.6 Housing............................................................................................................................................ 31
1.4.7 Library services............................................................................................................................... 32
1.4.8 Licences............................................................................................................................................ 32
1.4.9 Parks and sports grounds.............................................................................................................. 33
1.4.10 Rubbish and night-soil removal................................................................................................... 33
1.4.11 Town and city planning ................................................................................................................ 34
1.4.12 Water provision.............................................................................................................................. 34
1.5 Powers of municipal authorities................................................................................................................ 35
1.6 Conclusion.................................................................................................................................................... 35
Module 5 Levels of government
1. Relations between municipal authorities and between municipalities and other
levels of the hierarchy........................................................................................................................................... 38
1.1 Introduction................................................................................................................................................. 38
1.2 Levels of government.................................................................................................................................. 38
1.3 Relations between local authorities and central government institutions........................................... 39
1.3.1 The role of Parliament ................................................................................................................... 40
1.3.2 Role of the State President............................................................................................................. 40
1.3.3 Role of Cabinet............................................................................................................................... 40
1.4 The relationship between local authorities and provincial government institutions......................... 41
1.5. Relations and co-operation with other local authorities........................................................................ 41
1.6 Conclusion.................................................................................................................................................... 42
Review questions.......................................................................................................................................................... 42
Module 6 Who has the right to vote or qualifies as a voter
1. Municipal elections............................................................................................................................................... 44
1.1 Introduction................................................................................................................................................. 44
1.2 Right to vote (voter qualifications)............................................................................................................ 44
1.2.1 Reasons for disqualification of voter............................................................................................ 44
1.3 Voters roll..................................................................................................................................................... 45
1.3.1. Procedure for preparing a voters roll.......................................................................................... 45
1.4 Electoral wards............................................................................................................................................. 45
1.5 Elections........................................................................................................................................................ 46
1.5.1 Activities prior to election day...................................................................................................... 46
1.5.2 Election day..................................................................................................................................... 48
1.6 Party politics................................................................................................................................................. 51
1.6.1 Advantages of political party involvement in municipal elections.......................................... 51
1.6.2 Disadvantages of political party involvement in municipal elections..................................... 51
1.7 Conclusion.................................................................................................................................................... 52
Review questions.......................................................................................................................................................... 52
Module 7 Councillors
1. Municipal councillors........................................................................................................................................... 54
1.1 Introduction................................................................................................................................................. 54
1.2 Qualifications needed to be elected as councillor................................................................................... 54
1.3 Reasons for being disqualified from election as a councillor................................................................ 54
1.4 Conditions under which councillors serve / Code of conduct.............................................................. 54
1.4.1 General conduct of councillors.................................................................................................... 55
1.4.2 Attendance at meetings.................................................................................................................. 55
iv
1.4.3 Sanctions for non-attendance of meetings.................................................................................. 55
1.4.4 Withdrawal from meetings........................................................................................................... 55
1.4.5 Vested interest in council contracts............................................................................................. 55
1.4.6 Personal gain................................................................................................................................... 56
1.4.7 Declaration of interest.................................................................................................................... 56
1.4.8 Councillors acting as agents.......................................................................................................... 56
1.4.9 Bribery and corruption.................................................................................................................. 56
1.4.10 Exemption from personal liability............................................................................................... 56
1.4.11 Appointment as an official of a council....................................................................................... 57
1.4.12 Rewards, gifts and favours............................................................................................................. 57
1.4.13 Unauthorised disclosure of information..................................................................................... 57
1.4.14 Intervention in administration..................................................................................................... 57
1.4.15 Council property............................................................................................................................ 57
1.5 Status of councillors.................................................................................................................................... 57
1.6 Functions of councillors............................................................................................................................. 58
1.6.1 Representation................................................................................................................................ 58
1.6.2 Participation in committees.......................................................................................................... 58
1.6.3 Deliberation in council meetings................................................................................................. 58
1.6.4 Public liaison................................................................................................................................... 59
1.7 Conclusion.................................................................................................................................................... 59
Review questions.......................................................................................................................................................... 59
Module 8 Mayors
1. Office-bearers of municipal councils.................................................................................................................. 62
1.1 Introduction................................................................................................................................................. 62
1.2 The mayor..................................................................................................................................................... 62
1.2.1 Election of mayor (executive or non-executive mayor)............................................................ 62
1.2.2 Functions and powers of executive mayors................................................................................ 63
1.3 Deputy mayors............................................................................................................................................. 64
1.4 Chairpersons of committees...................................................................................................................... 64
1.5 Conclusion.................................................................................................................................................... 64
Review questions.......................................................................................................................................................... 65
Module 9 Committee system
1. Committee systems of muncipal councils......................................................................................................... 68
1.1 Introduction................................................................................................................................................. 68
1.2. The executive committee (previously known as the single or management committee).................. 68
1.2.1 Composition of the executive committee................................................................................... 68
1.2.2 Powers and functions of the executive committee..................................................................... 68
1.2.3 Advantages...................................................................................................................................... 69
1.2.4 Disadvantages................................................................................................................................. 69
1.3 Committees to assist executive committees or executive mayors (previously known as
multiple committees).................................................................................................................................. 69
1.3.1 Advantages of the multiple committee system (portfolio committees).................................. 71
1.3.2 Disadvantages of the multiple committee system ..................................................................... 71
1.4 Metropolitan sub-councils ....................................................................................................................... 71
1.4.1 Composition of metropolitan sub-councils................................................................................ 71
1.4.2 Functions and powers of sub-councils........................................................................................ 72
1.5 Ward committees......................................................................................................................................... 73
1.6 Conclusion.................................................................................................................................................... 74
Symbol key
Self-activity
Group activity
Remember/Definition
Did you know?
Note
Discussion Point/
Pause for Thought
Example
Case study
vi
Module 1
Module 1
1.
1.1 Introduction
All of us live in a town, city or urban area. The development of municipal authorities in South
Africa has an interesting history, dating back to 1652.
This is not a history lesson on local government, but we need to have a basic understanding of how
municipal authorities arrived at the state on which they were, by 1993.
1.2
For the first time in South Africa the following concepts were established:
Towns were constituted as legal corporate bodies.
Representatives were elected by voters registered on a voters roll.
The town council decided on local tax (rates) levied on valued properties.
Auditors had to audit transactions of all municipal activities.
The Town Clerk and other senior officials were appointed and not elected at a public meeting.
The committee system of making decisions was introduced.
1.3
Module 1
A town plan is prepared for the area indicating the purpose and use of each piece of land, e.g.
Suburb, business area, etc.
The areas reserved for suburbs must be divided into small stands (plots) which people can buy
to build houses on.
Due to a larger demand for plots, the price will increase.
In any urban area there are certain areas with larger plots for richer people.
Smaller and more affordable plots will also be made available.
With the movement of people from the farms and rural areas to the urban areas, problems are
experienced with sufficient and suitable housing. Normally people will buy a plot and build a house,
or buy or rent a house or flat.
A lot of people do not have the means to buy or build houses and have to find a shelter or place to
stay. Urban areas also do not have enough housing available for the influx of people to these areas.
In South Africa, people have started building shelters on any open piece of land, which usually
belongs to the local authority or a private individual. Any type of material like cardboard, timber,
tins or plastic is used to build shelters. This type of informal erection of dwellings, is called a
squatter camp.
1.3.3 Slums
Slums develop when people neglect their houses or other buildings and allow them to deteriorate
to such an extent that they become dangerous to live in.
Poverty is the main reason for the appearance of slums.
The municipalities should have strict rules and measures in place to prevent people from
endangering other peoples lives by erecting unsafe buildings or neglecting properties.
If municipalities discover a slum, the owner of the property must be ordered to repair, clean or
upgrade the property.
If the owner refuses to carry out such orders, the property must be demolished to ensure the
safety of people.
Module 1
1.4
Physical structure
Physical structures are man-made buildings like churches, trading stores, schools, etc.
These physical structures play an important role in in the economic development of a town or
city.
Some experts say that in South Africa the first buildings in towns were churches.
Then trading stores and businesses developed around the churches.
Most of the towns in South Africa have a church in the middle of the town, for example,
Beaufort West.
Human beings have to exist
People have needs that must be satisfied, and when a lot of people live in the same area, different
needs exist.
To satisfy these needs and maintain order in the community, a type of government had to be
formed.
That was the starting point for local government.
Municipalities were established to maintain order in the community and they even provided
work for inhabitants.
Communication channels
Communication channels are the network that link people, other towns and cities, the station
and harbour.
Roads and streets, telephone and internet cables, electricity cables and pipelines are needed to
connect services and people.
The planning departments of municipalities include communication channels in the plans for
development of the city or town.
Smart buildings
Transportation system
Personal communications
Communication
networks
Healthcare services
Wireless comminication
Smart grid
Process industry
Types of communication channels which must be included in the development plans of cities/towns
Module 1
1.5
Owner obtains
approval, divides land
and sells stands which
are registered with
the Registrar of Deeds
before application
can be made for
development to begin.
Procedure (Ord 85 of 85)
- apply & submit 26 copies
- application considered by
council & Administrator
who can approve or reject
Module 1
Authorities laid down standards for the erection of buildings in urban areas.
- Detailed plans of the building must be submitted to the local authority.
- Local authority will have to approve plans or request amendments.
If plans are approved, the construction of the building can begin, but the local authority has certain
common requirements that must be met.
Common requirements for the construction of buildings
The image and appearance of the suburb should not be affected by
the building.
The rights and interests of neighbours should not be infringed by
the building.
Building should be hygienic and safe.
Building should not create fire or health hazards.
Sufficient ventilation should be allowed for all rooms.
Specifications regarding foundation and height of walls should be
met.
Flow of traffic should not be obstructed.
1.6
1.6.1 Local authorities during the transfer of authority from the Dutch to
the British
From 1785 the municipal affairs of Cape Town were administered by the College van
Commisarisse uit den Raad van Justitia that consisted of three Dutch and three private persons.
The British took over the Cape Colony in 1795 and a Burgersenaat that consisted of six private
persons appointed by the British replaced the College.
In 1802 the Burgersenaat was replaced by the Raad der Gemeente when the Dutch took back the
Cape Colony. This lasted for only three years.
In 1806 it changed back to a Burgersenaat when the British took over again.
The Burgersenaat was abolished on 27 December 1827 as well as the Council of Landrost and
Heemraden in the rural towns.
From 1 January 1828 the Cape Colony had no local authorities.
Local authority matters were handled by the resident magistrates.
Municipal Ordinance 9 of 1836 was approved, which made provision for the election of a small
number of commissioners to serve on the council.
Only persons who paid rates were eligible to be elected as commissioners.
10
Ordinance 9 of 1936 served as basis for legislation for local authorities in Natal (1847), Orange
Free State (1856) and the Transvaal (1883).
1.7
1.8 Conclusion
The development of urban areas and the establishment of local authorities in South Africa started
in 1652. People started moving inland and settled in areas where they could survive. As more
people started living together, more services and order were needed, which resulted in a form of
local government. Local authorities were established through election by the inhabitants in order to
render such services.
As towns grew and cities were established, the development of vacant land had to be administered,
and so procedures and conditions were laid down for developments which needed to be controlled
by the local authority.
Although different types of councils were established after 1652, it is clear that whether it was
a village, town or city, a local government, with an elected council, was needed to manage that
municipality.
11
Module 1
Review questions
1. Give a short explanation of the development of local authorities in South Africa in the 18th
and 19th centuries.
2. Urban areas went through different stages, from a few people living together, to thousands
living in a small area. Name and describe the stages of urban development in South Africa.
3. For many years the urban areas were small villages and most people in South Africa lived
on farms where they had to satisfy their own needs. Name and describe how needs and
services were satisfied before the inception of municipalities.
4. With the influx of people from the rural to the urban areas, problems are experienced in
finding suitable housing. Many settle for squatter camps.
4.1 List SIX characteristics of squatter camps.
4.2 List FOUR possible solutions for squatter camps.
5. Tribal villages can be defined as a settlement in a tribal area under the jurisdiction of tribal
authorities, headed by chiefs. Give TWO advantages and TWO disadvantages of tribal
villages.
6. The origin of towns and cities can be traced back to the development of close communities.
All towns or cities developed for its own reasons but there are four characteristics which
will identify a town or city. Discuss the characteristics of the development of a town or city.
7. The establishment of a town of new development is prescribed in Ordinance 15 of 1985.
Explain the procedure for establishing a town or for a new development in an existing
municipality.
8. The initiative of township development is vested in the owner of the land which can be
divided into building stands or plots. The owner must take into consideration the
conditions imposed on applicants. State the conditions imposed on applicants when
establishing a town or new development.
9. Anyone with the intention of constructing a fixed structure or building on a plot, or adding
to an existing building, has to submit detailed plans to the municipality which will in turn
approve or amend the plans. There are certain common requirements to be followed.
List SIX common requirements when building a house.
10. Name SIX sources of finance for regional services councils.
12