Participation of Traditional Leadership on Spatial 
Planning and Land Use Management Matters 
in the Mpumalanga Province 
Republic of South Africa 
Simanga Acron Nkosi 
Mini-dissertation submitted in partial fulfilment of the requirements 
in respect of the degree 
Master of Urban and Regional Planning 
• 
in the 
Department of Urban and Regional Planning 
Faculty of Natural and Agricultural Sciences 
at the 
University of the Free State 
January 2016 
Supervisor: Professor V.J Nel 
DECLARATION 
I declare that the coursework master's degree mini-dissertation that I herewith submit for the 
master's degree qualification Master of Urban and Regional Planning at the University of the 
Free State is my independent work, and that I have not previously submitted it for a 
qualification at another institution of higher education. Information from various sources and 
other writers used for the purpose of the research report has accordingly been 
acknowledged. 
I hereby declare that I am aware that the copyright is vested in the University of the Free 
State. 
I hereby declare that all royalties as regards intellectual property that was developed during 
the course of and/or in connection with the study at the University of the Free State will 
accrue to the University. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
ii 
ACKNOWLEDGEMENTS 
First of all I would like give thanks and prays to God almighty for the strength during difficult 
and trying times. 
I would also like to extend my gratitude, my honour and my appreciation to my Mentor and 
Study Leader, Professor V.J Nel, University of the Free State who has been the source of 
inspiration and a motivator; the foot prints of her academic leadership and guidance will live 
for long. 
I would like to express my appreciation to the staff of Urban and Regional Planning; in the 
University of the Free State for their tireless assistance, always available for assistance. 
I would like to express my appreciation to Mr S.T Masuku as my local (Nelspruit) mentor for 
encouragement and guidance during the period of the research. 
I would also like to give thanks to my family for understanding, support and prayers. 
I would like to give thanks to Ms D du Plessis; Technical Editor, for encouragement, editing 
the document and technical advice. 
I would like to give thanks to my Colleagues at work DRDLR for affording me an opportunity 
to acquire knowledge in planning and for providing assistance in terms of maps and 
information about rural development. 
Lastly I would like to give thanks to my UFS Colleagues, always inspiring. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
iii 
I TABLE OF CONTENTS II 
DECLARATION .................... .. .............................................................. ..... ...... ............................ 11 
ACKNOWLEDGEMENTS .... ............ .......................................................................................... 111 
TABLE OF CONTENTS .................................... ............................. ...... ...................................... IV 
LIST OF TABLES ................................................................................ ...... ...... .......................... VII 
LIST OF FIGURES .............. ..................................... ................................. ..... .......................... VIII 
LIST OF ACRONYMS AND ABBREVIATIONS ...... ................................................................... IX 
GLOSSARY OF TERMS .... .................... ...... .... ............ .............................................................. X 
ABSTRACT ............................. .. ...... ..... .................. ................................................................... XII 
CHAPTER 1 INTRODUCTION ... .............................. ....... ..... ....... .......... .................................. ...... 1 
1.1 BACKGROUND ............ ...... .................. ............................................................................................... 1 
1.2 PROBLEM STATEMENT ................................. ......... .... .. .................................................................... 8 
1.3 RESEARCH QUESTION .............. .. ............................................................. ...... ........... .. .......... .......... . 9 
1.4 RESEARCH OBJECTIVE ......... .. ......................................................................................... .... ........... 9 
1.5 RESEARCH METHODOLOGY ......... ... ...... .............................................. .................... .................. ... 10 
1.6 DELINEATION OF THE STUDY AREA ...................................................................................... .... .. 11 
1.7 RATIONALE OF THE RESEARCH .............. ........................................... ........ .. ............ ................... 13 
1. 7  .1 Relevance of the study ......... ............ .............................................................................. ..... ... . 13 
1.7.2 Significance of the study .................. ..................................................................... ........... ... ... . 14 
1.7.3 Parameters of the research ................................................................. .................................. . 14 
1.8 STRUCTURE OF THE REPORT ................................................................... ........ ........................... 15 
CHAPTER 2 LITERATURE REVIEW AND CONCEPTUAL FRAMEWORK .............................. 16 
2.1 INTRODUCTION ... ... ......................................................................................................................... 16 
2.2 TRADITIONAL LEADERSHIP ........................................................................................................... 16 
2.2.1 Definition of traditional leadership .................................... ................. ............ ........ ........ .......... 16 
2.2.2 Characteristics of traditional leadership ............ ..................................................................... 17 
2.2.3 Background of traditional leadership .................................. .................................................... 18 
2.2.4 The role of traditional leadership on land matters .................................................................. 20 
2.3 THE RELATIONSHIP BETWEEN TRADITIONAL LEADERSHIP AND LOCAL GOVERNMENT 20 
2.3.1 Introduction .. ...... .......................................................... ............................................................ 20 
2.3.2 Areas of conflict between the two authorities .............................................................. .. ......... 21 
2.3.3 Instances of collaborative relationship ........................ .......................... .. ............................ .... 22 
2.4 POLICY REVIEW ON TRADITIONAL LEADERSHIP AND MUNICIPALITIES .............................. 23 
2.4.1 The Constitution of the Republic of South Africa, Act 108 of 1996 ....................................... 23 
2.4.2 Traditional Leadership and Governance Framework Act, Act 41 of 2003 ............................ 23 
2.4.3 The White Paper on Spatial Planning and Land Use Management, 2001 ......... .. ... ............. 23 
2.4.4 Local Government: Municipal Systems Act, Act 32 of 2000 .... ...... ... ..................................... 24 
2.4.5 Local Government: Municipal Structures Act, Act 117 of 1998 .. .................... .. ... .................. 24 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
iv 
2.4.6 Spatial Planning and Land Use Management Act, Act 16 of 2013 ........................... ............ 25 
2.4.7 Regulations in terms of the Spatial Planning and Land Use Management Act, 2015 ........ .. 25 
2.5 CONCEPTS AND THEORY OF LAND PLANNING ........ ................................................................ 26 
2.5.1 Introduction ................ ........ ... ........................................ ...... ..................................................... 26 
2.5.2 History of planning ........ ... ...... ......... .................................. .................................. ... .................. 26 
2.5.3 Theory of planning ................ .. .. ....... ...... ... ... ... ......................... ... ... ... ...... ................................. 28 
2.6 CONCLUSION .. ......................................... ............ ... ... ... ... ...... ... ... ........ .. ... .................. ....... ... ... ........ 30 
CHAPTER 3 METHODOLOGY ......................................... ...................... ...... ....................... ....... 32 
3.1 INTRODUCTION ...................................... ..... ........................... ............... ......... ................... .............. 32 
3.2 RESEARCH DESIGN ................................ ...................... ... ............................................................... 32 
3.3 RESEARCH METHODOLOGY ..... ... ... ........... ............................................. .. ....... .. ...... .................... . 33 
3.4 DAT A COLLECTION ..... ............... ... .................... .. .. ..... .................................................... .......... ....... 35 
3.4.1 Primary data collection ................................ ...................... .... .................................................. 35 
3.4.2 Secondary data collected ............. ................................ ... .......... ................................. ... .......... 38 
3.5 ANALYSIS OF DATA ......................................................................................................................... 38 
3.6 CONCLUSION .................................................. ... .............................................................................. 38 
CHAPTER 4 DAT A ANALYSIS .................................................................................................. 40 
4.1 INTRODUCTION ...... .... ... ....... .. ... ... ..... ........... .. ... ... ...... ....... .. ........ ................................ ....... ....... .. .... 40 
4.2 INTERPRETATION OF DATA FROM QUESTIONNAIRES .. .. .................. ............................ .......... 41 
4.2.1 Traditional authorities' cadastral boundaries and land issues ..................................... ...... .... 41 
4.2.2 Establishment and extending settlements in areas of traditional authorities ........................ 41 
4.2.3 Upgrading of land tenure in areas of traditional authorities ............................................... .... 42 
4.2.4 Land uses and land demand in areas of traditional authorities ....... .... .................................. 42 
4.2.5 Challenges faced by traditional councils .................... .. ........ ............................................ ...... 43 
4.2.6 Land allocation in areas of traditional authorities ........................ .......................... ....... .......... 43 
4.2.7 Improving the level of communication between traditional councils and municipalities ....... 47 
4.2.8 Understanding of traditional councils about the constitutional and legislative mandate of 
municipalities on spatial planning, land use and land development... ................ ... ................ 47 
4.2.9 The level of consultation and engagement of traditional authorities in the compilation of 
municipal Integrated Development Plans ............ ..... ................... ... ... ... ... ... ... ... ....... .. ...... ....... 48 
4.2.1O The level of consultation and engagement of traditional councils during the compilation and 
implementation of municipal policies on spatial planning, land development and land use 
schemes ............................ ... ......... .......................................................................................... 49 
4.3 ANALYSIS OF MUNICIPAL INTEGRATED DEVELOPMENT PLANS IN RELATION TO 
TRADITIONAL LEADERSHIP ..... .............. ................................................... ..................... ................ 50 
4.4 CONCLUSION ..... ...................................... ...... .......................... .. ...................................................... 52 
CHAPTER 5 FINDINGS ......... .................. ....... .......... ....... .... ............ .... ...... ...... ............ ...... ..... .... 53 
5.1 INTRODUCTION ............... ..... ...................................................................... ..................................... 53 
5.2 CONCLUSION ...................................... ... .................................................................... ..... ........... ...... 60 
CHAPTER 6 CONCLUSION .. .................. ............................................ .. ..................................... 61 
6.1 INTRODUCTION ...... .... ............ ...... ..... ..... ..... ...... ....... ... ... ...... ................................... ................... ..... 61 
6.2 SUMMARY OF THE REPORT ..... ................................................... ... ... ... ....................... .......... .. ...... 61 
Parlicipation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
v 
6.3 FINDING AND OUTCOMES OF THE RESEARCH .. ... ................... .. .... ........................................... 62 
6.4 RECOMMENDATIONS ................................................................................................... ............. ..... 64 
6.5 RECOMMENDATIONS FOR FURTHER STUDIES ........................................................................ 65 
6.6 CONCLUSION ................................................................................................................................... 65 
REFERENCES ......................................................... .................................. ...... ................. ...... . 66 
APPENDIX A QUESTIONNAIRE FOR TRADITIONAL LEADERSHIP ... ................................... 72 
APPENDIX B QUESTIONNAIRE FOR MUNICIPAL OFFICIALS ............................................... 80 
APPENDIX C EXAMPLE OF PROOF OF PAYMENT TO TRADITIONAL AUTHORITIES ........ 88 
APPENDIX D WAGON WHEEL ................. ............... ......................... ..... ............................ ........ 91 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
vi 
LIST OF TABLES 
Table 1.1: Traditional councils in the Mpumalanga Province listed per local & district municipalities 12 
Table 4.1: Summary of fees charged by traditional councils for land allocation in the Mpumalanga 
Province grouped per municipality .. .... ... ... .. ... .... ............ ...... ......... .. .... .... ......... .. ....... .. ...... .45 
Table 5.1: Summary of responses from the primary source of data ................ ...... .... .. ..... ....... ........... 53 
Table 5.2: Analysis and findings from the secondary data sources ............................... ..... .. ..... .. ..... .5 6 
Table 5.3: Research objectives .... .. ... ... ... .............. ...... ... ..... ...... ...... .. ......................................... ........ .5 7 
Table 5.4: The sub-question of the research ..... ........ ............ ...... .. ..... ............ ....... ..... .. .... ........ .......... 58 
Table 5.5: The main research question ... ...... ...... ..... .. ..... ........ ...... ...... ... .. ...... .. ..... ................ .. ...... ..... 59 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
vii 
I LIST OF FIGURES II 
Figure 1.1: Map of the Republic of South Africa depicting areas of traditional leaders .. .. ....... ....... ...... ... 3 
Figure 1.2: Diagrammatic representation of land occupied by traditional authorities in the Republic of 
South Africa per province .... ..... ... ... .. .......... ... .......... .. .... .. ... .. ...... ... .. ....... .. .. .... ... .... ............... 3 
Figure 1.3: Map of the Republic of South Africa, showing the Mpumalanga Province in blue ... .. .. .... .... .4 
Figure 1.4: Mpumalanga Province and its three District Municipalities ...... .... ......... ................................ .4 
Figure 1.5: Former homelands in the Mpumalanga Province .... ... ... .......... ................ .. ......... .. .. ... .. .......... 5 
Figure 1.6: Areas of traditional authorities within municipal areas ................. ...... ...... .. ..... .... ........... ...... ..6  
Figure 1.7: Sixty traditional authorities of the Mpumalanga Province ..... ... .......... ...... ....... .. ...... .............. .?  
Figure 4.1: Common engagement procedures followed by traditional councils to process a request for 
a residential site ... .. .. ... ....... ... ... .. .... .. ..... ..... .... ... .. .... .. ... ... ..... ..... .. ..... ... ... .. ... .. .. .. .... ...... ... .... 45 
Figure 4.2: Common procedures followed by traditional councils to process a request for a business 
site .... .. ..... ............ ... .. ... .. ... .. ...... ...... .. .... ... .. ........ .. ..... ..... .. ..... ...... ...... .. ... ... ..... .. ...... ....... ...... 46 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
viii 
LIST OF ACRONYMS AND ABBREVIATIONS 
COGTA Cooperative Governance and Traditional Affairs 
OM District Municipalities 
DRDLR Department of Rural Development and Land Reform 
IDP Integrated Development Plan 
LUMS Land Use Management System 
MEC Member of the Executive Council 
MP Mpumalanga Province 
MO Main Offices 
MPT Municipal Planning Tribunal 
MSA Municipal Systems Act 
PTO Permission to Occupy 
RSA Republic of South Africa 
SA South Africa 
SDF Spatial Development Frameworks 
SLA Service Level Agreement 
SP LUM Spatial Planning and Land Use Management 
SP LUMA Spatial Planning Land Use Management Act 
TLGFA Traditional Leadership and Governance Framework Act 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
ix 
GLOSSARY OF TERMS 
Definition of key terms: 
This section provides a description of the terms that are frequently used in this research, to 
present a clear understanding of the terms used. The four terms, traditional leadership, 
traditional authority, traditional councils and traditional leaders, are often used 
interchangeably, while their meanings can have a slightly different connotation depending on 
the specific scenario and circumstances. The terms are defined below for the purpose of the 
study. 
Traditional leadership refers to the broader context of a type of royal leadership established 
legitimately as a traditional power in control , in terms of the Traditional Leadership and 
Governance Framework Act, Act 41 of 2003. Traditional leadership is a customary 
governance structure or system, acknowledged and used by traditional communities as an 
administrative body which bears and embraces traditional values and activities (Khunou, 
2011 :278). 
Traditional leaders: In South Africa, the titles of traditional leaders depend on the different 
indigenous languages. Most titles have the same meaning, depending on the prevailing 
language of the geographic area, thus traditional leaders may be called, Chiefs, lnkosi, 
isiphakanyiswa, Kgoshi and Hhosi. A traditional leader can be defined as a customary leader 
that has inherited the leadership position by being a member of a royal family and the 
chieftaincy has been conferred by the traditional elders (Lutabingwa et al., 2006:75). 
Traditional authority is a traditional institution, recognised by higher authorities in terms of 
customary law. Ndlela et al. (2010:3) define traditional authority as a recognised traditional 
structure which entails different levels of responsibilities commanded by a Chief who reigns 
over a tribal area and where the people live and hold the rights to practice traditional 
activities. 
A Traditional Council is a combination of elected members and the royal leadership of a 
traditional governance structure which is identical to a specific area of jurisdiction. 'Traditional 
council' is a new term used in the post-apartheid era for traditional governing bodies, 
established and recognised for a traditional community in accordance with the provision of 
Chapter 2, Section 3 of the TLGFA (South Africa [SA], 2003). The elected members of the 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
x 
traditional council (excluding the royal leadership) are subject to a five-year term contract in 
office and are nominated through the election processes in terms of Section 3 of the TLGFA. 
Spatial Plan is a guide plan for current and future land development that represents and 
interprets a development vision of a competent authority, aimed at a long-term sustainable 
development goal of a defined area, representing the integrated sector policies and plans. It 
is a plan which guides decision-makers in terms of land development and it carries the 
directive to redress historic spatial imbalances (Spatial Planning and Land Use Management 
Act, Act 16 of 2013 (SPLUMA, SA 2013:21 ). 
Land use management refers to land use controls that apply to a property in accordance 
with the prescripts that are promulgated by the responsible authority (Van Breda, 2006: 1) . 
Land tenure is a recognised term relating to occupancy or ownership of land or property 
vested in or assigned to an individual or a group, which further articulates about the land use 
rights (Payne, 2000:145). 
Land use control is defined by Thomas (2006: 13) as a system of issuing permits for land 
use and development according to prescripts set out by authorities with the aim of reducing 
conflicts and maximising cohesion. 
Land development refers to erection of building or structure on land or the change in land 
use, it also includes the following activities that take place on land: township establishment, 
subdivision and consolidation of land, as well as any compliant or deviated activity based on 
a municipal land use scheme (SPLUMA, SA 2013:9). 
. - . . ~ . -· 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
xi 
I ABSTRACT II 
This research report explores the participation of traditional leadership in spatial planning and 
land use management matters in Mpumalanga Province. The report provides a brief 
overview of the historic background of traditional leadership in South Africa and the 
applicable legislation that outlines the mandates and the roles of traditional leadership on 
land matters. 
The compilation of the mini-dissertation from inception to conclusion is driven by data 
resources on traditional leadership guided by the following measures: literature review, which 
entails defining traditional leaders and their existence through the epoch in history, policy 
framework, as well as history and theory of planning. Information collected from traditional 
leaders and municipal officials was analysed to provide outcomes of the survey which was 
compared with the literature outcome to provide a final outcome which presents a final view 
of the extent of participation of traditional leadership in spatial planning and land use 
management. 
The finding of the report indicates that systems of traditional leadership are alive and existing 
in rural areas of South Africa and that the institution of traditional leadership will still exist in 
the coming future . Their involvement in land matters is inherited from the past, therefore their 
current role in spatial planning and land use management must be defined and agreed 
between the traditional council and municipalities and finally the agreements must be 
documented in a form of a Service Level Agreement. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
xii 
I Chapter 1 INTRODUCTION I 
1.1 BACKGROUND 
Traditional leadership's existence dates back to the pre-colonial era, as a form of 
governance, which is prevalent across the African continent. This form of governance still 
exists in the current era of the democratic South Africa as shown in Figure 1.1 (Meer & 
Campbell , 2007:2). Traditional leadership can be categorised as an indigenous method of 
authority that governs a group of people or a clan which predominantly shares similar values 
and culture (Ndlela et al., 2010:3). Powers of traditional leaders are inherited by virtue of 
being a member of a royal family (Lutz, 2004:18). 
Leadership in the form of traditional authority encompasses all the clan's basic needs from 
social requirements to developmental needs (Ndlela et al., 2010: 5). Traditional leaders were 
assigned by legislation, among others, but not limited to the role of administering land 
matters (Lahiff, 2000:49). '"' "" t. "'"'"""' .. .i. •\J V 
l?o. ox ~39 
L .... teln 
Administering of land matters in the case of traditional leadership inch.1des demarcation and 
allocation of land for various land uses, primari .iy. . fo7 'residentraf, businesses, as we11 as- for 
subsistence farming in a communal manner (Bryna rd & Musitha, 2011: 114: Bikamz & 
Chakwizira, 2014:145). However, the current responsibility of administering land in a formal 
planning system is assigned to municipalities through the new planning legislation, the 
SPLUMA (SA, 2013), and its land use management systems, such as the Spatial 
Development Framework (SDF) and wall-to-wall land use schemes (Nel, 2015:2). 
The study unpacks the historic functions of traditional authorities, and most importantly their 
current role on land matters. It seeks to establish the relevance of traditional leadership in 
governing space and land use, within their areas of jurisdiction where municipalities have the 
power to execute planning functions as mandated by the Constitution of the Republic of 
South Africa, Act 108 of 1996, within the new demarcated municipal boundaries which 
incorporate areas that were previously administered by Traditional Councils (Ntsebeza, 
2004:67) (Figure 1.6). 
Traditional authorities have survived through pre-colonial , during colonial and post-colonial 
times, while various statutes have been passed to regulate the functions of traditional 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
authorities. However, these statutes have not addressed the extent of involvement of 
traditional leadership in spatial planning and land use management. 
South Africa has inherited a fragmented and divided society, which requires redress of the 
previous spatial injustices (Nel, 2015:3). The country was divided in a manner that created 
superiority and inferiority among different groups of South Africans. The spatial division 
provided for formalised and non-formalised areas; formalised areas are situated in urban 
areas with control measures through policies and legislation, while non-formalised areas 
were mostly found in former rural homelands under traditional leadership. These areas were 
not subjected to any spatial planning or land use guidance through land development 
policies (Ntsebeza, 2004:69). Spatial planning, land use control and land development 
matters were carried out by traditional authorities in most instances without planning 
capacity and guidance (Ndlela et al., 2010:5). 
The negligence of rural areas under traditional authorities in terms of spatial planning and 
land use management has impacted negatively on the development of these areas and has 
created a legacy of unplanned occupation of land that is usually inefficient in terms of 
sustainability and installation of services. The emerging of unplanned settlements does not 
consider space for additional amenities to support the residential use (Ntsebeza, 2004:73). 
A key objective of post-apartheid South Africa is the integration of these fragmented areas; 
this includes the spatial integration former towns, cities and adjacent rural communities 
through the new demarcation of 'wall-to-wall' municipalities (Nel, 2015:3). It also includes 
comprehensive planning through a programme known as Integrated Development Plan 
(IDP), which includes areas which were formerly controlled by traditional authorities 
(Kurahashi, 2012:7). The post-apartheid South African Government has passed legislation 
which encourages integration and incorporation of traditional council areas into municipal 
systems. 
The legislation includes the Constitution of the Republic of South Africa, Act 108 of 1996; the 
Local Government: Municipal Systems and Structures Act, Act 117 of 1998; the Local 
Government: Municipal Structures Amendment Act , Act 33 of 2000; the TLGFA (SA, 2003), 
and the SPLUMA (SA, 2013). 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
2 
RSA Areas of Traditional Leaders 
LP: Limpopo 
MP: Mpumalanga 
GP: Gauteng 
NW: North West 
FS: Free State 
NC: Northern Cape 
WC: Western Cape 
EC: Eastern Cape 
KZN: Kwazulu-Natal 
NC 
Source: Fourie (2015) 
Figure 1. 1: Map of the Republic ofS outh Africa depicting areas oft raditional leaders 
% OF LAND PER PROVINCE UNDER TRADITIONAL AUTHORITIES 
Limpopo 26% 
Eastern Cape 
. . ...  
Mpumalanga .... - ....... :.; 10% 
North West 9% 
KwaZulu-Natal 34% 
Northern Cape 
TOTAL LAND IN RSA UNDER T.A. : 
Western Cape 0% 
Source: Fourie (2015) 
Figure 1.2: Diagrammatic representation ofl and occupied by traditional authorities in the Republic ofS outh 
Africa per province 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
3 
RSA 
NO l< l ~1 WL !> I 
, tiV 
I J' fRFf 
... 
(, , ' 
Norn ll(l<N C A P ( ,- LESOTHO r ' 
'\. ' N ;,_ ,1"' -
I '--.. _, ) 
\ 
'"' , _/ r EASTERN CAPE + 'v  ./')  r \ 
I 
W l.S t l l<N 
C A Pr 0 
KILOM ETRES 
Source: Department of Rural Development and Land Reform (RSA DRDLR, 2015) 
Figure 1.3: Map of the Republic ofS outh Africa, showing the Mpumalanga Province in blue 
Mpumalanga Province (3 District Munlclpalltles) 
District Munlclpalllln 
fh. .N tnl 
1:1 619 800 
Source: SA DRDLR (2015) 
Figure 1.4: Mpumalanga Province and its three District Municipalities 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
4 
, ff()l:mer t=t C;>:melands infMpumalanga . .... . . .. .. :·\:~;·~,: 
r _. -. - ./ .... ~- r . .,-\ ~-
.., ~ ,,- --... r- _J-~..r0 
.. ~ 
'<:19'' 
N•llonel "oads 
~~- NauonalRoaos 
Former Homelands 
- Bopnutnatsw ana 
C Gaz.ankulu 
~n1..,, 
- Kangwana 
Kwa.ndaMla 
- LabOWa 
Munlclpel 8 ounderl" 
Local ~•unlc lpa111as 
l.•••• 
. .r-v, 
"---.... .-. . ... "'• J em• - Kw.ZUiu Kw..Zulu-N•tal ~ 
,........_ , -. 
Source: SA DRDLR (2013) 
Figure 1.5: Former homelands in the Mpumalanga Province 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
5 
TRADITIONAL AUTHORITIES 
MPUMALANGA 
Total Tad It Iona I % c overed 
Local M-~al Authority by 
Mu nlclpa lty Area Area Tradltlonal 
<""'» (hm>) A uthorlt les 
Albert luthulo 5560 8-4'1 15% 
8.Jshbudcrodge 10253 1751 17% 
Dr JS M a<oka 1430 1200 84% 
Mbombela 5392 496 9'K 
Mkhondo 4882 404 8% 
M<omazo 4788 960 20% 
PndeyKa 5~ 5229 46 I% 
Thaba Ch\'Veu 5721 142 2'11 
Thembo sole Haoi< 2387 299 13% 
Source: SA DRDLR (2014) 
Figure 1.6: Areas oft raditional authorities within municipal areas 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
6 
LEGEND en 
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Source: SA DRDLR (2013) 
Figure 1. 7: Sixty traditional authorities of the Mpumalanga Province 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
7 
1.2 PROBLEM STATEMENT 
Misalignment of land development matters between traditional authorities and municipal 
councils in the Mpumalanga Province had led to overlapping roles and responsibilities 
(Bikam & Chakwizira, 2014:143). Municipalities are mandated by the Constitution (SA, 1996) 
and the MSA (SA, 2000), to administer local government matters, including spatial planning 
and land use management within their boundaries that incorporates areas of traditional 
authorities. 
Traditional authorities have been demarcating and allocating land for different land uses 
without the guidance of spatial plans and land use management tools. Their involvement in 
land administration matters is derived from previous and current legislation, such as 
Chapter 5 of the TLGFA (SA, 2003), although national and provincial government policy or 
legislation may provide for additional roles for traditional councils on land administration 
matters (Knoetze, 2014: 169). 
Municipalities in the Mpumalanga Province are working towards complying with new laws of 
the country which seek to improve the spatial form of the country. These laws include the 
Constitution, which spells out that municipalities are a sphere of government and bear the 
function of land planning; the SPLUMA (SA, 2013), which requires the revision of existing 
municipal land use management systems such as municipal SDFs and land use schemes. 
However, implementing this legislation creates a problem in that there is no clear line of 
responsibil ities between the two governing powers, while the land use management systems 
may be developed by municipalities, but its implementation in traditional council areas might 
face challenges of non-compliance for a number of reasons (Nel, 2011 :12). 
Traditional councils are excluded from the Municipal Planning Tribunals (MPT) that decides 
on land use and development applications. However, the Regulations in terms of the Spatial 
Planning and Land Use Management Act {hereafter called the SPLUMA Regulations, 2015), 
suggest that an agreement in a form of a Service Level Agreement (SLA) may be concluded 
between municipalities and traditional councils according to Regulation 19 of the SPLUMA 
Regulations (SA, 2015), although the Regulations further state that traditional councils are 
not expected to make any land development or land use decisions. However, the extent of 
such land use and development decisions still needs to be unpacked in order to implement 
these provisions. In this regard, the question from traditional leaders concerns the process of 
preparing the terms of the SLA which is not stated in the regulations. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
8 
During engagements with traditional leaders they have indicated their dissatisfaction in only 
participating in Municipal Council meetings. They have indicated that they are not 
recognised or honoured in council meetings as leaders of their communities and that only 
Speakers and Mayors are given respect. They have raised their concern that they are 
treated as ordinary members of the community. 
In terms of the Municipal Structures Act, Act 117 of 1998 (Section 81 ), a limited number of 
traditional leaders may attend municipal council meetings with an authorisation of the 
Member of the Executive Council (MEC) for Local Government and the Provincial House of 
Traditional Leaders. According to this Act, traditional leaders may be given an opportunity to 
express a view in matters that directly affect their areas of their authority (Bikam & 
Chakwizira, 2014: 146). 
The lack of formal agreements leading to limited cooperation between the municipal council 
and the traditional councils result in burgeoning of non-formalised/informal settlement areas 
which result in environmental degradation and difficulties in installation of services. 
1.3 RESEARCH QUESTION 
In view of the overlapping and undefined roles and responsibilities of the traditional councils 
and local municipalities around spatial planning and land use management, Bikam and 
Chakwizira (2014:143-144), the research question of this study can be formulated as: 
What role can traditional leadership play in spatial planning and land use 
management without contravening the roles and responsibilities of local 
municipalities? 
The research question is further divided into sub-questions: 
How relevant is traditional leadership in implementing spatial planning and land use 
management? 
What complementary role can traditional leadership play to enhance the functions of 
municipalities around land development controls? 
How can prescripts and guidelines for land development control be successfully 
introduced into the daily operation of traditional leadership? 
1.4 RESEARCH OBJECTIVE 
Traditional councils and municipalities share a common space and constituencies as the 
boundaries of traditional councils are within municipal boundaries. Other common aspects 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
9 
that are shared among the two authorities include settlement planning, land allocation for 
different uses, allocation of land rights for land occupation and tenure, as well as provision of 
services. The history of traditional councils in South Africa has been examined through 
existing literature (including legislation) to examine the powers and duties which were 
conferred to traditional councils through legislation from the previous era up to the current 
time to understand both the status quo and the perspectives of traditional authorities. 
The objectives are as follows: 
To assess the operational extent of traditional leadership on land development 
matters. 
To investigate the processing of land development applications by traditional 
leadership in relation to municipalities. 
To establish the extent of involvement of traditional councils in spatial planning and 
land use management. 
To find common ground to facilitate a collaborative working relationship between 
traditional councils and democratically elected municipal councils. 
The study outlines the basis of understanding and agreement of the two diverse spheres of 
power on sharing duties on land development to fulfil the legal and practical requirements 
around land matters. The study can also make a significant contribution in increasing the 
understanding of the role of indigenous or traditional institutions in spatial planning and land 
~-i-beplonnlng l.iv 
use management. i:·~pt. Stadt- end r) • "1·~'.-.01 Planning l' 
~t U•ban an i .l;J• • 
_._,... • i><)Sbt;<;/ • ~·· uOX 339 
1.5 RESEARCH METHODOLOGY ~lccrnf onteln 9'\'}0 
The research method serves as an outline of "ffl'e~wnole. . research exercise from the 
beginning to the end of the research, where a determination is made for a best method that 
can successfully fulfil the requirement of the research. According to Baxter and Jack 
(2008:547), once the research question is tabled and the research topic determined, then a 
specific type of method which will be most suitable to achieve the research objectives must 
be selected. 
This research report is based on establishing the participating extent of traditional leadership 
on spatial planning and land use management in the Mpumalanga Province. The DRDLR 
has embarked on a project of a feasibility study to establish land use management and land 
use practices in areas of traditional authorities in the Mpumalanga Province. The scope of 
the DRDLR project is thorough and extensive; the DRDLR study seeks to provide detailed 
information pertaining to the total of 60 traditional authorities in the Mpumalanga Province. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
10 
Preparation of the field survey of this academic research report has been aligned with the 
DRDLR survey process where the researcher of this report was part of the interviewing team 
which interviewed traditional councils and municipal officials. The information gathered 
during the joint survey with DRDLR, was used to prepare the analysis of this report. Fifty-
eight traditional councils were successfully met and interviewed, only two traditional councils 
out of the 60 were not available for interviews; after consultation with traditional councils, 
meetings for interviews were arranged and held with nine municipalities that are harbouring 
traditional councils in their area of jurisdiction. The information collected during the joint 
survey was summarised to provide a broader provincial perspective about traditional 
councils which was very important towards the research topic. The information from the 
survey was grouped into ten planning areas based on the questions from the questionnaire 
and a translation of the research questions. The detailed grouping of the questions and 
answers are further demonstrated in Chapter 3 of this dissertation. 
The scope of DRDLR feasibility study prescribes that information must be detailed per 
traditional authority in order to provide a holistic picture of the current practices on land 
matters by traditional authorities, which include social , economic and political perspective. 
The details include land status, such as boundaries; property description; ownership; 
potential; a broader land use per traditional authority and availability of land for future 
development. The status of the project currently is at a second round of consulting 
stakeholders to confirm most of the outcomes of the survey. 
The selected methodology of this report is qualitative methodology, selected on bases of 
qualities of a qualitative method, outlined further in Chapter 3 of this dissertation, the 
research design and analysis as highlighted briefly in this chapter is broadly explained in 
Chapter 3 of this dissertation. 
1.6 DELINEATION OF THE STUDY AREA 
The focus of the study is on traditional leadership in the Mpumalanga Province within the 
Republic of South Africa. Mpumalanga is one of the nine provinces of the Republic of South 
Africa, which is bordered by the Limpopo Province on the northern side, Gauteng Province 
on the western side and Free State and Kwazulu-Natal on the southern part of the province. 
Mpumalanga Province also shares international borders on the eastern side of the province: 
with Swaziland on the south-east as well as Mozambique on the north-east (Figure 1.3). 
There are 60 traditional councils in the Mpumalanga Province recognised and registered by 
the Department of Cooperative Governance and Traditional Affairs (COGTA), distributed 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
11 
over the three districts of the Province. The three districts of Mpumalanga Province are 
Ehlanzeni, Nkangala and Gert Sibande (Figure 1.4). However, not all municipalities within 
the three districts have traditional councils. One municipality may have more than one 
traditional councils (see Table1 .1) , as well as a map of individual traditional authorities within 
municipalities in Figure 1.6. 
Most of the traditional authorities are situated in the former homelands (Figure 1.5) within the 
Mpumalanga Province. The former homeland areas in the Mpumalanga Province are listed 
as follows: western part of the Province; former Kwandebele; former Bophuthatswana. The 
northern part of the Province is former Lebowa, former Gazankulu and on the south-east 
part of the Province is the former Kangwane (Figure 1.5). 
Homelands were classified according to different ethnic groups in the Republic of South 
Africa (RSA), where the majority of the people were able to communicate through the 
prevailing languages (Khunou, 2009:87). Traditional authorities were used to strengthen 
tribalism within the homeland system, subsequently to perform the duties of administering 
land matters (Ntsebeza, 2004:73). 
TABLE 1.1: TRADITIONAL COUNCILS IN THE MPUMALANGA PROVINCE LISTED PER LOCAL & DISTRICT 
MUNICIPALITIES 
MPUMALANGA PROVINCE (MP) 
The Three District Municipalities (OM) of Mpumalanga Province (Figure 1.4) 
Ehlanzenl OM Nkangala OM Gert Slbande OM 
Local Municipalities (LM) & Local Municipalities (LM) & Traditional Local Municipalities (LM) & 
Traditional Councils (TC) under the Councils (TC) under the District Traditional Councils (TC) under the 
district District 
Mbombela LM Thembislle Hanl LM Mkhondo LM 
(MO in Nelspruit) (MO in: Kwaggafontein) (MO in Piet Retief) 
1 . Mpakeni TC 1.Ndzundza - Somphalali TC 1. Mahlaphahlapha TC 
2. Msogwaba TC 2.Ndzundza - Fene TC 2. Madabukela TC 
3. Mbuyane TC 3.Manala TC 3. Mahlobo TC 
4. Gutshwa TC 4.Manala Mgibe TC 4. Ogenyaneni TC 
5. Mdluli TC 5.Manala Makerana TC 
6. Masoyi TC 
7. Nkambeni TC Dr Pixley Ka lsaka Seme LM 
8. Kgarudi Tc· - shared between 1.Lekgoetla TC 
Mbombela & Bushbuckridge LMs 
Nkomazl LM Dr J.S. Moroka LM Chief Albert Luthuli LM 
(MO in: Malalane) (MO in: Siyabuswa) (MO in: Carolina) 
1.Matsamo TC 1 . Ndzundza · Mabhoko TC 1 . Mantjolo TC 
2.Mhlaba TC 2. Ndzundza - Mabusa TC 2. Embhuleni TC 
3.Sboshwa TC 3. Ndzundza · Pungutja TC 3. Mandlamakhulu TC 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
12 
4.Lugedlane TC 4. Ndzundza - Litho TC 4. Somcuba-Bevula TC 
5.Hhoyi TC 5.Bakgatla Ba Mmakau TC 5. Enikwakuyengwa TC 
6.Mlambo TC 6. Bakgatla Ba Mocha Ba Moepi TC 6. Mpisikazi TC 
7.Mawewe TC 7. Bakgatla Ba Seabe TC 7. Ebutsini TC 
8.Lomshiyo TC Cross Border 8.Bakgatla Ba Mocha Ba Maloka TC 8. Madlangampisi TC 
between Nkomazi & Mbombela LMs 9. Barolong Ba Lefifi T.C 1 9. Duma TC 
Bushbuckrldge LM I 10. Emfumbeni TC 
1. Hoxane TC Victor Khanye LM 11 1 . Enkhaba TC 
(MO: Delmas) 
2. Amashangana TC No TC I 12. Ndlela TC 
3. Jongilanga TC 13. Emjindini T.C 
4. Moletele TC Emalahlenl LM Msukallgwa LM 
(PKA: Witbank) (MO: Ermelo) 
5. Malele TC No TC No TC 
6. Sethlare TC 
7. Mathibela TC Emakhazenl LM (MO in: Belfast) Lekwa LM 
(MO in: Standerton) 
8. Moreipuso TC No TC No TC 
9. Thabakgolo TC I I 
10.Mnisi TC 
Kgarudi Tc• Cross Border between Steve Tshwete LM Dlpaleseng LM 
Bushbuckridge & Mbombela LMs (MO in: Middelburg) (MO in: Balfour) 
No TC No TC 
Thaba Chweu LM 
(MO in Lydenburg) I 
1.Mashilane TC Govan Mbekl LM 
I (MO: Secunda) 
2. Mohlala TC I No TC 
3. Mogane TC I I 
Umjlndl LM 
(MO in Barberton) I I 
No TC I I 
Source: RSA DRDLR (2015) 
1.7 RATIONALE OF THE RESEARCH 
1.7.1 Relevance of the study 
The study is prompted by the existence of traditional authorities in the Mpumalanga Province 
and their involvement in land development matters, from the previous dispensations to the 
current democratic state of South Africa. The intention is to improve livelihoods in rural 
areas, by defining the roles and responsibilities of traditional leadership in relation to 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
13 
municipalities on spatial planning and land use management, in order to facilitate a 
complementary working relationship between the two authorities. 
The study provides the status quo of existing information and the probabilities of arriving at 
an agreement and a workable solution for both authorities, namely the traditional councils 
and municipalities in terms of land matters, an agreement that will satisfy both parties and 
enhance sustainable development as required in terms of Regulation 19 of the SPLUMA 
Regulations (SA, 2015). According to Lutabingwa et al. (2006:81) the effectiveness of 
traditional authorities depends on, firstly, the willingness of local government to build 
capacity to traditional councils within their area of jurisdiction in order to develop an 
understanding, and secondly, for the traditional councils to participate in the modern 
requirements of land development. 
1.7.2 Significance of the study 
It is imperative to measure the extent and efficiency of land use planning and management 
within areas of traditional authorities in order to develop an integrated approach towards 
working together between the traditional leadership and municipalities. The research 
provides awareness in terms of the status of land development areas of traditional leaders 
and it provides a platform of engagements between traditional leadership and municipalities. 
Land use planning is defined by Rubin (2008:3) as a process of making recommendations 
regarding the allocation of space for a range of activities. She defines land management as 
the manner in which land is planned, managed and controlled for utilisation and accessibility. 
She further notes that management of land does not just end with the distribution of land, it 
goes to an extent where authorities take responsibilities of regulating and maintaining 
harmonious living conditions, and to promote coherent and functional land uses with minimal 
conflicts. The ruling power of traditional authorities over land matters is supported by laws 
that stipulate their roles and responsibilities as traditional councils from pre-historic into the 
current situation. 
1. 7 .3 Parameters of the research 
The research is restricted to traditional councils and municipalities within the Mpumalanga 
Province; however, traditional councils outside the Province and South Africa are used to 
provide an external view in addition to information within the Province. The Province of 
Mpumalanga has 60 recognised traditional authorities which are situated within the area of 
jurisdiction of eight local municipalities. The methodology followed in preparation of the study 
is a qualitative method; the research is based on existing realities, as well as prevailing 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
14 
circumstances within the institution of traditional authorities; references are made on historic 
background and existing literature of the research topic. 
1.8 STRUCTURE OF THE REPORT 
The report is structured in a manner that allows the sequential flow of information and 
arguments guided by the research topic, the research question as well as the aim and 
objectives of the study. The structure of the report is summarised as follows: 
Chapter 1: introduces the research report and provides background information about the 
research, it outlines the extent of the study area which includes maps depicting areas of 
traditional authorities in relation to Mpumalanga Province. The chapter elaborates on the 
following subtopics: the objective of the study; the statement of the problem; relevancy of the 
study; significance of the study; research question which is further unpacked, as well as the 
research question to be answered in the analysis chapter. The chapter also provides a brief 
overview of the methodology which has been followed in compiling the research report. 
Chapter 2: reviews the existing literature on the topic and cites arguments from different 
sources that further elaborates on the topic as well as providing answers on the research 
question and also provides the theoretical bases of the research. 
Chapter 3: defines the method used to conduct the research, it outlines the type of 
methodology suitable for the research and research design to guide sourcing of data; 
primary and secondary data. 
Chapter 4: contains the analysis of information collected during the interview process and 
secondary data from literature review. 
Chapter 5: are the general findings from the synthesis of different deliberations, sources and 
data analysed and presented in chapter 4. 
Chapter 6: is the overall summary of the research, which includes findings of the research, 
recommendations and the conclusion of the overall research. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
15 
Chapter 2 
LITERATURE REVIEW AND CONCEPTUAL FRAMEWORK 
2.1 INTRODUCTION 
The purpose of this chapter is to review existing literature on the subject topic in order to 
establish the significance and role of traditional leadership with regard to spatial planning 
and land use management in the Mpumalanga Province. The chapter presents a literature 
review on traditional leadership, particularly within the South African context and a 
conceptual framework which is structured into six sections. The first part of this chapter 
commences with definitions and characteristics of traditional leadership, followed by the 
historical background and legislative provisions pertaining to traditional leadership. The 
second part describes traditional leadership within the current democratic context of South 
Africa. The third part deliberates about the role of traditional leadership on land matters; 
fourthly, the relationship of traditional councils and local government; the fifth section 
deliberates about planning concepts which include the historic and theoretical perspective of 
planning in relation to traditional leadership; and finally the conclusion which summarises the 
chapter. 
C)ept. Stads- en Streekbeplannlng UV 
.Aept. Urban anci r!)olonal ?iorinlng 1· 
Posbus!'"' ;. Jox 339 
2.2 TRADITIONAL LEADERSHIP ~loamfontein 
9'.\'jO 
2.2.1 Definition of traditional leadership 
Traditional leadership can be defined as an indigenous institution that administers a 
traditional community on daily livelihood matters which include land matters. Traditional 
leadership is also defined as a customary institution or structure that governs traditional 
communities through customary procedures of governance (Khunou, 2011 :278). According 
to Knoetze (2014: 167) during the colonial period as well as thereafter, traditional leadership 
was considered as a custodian of customs, although their role under the successive colonial 
governments included additional services such as allocation of land. 
According to Lutabingwa et al. (2006:74), traditional leaders served as governors of 
traditional communities, with authority over all aspects of life, ranging from social welfare to 
judicial functions. They add that these leaders hold tribal land in trust on behalf of the 
traditional community. They also point out that the exercising of power by traditional 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
16 
leadership is largely based on land control, which includes approval and disapproval of land 
occupation. 
2.2.2 Characteristics of traditional leadership 
Traditional leadership is an indigenous institution that governs over an area of jurisdiction 
that ranges from one rural village or more rural villages per traditional area. The institution of 
traditional leaders is constituted by a traditional leader (chief or king) , traditional councils that 
are elected in terms of the TLGFA (2003) and headmen that are assigned to administer 
villages (Lutabingwa et al., 2006:74-75). 
According to Ndlela (2010:3), traditional leadership is a recognised structure which involves 
different levels of responsibilities, where the chiefs are located at the top of the hierarchy and 
reign over the tribal areas where the traditional communities live; local villages are 
administered by headman on behalf of a chief. 
The institution of traditional leadership can be utilised as an integral body of authority which 
can facilitate participation of government in social, political and cultural aspects of rural 
communities as stated in Brynard (2011 :2). Knoetze (2014: 162) further elaborates that 
traditional leaders are at the centre of rural development; therefore, traditional leaders can 
play a linking role in communicating government plans to rural communities. 
According to Lutabingwa et al. (2006:75), traditional authority structures consist of an lnkosi 
(chief) or lsiphakanyiswa (the selected one) of the area, and a number of councillors (lnduna 
or headmen). The number of headmen depends on the size of an area or the number of 
villages under the leadership of the traditional council. Lutabingwa et al. (2006:75) further 
explains the traditional community as a community which resides in an area as a clan that 
shares common (communal) space. The composition of the houses of traditional leaders 
comprises the traditional leaders of a specific region or province and the chairperson is 
elected to serve for a period of time. 
Lutz and Linder (2004:4) indicate that the role of a traditional structure in local development 
is to regulate village life, as traditional leaders also play the role of administering the social 
affairs of the communities. The structure of traditional leaders can be integrated with the 
modern structure of local government which is given the important role of redressing the 
previous imbalances on spatial planning. The municipal functions include redistribution of 
land and integration of communities as well as regulating the use of land, whereas traditional 
structures are not capacitated to execute the finer details of spatial planning and land use 
management. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
17 
2.2.3 Background of traditional leadership 
2.2.3.1 Pre-colonial 
During the pre-colonial era, the institutions of traditional leadership were regarded as political 
and administrative centres of governance for traditional communities and also as custodians 
of the values of society (Rugege, 2009: 172). Tlhoaele (2012:30) adds that traditional 
leadership was vital during the pre-colonial times, as traditional leadership was the prevailing 
governance system and had the responsibility to administer all the needs of African 
communities. 
According to Ntimane (2000:48), traditional leaders during the pre-colonial period emerged 
from within communities by way of recognition of their leadership abilities and qualities (for 
example bravery, eloquence and greater problem-solving skills). She maintains that 
leadership was not imposed on the people, but rather based on the will of the followers to 
ordain and obey a leader. She further indicated that leaders during the tribal wars emerged 
as warriors that headed war troops. However, Khunou (2008:24) argues that traditional 
authorities were assigned with the powers to enforce compliance to traditional values and 
customs of traditional communities. 
A determination from both arguments is that traditional leaders were symbols of cultural 
values and a pride of belonging to a defined clan, tribal warriors felt empowered when they 
were led by their traditional leaders during wars (Khunou, 2011 :278). A linking statement of 
the two arguments is that traditional leaders were rewarded with leadership because of the 
important role they play in their communities, while the long-term implementation of the 
reward comes with the responsibilities of being a lifetime leader, and the leadership role 
remains within the same family for decades and is now inherited by later generations. 
Dating back to the pre-colonial era, traditional authorities used to look after the welfare of 
their communities by providing permission to communities to use land and natural resources 
in a communal manner. Most commonly land was offered for subsistence farming, which 
included agriculture and grazing; part of the welfare also included maintaining law and order 
under customarily law (Bikam & Chakwizira, 2014:145). Traditional leadership was an 
essential governance establishment, which guided the community through various aspects 
of life, ranging from social and cultural to political practices (Rugege, 2009:174). 
Mark Butler believes that during the early ages before colonialism, chieftaincy was referred 
to as a controll ing power conferred on a traditional leader by the traditional elders, which was 
seen as a dynamic outcome of social processes at a local level. He adds that chiefs were 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
18 
looked upon as a guarantee of tribal harmony and a key role player in bringing cultural , 
social and economic stability through resolving conflicts and ensuring land use rights to their 
communities (Butler, 2002:6) 
2.2.3.2 Colonial-apartheid era 
The introduction of the Union Government in South Africa during 1910 showed a strong 
recognition of traditional leadership in rural areas of South Africa which were dominated by 
the black population (Figure 1.1) . During this time traditional leaders were used as agents of 
the colonial government to promote the objectives and aims of the colonial and apartheid 
regimes through apartheid legislation such as the Natives Land Act, Act 27 of 1913, Bantu 
Administration Act, Act 38 of 1927, Bantu Authorities Act. Act 68 of 1951 , and the 
Development Trust and Land Act, Act 18 of 1936 (Khunou, 2011 :279). Some areas of rural 
South Africa were designated as 'native reserves areas'. People were grouped according to 
tribes and the boundaries of these tribes were the homelands, proclaimed in terms of the 
Bantu Administration Act, Act 38 of 1927 (Khunou, 2011 :279). 
The old South African Department of Native Affairs accepted that chiefs and tribal authorities 
were custodians of land within their areas of jurisdiction and had an important role in 
administering traditional land tenure systems. The regulations which were issued under the 
Native Land Act, Act 27 of 1913, which prescribed a list of duties that were assigned to 
recognised chiefs and headmen to ensure control over rural black populations. The list of 
duties included tribal land administration (Ntsebeza, 2005:8). 
Traditional leaders were assigned the responsibility to allocate land to their subjects for 
agricultural and residential purposes within the tribal land they controlled. The chiefs and 
their traditional authorities had the final say, not only in terms of occupation of the land, but 
also what the land could be used for, thereby implementing their own land use management 
system and land development controls. This system was not documented, but was based on 
indigenous knowledge (Alcock & Hornby, 2004:13; Lahiff, 2000:49, 63). 
2.2.3.3 Democratic South Africa 
The drastic change of governance in South Africa from apartheid to democracy required the 
complete re-drafting of a new constitution for the country. The Constitution of the Republic of 
South Africa, Act 108 of 1996, is the supreme law of the Republic as stated in the preamble 
of the Constitution (SA, 1996: 13). Therefore any laws or practices that are inconsistent with 
the Constitution are not valid. The Constitution plays a mediating role between the past 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
19 
colonial era and the present democratic era in the case of traditional authorities (De Jongh, 
2006:9). 
Chapter 12, section 211 (1) of the Constitution (SA, 1996) recognises the institution of 
traditional authority. It further recognises existing customarily laws; however, a proviso in this 
provision is that recognition of traditional leaders must abide by the constitution. This means 
that past practices by traditional authorities which are in conflict with the Constitution 
become invalid. The constitution does not explicitly state the role of traditional authorities in 
the new South Africa; however, it allows for further determinations by spheres of 
Government (Knoetze, 2014:166; Constitution, SA, 1996: Section 212). 
2.2.4 The role of traditional leadership on land matters 
According to the White Paper on Local Government as in Khunou (2011 :282), traditional 
leaderships have roles and responsibilities in developing their local communities, which 
include recommendations in land allocations, resolving of land disputes, engaging 
stakeholders for development in their areas and community participation in development 
matters. According to Knoetze (2014: 163), the South African government acknowledges that 
traditional leadership is in a good position to be given the roles of managing land 
administration, agriculture, arts and culture, tourism and management of natural resources. 
De Jongh (2006:9) argues that there is no reason to perceive that African customs and 
traditional leadership conflicts with the modern and innovative governance or institutional 
arrangements which combine the natural capacity of both traditional and elected 
governance. He further explains that the functions of traditional leaders are provided in 
customary law and that National and provincial government may, through legislation, or 
other measures provide roles and responsibilities of traditional leaders in respect of, but not 
limited to, arts and culture, land administration, agriculture and welfare of the traditional 
community (De Jongh, 2006:9-12). 
2.3 THE RELATIONSHIP BETWEEN TRADITIONAL LEADERSHIP 
AND LOCAL GOVERNMENT 
2.3.1 Introduction 
This section examines the different views on the relationship between traditional leadership 
and local government from existing literature. The first part of this section identifies areas of 
conflicts between the two authorities; the second part attests to a working relationship 
between traditional leadership and local government. The participants of shaping the 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
20 
democratic South Africa believed that institutions of traditional leadership would disappear 
as the old apartheid government ends, and that it will not survive the requirements of 
democracy, as it is associated with colonial segregations in terms of dividing South Africans 
into tribal groups as well as dictatorship which include imposing of leadership in a form of 
hereditary status (Beall & Ngonyama, 2009:4). 
2.3.2 Areas of conflict between the two authorities 
The first area of differences between traditional leadership and local government relates to 
the historic background, where traditional leaders were colluding with segregation policies 
and South Africans were denied their citizenship, but were placed under an ethnically 
defined administration based on tribal authority (Beall & Ngonyama, 2009:8). Local 
government, on the other hand, is based on new democratic values, where establishment of 
local government was aimed at integrating communities through integrated development 
planning processes which is based on collective decision by stakeholders (Kurahashi, 
2012:1). 
According to Knoetze (2012:161), municipalities are complaining about uncoordinated 
implementation of social programmes by traditional councils without the involvement of local 
government, which creates fragmented and unserviceable settlements. Traditional 
authorities, on the other hand, complain about municipalities limiting their powers which they 
had from the previous era, which includes among others the administration and development 
of their areas and their traditional communities 
The SPLUMA (SA, 2013) creates a spatial planning system that integrates land use 
management in the local sphere of government, which will provide implementation 
mechanisms for spatial plans and policies, including land use schemes and tribunals, while 
traditional authorities believe that land allocation is their rights and they see the 
implementation of the SPLUMA and the implementation tools such as land use schemes, 
municipal planning tribunals as mechanism to dispose their powers (Nel, 2015:2). Traditional 
leaders criticise local government that in terms of land use planning they are not fully 
involved and that they are only considered as participants during public participation and 
engagements; local government argues that the problem with traditional leaders is that they 
demarcate stands to their residents under their area of jurisdiction without consulting their 
local government (Bikam & Chakwizira, 2014:144). 
Orange (1995:35) indicates that land uses systems in rural area is characterised with mix 
and uncoordinated land uses, which does not consider the effect of conflicting land uses 
such as cattle kraals and pig, goat and chicken shelters with in a residential rural village. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
21 
Most of these land uses are within homesteads; in some instances, they are attached to 
customary practices. Local government is mandated by the Constitution to be responsible for 
planning areas within their jurisdiction, which is regulated by laws and include efficient use of 
land and ensuring environmental sustainability to prevent conflict among different land uses 
(Bikam & Chakwizira, 2014:144). 
Phage and Netswera (2011: 1032) indicate that there are many instances where local 
government councillors and traditional leaders side-line each other, particularly whenever 
they engage communities. Local government is assigned by law to involve communities in 
developmental matters of a municipal ity (MSA, SA, 2000, Sec 16), while traditional leaders 
may give support to municipalities to community development matters (Knoetze, 2014:169). 
2.3.3 Instances of collaborative relationship 
Traditional leadership institutions are considered to play an integral part in achieving 
development objectives. According to Knoetze (2014: 161 ), traditional authorities are 
recognised to undertake duties in a cooperative governance manner with local governance. 
He added that traditional leaders can play an important role in f ighting poverty by promoting 
rural development in rural communities. This includes management of rural resources, arts 
and culture which can promote tourism, land administration, agriculture as well as health and 
welfare (Knoetze, 2014:161-162). 
According to George and Binza (2011 :955), in terms of Section 11 of the National House of 
Traditional Leaders Act, Act 22 of 2009, traditional leaders must be consulted on how 
development programmes affect their traditional communities. In addition, traditional 
authorities must support local government in implementing developmental programmes in a 
cooperative governance manner. Phage and Netswera (2011: 1031) indicate that traditional 
leaders interested in working with ward committees, suggested that traditional councils must 
be represented in ward committees and that municipal councillors must attend to meetings 
that are called by traditional leaders. 
According to Phago and Netswera (2011: 1031 ), the Constitution indicates that there should 
be cooperative governance between all spheres of government and traditional leaders, that 
the IDP process which is implemented by local government, should not be a parallel process 
between the executing of duties by traditional leaders in terms of the customary laws and 
their programmes of community development, but the IDP, which incorporates community 
development programmes, should be implemented by both authorities. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
22 
2.4 POLICY REVIEW ON TRADITIONAL LEADERSHIP AND 
MUNICIPALITIES 
This section outlines the legal status associated with the involvement and recognition of 
traditional leaders on land administration matters in the South African context. The hierarchy 
of legislative frameworks discussed below seeks to explore efforts by Government to 
incorporate traditional leadership in the governance structures and also to analyse their roles 
with respect to land use management as contained in various policies and legislative 
instruments. 
2.4.1 The Constitution of the Republic of South Africa, Act 108 of 1996 
The Constitution ( 1996, Section 212) empowers national and provincial departments to 
develop legislation which will provide for the roles and responsibilities of traditional 
leadership at a local level in relation to customary law and the provision of the Constitution. 
The national and provincial legislation as listed hereunder will further unpack the 
involvement of traditional leadership in municipal planning systems (Knoetze, 2014:168). 
2.4.2 Traditional Leadership and Governance Framework Act, Act 41of2003 
The TLGFA prescribes that there should be partnerships between municipalities and 
traditional councils which must be based on the principles of mutual respect and recognition 
of the status and roles of the respective parties and be guided by principles of cooperative 
governance. The recognition of traditional leadership by legislation indicates that the 
institution of traditional leadership is recognised by theCilptt"Sttftfiar&nJ!Y/HB~~J,fc}'~~1Wg UV 
(Lutabingwa, et al., 2006:74). Alpt. Urbo~_?n, ci_ ~:91ona1 "lcnnlnn t· 
~bw .·.,,!,  · ~ ....' ·--.'· '·  v- .,:.... 9 ~ 
Blcemfont~i rt. 
Functions of traditional leaders are outlined in terms of Section 4(1) c:Jt:-tha TLGFA (SA, 
'*....,> .... · ~ -
2003), which place municipalities at the forefront of service delivery and land matters; it 
encourages traditional councils to support municipalities on all development initiatives within 
the traditional communities (Meer & Campbell , 2007:5). 
2.4.3 The White Paper on Spatial Planning and Land Use Management, 2001 
The White Paper on Spatial Planning and Land Use Management (RSA Ministry of 
Agriculture and Land Affairs, 2001) was introduced to facilitate and align spatial planning, 
land use and environmental support to promote sustainable and integrated development. 
The White Paper was an early attempt during the introduction of democracy in South Africa 
to give guidance in terms of preparing and administering developmental orientated plans, 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
23 
which include SDFs, IDPs, land use schemes, by-laws and guidelines (Bikam & Chakwizira, 
2014:144). 
The introduction of the White Paper came with the outline of planning principles. These 
include the principle of spatial equity which seeks to redress unequal protection and benefit 
of land use management and the principle of integration where diverse elements in 
development planning are brought together to function in a harmonious and coordinated 
manner. However, the White Paper has no indication of how to deal with non-formal rural 
areas which can also include areas of traditional authorities (Marian, 2012: 169). 
2.4.4 Local Government: Municipal Systems Act, Act 32 of 2000 
Municipalities are created through Section 151 of the Constitution, as the local sphere of 
Government that needs to be established for the entire territory of the RSA, which implies 
'wall-to-wall' municipal boundaries. Section 151(2) empowers municipalities as legislative 
authorities. Sections 153 and 154 of the Constitution allow provincial government to support 
municipalities legislatively. These provisions were further developed in the MSA (SA, 2000). 
Chapter 4 of the MSA (SA, 2000) makes general provision for community participation in 
municipal matters, and Chapter 5 of the Act provides for IDPs; the municipal SDF is listed as 
a component of the IDP. The SDF must make provision for land use management of 
municipalities. Traditional communities and their leaders, therefore, have the right to 
participate in proceedings relating to municipal SDFs and municipal land use management 
systems (Kurahashi, 2012:16). 
2.4.5 Local Government: Municipal Structures Act, Act 117 of 1998 
Section 81 of the Municipal Structures Act (SA, 1998a:32) provides for the participation of 
traditional leadership in municipal council proceedings, subject to the identification of these 
leaders by the MEC for local government in that Province. However, the number of 
traditional council members may not exceed twenty percent of the total number of 
councillors. Where the municipal councillors are less than ten in number, only one traditional 
leader may participate (Section 81 (2)(b)). Nevertheless: the legislation does not provide any 
criteria to select the traditional authorities that may attend the council meetings. 
The legislation also provides for the MEC of Local Government to regulate participation of 
traditional leaders in municipal council proceedings by notice in the Provincial Gazette. 
Subsection (4) of the Act further indicates that the MEC of Local Government shall prescribe 
the role of traditional leaders in the affairs of the municipality. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
24 
The Act allows traditional leadership to express their views on matters that affect 
communities under their area of jurisdiction; yet, this provision of the legislation is in 
contradiction with the limited number of traditional leadership members allowed in a council 
sitting, and one traditional leader cannot represent another traditional leader's interests 
(Bikam & Chakwizira, 2014:144). 
2.4.6 Spatial Planning and Land Use Management Act, Act 16 of 2013 
This legislation provides a framework for spatial planning and land use management in the 
RSA, including the notion of an integrated spatial planning and land use management 
system and the implementation tools of land development planning, such as land use 
schemes and SDFs. 
The SPLUMA seeks an inclusive, developmental, equitable and efficient spatial planning 
system at the different spheres of government to provide a framework for policies, principles, 
norms and standards to guide spatial development planning and land use management. It 
also proposes a framework for the monitoring, coordination and review of the spatial 
planning and land use management system (Nel, 2015:2). 
The legislation requires planning to address the past spatial regulatory imbalances and to 
promote greater consistency and uniformity in the application procedures and decision-
making by authorities responsible for land use decisions and development applications 
through the establishment of Municipal Planning Tribunals; traditional leadership views the 
introduction of wall-to-wall schemes as a mechanism to give more powers to municipalities 
and disempowerment of traditional leadership on matters of land administration (Nel, 
2015:3). 
2.4.7 Regulations in terms of the Spatial Planning and Land Use Management 
Act, 2015 
Regulation 19(1) of the SPLUMA Regulations (SA, 2015) indicates that traditional councils 
may sign a Service Level Agreement (SLA) with the Municipality under which the traditional 
council is located. This SLA should satisfy both parties and clearly identify and separate 
areas of responsibilities. In concluding the SLA, the Regulations stipulate that traditional 
councils are not permitted to make a land use management decision. In an event where a 
traditional council does not conclude an SLA with the Municipality, subsection (2) of 
Regulation 19 indicates that the traditional council is responsible to provide proof of 
allocating land to the applicant of a land use or development application in terms of the 
applicable law including customary law. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
25 
2.5 CONCEPTS AND THEORY OF LAND PLANNING 
2.5.1 Introduction 
This section of the literature review deals with the history of planning, the theory of planning 
as well as the different concepts. This section defines planning, explains the background of 
planning and provides suggestions in critical areas of improvement and enhancement of 
planning for sustainable and desirable living condition. 
Harrison and Williamson (2001 :240) define planning as a formal process of directing and 
influencing development within urban and rural areas as opposed to the uniformed process 
of allowing unplanned and undesirable development. They view planning as an improved 
method of guiding development to be in order. 
2.5.2 History of planning 
The history of planning has emerged in correlation to past historic events such as religion, 
economic revolution and wars. Europe and North America set the scene of the history of 
planning. According to Oranje (2014:2), the history of planning dates back to the late 
nineteenth century in Europe and North America with the rapid rising of modernism, the 
phenomenon related to religious fulfilment which relates to wellness of communities and the 
second return of Christ. 
Taylor (1999:16) explained that after the Second World War town planning theories took the 
lead in providing the conceptual design of development. During the early days, town 
planning was assumed to be carried out by architects because there was a linkage between 
the setup of buildings; however, the difference emerged when planning presented a 
paradigm shift. Taylor (1999: 16) further indicated that there are four significant paradigm 
shifts in planning: firstly, the physical appearance of a town that enhances the activities of 
the town; secondly, planners were just focusing predominantly on the well-being of the town, 
but as time goes by they also considered social and economic activity of the town. Thirdly, 
planners began to see a town as a live and functional space instead of an outcome of a rigid 
plan; and fourthly, the changes in planning which came with the skills and techniques 
provided scientific shift in planning to provide an efficient method of planning analysis. In 
general, the shift in planning indicated the move of planning from being a rigid process of 
dealing with development controls to a scientific and dynamic process which assists with 
decision-making and taking into consideration planning related aspects such as 
environmental management (Taylor, 1999: 16). 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
26 
The history of planning in South Africa also followed the same trend as with other countries. 
The discovery of goldfields in the Witwatersrand after the Anglo-Boer War which damaged 
the agricultural sector, as well as a series of draughts, compelled people to move closer to 
areas of job opportunities. This resulted in a demand for housing and accommodation that 
created an opportunity for investors and necessitated authorities to develop laws and 
statutory bodies to deal with township development (Mabin & Smit, 1997:194). 
According to Todes (2012:158-159) the history of planning entails the adoption of a master 
plan from the Western world for land use development and control. Despite the good 
intension of the master plans, it was criticised of being rigid , inflexible and unable to 
accommodate change. Master plans were introduced to the African context, but the plans 
did not consider the existence of non-formalised settlements and in general, the master plan 
lacks sufficient details to deal with land use management. 
Mabin and Smith (1997:197) indicate that the First World War that began in 1914 and lasted 
until 1918, resulted in putting pressure to South Africa towns in order to come up with a new 
approach in terms of the migration to towns, which resulted into shortage of housing and the 
increase in slums. To fight the burgeoning of slums, planning was brought in as a solution to 
guide development which included planning of both residential and industrial sites. 
Watson (2009: 179) indicates that planning has transformed since the introduction of 
democracy in South Africa from being a blue print to an inclusive planning, which is termed 
the integrated development planning that takes into consideration all stakeholders within the 
planning area and includes public sectors to participate and play a role in the planning 
process. 
Ugarte (2014:404) argues that the domination of Colonial power in administrations and 
institutions incorporated indigenous culture, but the indigenous culture was subordinated, 
then suggested that planning can support indigenous development, by engaging indigenous 
communities in a democratic way of governance. 
Ray (2001: 65-66) argues that westernisation is a change in discourse, meaning that 
colonisation meant that African culture had to make way for the western way of doing things. 
African culture had been dominated by colonisation; therefore, the new culture that emerged 
is embraced and called post-colonial. He adds that westernisation involves the change in 
mind-set, the truth and power relations: African kings were reduced to chiefs; as a result, 
there is a struggle and competition of political power between traditional authorities and the 
state. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
27 
Sandercock (2003:319) suggests that planning must consider cultural diversity in order to 
deal with problems relating to intercultural co-existence, to manage different ways that are 
transformative as compared to repressive. She adds that by considering cultural diversity, 
planning can support the development of a multiculturalism framework. She further suggests 
that understanding local differences in neighbourhoods or municipalities is important in 
analysing and solving conflicts. 
Sirayi (2008:335) suggests that cultural planning can contribute to planning tools and can 
support the way humans operate by considering cultural identity, creativity and globalisation 
of culture. He adds that cultural planning is an engine for community development and that 
cultural planning should be known as a process that recognises important values of citizens, 
such as community relationships, shared memories, experiences, identity, history and sense 
of place. 
Lane (2006:386) suggests that planning processes must recognise the struggle of 
indigenous people to have their rights and interests on land and natural resources 
recognised. European planning has the tendency of marginalising an indigenous perspective 
of planning, as well as the indigenous ability to make decisions on land development 
prospects. 
Watson (2009:161) argues that planning from the past through the 1990s was carried out on 
an area-specific approach, which never took into consideration subsidiary factors of the 
planning area. This includes issues of sustainable development, subsequently environmental 
management and planning which are still dealt with as separate issues. Watson (2009: 162) 
views planning as a tool which must promote sustainable development through incorporating 
environmental management plans. 
Harris (n.d. :30) introduces collaborative planning and he identifies it as two interrelated 
distinct bodies of theory which provide a model of practice. The distinct bodies are the 
communicative planning theory and the omission or theoretical blind spots, which are 
sometimes called the dark side of planning. He further explained that communicative 
planning is more on engaging the relevant stakeholders; collaborative planning goes further 
and considers approaches to counter the unintended effects of planning, which are also 
viewed as the blind sports or the dark sides of planning . 
2.5.3 Theory of planning 
Allmendinger (2009:109) advocates for liberalism, a theory of planning that ranges on a 
number of ideas, but in this argument it relates to markets. This type of planning theory is 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
28 
based on market forces, individuals ' ideas and the state planners may try to direct and 
control developmental issues; however, in most cases markets dictates where to direct a 
particular type of development. 
Harrison (2014:67) argues that planning is a social exercise that informs theory in a complex 
way that improves decision-making and subsequently capacitates planners. The observed 
relationship between theory and practice is that theory is not proactive; instead it shows 
uncertainty in social , political and administration processes, while practice plays a more 
proactive role for planning by providing guidelines for planning research that will empower 
planners with direct answers to make practical decisions. 
Lord (2014:27) argues that planning theory has at various times been inefficient and 
described to be confusing including the explanation of properties and a theoretical enquiry, 
the uncertainty about the value of planning theory culminates from the assumption of theory 
practice gap. Planning theory has also been criticised as being confusing and impractical. 
Allmendinger (2009: 172) argues that modernity in planning is not only about the places 
where people live and work in modern cities, but is also about the way planners and other 
role players in the planning field think about places and spaces, as well as the way in which 
planners think about unifying concepts under one plan. He argues that the world has 
become diverse in terms of the social , political and cultural level; therefore, planning and 
planning theories must begin to guide the merging of the diversities into one plan. He adds 
that the gap between theory and practice is growing and becoming more complex, and 
therefore there is a need to try and make each planning concept to contribute towards the 
success of the other planning concept, when concluding about modernity planning theory, 
He indicated that modernity planning theory and practice need to move towards a new 
paradigm called postmodern which is a reformed modernity theory (Allmendinger, 
2009:172). 
The approach to postmodern theory is termed collaborative planning which is based on 
making sense to develop a plan that will deal with the dynamics of the future and the 
increase of complex societies, to also establish ways and means of reach ing an agreement 
between planners, society and politics, then the participation planning process becomes 
valuable and sensible. Allmendinger (2009:197) adds that for planners to work with disparate 
and diverse communities in order to reach an agreement, they need to develop a plan. An 
approach which has gained a theoretical popularity, which is communicative and 
collaborative planning. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
29 
In concluding on the arguments of history of planning and planning theorists, is that planning 
moves with time to find its relevancy in the modern world. In previous eras planning was a 
blueprint (one way from top to bottom) and untouchable, but as time went by the approach in 
planning became more evolving and shifted from the top-down to the bottom-up approach, 
with more integrated approach which made the outcome of planning to find its relevancy to 
space and to inhabitants. The system of traditional leadership may be viewed as an ancient 
method of governing people and land development, but it has th··e- potential of evolying with .... ... .... ,.. .. -~-- - ·--.... -·-~-·~ "' 
time and finds its relevancy in the modern ways of livelfno6cf ..- - r.."fn .. 'lc"'- ""? nn' 
~o ~V@$io 00 .... vtn. ' t-'' 
·~·~ . ftlJl'r.. •· 
2.6 CONCLUSION 
The literature review chapter provides secondary information from various dimensions which 
closely relates to the research topic, in order to provide views and find ings observed by the 
previous writers. These findings are yardsticks where answers of the research questions can 
be concluded; however, still need to be harmonised with the primary data collected and 
analysed during the engagements with the targeted group as per the topic of the research. In 
this case it will be traditional leaders and municipalities. 
Traditional leaders have a long history in South Africa, which dates back to the era before 
the colonialism era up to the current democratic dispensation. Along the way from the old 
dark days of wars to the current moments where human beings are treated with respected 
and dignity, there were many cultural practices, legislation and governance that influenced 
and shaped the actions and responsibilities of traditional leadership. 
The inauguration of a democratic government introduced new democratic laws that gave 
birth to the local government system, where points of conflicts were noted between local 
government and traditional councils. Local government were given a jurisdiction that 
encompasses areas of traditional authorities and empowers them to administer land matters 
and integrate disjointed South African communities. This empowerment of local government 
created a situation where responsibilities of demarcating and allocating stands by traditional 
leaders, was no longer in the hands of traditional leaders, who were not using any defined 
method or plan, but were using indigenous experience to subdivide and allocate stands, 
while local government was empowered to use land development tools to guide 
development. 
The history of planning has been revisited in this chapter to verify some correlation or 
lessons that can be leant form the early planning and indigenous and cultural planning. 
Theories of planning also look at prevalence, systems and approaches. The information 
Parlicipation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
30 
unveiled in this chapter partially provides a clue about the research question , as well as to 
provide a scope of accommodating the roles that can be played by traditional leadership and 
a platform of creating a collaborative working relationship between traditional leadership and 
municipal councils . It also presents lessons and experience built through the journey which 
has been travelling in terms of planning and has resulted to the current planning system. The 
chapter also gives an interpretation of planning actions that have been undertaken by 
traditional leadership all along, the extent of merging indigenous practices and the planning 
function that are vested with municipal councils. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
31 
I Chapter 3 METHODOLOGY I 
3.1 INTRODUCTION 
This chapter outlines the methodology used in this study and the theoretical background of 
the research design. According to Leedy and Ormrod (2014:19), a scientific research 
method is when a research process ventures into the insight of the unknown reality of a 
matter and provides an observation. The writers further explain that identifying a problem 
and a question to be answered by the research, leads to identification of sources of 
information. A balanced research is supported by literature and interaction with individuals or 
organisations identified as key sources of information (Leedy & Ormrod, 2014:79). According 
to Maxwell (2008:224), planning to carry out a study requires a selection of a method based 
on the problem identified and stimulates the flow of information to a conclusive outcome. 
According to Leedy and Ormrod (2014:2) research is a systematic process of providing a 
solution to uncertainty by collecting, analysing and interpreting information in order to 
present an understanding where there were inconclusive views. Welman et al. (2008:18-92) 
provide a number of research typologies and scientific research designs. Based on the 
different qualities of the different research methods, the research topic of this report is best 
suited with the qualities of a qualitative methodology. According to Welman (2005:8), a 
qualitative research method seeks to establish a socially constructed nature of reality. In this 
study, the perceptions around participation of traditional leadership in spatial planning and 
land use management is such a reality and has been practiced in different eras and different 
parts of South Africa (see Figure 1.1) . 
3.2 RESEARCH DESIGN 
'l 
A research design is defined by Kumar (2014:122) as·. .a : -road map, which is followed in a 
process of conducting a research, to answer the research question of the study as 
accurately as possible. According to Thyer (1993:94 in Kumar, 2014:122) a research design 
is defined as a blueprint or a plan which outlines how a research study will be conducted to 
its completion. In simple terms, a research design is a projection of events and strategies to 
guide the research process. The design of this research commenced by conceptualisation of 
the research report framework which includes introduction of the research, literature review 
methodology which introduces data and the outcome of the research. The introduction was 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
32 
based on introducing the subject topic and outlines the problem, question and objectives of 
the research. Based on the topic and the questions, resources of information were identified 
as primary sources and secondary sources as well as a method to be used were identified. 
The research design of this report required selection of a method which will unveil the 
historic information about the research topic, observations from different sources which 
include existing literature and data collection in a form of questionnaires from identified 
participants (Welman et al. 2005:188). Primary and secondary information collected through 
surveys and the literature review are compared and analysed to provide a conclusion on a 
research. According to Beverley (1998:12), not all qualitative data requires direct interaction 
with participants; however, where valuable information is readily available, that information 
can be used as secondary data. 
One major component of the research is the collection of primary data from participants as 
identified by the research topic through meetings and interviews; the participants of this 
research report are the traditional leadership and municipalities. An opportunity to venture 
into a collaborative survey team on traditional leadership and municipalities, presented itself 
when the Department of Rural Development and Land Reform (DRDLR) was planning to 
undertake a survey on traditional leadership and their practices on land use management. 
The researcher of this report joined hands with the DRDLR survey team and used the survey 
meetings schedule of the DRDLR to access primary information of the report. 
During the survey process fifty-eight traditional authorities in the Mpumalanga Province were 
successfully interviewed and nine municipal officials who are responsible for planning from 
each of the nine local municipalities that are harbouring traditional councils within their areas 
of jurisdiction were also interviewed (see Figure 1.6 and Table 1.1) . The DR DLR project is a 
feasibility study on land use management and land use practices in areas of traditional 
authorities in the Mpumalanga Province. For the benefit of this research report, the 
information gathered during the survey, which was a joint effort undertaken by the 
researcher and DRDLR, was summarised and grouped into ten key essential responses 
correlating to the research questions, to obtain a viewpoint from the participants. 
3.3 RESEARCH METHODOLOGY 
A research methodology refers to the processes, principles, and procedures by which a 
research problem is approached and answers or solutions sought. A research methodology 
focuses on the research process and the tools, as well as procedures to be carried out 
(Kumar, 2014: 172). Creswell (2003: 18) indicates that strategies and methods culminate to a 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
33 
research approach. The three most used approaches tend to be quantitative, qualitative or a 
mixed approach. Each research topic requires the most suitable methodology which will 
make the progressive flow and interconnection of evidence to lead into a finding. 
The comparison between the two most used methodologies - the qualitative and the 
quantitative methodology- are outlined as follows: 
• A quantitative study requires concepts, variables, hypotheses and method of 
measurement, and these measurements need to be defined before the 
commencement of the study and must remain the same throughout the process. 
Quantitative methods include measuring of variables to define the outcome (Leedy & 
Orm rod, 2010:95). 
• A qualitative research method is more holistic, with a focus to design measurement 
and interpretations of information ranging from primary to secondary sources. A 
qualitative researcher approaches a research with an open mind, prepared to engage 
with the complexity of the situation and interact with the participants without creating 
any expectations. The method leads to classification of data, leading to grouping of 
information, patterns and theories that help to provide views and findings of the main 
subject under study (Leedy & Ormrod, 2010:95). 
A qualitative methodology usually has two common characteristics: Firstly, it focuses on an 
existing reality that emanates from natural settings of things and, secondly, the recognition 
that the investigated issues have many dimensions and layers of information (Leedy & 
Orm rod, 2010:95). 
According to Welman et al. (2005:188), a qualitative research can be described as an 
approach rather than a design. Beverley (19982) indicates that a qualitative research is 
concerned about providing explanations of social phenomena, which help to create and 
understand our surroundings and why things are the way they are. A qualitative 
methodology is concerned with the social aspects of the world around us and it seeks to 
answer questions about the why, what and how. 
Qualitative research encompasses examining the characteristics or qualities that cannot be 
reduced to numerical values. Qualitative research produces descriptive data around the 
participant's beliefs and values that underlie the phenomena. The qualitative researcher is 
concerned about understanding instead of explanation; naturalistic observation as opposed 
to controlled measurement, and the subjective exploration of reality from the perspective of 
an insider as opposed to the outsider perspective (Leedy & Ormrod, 2014:97). 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
34 
Based on the analysis and qualities of a qualitative methodology, the methodology which 
was selected is the qualitative method. The selected methodology assisted in organising and 
identifying key milestones of the research, such as how to structure the research, what 
information and data to gather, how to analyse the information and to conclude the research. 
3.4 DATA COLLECTION 
According to Leedy and Ormrod (2014:153) a qualitative research uses multiple ways and 
means of collecting data; the means of collecting information ranges from observation, 
interviews, objects, written documents, audio and visual information, electronic media and 
any other source of information that can be useful for the research. Preparation of this 
research has considered two main methods of data collection: firstly, collection of primary 
data through surveys and interviews; and secondly, collection of secondary data from written 
documents. 
According to Hancock (1998: 12-13), the process of data collection in a qualitative method 
does not always require a direct interaction with the people. Hancock suggests that a wide 
range of written materials can be used to provide qualitative information. Resources of data 
for this report were identified, accessed and used to provide detail background information 
on the literature review of the research report. Secondly, the primary information sourced 
during the survey conducted on fifty-eight (58) traditional councils of Mpumalanga and nine 
municipalities where the 58 traditional councils are hosted (Table 1.1 ). 
3.4.1 Primary data collection 
The research topic is participation of traditional leadership in spatial planning and land use 
management matters in the Mpumalanga Province. Traditional leaders are the key role 
players in this research report and municipal officials are secondary role players as their role 
is to provide a perspective from the local sphere of governance, because both authorities are 
sharing common interest with the traditional leadership regarding communities and land. 
Therefore, the primary data resource for this report is all the traditional leadership of the 
Mpumalanga Province and the nine municipalities that consist of traditional authorities within 
their boundaries. 
All traditional councils in Mpumalanga were targeted for the engagement session and only 
two out of the 60 were not available, while the rest (58 traditional councillors) were very keen 
to participate, especially when they heard that the DRDLR will be part of the engagement 
session. The enthusiasm to participate in an interview which deals with land matters around 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
35 
their area of jurisdiction shows the willingness of traditional leaders to engage with any 
sphere of government to deal with the challenges and future plans on their areas. 
The nine municipalities in the Province of Mpumalanga which encompasses traditional 
councils within their areas of jurisdiction were engaged and also responded positively to the 
engagements, including honouring the meetings and responded eloquently. In total , the 
combined number of participants from the traditional leaders to the municipal officials is 67 
responses. 
The primary data collection by means of interviews was structured and collected over a 
period of four months. The interval of engagement includes making appointments, 
rescheduling of meetings, as well as scheduling and meeting with municipalities. The series 
of meetings were prepared and attended per traditional authority and per municipality as 
follows: 
3.4.1.1 Municipalities and traditional councils under the Ehlanzeni District 
Municipality 
Nkomazi Municipality: There are eight (8) traditional councils in the Nkomazi Local 
Municipality (Table 1.1) and they are listed as follows: Matsamo, Mhlaba; Siboshwa, 
Lugedlane, Hhoyi, Mlambo; Mawewe and Lomshiyo (shared between Nkomazi and 
Mbombela Municipality). All Interviews organised with traditional councils under the Nkomazi 
Local Municipality were successful. 
Bushbuckridge Municipality: There are ten (10) traditional councils within Bushbuckridge 
Local Municipality and they are listed as follows: Moreipuso; Thabakgolo; Malele; Sethlare; 
Amashangana; Moletele Mnisi; Jongilanga; Hexane and Mathibela. Interviews with 
Bushbuckridge traditional councils were successfully conducted. 
Thaba Chweu Municipality: There are three (3) traditional councils in this municipality and 
they are listed as follows: Mashilane; Mohlala and Mogane. Interviews were successfully 
held with the three traditional councils in Thaba Chweu Local Municipality. 
Mbombela Municipality: There are eight (8) traditional councils in the Mbombela Municipality 
and they are listed as follows: Mpakeni; Msogwaba; Mbuyane; Gutshwa; Mdluli; Masoyi and 
Nkambeni. Consultation meetings were held with all traditional councils except for Gutshwa 
and Mdluli traditional councils. The two traditional councils did not accept the request for 
interviews or avail any members of the traditional council to attend the interviews. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
36 
3.4.1.2 Municipalities and traditional councils under Gert Sibande District 
Chief Albert Luthuli Local Municipality: There are thirteen (13) traditional councils that are 
within the area of jurisdiction of the Chief Albert Luthuli Municipality: Emjindini, Mantjolo, 
Embuleni, Mandlamakhulu, Somcuba-Bhevula, Enkhaba, Ebutsin i, Enikwakuyengwa, Duma, 
Emfumbeni, Madlangampisi, Mpisikazi and Ndlela. Attendance and responses by the 
members of the traditional councils was exceptionally good and the traditional leaders 
(chiefs) of eMjindini, Mantjolo, Somcuba-Bhevula, Duma, Madlangampisi, eMfumbeni and 
Mpisikazi traditional councils participated in the interview process. 
Mkhondo Local Municipality. There are four traditional councils under Mkhondo Local 
Municipality and they are listed as follows: Mahlaphahlapha, Ogenyaneni, Madabukela and 
KwaDwalaza traditional councils and the interviews proceeded well. 
Dr Pixley Kalsaka Seme Municipality: There is only one traditional council in Dr Pixley 
Kalsaka Seme Municipality. The traditional council is known as Lekgoetla Traditional Council 
and the engagements went well. 
Traditional councils in Nkangala District Municipality. 
Thembisile Hani and Dr JS Moroka Municipalities are the only two municipalities in the 
Nkangala District that have incorporated traditional authorities in their areas of jurisdictions 
and these municipal ities were previously under Kwandebele Homeland (Figure 1.5 & 1.6). 
Thembisile Hani Municipality: There are five (5) traditional councils within its area of 
jurisdiction and they are: Manala-Makerana, Manala-Mgibe, Ndzundza-Fene, Ndzundza-
Somphalali and Ndzundza-Mabhoko (Table 1.1 ). 
Dr JS Moroka Municipality: There are nine (9) traditional councils within the area of 
jurisdiction of Dr JS Moroka Municipality and they are listed as follows: Ndzundza-Mabhoko, 
Ndzundza-Mabusa, Ndzundza-Pungutja; Bakgatla ba Seabe, Bakgatla ba Mocheche; 
Bakgatla ba Mmakau; Bakgatla ba Moepi and Barolong ba Lefifi Traditional Councils. 
All interviews which were conducted with the traditional councils; the responses were 
exceptionally good, from the requests when arranging the meetings with members of the 
traditional council (telephonically and hand-submitted letters of requesting meetings) to 
postponement of meetings. Some of the meetings for interviews were attended by the 
traditional leaders (chiefs) and their subjects. 
The second set of consultations was conducted with the nine municipalities, where municipal 
planners and IDP managers were interviewed. All nine municipalities which are listed as: 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
37 
Nkomazi, Bushbuckridge, Thaba Chweu, Mbombela, Chief Albert Luthuli, Mkhondo, Dr 
Pixley Kalsaka Seme, Dr J S Moroka and Thembisile Hani Local Municipalities, were 
represented by one or more officials. 
3.4.2 Secondary data collected 
According to Hancock (1998:13} there is a wide range and variety of information, as well as 
material that can support a qualitative data. The information can be useful in situations 
where background information needs to provide information of the research topic. 
Information can also include policy documents, annual reports, minutes, presentations, 
books, articles, notice boards, mission statements, journals and code of conduct. According 
to Baxter and Jack (2008:554), to accomplish qualitative research has an advantage of 
enormous data base that supports the accuracy of the report and is available for 
independent inspection. 
Data collected as secondary data is detailed in the literature review of this report. The 
information was gathered in relation to the historical background of traditional leadership, 
legislation on traditional leaders, assessment of municipal IDPs, the historic background of 
planning as well as different theories of planning. 
3.5 ANALYSIS OF DATA 
Data collected during the interview processes with traditional councils and municipal ities was 
analysed, compared and assessed to identify areas of correlation and point of collaboration 
between traditional leadership and municipalities. The analysis and interpretation of data 
collected during the survey period provided the in-depth status quo of traditional authorities 
in the Mpumalanga Province with regard to spatial planning and land use management in 
areas under their control , as well as the relationship with municipalities. The analysis from 
the primary source was compared to the secondary information which is broadly outlined in 
the literature review chapter, therefore a comprehensive analysis of the primary and 
secondary data is concluded in Chapter 4. 
3.6 CONCLUSION 
The methodology chapter outlined the conceptual framework of the research process; it 
described the method used to conduct the research which is qualitative. The chapter further 
clarified the qualities of a qualitative research. The chapter also provided an outline for the 
research design which identifies the sources of data used for the research ; the primary and 
the secondary data as well as the method of collecting the information. Traditional leadership 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
38 
and municipalities were identified as participants for the research, to be interviewed during 
the contact sessions and the data sourced from the participants was classified as primary 
data. The secondary data was sourced from documents as written information from different 
sources, to present existing literature on traditional leaders, municipalities, legislations and 
planning. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
39 
Chapter 4 
DATA ANALYSIS 
4.1 INTRODUCTION 
This chapter provides the analytic assessment of information collected during the interviews 
with the traditional councils and municipal officials. The information was gathered by means 
of questionnaires, which were populated during the engagement period with the identified 
participants. The information was grouped, analysed and interpreted into findings. 
The responses from the participants have been grouped into planning areas. The answers 
from different traditional authorities and different municipalities were grouped as one where 
similar, common and comparative answers were received. Where responses to a particular 
question from a traditional council or municipality differed from the general prevailing 
response, the answer is specified as a special case under the name of a specific traditional 
council or municipality. The answers to the questions from the survey are structured to 
provide information on the research and substantiate the literature to fulfil the research 
objectives and provide response to the research questions. 
The main research question is: What role can traditional leadership play in spatial planning 
and land use management without contravening the roles and responsibilities of local 
municipalities? 
The objectives of the research are outlined as follows: 
• To assess the extent of work done by traditional leadership on land development 
matters. 
• To examine the processing of land development applications by traditional leadership 
in relation to municipalities. 
• To establish the extent of involvement of traditional councils in spatial planning and 
land use management. 
• To find common grounds and to facilitate a collaborative working relationship 
between traditional councils and democratically elected municipal councils . 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
40 
4.2 INTERPRETATION OF DATA FROM QUESTIONNAIRES 
Questions from both questionnaires to the traditional council and municipal officials (see 
Appendix A and B) were analysed and synchronised into a group of 10 thematic planning 
areas as follows: 
4.2.1 Traditional authorities' cadastral boundaries and land issues 
The first group of questions in the questionnaire sought responses from traditional leaders 
on their understanding of the extent of their areas of jurisdictions and boundaries. The 
indication was that all traditional councils have an understanding of their boundaries , but do 
not have full control in regulating land uses, especially on properties that are privately 
owned. 
The study established that there are traditional authorities that are recognised by the 
Mpumalanga provincial government that are landless, because land ownership is registered 
in the communities in the form of "community trusts" and communal property associations. 
These traditional leaders indicated that the land trusts and communal property associations 
are not cooperating with them. The traditional authorities where much of the land is privately 
owned are KwaMadabukela; Ogenyaneni and KwaNdwalaza in the Mkhondo Municipality 
and Lekgoetla in Dr Pixley Kalsaka Seme Municipality, as well as Kgarudi traditional 
authority in the Bushbuckridge Municipality. These traditional authorities were previously not 
under the homeland system, except for Kgarudi in Bushbuckridge. 
The study also found that, despite clearly defined traditional boundaries, there are some 
traditional authorities who are in dispute over boundaries of their traditional authority areas. 
In some cases, these disputes and the contestation over boundaries are so severe that it 
generates land invasions which are mostly led by the headmen of these traditional 
authorities. 
The response from municipalities is that uncontrolled and illegal invasion of land have a 
negative impact on service delivery programmes of municipalities. 
4.2.2 Establishment and extending settlements in areas of traditional 
authorities 
All traditional councils indicated that during the previous governments, traditional authorities 
were assisted with the basic planning of their settlements. The actual demarcation of stands 
and the work was done by land surveyors from government and locally trained people from 
traditional authorities. In most cases there were no general plans, but layout plans were 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
41 
produced. The allocation of sites to needy and qualifying families was the sole responsibility 
of the traditional councils through their village headmen. 
The study has also established that traditional authorities are no longer assisted in the basic 
planning of settlements. 
The engagement with municipal officials indicated that the majority of municipalities have no 
capacity and financial means to handle the pressure and demand to assist traditional 
authorities. The high demand for residential stands in traditional authority areas, coupled 
with the lack of support from municipalities, results in traditional authorities being forced to 
demarcate unplanned stands. The demarcations of sites are done by the village headmen 
and each traditional authority has its own standard size. 
4.2.3 Upgrading of land tenure in areas of traditional authorities 
It has been established that land tenure upgrading projects were initiated by municipalities in 
some of the areas under traditional leadership. Although these projects are welcomed and 
accepted by the communities, most traditional councils oppose the upgrading of tenure 
rights in their communities, mainly for fear that they will lose power and control over their 
land and communities. Some areas under the direct control of traditional leadership are 
susceptible to resistance of formalisation because traditional leaders are in fear of losing 
control over their communities (Nel, 2011: 12). 
4.2.4 Land uses and land demand in areas of traditional authorities 
The study has established that the dominant land uses in traditional authorities' areas are for 
homestead, subsistence agriculture and grazing. Furthermore, in all traditional authorities 
the demand for land is mainly for residential purposes, and to a lesser degree, agriculture for 
subsistence farming and grazing. All traditional councils have raised the concern of very 
limited or no more land to cater for the needs of their future generations. Traditional councils 
suggested a number of strategies, and the dominant strategies are: 
• Government or municipalities must take a leading role in the planning and 
establishment of settlements in traditional council 's areas. 
• Conservation of land through proper spatial planning and land use management. 
• Acquiring additional land for traditional authorities from adjacent farms . 
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-.~mfonteJ; 9
-t.• .r. .... .... - ...." . ..... 9.l~ ~ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
42 
4.2.5 Challenges faced by traditional councils 
Challenges that are faced by traditional leadership are associated with land use control and 
management. Due to limited or no power to enforce any corrective or disciplinary measures 
against land use transgressors, most traditional authorities are unable to deal with the 
challenges they face within their areas, such as illegal land invasions and escalation of 
illegal businesses in some traditional council's areas. 
The study has established that traditional councils are unable to combat these challenges of 
land invasion. All the traditional councils interviewed are looking forward to interventions 
from other authorities to assist them in enforcing land use control in their areas. When the 
objectives and merits of a municipal land use scheme were explained to the traditional 
councils they all indicated their willingness to work with their municipalities in developing a 
municipal land use scheme that will also be applied and enforced in their areas. They all see 
themselves playing a critical role in the implementation of a land use scheme. The 
development and enforcement of land use schemes has proven to provide a point of 
engagement between traditional councils and municipalities. The land use schemes create 
an opportunity for municipalities to work together with traditional authorities in developing the 
tool to control land development. The study recommends that municipalities should now start 
consulting and engaging traditional councils in this process. The Bushbuckridge Municipality 
has started the process of engaging their traditional council and the process proved to be 
successful and working traditional councils are attending meetings of the municipality. Other 
municipalities did not have a plan to engage with traditional councillors. 
4.2.6 Land allocation in areas of traditional authorities 
From the information provided by traditional authorities, it was established that traditional 
councils are still responsible for allocating land for various uses in their areas. In general, the 
procedure for allocating land in areas of traditional authorities is similar in all traditional 
councils' areas and it involves the following steps: 
4.2.6.1 Common procedure for acquiring and allocation of residential stands in 
traditional councils 
» The applicant approaches a headman (lnduna) or a village leader seconded by the 
traditional council to look after a village. The headman verifies the availability of land 
where the applicant is interested in acquiring a residential stand. 
» The headman interviews the applicant to determine the need for the application site, 
as well as verification of the background and personal identification of the applicant, 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
43 
to ascertain the relationship of the applicant with the clan , as well as to prioritise, 
approve, disapprove or redirect the applicant to the relevant village. 
)> Once the headman is satisfied with the information given by the applicant, the 
applicant is shown a site, if the applicant is satisfied with the proposed site, then the 
headman and his assistants demarcate the site using the applicable measurements 
in that traditional authority. 
)> Once the site is demarcated, the applicant is taken by the headman to the traditional 
office to pay the necessary fees (khonza fees) [see table 4.1] . 
)> Upon payment of the fees, the applicant is either given a receipt or a receipt with a 
letter referred to as "Permission to Occupy" (PTO) with the applicant's details and 
stand number (see Appendix C for a PTO receipt from three random traditional 
councils of the Mpumalanga Province). 
)> After the issuing of the PTO, the applicant is allowed to occupy the site. Thereafter 
the occupant will pay an annual levy once every year (see Table 4.1 ). 
4.2.6.2 Procedure for applying and allocating business stands 
)> The applicant approaches the headman of the settlement or the village where the 
applicant wants to establish his or her business, and submits a request or an 
application for a business site. The applicant must indicate the site of preference for 
the proposed business. 
)> If the site is still vacant, the headman takes the application to the traditional council 
for consideration and approval of the business site. 
)> Once the traditional council is satisfied with the application and the proposed 
business, the traditional council makes a recommendation to the municipality for final 
approval and issuing of the business licence. 
)> Before approval the municipality must ensure that the proposed business will have 
access to basic services. Once the business site and business application is 
approved by the municipality, the applicant is then allowed to occupy the site by the 
traditional council after paying the applicable "khonza" fees (see Figure 4.1) . 
4.2.6.3 Fees payable to traditional authorities for land allocation 
Table 4.1 is a summary of fees charged by traditional councils for land allocation in their 
areas and the range of minimum and maximum fees charged per stand in traditional councils 
within one municipality: 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
44 
TABLE 4.1: SUMMARY OF FEES CHARGED BY TRADITIONAL COUNCILS FOR LAND ALLOCATION IN THE 
MPUMALANGA PROVINCE GROUPED PER MUNICIPALITY 
Khonza Fees 
Municipality Annual levy 
Residential site Business site 
1. Bushbuckridge From R250 to R750 From R2 500 to R5 000 From R50 to R100 
2. Chief Albert Luthuli From R60 to R550 From R200 to R5 000 From R20 to R50 
3. Dr JS Moroka From R40 to R560 From R1 000 to R2 000 From RO to R20 
4. Mbombela From R180 to R350 From R1 000 to R1 300 From R12 to R25 
5. Nkomazi From R850 to R 1 500 From R2 500 to R5 000 From R50 to R1 50 
6. Thaba Chweu From R250 to R4 500 From R1 500 to R5 000 From R50 to R150 
7. Thembisile Hani From R77 to R850 From R1 200 to R1 700 From R40 to R60 
Source: Research responses from traditional authorities. 
Figure 4.1 below illustrates a diagrammatic representation of the common procedures 
followed by traditional councils to process requests for a residential site. 
APPLICATION FOR RESIDENTIAL 
SITE IN RURAL SETILEMENTS 
APPLICANT FR:JM OUTSIDE Ht: 
APPLICANT STAYING WITHN THE 
SETTtEMENT 
SETTtEMENT 
Ot/TSICE LODGES APPUCAllON WITH THE TllADITlONAL AUTHORITY 
A RESIDENT Of Ht: AREA INFORMS 
THE TFIADfTlONAL COU~IL ABOVT APPLICATION IS LODGED WITH THE----------W/TH/JH~- ----' 
TRADITIONAL AUTHORITY 
KNOWLEDGE Of THE APPLICANT 
t 
PAYS AFl'IUATION FEE THAT IS 
DETERMINED BY CONCE~ED 
TFIADfTIONAL COU~IL 
i 
TRADITIONAL AUTHORITY AUTHORITY 
REOUESTS LETTER OF GOOD A STAND, WITH THE SIZE 
STANDING FR:JM Ht: SETTLEMENT • DETERMINED BY THE TRADmONAL 
WHERE THE APPLICANT COU~IL, IS REGISTERED AND 
PREVKlUSL Y RESIDED ALLOCATED TO THE APPLICANT 
APPLICATION FOR RESIDENTIAL LAND 
APPROVED 
Source: Fourie (201 5:10). 
Figure 4. 1: Common engagement procedures followed by traditional councils to process 
a request for a residential site 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
45 
Figure 4.2 below illustrates a diagrammatic representation of the common procedures 
followed by traditional councils to process requests for a business site. 
APPLICATION FOR BUSINESS IN 
RURAL SETTLEMENTS 
A PPLICANT F~M OOTSICE THE 
APPLICANT STAYING WITHN THE 
SETllEMENT 
SETllEMENT 
LODGES APPLICATION WITH TtE TRADmoNAL AUTHORITY 
Of.ITSDE- -..., 
PAYS AFfRJATION FEE THAT 
IS DETERMINEO BY PAYS AFFILIATION FEE THAT IS DETERMINEO BY 
M- -------WITHl'N- --
CONCEA'lED TRAOmONAL CONCEA'lED TRAomONAL COUNCIL. 
COUNCIL. 
.----ours 
T RAOITIONAL AUTHORfTY THE TRADm ONAL COUNCIL 
REQUESTS LETTER OF GOOD 
STANDING F~M THE 
SETTLEMENT WHERE TIE 
APPUCANTPREVIOUSLY 
RESIDED 
AVTHORllY 
OUTSIDER 
.------W11H 
IF THE COMMLNITY GIVES APPROVAL THEN 
THE APPLICATION IS FORWARDED TO nE HEADMAN IS INSTRUCTED TO 
TRADITIONAL C OJNOL FOR CONSICERATl:JN ----MAKE LAND AVAILABLE TOTI£ 
APPLICANT 
AND APPROVAL 
STAND IS REGISTERED AND 
LAND FOR BUSINESS PURPOSES 
ALLOCATED TO TtE 
APPLICANT APPROVED 
Source: Fourie (2015: 11 ) 
Figure 4.2: Common procedures followed by traditional councils to process a request for a business site 
Through the interviews it was established that all traditional authorities in the Mpumalanga 
Province charge site application fees called a "khonza" or "lotsha" fee, a once-off payment 
paid by an applicant when the traditional authority office allocates land to the applicant for 
residential or business purposes. The application fees are used to run office administration 
of the traditional councils. The stand application fee varies greatly from one traditional 
authority to the other (see Table 4.1 ). 
The study reveals that all traditional councils in Ehlanzeni and Gert Sibande Districts also 
charge an annual tribal levy to each household in their areas of jurisdiction. This is another 
area of raising funds for running a traditional authority office. This amount also varies from 
one traditional authority to the other. The study has found that the majority of traditional 
councils in the Nkangala District do not charge the annual levy. According to traditional 
councils in Nkangala the charging of the annual fees was revoked by the fo rmer homeland 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
46 
governments and the decision to cancel the annual fee levy came from the general 
understanding that the majority of households in that region are no longer paying this levy. 
4.2.7 Improving the level of communication between traditional councils and 
municipalities 
The study has found contradicting responses from traditional councils and municipal officials 
on the level of communication and engagements. Traditional councils indicated that they are 
not involved by municipalities when projects are planned and implemented in the areas of 
traditional authorities. 
Municipal officials indicated that traditional councils are consulted when projects are planned 
and implemented in the areas of traditional authorities. However, the study reveals that the 
level of consultation was mostly not at the project planning stage, but generally in the 
implementation stage. 
Most municipalities relied on ward councillors and ward committees to perform the 
consultation at the traditional council level. The study has found that although some ward 
councillors perform this function excellently and improve their working relationship with their 
traditional councils , there are some who are still struggling to bui ld a good working 
relationship. The study has revealed that the ward committee system does not incorporate 
members of the traditional council. 
4.2.8 Understanding of traditional councils about the constitutional and 
legislative mandate of municipalities on spatial planning, land use and 
land development 
The study reveals that traditional councils are not capitated on legislation that regulate 
spatial planning land use management. However, they have indicated their willingness to 
cooperate with the municipalities in all the processes of formulating and implementation of 
these policies. Their cooperation is dependent on the willingness of the municipalities to 
engage with them, with no hidden agendas or taking over their powers on their land. 
Traditional leadership believes that they are capable of playing a key role in the development 
and implementation of such policies because of their vast experience and knowledge of their 
areas and that they are still respected by their communities. 
The study has established that the willingness to cooperate with th is legislative mandate of 
municipalities is based on the fact that almost all traditional authorities in the Mpumalanga 
Province are faced with serious challenges with regard to unlawful occupation and use of 
land in their areas. Most of the traditional authorities are struggling to manage land uses in 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
47 
their areas. Currently they do not have any policy to guide them in dealing with land 
management issues. In addition, there is no visible assistance that they receive from the 
national and provincial governments with regard to the aforementioned challenges. 
From the interviews conducted with the traditional leaders it transpired that traditional 
councils are eager and willing to work with municipalities on spatial planning matters (which 
provide a future guide in terms of development), as well as land use management (which 
controls development in an area). To promote cooperation between traditional authorities 
and municipalities, the study suggests that national, provincial government as well as the 
South African Local Government Association (SALGA) must play an important role in 
facilitating the mutual relationship of the two houses of authority. 
Section 5 of the TLGFA (SA, 2003), stipulates that both national and provincial governments 
must promote partnerships between municipalities and traditional councils through legislative 
or other measures, as confirmed by all the traditional councils interviewed. The Act further 
stipulates that any partnership between a municipality and a traditional council : 
• must be based on the principles of mutual respect and recognition of the status and 
roles of the respective parties; and 
• must be guided by the principles of cooperative governance (SA, 2003, Section 5). 
4.2.9 The level of consultation and engagement of traditional authorities in the 
compilation of municipal Integrated Development Plans 
The study has established that traditional councils would like to see projects implemented in 
infrastructure development in their areas, as they were the main facilitators of development 
in their areas during the old government system of homelands. The IDP municipal 
consultation process does not sufficiently take the traditional councils on board. As 
confirmed by the municipal officials, most municipalities only consult traditional leaders at the 
IDP Stakeholder Representative Forums when the IDP process is about to be finalised; 
therefore, traditional leaders are unable to engage meaningfully. In the rural areas of 
Qwaqwa, Duma (2015:53) made a finding about IDPs and traditional leaders, and confirmed 
that traditional leaders in Qwaqwa are complaining about the IDP process, where their 
involvement is at the stakeholder level where the process is about to be finalised, while 
traditional leaders would like to be part of the IDP process from the beginning. Sekontela 
(2014:74) made a finding about IDPs in rural areas that the IDP focuses more in detail in 
urban areas as compared to rural areas. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
48 
Most traditional councils interviewed expressed dissatisfaction about the process of 
preparing IDPs as they feel that they are not given enough time to deliberate on the 
developmental challenges in their areas. In a proposal to address the dissatisfaction, the 
traditional authorities recommended that municipalities must consult and engage traditional 
leaders on an individual basis. This proposal will provide sufficient time to traditional leaders 
to familiarise with the process and contribute profoundly. 
Most of the traditional councils prefer that after the municipality has met with the community 
to prioritise projects, municipalities must then meet with the traditional council to also get 
their inputs. They further indicated that they also prefer to appear in front of the communities 
during the IDP consultation process, standing next to the municipal representatives to 
demonstrate that they are working together with municipalities. 
4.2.1 O The level of consultation and engagement of traditional councils during 
the compilation and implementation of municipal policies on spatial 
planning, land development and land use schemes. 
Most of the municipalities have not engaged their traditional councils during the compilation 
of their municipal SDFs. Where municipalities claimed to have consulted and engaged their 
traditional councils, it was indicated that the consultation was conducted at a stakeholders' 
forum only, where, according to the traditional council , the engagement was insufficient. 
The study has established that most municipalities in Mpumalanga have some form of a 
draft land use scheme. These are currently only in a draft format as most of the schemes 
were developed before the promulgation of the SPLUMA and therefore need to align to 
SPLUMA and the relevant Municipal By-law on spatial planning and land use management. 
Most of the municipalities that host traditional councils within their area of jurisdiction have 
acknowledged that in the event of preparing their land use scheme they have not yet 
consulted with their traditional councils . Of the nine municipalities that host traditional 
councils, only Bushbuckridge indicated that they consulted their traditional councils (the 
names of traditional councils under the Bushbuckridge Municipality are specified in Table 
1.1) . 
During the interviews, the Bushbuckridge municipal officials indicated that they are currently 
reviewing their draft land use scheme and have incorporated a programme to consulting and 
build capacity to individual traditional councils within their area of jurisdiction. 
= Streekbep1onn1ng UV t. Stodns a- ned n nlliP UtbO ,.,.-.:.,., ..,.• . .i n·nol ?ta nnlno t 1 • • fOS b US·1.I "•' .·' ) · "'•O X 339 ~\ooml onte\n 
9"\ ' \0 
Participation of traditional leadership on spatial planning and land use.management in the Mpumalanga Province 
49 
4.3 ANALYSIS OF MUNICIPAL INTEGRATED DEVELOPMENT 
PLANS IN RELATION TO TRADITIONAL LEADERSHIP 
The post-apartheid era and the introduction of democracy in South Africa came with the 
introduction of statutory change in order to affirm democracy, the establishment of local 
government and the recognition of traditional leaders by the Constitution was also in line with 
the development of functional local government (Khunou, 2011: 281). Local government's 
functions are stated in the Constitution (SA, 1996), which includes land development 
planning of areas under their jurisdiction and roles to be played by traditional leadership in 
relation to the municipal function of land administration (George & Binza, 2011 :955). 
The fragmented planning system inherited by the democratic South Africa required a new 
approach in terms of redressing the past (Nel, 2015:2), the introduction of new legislation 
which seeks to integrate and involve communities in the governance, that change 
government planning from being imposed in a top-down approach and allow communities to 
be involved in development of their areas. The introduction of IDPs through the MSA (SA, 
2000); SDFs and land use schemes through the SPLUMA (SA, 2013). 
The government planned to incorporate traditional authorities to be part of the 
developmental local government. Most importantly in rural areas, the MSA (SA, 1998a) 
confirms the involvement of traditional councils to local governance and that they should be 
consulted in development planning at local level (Beall et al., 2004:465). 
There are nine municipalities in Mpumalanga that have incorporated traditional authorities 
(see Table 1.1) , namely: 
• Mbombela Local Municipality with eight traditional councils . 
• Nkomazi Local Municipality with eight traditional councils. 
• Bushbuckridge Local Municipality with ten traditional councils. 
• Thembisile Hani Local Municipality with five traditional councils. 
• Dr JS Moroka Local Municipality with nine traditional councils. 
• Mkhondo Local Municipality with four traditional councils. 
• Dr Pixley Kalsaka Seme Local Municipality with one traditional council. 
• Chief Albert Luthuli Local Municipality with thirteen trad itional councils . 
• Thaba Chweu Local Municipality with three traditional Councils. 
Municipal IDPs where there are a high number of traditional councils (eight or more) have 
been assessed on the bases of working relationship. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
50 
According to the IDP for Mbombela Local Municipality (2014-15:16), traditional councils were 
scheduled to be consulted during the consultation of stakeholders. However, the IDP 
indicates that the meeting which was organised for consulting traditional authorities did not 
take place due to unavailability of representatives from the traditional councils. It was further 
indicated that the consultation will be rescheduled after the approval of the IDP. 
Nkomazi IDP (2013-2014:38) indicates that there are eight traditional authorities under its 
area of jurisdiction and that the traditional council areas occupy approximately less than half 
of the total area of the municipality. The IDP does not mention any engagement schedule 
with traditional councils, but it talks about consultation at ward level. The SDF of the 
Nkomazi Municipality has further provided local SDFs of traditional councils and their 
villages. However, there is no consultation plan for the traditional councils. The SWOT 
analysis of the Nkomazi SDF (2013-14: 164) shows that all traditional councils under the 
Nkomazi Municipality indicated that there is a lack of coordination between traditional 
authorities and the Nkomazi Municipality. 
Bushbuckridge Local Municipality have 1O  traditional councils. The Bushbuckridge IDP 
(2014-16:30-31) indicates that the Municipality is in a good relationship with the traditional 
authorities. In a council resolution of 2010, it was resolved that traditional leadership will 
participate in all the municipal council sittings and will be paid a sitting allowance. The district 
house of traditional leaders is allocated an office within the offices of the municipality. The 
municipality has established a traditional mayor's forum, where issues concerning land 
matters are discussed, such as land tenure, land invasions and provision of service. 
Dr JS Moroka Municipality has nine traditional councils. The IDP of the municipality (2014-
15: 147) in their SWOT analysis indicates that to have traditional councils in their area of 
jurisdiction is an opportunity; however, there are no programmes indicated on the IDP where 
traditional councils will be engaged. In the IDP it is stated that most of the villages in Dr JS 
Moroka falls under the traditional councils as state land (see figure 1.6) the percentage of 
land under traditional councils is 84%. The remaining 16% is for the two proclaimed 
townships, which falls under the municipality. The IDP of the municipality is probing the 
possibilities of transferring the state land to the municipality tor proper administration. 
Chief Albert Luthuli LM has 13 traditional councils. The IDP (2007-11 ) is not indicating plans 
to work with traditional councils; however, the IDP (2007-11 :40) of the municipality states 
that there should be a close working relationship between Chiefs (Amakhosi) and the 
municipal councillors, especially when conducting community consultations. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
51 
Dr Pixley Kalsaka Seme Local Municipality has one traditional authority. The IDP does not 
state much about the role of the traditional leadership in the municipality; however, the IDP 
(2014-15:18) of the municipality indicates that Amakhosi (chiefs) should work together with 
the municipality in conducting community consultations; no strategies are put in place. 
4.4 CONCLUSION 
The analysis of data received during the survey of the participants unveils that the 
relationship between traditional councils and local government in most instances is not 
defined, and as a result there is a lack of consultation between the two authorities. In some 
instances, local government reports that traditional leaders are proceeding with the 
demarcation and allocation of stands for their communities as it was done previously, without 
the involvement of local government. Traditional leadership also indicates that local 
government proceeds with development even in traditional areas without their involvement. 
Based on the above analysis, it is recommended that municipalities need to take traditional 
councils on board throughout the stages of compiling and reviewing their IDPs. 
The analysis also discovered that traditional authorities have a huge influence and control 
over their communities and land management in their areas of jurisdiction. 
The findings took into consideration the secondary data information from the literature 
review. The assessments of municipal IDPs, as well as the analysis of primary data, are 
displayed in detail in the next Chapter. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
52 
Chapter 5 
FINDINGS 
II II 
5.1 INTRODUCTION 
This chapter provides the finality of the research process where the collected data and the 
analysed information deliver the outcome of the research. The analysis section was an 
interpretation of data from different sources, primary and secondary, while the findings 
section correlates the analysed information to provide a final standpoint of the report, in 
relation to answering the main research question. This chapter also established whether the 
research managed to deliver in terms of its objectives as well as providing information where 
there were uncertainties in terms of existence, functioning and future role of traditional 
leadership. 
The primary data was collected by means of questionnaires from the identified participants. 
The information sourced during the survey period was collated and grouped into 1O  thematic 
areas to cover a range of issues on land administration and development in relation to the 
existence of municipalities and their functions. The survey answers and the literature review 
provided the direction of a general view on the research topic. 
TABLE 5.1: SUMMARY OF RESPONSES FROM THE PRIMARY SOURCE OF DATA 
Responses 
Questions Recommendation 
Traditional Leadership Municipalities 
1. Understanding of extent Most traditional councils Municipalities have the Municipal SDF must 
of traditional councils' know their boundaries, knowledge of the clearly indicate traditional 
boundaries and available illegal demarcation of cadastral boundaries of areas and future 
land stands is used as a traditional leadership developments. 
weapon acquire adjacent boundaries; illegal 
land. occupation of land makes 
it difficult to provide 
services. 
2. Development of new There is high demand of Municipalities are under- Municipalities should 
settlements and extension stands in rural areas and capacitated, therefore prioritise orderly 
of existing settlements no assistance from cannot keep up with the development in traditional 
government; traditional demand. areas through 
councils are forced to engagement processes. 
demarcate and allocate 
sites to applicants without 
a formal layout plan. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
53 
Questions Responses Recommendation 
3. Upgrading of land Traditional leaders are not Municipalities are in favour A method of tenure which 
tenure rights in areas of in favour of upgrading the of land tenure upgrading, will accommodate both 
traditional authorities existing land tenure from because it is a method parties must be used. 
PTOs to title deeds, which will make the According to Campbell 
because they think that municipality to account for et al. (2008:49), there is 
they will lose control over land within their flexible land delivery 
their communities, they jurisdiction and formalise method, where occupants 
indicated that the the informal villages to of land in a non-formalised 
communal system does have some sort of settlement are registered 
not discriminate whether registration of land and in a Registrar of Land and 
one is poor or rich, they ownership. can hold a Starter Title 
communities have equal which is in a form of 
access to land. communal set up. 
4. Land use and demand Traditional authorities Municipalities are noting Traditional councils 
of land in areas of have indicated that there the demand and limited recommended that 
traditional authorities is a huge demand of land land within traditional involvement of 
within areas of traditional authorities, and need to government in guiding 
authorities; the main land engage traditional councils traditional councils about 
uses are residential or in terms of spatial implementing spatial plans 
homesteads, business development plans. and land use schemes; 
sites and areas for they also recommended 
communal subsistence that government should 
farming. purchase adjacent 
properties for traditional 
authorities. 
5. Challenges faced by Traditional leaders have Municipalities have There was an indication of 
traditional councils in raised a concern about indicated that the impact willingness of both 
terms of land uncontrollable illegal of illegal land occupation authorities to work 
administration occupation of land within is also a challenge to together in land 
their areas, with no municipalities, because administration . 
mechanism to combat that puts pressure on the 
such; however, when the existing infrastructure and 
effect of land use services. 
schemes and SDFs were 
explained to them they 
indicated to be interested 
in the control land use 
mechanism. 
6. Land allocation in areas Allocation of land by Municipalities are Municipalities must play a 
of traditional authorities traditional authorities to indicating the lack of pro-active role of 
their communities is capacity from their side to engaging traditional 
proceeding in the same take over the responsibi lity leadership about the 
method which was used of planning, and subdivide advantages of formal 
previously; traditional stands according to planning for land 
authorities have their own required standards and allocation, and provide 
traditional way of land uses. layout plans in areas of 
allocating land outlined in traditional authorities. 
the analysis chapter 
(Figure 4.1 and 4.2) 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
54 
Questions Responses Recommendation 
7. The level of The general outcome in Municipal officials Municipal officials must 
communication between terms of level of indicated that traditional specifically engage 
traditional councils and communication between councils are consulted traditional authorities; a 
municipalities the two authorities is poor. when projects are planned kind of programme of 
Traditional councils and implemented in the regular meetings should 
indicated that when areas. However, the study be scheduled between the 
projects are planned and reveals that the level of two authorities. 
implemented in areas of consultation is mostly not 
their authorities, they are at the project planning 
not consulted. stage, but generally on the 
implementation stage. 
8. Understanding of RSA Traditional councils are Municipalities understand Municipalities must 
Constitutional not capitated on legislation their legislative obligation; develop a programme to 
responsibilities and that regulates spatial however, due to capacity train traditional leadership 
legislative mandate of planning land use constraints, they have not on legislative 
municipalities and management. However, yet built capacity on requirements in terms of 
traditional leadership on they have indicated their legislative requirements land matters. 
spatial planning and land willingness to cooperate on both authorities. 
use and management with the provision of law 
and work with 
municipalities in all the 
processes of 
implementation of the law 
requirements. 
9. The level of There is a generally Most municipalities Municipalities must 
consultation and dissatisfaction about engage traditional councils prepare a special 
engagement of traditional involvement of traditional in a general manner, programme to engage and 
authorities in the leaders during the where they are classified train traditional authorities 
compilation of municipal compilation of municipal with other stakeholders, about IDP, SDFs & land 
Integrated Development IDPs, a research about although the use schemes. 
Plans (I DPs) traditional authorities and Bushbuckridge 
IDP from two other Municipality has indicated 
researchers (Duma & a programme of engaging 
Sekontela) indicates that their traditional councils. 
traditional councils and 
their rural areas are not 
involved in the process of 
developing IDPs. 
1O . The level of Traditional councils Municipalities engaged Municipalities must 
consultation and indicated that they were traditional councils as prepare a special 
engagement of traditional not involved during the stakeholders; therefore, programme to engage and 
councils during the compilation of SDFs and there is still no train traditional authorities 
compilation of land use land use schemes. understanding of SDFs about IDP, SDFs & land 
schemes and SDFs and land use schemes by use schemes. 
traditional councils. 
Pat1icipation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
55 
TABLE 5.2: ANALYSIS AND FINDINGS FROM THE SECONDARY DATA SOURCES 
-
Secondary and documented 
Area of interest In terms of the 
Information about traditional Recommendation 
research 
leadership 
1. Land allocation in areas of Historically, in terms of traditional Traditional leaders can be involved 
traditional leaders leaders' land allocation was the for their views and 
traditional authority's responsibility. recommendations on land matters 
which are under thei r area of 
jurisdiction, but not to take a 
decision. The extent of involvement 
must be agreed between 
municipalities and a traditional 
authority by signing a service level 
agreement. 
2. Legislative outline in relation to The Constitution of RSA A closer call to traditional councils 
traditional authorities' mandates recognises traditional leadership is made by the SPLUMA 
but it, requires National & Regulations (SA, 2015, Regulation 
Provincial sphere of Government 19), when it recommends that 
to further provides for the roles and traditional councils must sign a 
responsibility of traditional service level agreement with 
leadership, the other laws such as municipalities in order to clearly 
the TLGFA (SA, 2003) MSA (SA, define the roles and responsibilities 
1998) encourages traditional of the two authorities. 
councils to support initiatives by 
municipalities. 
3. Involvement of traditional The assessed IDP of the nine Municipalities must fully engage 
leaders in municipal IDP Municipalities only three indicated with traditional leaders in order to 
that they took consideration of develop a solution to contribute to 
involving traditional council and an improved land development in 
from the three one municipality rural areas as well as in areas of 
have successfully engaged with its traditional councils. 
traditional council. 
4. History and theory of planning History of planning have no link to History of planning evolved with 
in relation to traditional methods of traditional planning, history of time from a rigid, blue print plan, 
planning planning is associated with colonial characterised with top down 
act as well as reactive planning approach, while Morden planning is 
due to a demand caused by a associated with democratic 
particular historic event. principles, consultations, 
community driven, bottom up 
approach and flexibility. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
56 
TABLE 5.3: RESEARCH OBJECTIVES 
Research Objectives Outcome from the Research 
1. To assess the operational extent of traditional In their area of jurisdiction traditional leaders are still 
leadership on land development matters driving land development; most of the municipalities 
have not yet developed a working relationship with 
traditional council in order to put a halt or to assign 
traditional leaders with function relevant to customary 
and less to areas that requires specialised proficiency. 
2. To investigate the processing of land development The study reveals that traditional leadership have their 
applications by Traditional leadership in relation to method of processing land development application, 
municipalities which does not involvement any municipal process, it 
is a system which is not prescribed anywhere and it is 
based on indigenous way of processing land 
allocation and is common in most of the traditional 
councils (Figure 4.1 & 4.2). 
3. To establish the extent of involvement of Currently there is no involvement of traditional leaders 
Traditional Councils in spatial planning and land use in spatial planning and legit land use management, 
management the introduction of SPLUMA gave powers to 
municipalities which are subsequent to the 
pronouncement of the South African Constitution. The 
main issue is capacitated traditional leaders on 
SPLUMA application, they will then be able to identify 
themselves with SPLUMA, the SPULAMA Regulation 
19 provides a platform of traditional leaders to enter 
into agreement with municipalities and agree on 
extent of involvement of each other. 
4. To find common ground to facilitate a collaborative From the engagement session with the participant's, 
working relationship between Traditional Councils and which are: traditional leaders and municipalities, it was 
democratically elected Municipal Councils established that they both want to work together 
because they share the same space and 
communities. Municipalities have the legal 
responsibility to regulating land use and traditional 
leaders have pointed out their inability to curb illegal 
land inversion. Therefore, there is a mutual benefit for 
both authorities in working together and agree to 
share their area of expertise. 
The objectives of the study were met as indicated in Table 5.3 and the research questions 
were successfully answered by the research process; the information gathered during the 
research process from different sources has provided sufficient information to provide what 
was the purpose of the research and is illustrated in Table 5.4 and Table 5.5. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
57 
TABLE 5.4: THE SUB-QUESTION OF THE RESEARCH 
Question Finding 
1. How relevant is traditional leadership in implementing The research discovered that traditional 
spatial planning and land use management? authorities have a huge influence and control over 
traditional communities, which are under their 
areas of jurisdiction, therefore their role in spatial 
planning and land use management is very 
important. 
2. What complementary role can Traditional Leadership The role of traditional leaders must be discussed 
play to enhance the functions of municipalities around with their municipalities where each authority must 
land development controls? identify its area of strength where a service level 
agreement can be signed. 
3. How can prescripts and guidelines for land Traditional leadership and municipalities must 
development control be successfully introduced into the work as a unit, where traditional leadership must 
daily operation of Traditional Leadership? be represented in municipal council meetings and 
municipal representatives must attend all 
traditional council meetings. Therefore , the 
operation of traditional council will be guided by 
the municipal plans such as the IDPs, SDFs, 
LUSs & by-laws. 
The main research question is: What role can traditional leadership play in spatial planning 
and land use management without contravening the roles and responsibilities of local 
municipalities? The research question was incited by the main topic of the research, which 
generated areas of concerned and was interpreted as problem statement. 
The answer of the research question is deliberated in Table 5.5. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
58 
TABLE 5.5: THE MAIN RESEARCH QUESTION 
Research Questions Findings from Deliberations 
What role can traditional leadership play in spatial Historically the institution of traditional leadership was 
planning and land use management without involved in some form of land administration which 
contravening the roles and responsibilities of local included demarcating and allocation of land to their 
municipalities? traditional communities. However, there were no 
guiding documents which prescribe or direct traditional 
leaders in that role. 
Although traditional leadership is recognised by the 
constitution of the democratic South Africa, the role of 
the traditional leaders was not seen as a sphere of 
government which should be tasked with 
developmental issues; however, what subsequent 
legislation provides as role of traditional leaders is 
support to municipalities and must be responsible for 
customary and ceremonial events. Given the findings 
deliberated above traditional leaders can exist and 
work harmonious with municipalities where the 
engagement of the two authorities must provide a 
guide on roles of each other and sign an agreement. 
The roles and responsibilities of municipalities on Historical local municipalities did not exist; town 
spatial planning and land use management councils which were urban based with urban edges 
and town planning schemes were reformed by the 
democratic processes to be a wall-to-wall local 
government, which incorporates rural and urban areas, 
formal and non-formal areas as well as areas of 
traditional authorities. 
Through the constitution of the democratic South 
Africa, municipalities were vested with powers to be a 
sphere of government which is responsible for planning 
and land use management, it is the prerogative of the 
municipality to create a harmonious working 
environment with traditional leadership, where 
unauthorised development will not be tolerated by both 
institution working as a unit. 
The next chapter will provide the overall summary of the research, with recommendations 
and conclusion. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
59 
5.2 CONCLUSION 
Explicit facts about traditional leadership, rural livelihood and their roles in society are 
selectively known, but not extensively understood especially by people who were never 
exposed to a rural environment where traditional leaders are operating. The lean availability 
of information about traditional leadership has created an idea that rural areas and traditional 
authorities are a story of the past and are gradually on the verge of extinct, also about to find 
its space in the history of South Africa. This has manifested when the new local government 
was established; the new legislation on Local Government, Municipal Systems Act (SA, 
2000) is not explicit about the involvement of traditional leadership in the municipal affair, 
and that is emulated by the municipal IDPs which says less about the traditional leadership, 
and the observation is that there are no indications or obligatory requirement to present a 
plan of incorporating the existence of traditional leadership on IDPs. 
However, the finding from this report indicates that systems of traditional leadership are very 
much alive and existing in rural areas of South Africa. The institution of traditional leadership 
will still exist in the coming future; the research also provides answers to most of the 
questions which were unclear before the resuming of the research. In summary, traditional 
leadership are still relevant in South Africa and needs to be accommodated in the future 
plans and legislations of the RSA. 
·.>eot. Sta<ls- en S•r:- ~1ttc;.ionnlr g UV 
;.r~t. Urban and · ·· ' 1c. .;-. ~·1 I 
PosbUlll ,· .. ._.;: . ..; • 
ll!c~r-nicntelo 
93~ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
60 
Chapter 6 
CONCLUSION I 
6.1 INTRODUCTION 
This chapter summarises the whole research report and is structured as follows: 
introduction; summary of the report, findings on the research question, recommendations 
and recommended future studies and, finally, the conclusion. This Chapter summarises 
deliberations and different arguments of the research topic from the first chapter, which 
introduces basic information about the research; the literature review based on arguments 
from different impression of authors, as well as the academic sources on traditional 
leadership. The research has also taken into consideration legislative mandate which 
translate to recognition of traditional leadership in terms of law through different eras. The 
analysis of data collected from the identified participants, as well as recommendations 
derived from interacting with literature on the subject topic enabled the research to arrive at 
a conclusive finding about the topic. 
The conclusion articulates the outcomes of the research. The methodology of the study does 
not entail outcomes on probabilities; however it is a qualitative research whose aims was to 
qualify the existing reality based on engagements and literature information. The main focus 
of this report is the significance of traditional leadership on land administration matters which 
include spatial perspective and land use management in the current desperation. 
6.2 SUMMARY OF THE REPORT 
The historic background of the institution of traditional leadership has revealed their role in 
their societies as an institution that governs land matters within their areas of jurisdiction. 
The study unveils traditional leadership as an important and relevant stakeholder at the local 
government level (Lutabingwa et al., 2006:74). 
Through the transformation of the South African government from a previous dispensation to 
a new democratic government, traditional authorities have retained their skills in land 
allocation for their traditional communities. Therefore, traditional leadership and their 
experiences in land administration have an important role in the spatial planning and land 
use management. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
61 
The study has unveiled the unnoticed potential of the institution of traditional leadership, 
which can play a crucial role between the communities and local municipalities' matters of 
spatial vision, land use management and land development. The recommendations of the 
study provide a basis for engagements between traditional councils and municipalities. The 
interactions with traditional leadership during the interview process on spatial planning and 
land use management matters reveals clarity in their area of interest, which benchmarks the 
agreements with local government and provides guides in terms of service level agreements. 
The recommendations of the study will ease the rival mentality between the two authorities 
of power; eliminate conflicting interests and encourage agreement on complementary roles 
and responsibilities over land development controls. Both authorities of power share the 
same objectives over land development matters; to maintain order on land development and 
to contribute to sustainable land development. The collaborative relationship between the 
two authorities on spatial planning and land use management will strengthen the relationship 
between the institution of traditional leadership as well as the other sphere of government by 
emphasizing what has already been outlined by legislation and redefining the role of the 
institution of traditional leadership in government. 
Participation of traditional leadership in spatial planning and land use management needs to 
be arranged in such a way that it promotes working collaboratively with municipalities. The 
roles of the two authorities of power in land matters need to be clear separated. From the 
engagement sessions with both authorities it became clear that the role of municipalities 
may include the technical know-how of land administration and the roles that can be 
assigned to traditional leadership depending on agreement may be restricted to the social 
aspect of land administration based on cultural practices; indigenous knowledge and 
leadership experience. 
Municipal technical know-how includes but is not limited to, alignment of land development 
matters to the municipal SDF, IDP SPLUM by-law of the municipality, land use schemes, 
Environmental Management Plan, Geo-tech and layout plans. Traditional leaderships' social 
aspect on land administration entails: allocation of stands based on their method of selecting 
applicant. However, land uses must be directed by the layout plan or land use scheme from 
municipalities. 
6.3 FINDING AND OUTCOMES OF THE RESEARCH 
Finding are based on the research question of the report is answered as well as the 
achievement of the objectives of the research. The objective of the research was to establish 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
62 
the operational extent of traditional leadership on land matters. It was established that the 
function of allocating land to traditional communities in rural areas was vested with the 
traditional leadership within their areas of jurisdictions by the previous government. 
However, they were assisted by the homelands government in terms of demarcating sites 
which in most cases did not follow a specific plan, but based on measuring sites and streets. 
A common process of allocating stands is indicated in Figure 4.1. Although the current 
democratic government has given powers to local government to take responsibility of 
spatial planning and land use management in all the areas under their jurisdiction, traditional 
councils are still allocating land and in addition they also demarcate because there is high 
demand of stands and local government has not been able to pro-actively provide layout 
plans for settlements in rural areas. 
The research sub-question, wanted to establish the relevancy of traditional leaders in the 
current planning system, complementary role of traditional councils to municipalities as well 
a common approach between traditional leadership and municipalities in dealing with 
matters of spatial planning and land use management: the research established that 
leadership are still are still respected by their respective communities and the communities 
are still taking orders from traditional leaders, their relevancy is that whatever municipalities 
wants to implement in the rural communities can easily be understood by the traditional 
communities if it is pronounced by the traditional leadership, the SPLUMA (SA, 2013) is 
introducing wall-to -wall land use schemes that needs to be implemented even in areas of 
traditional authorities, therefore if traditional authorities will be the area of first instance to be 
introduced and then communities will then follow. 
The main question of the research: What role can traditional leadership play in spatial 
planning and land use management without contravening the roles and responsibilities of 
local municipalities? 
The research has established that both authorities; the traditional leadership and the 
municipalities need each other in terms of land development, municipalities have the 
necessary resources to effect development such as the budget, the skilled personnel, the 
mandate and tools to manage development and traditional authorities are the closest 
authorities to the traditional communities, which are not politically inclined and appear to be 
representing all communities across the spectrum and is the respected by the communities. 
the main theme of the question is on the roles of the two authorities which must not create 
tensions and conflicts: traditional authorities have identified areas of their inabilities, which is 
the technical part as well as the enforcement of spatial planning and land use management, 
while municipalities need traditional authorities to deal with the social and cultural part of 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
63 
rolling out spatial planning and land use management, therefore the two authorities are 
assigned by law to sign an agreement on the roles and responsibilities which will then 
eliminate the question of overstepping and contravening the responsibility of one or the other 
authority. 
6.4 RECOMMENDATIONS 
Recommendations are based on areas of concerned raised by the process of the research 
as it was unfolding: firstly the urgent issue which is bothering both authorities is the 
uncoordinated and illegal occupation of land that creates informal settlements and 
unserviceable areas, given the fact that land is limited and there are many land uses that 
need to be accommodated, it was recommended that municipalities must establish a 
working platform with the traditional authorities to plan together, engage rural communities 
on an awareness campaign about the advantages of formal and planned development. The 
municipalities must involve other spheres of government nationally and provincially 
departments support development programmes within the municipal and traditional areas. 
On the issue of land tenure rights, it is recommended that municipalities should engage 
traditional leadership on the advantages of upgrading land tenure rights to be implemented 
in the areas of traditional authorities. There is a need to embark on a larger scale process of 
upgrading of land tenure because the project comes with formalising informal settlements 
provides individual ownership of stands. Both the provincial department of Cooperative 
Governance and Traditional Affairs and the national Department of Rural Development and 
Land Reform must be invited by a joint meeting where municipalities and traditional 
authorities can present a business plan for funding the upgrading of land tenure project. 
In terms of improving spatial plans in areas of traditional authorities, it is recommended that 
municipalities should work with each traditional council in developing a mini-SDF for areas of 
traditional authority, which will form part of the greater municipal SDF. The mini SDF will 
enable traditional councils to develop greater understanding of their areas and be in a 
position to manage their land responsibly and sustainably. 
In terms of integrated working relationship between the traditional leadership and municipal 
councillors it is recommended that traditional leadership and municipal councillors should 
enter into an agreement as stated in the SPLUMA Regulation 19. The agreement should 
clearly spell out the roles and responsibilities of each party on spatial planning and land use 
management. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
64 
Capacity building to traditional councils in terms of planning tools; municipalities must 
organise training sessions to capacitate traditional councillors and bring them to the same 
level as the municipal officials. The training will help traditional authorities to participate 
effectively and play a meaningful and supportive role in the implementation of SDF and land 
use schemes. 
It is recommended that for a rural governing body to venture into economic development 
should implement the proposed governing structure called "Wagon Wheel" (Appendix D) by 
The Department of Rural Development and Land Reform, the structure can be implemented 
by the traditional councils, communal property associations and community trusts. 
6.5 RECOMMENDATIONS FOR FURTHER STUDIES 
• It is recommended that further studies be conducted on possibilities of developing a 
rural land use scheme that will incorporate of provide zoning of traditional or cultural 
land use. 
• Secondly a study that will establish suitable tenure system in traditional rural areas. 
6.6 CONCLUSION 
The study was based on establishing the participation of traditional leadership in spatial 
planning and land use management in Mpumalanga Province and wanted to establish , 
whether the current practices by traditional leadership can be used as a method to improve 
spatial form and land management in rural areas, the study has managed source information 
which will unpack the finer details of activities and roles of traditional leadership in relation to 
the functioning of municipalities. Identification of suitable methodology which is a qualitative 
method was important to the study in order to identify sources of data to substantiating 
arguments. The literature review has provided the documented information about traditional 
leadership from defining the institution to historic background. Elaboration on history and 
theory of planning has provided a comparative analysis between history of traditional 
leadership and history of planning, and the findings were that there is no correlation between 
the two concepts. Assessment of municipal I DPs has revealed that there is still more work to 
be done in trying to build a working relationship between the two authorities, from the 
question that culminate from the topic of the research, it is clear that traditional leadership 
still have a role to participate on spatial planning and land use management. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
65 
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..... ........ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
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Appendix A 
QUESTIONNAIRE FOR TRADITIONAL LEADERSHIP 
PARTICIPATION OF TADITIONAL COUNCILS ON SPATIAL PLANNING & LAND USE 
MANAGEMENT MATTERS IN MPUMALANGA PROVINCE (RSA) 
INTERVIEW GUIDE (QUESTIONNAIRE) FOR THE FACE-TO-FACE INTERVIEWS WITH 
TRADITIONAL COUNCIL 
Tradltional Authority: ..... ......... .. .... .. ....... . Interviewee: ....... .... ...... .. ... ...... . . 
Municipality: .... ........ .... ......... ...... ......  Date: ..... .. .......... ..... ...... ..... . 
1. Your traditional authority's area of jurisdiction is made out of which farm potions? List them: 
2. How many settlements/villages are under your traditional authority and list them? 
3. Are all these villages sufficiently provided with services such as water, electricity, bus roads and 
access roads? 
4. Were professionals like town planners and land surveyors involved in the establishment of these 
settlements or demarcation of sites? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
72 
5. How does your office or Council go about in establishing settlements or demarcation of sites for a 
settlement? 
6. Does the Council engage the municipality or provincial departments for technical advice when 
planning to establish a new settlement or extend the existing one? 
7. Besides land set aside for human settlements what other land uses are there in your area? 
8. What land uses are in demand in your area? 
9. Does your traditional authority have enough land to meet the needs of the future generation? 
10. What do you think should be done to ensure that your available land meet the needs of the future 
generations? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
73 
11 . Are there any government-sponsored agricultural projects taking place in your area? 
12. Are there any private sector-sponsored agricultural projects taking place in your area? 
13. What challenges is your Council experiencing regarding land management or control? 
14. How does your Council resolve or try to solve these challenges? 
15. In case your Council find it difficult to solve some of the challenges, is there any institution your 
Council usually approach for assistance in solving these challenges? 
16. How does your Council allocate land for residential purposes? 
17. What legal document does the Council provide the applicant which serves as proof that the 
applicant was allocated the stand officially? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
74 
18. Does the Council charge any fee (Khonza Fee) for allocating a stand to an individual? 
19. How does the Council allocate land for business purposes? 
20. How system or criteria does the Council use in deciding whether the site is suitable for a 
particular business? 
21 . Does the Council consult the Municipal SDF document when allocating business sites? 
22. How does the Council allocate land for agricultural purposes? 
23. Does the local municipality consult your Council when planning for the delivering any service or 
implementing any project in your area? 
24. Are you fam iliar with the concept of spatial planning? 
If YES, what do you think it is all about? 
25. Do you think spatial planning has any value within your traditional authority area? 
~I :-:-s--~--~ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
75 
If YES, what value do you think spatial planning could bring in your traditional authority area? 
26. The Constitution of the Republic of South Africa, Municipal System Act (Act 32 of 2000) and the 
Spatial Planning and Land Use Management Act (Act 16 of 2013) mandate municipalities to be 
responsible for all spatial planning, land use and land development in the entire municipal 
area. 
Does your Council accept this legislative mandates to municipalities? 
27. Since the establishment of wall-to-wall local municipalities, has your municipality ever 
engaged your Council when compiling and reviewing the Integrated Development Plan (IDP) of 
the municipal area? 
28. Is your Council familiar with the concept of Integrated Development Planning? 
29. Have your Council been afforded an opportunity to make inputs in the IDP? 
30. Have your Council ever been provided with a copy of the municipal IDP document? 
31 . Is your Council satisfied with the manner the municipality is engaging your Council when 
compiling the IDP? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
76 
32. Is your Council familiar with the concept of Spatial Development Framework (SDF)? 
33. Does your municipality engage or consult your Council when compiling or reviewing the 
municipal SDF? 
34. Are you satisfied with the manner the local municipality is engaging your Council in the 
development of a SDF that includes your traditional authority area? 
35. Have your Council ever been provided with a copy of the municipal SDF? 
36. Have your Council ever been engaged on the content and usage of the municipal SDF? 
37. Does your Council consult or refer to the municipal SDF when making decisions on land related 
matters? 
38. What must be done in order for your Council to contribute meaningfully in the development of a 
municipal SDF that includes the traditional authority area? 
39. Will your Council respect and cooperate with the municipality in the implementation of the 
municipal SDF in your traditional authority area? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
77 
40. Will your Council align all land -related decisions in terms of the municipal SDF? 
41. What can be done to ensure a smooth working relationship between your Council and your 
municipality with regards to the implementation of the Municipal SDF? 
42. Is your Council familiar with the concept of Land Use Scheme? 
43. Does the local municipality engage or consult your Council when compiling the municipal LUS? 
44. Are you satisfied with the manner the local municipality is engaging your Council in the 
development of a LUS that includes your traditional authority areas? 
45. Have your Council ever been provided with a copy of the municipal LUS? 
46. Have the municipality ever engaged your Council on the content and usage of the municipal 
LUS? 
47. Does your Council refer or consult the municipal LUS document when taking decisions on land-
related matters in your traditional authority area? 
Parlicipation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
78 
48. Will your Council align all land-related decisions in terms of the municipal LUS? 
49. What can be done to ensure a smooth working relationship between your Council and the 
Municipality with regard to the implementation of the municipal LUS? 
50. Is your Council prepared and ready to accept and work jointly with the municipality in all spatial 
planning, land development and land use management? 
51. What do you think should be done to ensure that your Council and the municipality work together 
and in harmony in the development and implementation of a municipal SDF and Land Use 
Scheme? 
52. Any other issue your Council would like to raise on land use management and land development 
and spatial planning? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
79 
Appendix B 
QUESTIONNAIRE FOR MUNICIPAL OFFICIALS 
FEASIBILITY STUDY ON LAND USE MANAGEMENT AND LAND USE PRACTICES IN AREAS OF 
TRADIRIONAL COUNCIL 
MPUMALANGA PROVINCE (RSA) 
INTERVIEW GUIDE (QUESTIONNAIRE) FOR THE FACE-TO-FACE INTERVIEWS WITH MUNICIPAL 
OFFICIALS 
Name: ... . ...... ..... .. .. ..... .. ... .. ........ . ......  Position: ... ..... ..... .... ... .... .. ....  
Municipality: ....... ...... .. .. .. ... .... .. .. ...... . Date: .... ......... .... . .. ...... .. . . .. . . 
1. How many traditional authorities are within your municipal area of jurisdiction? 
2. Does your Municipality consult the traditional authorities when planning for delivering services 
and implementing projects in the traditional authority areas? 
If YES, how does your office consult with the traditional authority? 
If NO, why? 
3. Are there any land tenure upgrading projects that your Municipality has initiated in the traditional 
authority areas? If YES, name them as well as their status. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
80 
4. What challenges has your Municipality encountered when implementing land tenure upgrading 
projects in the traditional authorities' areas? 
5. Does your Municipality manage and or control any land development and land use in the 
traditional authorities' areas? If YES, how? 
If NO, why? 
6. Has any traditional authority approached the Municipality for assistance towards the 
establishment of new settlements or extending the existing settlements? 
~ 
EI] 
If YES, how did the Municipality go about in assisting the traditional authority in demarcating the 
required sites? 
If NO, why is your Municipality unable to assist them? 
7. Are there any township establishment projects that have been initiated by your Municipality in the 
traditional authority areas? If YES, list them. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
81 
8. Do the traditional authorities consult with your Municipality for assistance or notification on land 
development or land use-related issues affecting their areas? 
9. What challenges does your Municipality face with regard to land development and land use 
control/management in the traditional authorities' areas? 
1O . How does your municipality go about in resolving these challenges mentioned in 10 above? 
11 . What can be done to ensure a smooth and harmonious working relationship between your 
Municipality and traditional authorities on land development issues including the demarcation of 
sites/ establishment of new settlements? 
12. Does your Municipality regard traditional authorities as important stakeholders in the IDP 
process? 
~ 
Give reasons for your response. 
13. Since the establishment of this municipality, has your Municipality ever engaged the traditional 
authorities when compiling and reviewing the municipal IDP? 
~ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
82 
If YES, at what level? 
At Traditional Council level 
At Ward Committee Level 
At one-on-one level with the traditional leader only 
At IDP Stakeholders' meetings 
If NO, why are they not involved? 
14. Have traditional authorities been given a chance to make inputs/comments during the compilation 
of the current IDP document? 
~ 
ED 
If YES, may we be provided with a copy of your IDP process plan or copy of attendance register 
where you had consultative meetings with traditional councils? 
15. What can be done to improve the contribution of traditional authorities in the IDP process? 
16. Have your office provided each traditional authority with a copy of the current IDP document? 
EL] 
~ 
17. Does your Municipality regard traditional authorities as an important stakeholder in the in the 
compilation and implementation of the municipal Spatial Development Framework (SDF)? 
EL] 
~ 
Give reasons for your response. 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
83 
18. Have your Municipality ever engaged the traditional authorities when compiling and reviewing the 
current municipal SDF? 
~ 
19. If YES, at what level and why? 
At Traditional Council level 
At Ward Committee Level 
At Community meeting level 
At one-on-one level with the traditional leader only 
At SDF Stakeholders' meetings 
20. Did the traditional authorities contribute meaningfully during the compilation and review of the 
current municipal SDF? 
21 . Has your office provided each traditional authority with a copy of the current SDF document? 
~ 
It NO, why? 
22. What challenges does your Municipality encounter with regard to the implementation of SDF 
directives in the traditional authorities' areas? 
23. How does the Municipality go about in addressing these challenges? 
24. Does your Municipality see any meaningful role traditional authorities could play in the 
development and implementation of SDF? 
~ 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
84 
If YES, what role could they play? 
25. What do you think should be done to ensure that your Municipality and the traditional authorities 
work together and in harmony in the development and implementation of municipal SDF 
guidelines? 
26. Has your Municipality ever compiled, approved and proclaimed a municipal Land Use Scheme 
(LUS)? 
~ 
ED 
27. Did your Municipality ever engage the traditional authorities when compiling the current municipal 
LUS? 
fYESD 
ED 
If YES, at what level? 
At Traditional Council level 
At Ward Committee Level 
At community meeting level 
At one-on-one level with the traditional leader 
only 
At SDF Stakeholders' meetings 
Other, Specify here below 
If NO, why? 
28. Did the traditional authorities contribute meaningfully during the compilation and review of the 
current municipal LUS? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
85 
29. Has your Office provided each traditional authority with a copy of the current LUMS document? 
~ 
EI] 
If NO, why? 
30. What challenges does your Municipality encounters with regard to the implementation of LUMS 
directives in the traditional authorities' areas? 
31. How does the Municipality go about in addressing these challenges? 
32. Does your Municipality see any meaningful role traditional authorities could play in the 
development and implementation of LUS? 
ED 
EI] 
If YES, What role could they play? 
33. What should be done to ensure that your Municipality and the traditional authorities work together 
and in harmony in the development and implementation of municipal LUS guidelines even in the 
traditional authorities' areas? 
34. Based on your experience in working with traditional authorities in your municipal area, what 
could be done to ensure a sustainable and progressive working relationship between traditional 
authorities and your Municipality in all spatial planning, land development and land use 
managemenVcontrol issues? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
86 
35. Based on your experience in working with traditional authorities in your municipal area, do you 
think traditional authorities could play a meaningful role in the implementation of the SPLUMA 
Regulations? 
36. Any other opinion that could help improve the working relationship and communication channels 
between the Municipality and the traditional authorities particularly on spatial planning, land 
development and land management? 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
87 
Appendix C 
EXAMPLE OF PROOF OF PAYMENT TO TRADITIONAL 
AUTHORITIES 
MLAMBO TRADITIONAL AUTHORITY 
P.O. Box 160, lmbuzlni 1343 • Cell: 083 342 0473, Cell: 072 749 4306, Cell: 072 111 7551 
RE· RiGH"" TO OCCUPY 
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NO .. .. AT MTATA AREA U DER INKllOS ~MBO 11 
mo"" ONQUE STID< m/ ., "' D±J 
THANK YOU 
RlSPf CTFUU Y YO 
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I Appendix D WAGON WHEEL I 
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ROLES: TRADmONAL COUNCIU MUNICIPAL COUNCl.L I CPA I TRUST/ COS 
PRlNCJPLE: CO PLE ENTARJTY ACROSS TRADJTJONAL & DE OCRATIC INSTITUTIONS 
Source: SA DRDLR (2014) 
Participation of traditional leadership on spatial planning and land use management in the Mpumalanga Province 
91