POSITION

PAPER

MARCH 2023
TABLE OF CONTENTS

LIST OF ACRONYMS AND ABBREVIATIONS 04

GLOSSARY 05-09

1. Introduction and Overview 10-11

2. Violence and Crime Prevention at Local Government – A Theoretical Framework 12-14

3. The policy and legislative framework for community safety in South Africa 14-24

4. Practical lessons and challenges in taking up community safety as a local government function 24

4.1 Community safety functions 24-27

4.2 IDP and community safety planning 27-28

4.3 Community participation / stakeholder engagement 28-29

4.4 Inter-governmental relations and coordination of state actors 29-30

4.5 Institutional experiences and emerging models 30

a) Locating the community safety function and matters of institutional capacity 30

b) Splitting the responsibility within the administration 30

4.6 Differentiation by municipal type 31-33

4.7 Funding and resource allocation 33-35

5. Conclusion 35-37

REFERENCES 38

ANNEXURES 39-43

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LIST OF ACRONYMS AND ABBREVIATIONS

CBD Central Business District

CoGTA Ministry of Cooperative Governance and Traditional Affairs
CPF Community Police Forum
CPTED Crime Prevention through Environmental Design
CSF Community Safety Forum
CSPS Civilian Secretariat for Police Service
CSVR Centre for the Study of Violence and Reconciliation
CWP Community Work Programme
GBV Gender Based Violence
GIZ Gesellschaft für Internationale Zusammenarbeit
DCoG Department of Cooperative Governance
DDM District Development Model
DSD Department of Social Development
EFUS European Forum for Urban Security
EPWP Expanded Public Works Programme
GIZ Gesellschaft für Internationale Zusammenarbeit (German Development Cooperation)
IDP Integrated Development Plan
ICVPS Integrated Crime and Violence Prevention Strategy
ISCPS Integrated Social Crime Prevention Strategy
IUDF Integrated Urban Development Framework
MMC Member of Mayoral Committee
NCPS National Crime Prevention Strategy
NDP National Development Plan, Vision 2030
NGO Non-governmental Organisation
NPO Non-Profit Organisation
NSP GBVF National Strategic Plan on Gender-Based Violence and Femicide
OECD Organisation for Economic Co-operation and Development
SACN South African Cities Network
SALGA South African Local Government Association
SAPS South African Police Service
SDF Spatial Development Framework
Stats SA Statistics South Africa
UN United Nations
USRG Urban Safety Reference Group
VCP GIZ- Inclusive Violence and Crime Prevention Programme
VPUU Violence Prevention through Urban Upgrading
VOCS Victims of Crime Survey
WHO World Health Organisation
WPSS White Paper on Safety and Security

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GLOSSARY
Crime and violence

Crime and violence are often used interchangeably, but they have distinct differences. Not
all violence is criminal, and not all crime is necessarily physical or violent. In South Africa,
the definition of crime is outlined in both common and statutory law. On the other hand,
violence is defined in a broader developmental context as the intentional use of physical
force or power that can result in injury, death, psychological harm, mal-development, or
deprivation (Source: White Paper on Safety and Security 2016).

This understanding aligns with the World Health Organization (WHO) and has been
adopted as the working definition by numerous international and South African
organizations working in this field (saferspaces.org.za). This position paper acknowledges
that "power" should not be limited to physical strength but encompasses a broader
interpretation that encompasses the use of social, political, and economic power.

Gender-Based Violence (GBV)

The umbrella term used to encompass violence resulting from societal expectations
regarding gender roles associated with a person's assigned sex at birth, as well as the
unequal power dynamics between genders within a particular society, is Gender-Based
Violence (GBV). GBV encompasses various forms of abuse such as physical, sexual, verbal,
emotional, and psychological abuse, as well as threats of such acts or abuse. It also
includes coercion and the deprivation of economic or educational opportunities. GBV
can occur in both public and private settings, during times of peace or conflict, and it can
cause physical, sexual, psychological, emotional, or economic harm.

Crime and violence prevention

The concept of 'prevention' is rooted in the understanding that crime and victimization are
influenced by various causal and underlying factors. Both crime and victimization are
outcomes of diverse circumstances and factors that impact individuals, families, and
communities. These include environmental conditions, economic situations, and
opportunities that either facilitate or hinder crime and victimization.

According to the United Nations Guidelines for the Prevention of Crime (2002), crime
prevention encompasses strategies and measures aimed at reducing the risk of crimes
and their potential harmful effects on individuals and societies. This includes interventions
that target the multiple causes of crime and address the fear of crime.

The World Health Organization (WHO) defines violence prevention in a manner that
includes strategies addressing underlying causes and individual enrichment programs
during childhood. Prevention efforts also encompass parental training on child
development, community-based strategies like increased availability of childcare facilities,
and addressing societal factors such as alcohol availability (Source: White Paper on Safety
and Security 2016).

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'Safety' is commonly understood as the absence of crime and violence. While the levels of
crime and violence undoubtedly impact an individual's sense of safety, it is crucial to
distinguish between the concepts of 'safety' and 'security' and avoid using them
interchangeably. Safety primarily refers to the circumstances of an area and is determined
by the real and perceived risk of victimization. Communities and settlements that are
considered 'unsafe' typically experience a prevalence of violence and crime.

'Safety' is commonly understood as the absence of crime and violence. While the levels of
crime and violence undoubtedly impact an individual's sense of safety, it is crucial to
distinguish between the concepts of 'safety' and 'security' and avoid using them
interchangeably. Safety primarily refers to the circumstances of an area and is determined
by the real and perceived risk of victimization. Communities and settlements that are
considered 'unsafe' typically experience a prevalence of violence and crime. The National
Development Plan (NDP) emphasizes that safety should be measured by the extent to
which the most vulnerable individuals feel safe from crime and violence and the underlying
conditions that contribute to it (Source: White Paper on Safety and Security 2016).

On the other hand, 'security' pertains to immediate protection against known or perceived
threats to one's physical body or property. 'Safety' encompasses a broader notion of an
environment where people can live without fear or threats to their health and well-being.
Enhancing security often involves measures such as increasing police presence or
imposing stricter punitive measures. However, improving people's experiences of safety
requires interventions that address broader social and environmental conditions
contributing to violence. These include addressing inequality, providing employment and
education opportunities, addressing substance abuse, fostering social cohesion, and
addressing feelings of hopelessness among young people. The concept of 'community
safety' expands on this definition by focusing on the collective actions taken by people at
a local level to prevent, reduce, and address the social and environmental factors that
undermine their ability to live without the fear or threat of violence. Community safety
encompasses the experiences of the entire community rather than just individuals. It
involves efforts to not only reduce the impact of crime and violence on individuals or
households but also improve the broader social, cultural, economic, and political
conditions that promote safety within the community.

It is important to recognize that communities are diverse and not homogenous. What works
in one community may not be effective in another. Experiences of crime and violence also
differ among various groups within a community, such as women, children, older persons,
foreign nationals, and LGBTIQ+ individuals, who may face different levels and forms of
danger or threats in different communities. Therefore, community safety recognises that:

▪ different stakeholders within the community are important actors in efforts to reduce
crime and violence, and have the shared responsibility to ensure the safety of every
individual and different vulnerable groups; and

▪ communities are complex systems that need high levels of social cohesion to ensure
that people living within the area are resilient to crime and violence.

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Crime prevention through environmental design

Crime prevention through environmental design (CPTED) aims to reduce the causes of,
and opportunities for, criminal events and address the fear of crime by applying sound
planning, design, and management principles to the built environment. (Source:
Introduction to Crime Prevention through Environmental Design. Available at http://
www.cpted.co.za/cpted_summary.pdf CSIR, p5.)

Safety through environmental design

Safety Through Environmental Design (STED) is a concept closely aligned with Crime
Prevention Through Environmental Design (CPTED) but encompasses a broader
perspective on the risk and protective factors that contribute to overall safety, not solely
focused on crime. STED recognizes that safety is influenced by various factors beyond
criminal activity. This approach acknowledges the importance of considering a wide range
of risks and protective measures when designing and managing the built environment. The
Implementation Framework for the 2016 White Paper on Safety and Security serves as a
source for understanding and implementing STED principles.

Social Crime

The term "social crime" encompasses all criminal and violent activities that stem from social
factors, leading to an unsafe society and hindering the restoration of social cohesion and
fabric. Communities experiencing a breakdown of social values, principles, and cohesion
are particularly vulnerable to social crime, placing both individuals and families at risk.
Social crime manifests as anti-social behavior, which disregards societal rules and norms,
impeding the realization of social cohesion and resilience within families. It reflects the
pervasive impact of social disintegration and highlights the need for concerted efforts to
address underlying social issues and promote community well-being. (Source: Integrated
Social Crime Prevention Strategy, 2011).

Social crime prevention

To effectively prevent social crime, it is crucial to enhance social cohesion and strengthen
the social fabric of society. This can be achieved by encouraging and empowering
individuals, families, and communities to actively participate in their own development and
decision-making processes, as emphasized in the National Consultative Workshop
(28:2010). Creating safer societies involves reshaping individual and collective attitudes
and behaviors in a way that upholds the rule of law, promotes shared core values, and
fosters a healthy, caring, and peaceful society. Social crime prevention strategies focus on
modifying risk factors among individuals or groups, employing psychological,
sociological, or community-oriented measures. The goal is to address underlying factors
that contribute to social crime and promote positive change within individuals and
communities.

By adopting a comprehensive approach that targets individuals and groups, rather than
just specific situations or places, social crime prevention endeavors to create lasting
impact and promote a society characterized by safety, well-being, and mutual respect.
(Source: Integrated Social Crime Prevention Strategy, 2011).
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Gender-Based Violence (GBV) Prevention

Gender-Based Violence (GBV) encompasses violence arising from gender norms and
power imbalances. It includes physical, sexual, verbal, emotional, and psychological abuse
or threats. GBV violates human rights, jeopardizes health, and therefore effective
mechanisms must be put in place to protect the vulnerable.

Institutional Prevention

This involves implementing measures to enhance the integration of safety principles within
public administration institutions. For instance, providing training for urban planners in the
administration to incorporate safety-sensitive planning, establishing robust frameworks for
inclusive participation in local politics, and promoting awareness of civic and political
rights and responsibilities.

Area-Based Violence Prevention Interventions (ABVPI)

An Area-Based Violence Prevention Initiative (ABVPI) is a comprehensive and evidence-

based strategy that focuses on specific geographic areas to address both the
occurrence of violence and its underlying causes. This approach integrates social, spatial,
and institutional elements to create a holistic solution. Crucial to the ABVPI is active and
inclusive community participation, which enables a thorough understanding of
neighborhood dynamics and characteristics. By incorporating local knowledge, violence
prevention approaches can be co-created and designed to effectively address the
unique needs of the community.

Socio-ecological model

This model acknowledges that violence arises from a complex interplay of various factors
that influence its nature and severity. It places significant emphasis on understanding the
effects of these influences on individuals, families, the community, and the wider
environment. By recognizing the multiple risk factors involved, as well as the protective
interventions that can mitigate them, this model seeks to reduce the likelihood of
individuals experiencing or perpetuating violence. Prevention strategies are designed to
address these risk and protective factors at various stages of a person's life and
development. (White Paper on Safety and Security 2016).

Levels of Violence Prevention

Primary Violence Prevention

The primary prevention approach aims to target the root causes of violence by mitigating
risk factors and enhancing protective factors within a specific community before any acts
of violence occur. This strategy focuses on individuals who have not yet been exposed to
or engaged in violent behavior. Examples of primary prevention measures include public
information campaigns, awareness-raising initiatives, educational programs, early
childhood development programs, and the establishment or revision of policy frameworks.
These efforts aim to create a supportive environment that prevents the emergence of
violence and promotes the overall well-being of the community.
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Secondary Violence Prevention

Secondary prevention measures target individuals who are at high risk of violence due to
exposure to risk factors or prior involvement in violent behavior. These measures aim to limit
the circumstances that contribute to violent behavior. Examples of secondary prevention
initiatives include urban planning initiatives that enhance living conditions, providing
recreational activities or alternative options for adolescents involved in violence, offering
emergency services, counseling services for resolving conflicts within families, substance
abuse treatment, and promoting social cohesion. These interventions focus on building
individuals' competencies and creating supportive environments to prevent further
engagement in violence and promote positive outcomes.

Tertiary Violence Prevention

Tertiary prevention aims to offer comprehensive support to individuals affected by

violence, including both victims and perpetrators. It focuses on providing long-term
assistance after a violent incident has occurred. Examples of tertiary prevention measures
include enhancing rehabilitation and reintegration programs for offenders, offering trauma
counseling and health-related services to individuals who have experienced violence, and
promoting the use of restorative justice mechanisms. These efforts aim to address the
consequences of violence, facilitate healing and recovery, and prevent further incidents
by promoting accountability, restoration, and rehabilitation.

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1. INTRODUCTION AND OVERVIEW

The South African Local Government Association (SALGA) has developed a position paper
to outline the roles and responsibilities of local government in enhancing community
safety. This paper aims to establish a common understanding among government
stakeholders and civil society partners regarding the implementation of the 2016 White
Paper on Safety and Security. SALGA encourages mayors, municipal managers, and
community safety champions to utilize this paper as a resource for advancing community
safety in municipal government.

The dialogue process, initiated by SALGA in partnership with the Department of

Cooperative Governance (DCoG), the Civilian Secretariat for Police Service (CSPS), and
the GIZ Inclusive Violence and Crime Prevention Programme (VCP), involved
commissioning a comprehensive discussion document. This document delved into policy,
financial, institutional, and legal matters that impact municipalities in violence prevention
and community safety promotion. It drew insights from international examples where
municipal governments have played a significant role in addressing social aspects of crime
and violence prevention, highlighting the influence of municipal functions, services, and a
whole-of-society approach on violence prevention.

The discussion document aimed to compare South African policy and practice with
international precedent, enrich the discussion, and provide options rather than imposing
specific models or solutions. In contrast, the SALGA position paper presents a distinct
perspective from local government, advocating for the support and cooperation that local
government requires to fulfill its responsibilities in community safety and violence
prevention. Additionally, the paper aims to stimulate discussion among key partners and
stakeholders, emphasizing principles such as "whole-of-government" and "whole-of-
society." Such an approach is crucial for South Africa to effectively address social crime
and violence through a preventive approach.

Building safer communities in South Africa is a complex task due to various challenges.
Factors such as high youth unemployment, corruption, inequality, drug and alcohol abuse,
breakdown of family structures, rapid urbanization, and poor health and education
outcomes contribute to increasing levels of violence in the country. Addressing these risks
requires broader and more holistic interventions that go beyond the criminal justice
system. The success of such interventions relies on local ownership and community
commitment.

In 2012, the South African government adopted the National Development Plan (NDP) as a
roadmap for the country's development until 2030. Recognizing the direct impact of
safety on sustainable development, the NDP identifies community safety as a fundamental
component of achieving long-term progress.

The position paper provides a concise overview of the theoretical framework and
conceptual models related to community safety, complementing the glossary provided in
the document. It also examines how community safety has been integrated into local
government systems worldwide. Furthermore, the paper explores the evolving South
African policy framework that shapes the role of local government in crime and violence
prevention.
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It highlights the history of policy and legislative provisions for community safety,
emphasizing the role of local government and key emerging issues and principles.

The position paper delves into project-based records and documented experiences that
shed light on practical lessons and challenges in implementing community safety as a local
government function. It discusses key aspects such as planning and the relationship
between safety plans and Integrated Development Plans.

The paper explores community participation, stakeholder engagement, and the potential
for municipalities to play a more effective role in inter-governmental relations and
coordinating state actors. It emphasizes important lessons from institutional experiences
and models adopted by municipalities to address the community safety function. The
chapter also initiates a dialogue on the application of community safety in different
modalities across local, district, and metropolitan categories.

Drawing on examples of good practices, the position paper outlines how a community
safety function can be coordinated at the local level. These case studies feature various
entities, including local municipalities, districts, and a province, with a focus on safety
planning while also reflecting on operational and institutional considerations.

Finally, the position paper concludes with recommendations organized according to the
functions described in Chapter 4, including planning, community participation/
stakeholder engagement, inter-governmental relations and coordination, institutional
considerations, differentiated application across municipal categories, and funding and
resource allocation.

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2. Violence and Crime Prevention at Local Government – A Theoretical

Framework
The position paper acknowledges that many of the theoretical principles and terms have
been covered in the glossary. It highlights the global trend of local governments shifting
towards a more socially oriented and preventive role in addressing violent and social
crimes. This approach recognizes the limitations of conventional policing and criminal
justice methods in effectively tackling the underlying issues affecting community safety.
Instead, it emphasizes the need for a comprehensive response that addresses the root
causes of violence and crime, such as income inequality, gender-based inequality, and
social alienation and marginalization.

SALGA recognizes the relevance of the social perspective in understanding crime and
violence, particularly in large cities and metropolitan areas. The importance of municipal
governance is emphasized, as inadequate urban development, local governance, and
patterns of social and territorial exclusion can contribute to crime and violence. Therefore,
effective urban and community safety strategies must encompass a wide range of socio-
economic and political risks, including addressing inadequate and inequitable urban
development, improving city governance, and enhancing service delivery. While these
factors are most prominent in urban areas, they are also pertinent to safety planning in peri-
urban and rural communities.

The socio-ecological model offers a structured approach to understanding risks and

protective factors across the community and society, impacting individuals. It recognizes
that violence arises from interacting factors at individual, relationship, community, and
societal levels. Each level has specific risk and protective factors influencing behavior.
Greater exposure to risk factors increases the likelihood of violence. Addressing these
factors at different levels allows interventions to promote protective factors and reduce
violence. This comprehensive approach considers the social context for effective violence
prevention 1. [See https://www.saferspaces.org.za/learn-how/entry/tackling-violence-
in-south-africa-concepts-approaches]

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The socio-ecological model is particularly useful in the South African context because it
directs attention to the different levels of society and government where risk may arise and
where preventative interventions to mitigate risk and increase protective factors can be
implemented.

How is the socio-ecological approach relevant to local government?

Local government has a significant role in shaping the balance between risks and
protective factors through various services and functions. The following points highlight
some of these responsibilities:

Adequate provision of basic services: Local government ensures the provision of

essential services such as water, sanitation, roads, and community services. By
guaranteeing access to these services, households are healthier and more sustainable.
This reduces their exposure to safety risks associated with informality, including criminal
networks and off-grid solutions.

Management of urban spaces: Local government implements strategies for

managing urban spaces, such as precinct management and violence prevention
approaches that consider the built environment and socio-economic conditions of
specific areas. This includes improving and maintaining public infrastructure and services
like street lighting, taxi ranks, public toilets, and walkways. Proper maintenance of public
spaces, including parks and open areas, not only directly enhances their safety but also
fosters a sense of ownership and security among the public. By designing the environment
and managing public facilities effectively, violence and crime can be prevented or
reduced.

Facilitation of social programs: While not necessarily falling within the direct powers
and functions of local government, many municipalities recognize the importance of
facilitating social programs. These may involve initiatives related to youth skills and
enterprise development, parenting support, early childhood development, and adult
education. Instead of delivering these services directly, local government takes on a
facilitative role within the developmental local government paradigm. Such measures
enhance individual resilience and strengthen social cohesion in the face of poverty,
mitigating the risks of social and economic alienation. When these programs exist,
individuals, families, and communities are less vulnerable and less likely to experience or
perpetuate violence and criminality.

Municipalities with strong local democracy and effective governance are less likely
to experience public alienation and suspicion, which can lead to political violence, civic
disobedience, and criminal acts targeting public facilities. Empowered communities that
actively participate in their own development and decision-making processes through
meaningful engagement are generally safer, more stable, and more likely to uphold the rule
of law. While the correlation between well-governed municipalities and the absence of
public violence is not absolute, it is evident that opaque local governance and high levels
of community distrust or dissatisfaction with participation opportunities increase the
likelihood of violent protests.

1 See for example the graphic depiction of this in SALGA/ VCP / Civilian Secretariat for Police Service’s Guide on
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This risk is especially pronounced in environments where patronage networks are prevalent
and legitimate political action is severely limited. 2 The relationship between good local
governance and the absence of violence is a complex issue. SALGA's research on the
causes of violent protests highlights the multifaceted nature of this phenomenon, which
involves historical political legacies, cultures of violence, corruption, and the lived
experiences of poverty that create dependency on the state for improved living
conditions. Additionally, SALGA identifies factors such as poor communication between
municipal government and communities, migration, planning challenges, power struggles,
and competition over the allocation of state resources as drivers of violent protests. It is
important to note that local government is often held responsible for service failures that
originate from other spheres of government or economic hardships that are beyond its
control. 3

The annexure to this position paper contains an overview of Global Trends – Community
safety and violence prevention in other local government systems. Comparing the South
African approach to other strategies in the global context and defining aspirations can
provide valuable insights.

3. The policy and legislative framework for community safety in South Africa
The policy and legislative framework for community safety in South Africa has been
described in many existing resources and guides to which SALGA has contributed. These
include the 2018 Developing Community Safety Plans: A Guidebook for Provincial and
Municipal Officials, the 2016 Councillor Pocketbook: The Role of Municipal Councillors in
Building Safer Communities and its revised version from 2022. The VCP and the South
African Cities Urban Safety Reference Group have produced research briefs and 'state of
local government' reports that provide an overview of various aspects of community safety
policy (see www.saferspaces.org.za).

South Africa has developed a series of policy instruments aimed at ensuring public and
personal safety. These include the Constitution, the National Development Plan (NDP), 2016
White Paper on Safety and Security (WPSS) and its implementing strategy, the 2021
Integrated Crime and Violence Prevention Strategy (ICVPS), 2016 White Paper on Policing
(WPP), Integrated Urban Development Framework (IUDF), Community Safety Forum Policy
(CSFP), National Strategic Plan on Gender-Based Violence and Femicide (NSP GBVF), and
various provincial safety strategies and policies. Together, these policies provide a
comprehensive framework for government decision-making regarding community safety.
They outline clear goals, objectives, methodologies, approaches, and best practices for
creating safer communities.

2 Brown, J 2015 South Africa’s Insurgent Citizens, Jacana Media, Auckland Park

3 Ibid
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a) The Constitution (Section 41 (1)) prescribes that all organs of state, including local
government are responsible for ensuring peace and the well-being of the people of South
Africa. Part B of Schedule 4 and Part B of Schedule 5 of the Constitution set out functions
of local government which include:

• Management of Public Spaces: beaches, sports facilities, local amenities and facilities,
parks and recreation, street lighting.

• Control of undertakings that sell liquor.

• Street trading, traffic, and parking, building and fences, municipal roads.

• Municipal health services.

• Childcare facilities.

• Control of public nuisance.

• Building regulations and trading regulations.

• Public Safety: fire-fighting services, municipal planning, municipal public transport.

• Basic services: cleansing, refuse removal, water, and sanitation services

While no specific mention is made of violence or social crime prevention, many of the
public safety functions and indeed the general service / development responsibilities of
local government, have a strong influence over community safety.

• Section 151 confers municipalities the power to govern the local government affairs of
its communities, subject to national and provincial legislation.

• Section 152 defines the objects of local government which includes the responsibilities
to promote the social and economic development of the community, as well as promote a
safe and healthy environment.

• Section 153 further obligates municipalities to structure and manage their administration,
budgeting, and planning processes to prioritise the basic needs of the community.

b) The Municipal Systems Act, 2000, establishes the legal framework for local government
in South Africa and empowers municipalities to promote and undertake social and
economic development within their jurisdictions. The Act outlines the powers and
functions of municipalities and sets forth their legislative duty to provide services and
promote a safe and healthy municipal environment. This legislative framework guides
municipalities in fulfilling their administrative responsibilities and ensures that they prioritize
the well-being and safety of their communities.

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The Act further emphasizes public participation in municipal governance. As such,

councillors must promote safe communities, facilitate community networks, provide
oversight, and hold officials accountable for safety measures. The Municipal Systems Act
is the main legislation governing municipal planning (Integrated Development Plans),
giving effect to the objects of the Constitution. Chapters 5 & 6 of the Act spell out the
purpose and content of IDPs. The inclusion of community safety considerations in IDPs is
critical in directing municipal strategy and resources to safety outcomes.

c) The National Development Plan (NDP) recognizes community safety as a crucial

element for achieving sustainable development in South Africa. With violence hindering
economic growth and transformation, the NDP highlights the direct impact of safety on the
country's development agenda until 2030.

Chapter 12 of the NDP speaks to ‘Building Safer Communities’. It includes the following
objectives:

▪ Using an integrated approach to safety by addressing the underlying drivers of crime

and violence

▪ Building community participation in community safety

▪ Strengthening the criminal justice system as well as professionalising and demilitarising

the police.

The NDP takes a socio-ecological approach to analyzing the root causes of crime and
violence, considering factors such as social cohesion, child care, inequality, social norms,
vulnerable targets, spatial design, substance abuse, and weapon availability. It highlights
the importance of local government in addressing community safety needs and integrating
safety priorities into Integrated Development Plans (IDPs). Collaboration between local
government and other government departments, such as the Department of Social
Development (DSD), is also emphasized, particularly in establishing shelters for survivors
of domestic and gender-based violence (GBV). The NDP emphasizes the importance of
cooperative governance and partnerships, stating that local municipalities should
collaborate with various stakeholders to identify their safety needs and devise appropriate
strategies. This collaboration may involve conducting safety audits or barometers in
partnership with communities to gather valuable input. Possible actions resulting from
these assessments could include improving street lighting, addressing waste management
issues, implementing municipal by-laws, and promoting overall community safety and well-
being.” 4

d) The White Paper on Safety and Security, 2016 (WPSS) aligns with the NDP's vision and
serves as a comprehensive framework for a coordinated and multisectoral approach to
community safety. It advocates for a developmental approach to safety, involving the
participation of government and society as a whole. The WPSS acknowledges the
importance of evidence-based interventions that target the root causes of risks at
different levels, from individuals to communities and society, with the goal of enhancing
community resilience.

4 NDP (2012) Chapter 12

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For SALGA, a critical provision is the way the WPSS empowers local government to secure
the cooperation of other spheres. “Local government fulfils a key role [in] the safety, which
is crime and violence prevention in communities. In this regard, national and provincial
governments are legally obligated to equip municipalities with the resources and the
capacity to plan, implement and monitor violence and crime prevention related services.”
5

e) The Integrated Crime and Violence Prevention Strategy, 2021 (ICVPS) repackages the
WPSS into a strategic document which seeks to provide a coordinated and integrated plan
to prevent crime and violence in South Africa.

The strategy applies to the three dimensions of government, community, civil society, and
private sector. The strategy advocates for an integrated and developmental approach with
evidence-based planning and implementation.

To be impactful, interventions need to target both the risk factors and protective factors
related to violence and crime, tailored to the specific context, and addressing the needs
of vulnerable and at-risk groups.

The strategy emphasizes the importance of defining the role of local government in
ensuring safety, establishing guidelines for intergovernmental relations, and providing
resources and building institutional capacity. It advocates for the implementation of
programs and interventions aligned with the objectives of safety, crime prevention, and
violence reduction.

The ICVPS further seeks to align with other new prevention policy developments and the
National Strategic Plan on the Gender-Based Violence and Femicide (NSP GBVF) in
particular, to ensure a coordinated approach in addressing the multi-faceted nature of
crime and violence.

5 White Paper on Safety and Security (2016) Annexure E

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f) The National Strategic Plan On Gender-Based Violence & Femicide

Accordingly, the vision of the 2016 White Paper is to have a society where all people:

▪ Live in safe environments

▪ Play a role in creating and maintaining the safe environment

▪ Feel safe from crime and violence and the conditions that contribute to these

▪ Have equal access to high-quality services and channels of recourse when

affected by crime and violence

Six Thematic Areas of the WPSS

To realize this vision, the White Paper on Safety and Security is built upon six
interconnected themes that collectively contribute to creating a safer South Africa. These
themes form the foundation for a comprehensive approach to community safety.

Effective criminal justice system:

▪ Efficient, responsive, and professional criminal justice sector
▪ Effective diversion, rehabilitation, and reintegration programmes
▪ Effective restorative justice programmes and interventions

Early interventions to promote safety:

▪ Healthy first 1 000 days of life for children and caregivers
▪ Safe and supportive environment for children and youth
▪ Context appropriate resilience programmes
▪ Substance abuse treatment and prevention
▪ Interventions for groups at risk

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Victim support services:

▪ Comprehensive framework for protecting the rights of victims

▪ Delivery of high-quality services for victims

Integrated and effective service delivery:

▪ Access to crime and violence prevention and safety/security services

▪ Professional and responsive service provision

Safety through environmental design (STED):

▪ Integrating prevention principles into planning and design to promote safety and
facilitate feeling safe

▪ Integrating prevention as an outcome of government planning and design at local,

provincial, and national level

Active public and community participation

▪ Forums for coordinated and collaborative community safety actions

▪ Participation in the developing, planning and implementing of community safety

programmes and interventions

▪ Partnerships in supporting community safety programmes and interventions

The WPSS acknowledges the vulnerability of women and children, LGBTIQI+ communities
to crime and violence and calls for targeted interventions to address gender-based
violence.

For SALGA, a critical provision is the way the WPSS empowers local government to secure
the cooperation of other spheres. “Local government fulfils a key role [in] the safety, which
is crime and violence prevention in communities. In this regard, national and provincial
governments are legally obligated to equip municipalities with the resources and the
capacity to plan, implement and monitor violence and crime prevention related services.”
5

e) The Integrated Crime and Violence Prevention Strategy, 2021 (ICVPS) repackages
the WPSS into a strategic document which seeks to provide a coordinated and integrated
plan to prevent crime and violence in South Africa. The strategy applies to the three
dimensions of government, community, civil society, and private sector. The strategy
advocates for an integrated and developmental approach with evidence-based planning
and implementation. To be impactful, interventions need to target both the risk factors and
protective factors related to violence and crime, tailored to the specific context and
addressing the needs of vulnerable and at-risk groups.

5 White Paper on Safety and Security (2016) Annex E

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The strategy emphasizes the importance of defining the role of local government in
ensuring safety, establishing guidelines for intergovernmental relations, and providing
resources and building institutional capacity. It advocates for the implementation of
programs and interventions aligned with the objectives of safety, crime prevention, and
violence reduction. The ICVPS further seeks to align with other new prevention policy
developments and the National Strategic Plan on Gender-Based Violence and Femicide
(NSP GBVF) in particular, to ensure a coordinated approach in addressing the multi-
faceted nature of crime and violence.

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The National Strategic Plan on Gender Based Violence and Femicide (NSP-GBVF)
emerged as an important policy intervention to address the deficits in policy and
implementation addressing gender-based violence and femicide. The NSP-GBVF
provides a cohesive strategic framework to guide the national response to the scourge of
GBVF. The strategy encompasses a comprehensive and strategic approach to address
gender-based violence and femicide, with a specific emphasis on violence targeting all
women, including those of different ages, locations, abilities, sexual orientations, gender
identities, expressions, nationalities, and other diversities. It also acknowledges the
interconnectedness of violence against women and violence against children, highlighting
their reinforcing effects.

In recognizing the importance of preventing gender-based violence and femicide, the

National Strategic Plan (NSP) draws upon the White Paper on Safety and Security (2016) as
the overarching policy framework for safety, crime, and violence prevention in the country.
It builds upon the six themes identified in the White Paper to guide its implementation and
actions.

The National Strategic Plan on Gender-Based Violence and Femicide (NSP-GBVF) also
considers recommendations from the review of responses to violence against women and
children, conducted by the Department of Planning, Monitoring, and Evaluation (DPME). It
builds upon the review of the National Plan of Action by the Department of Social
Development (DSD) and incorporates the efforts of civil society through the Stop GBV
NSP Campaign.

Moreover, the NSP-GBVF aligns with Priority five (5) of Community Safety and Social
Cohesion, providing a comprehensive national framework to support South Africa in
achieving the targets set by the Sustainable Development Goals (SDGs).
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POSITION PAPER

The primary focus of the NSP-GBVF is to collectively address the persistent crisis of
gender-based violence and femicide, aiming for a South Africa where all forms of GBV
against women, children, and LGBTQIA+ individuals are eradicated. The NSP-GBVF is
centered around addressing the following issues:

• The alarming lack of accountability for perpetration of GBVF by individuals, by the state
and society overall

• The systemic inadequacies that result in the levels of vulnerability and a lack of safety

• The largely ineffective and insensitive response to the needs of survivors and those
working to support them

• Individual, historic, and collective trauma that continue to feed the normative levels of
violence overall

• A strengthened emphasis to coherently and comprehensively respond to the social

norms, inequalities and structural drivers that result in the high levels of GBVF the country
is facing

• A deeper understanding of the scale and nature of GBVF in the country while improving
data systems to support effective implementation and understanding of the impact of the
NSP.

The illustration above highlights the six key pillars on which the National Strategic Plan on
Gender-Based Violence and Femicide (NSP-GBVF) is built. It emphasizes the importance
of accountability, responsiveness, and concerted efforts to prevent gender-based
violence and femicide. The NSP-GBVF promotes a multi-sectoral response, increased
accountability, and enhanced coordination and collaboration among stakeholders. It
prioritizes prevention, addressing structural and economic factors, and strengthening the
criminal justice system's response. The plan aims to ensure victim-centric, survivor-
focused, and accessible quality services provided by the state and other entities. It
acknowledges the need for a deepened understanding of the issue and the importance
of rebuilding positive social cohesion. The NSP-GBVF is complemented by the
Comprehensive National GBV Prevention Strategy, which aims to leverage existing
evidence, interventions, and policies, scale up successful approaches, address resource
and capacity gaps, and systematize evidence-based GBVF prevention nationwide.

g) The Integrated Urban Development Framework, 2016 (IUDF) , introduced in 2016,

seeks to create inclusive, safe, resilient, and livable cities and towns by implementing
coordinated investments in both people and places. Within the IUDF, urban safety is
recognized as one of the three cross cutting issues, and it addresses community safety,
violence prevention, and crime prevention through its nine policy levers. These policy
levers encompass various aspects such as spatial planning, transport and mobility,
sustainable human settlements, urban infrastructure, efficient land governance and
management, inclusive economic development, empowered active communities, and
effective urban governance. The IUDF aims to integrate these functions to foster the
development of safe and thriving urban environments.

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The Discussion Draft of the IUDF, 2014, proposes five key strategies to improve urban
safety: 6

1. The development of integrative local safety plans

2. The improvement of the urban built environment

3. A focus on prevention initiatives

4. The incorporation of social components into prevention initiatives

5. The incorporation of community/public participation in prevention initiatives

As such, the IUDF echoes many of the core principles contained in the White Paper on
Safety and Security and related policy instruments. One example is the adoption of the
socio-ecological model in understanding the multi-dimensional drivers of violence and
crime and the utility of CPTED approaches in urban design. SALGA notes and endorses
the call within the IUDF for municipalities to make a stronger commitment to civic education
and the production of an informed and engaged citizenry. Community structures should
be exposed to project management and planning skills to effectively engage the
municipal planning regime.

h) Community Safety Forum Policy, 2011

The main provisions of the policy are as follows: 7

• Policy for the establishment of Community Safety Forums: a key provision is the planning,
coordination, and execution of integrated crime prevention initiatives.

• Draft Guidelines on Implementing Community Safety Forum Policy: this is to be used by

practitioners involved in the implementation of CSF policy at metro, district, and local
municipal level.

• Monitoring and Evaluation Tool for Community Safety Forum: the main aim of this tool is
to assess functionality and effectiveness of the CSFs

Community Safety Forums (CSFs) play a vital role in coordinating and monitoring multi-
sectoral crime prevention and community safety efforts. The minimum standards for CSFs
emphasize the crucial role of local government in establishing and operating these forums:

- CSFs should be established within the boundaries of district municipalities, and if

applicable, local municipalities. The Community Safety Programme Support (CSPS) should
assist in structuring and establishing CSFs at the local level, ensuring alignment with
metropolitan, district, and/or local municipal boundaries.

- Municipalities, in collaboration with provincial departments responsible for community

safety, must coordinate all CSF activities.

- CSF programs, as outlined in the policy scope, should be integrated into municipal
Integrated Development Plans (IDPs).

6 Integrated Urban Development Framework - Draft for Discussion 2014

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- Each level of government and organization is responsible for funding their contributions
to CSF operations.

Local government has a crucial role in the CSF, including providing secretariat services,
allocating a budget, and establishing necessary infrastructure for its functioning. It is
responsible for ensuring operational cohesion among CSF committees and developing an
annual program of action, which should be incorporated into the municipal IDP. SALGA
acknowledges the need to review the CSF Policy in line with the White Paper's principles.
SALGA recognizes the CSF as a valuable mechanism for implementing local-level crime
and violence prevention strategies. It also acknowledges that the current oversight and
implementation arrangements for the policy are not ideal, contributing to uneven
performance among municipalities with CSFs. The CSF model remains crucial in community
safety strategy and should be prominently featured in national and provincial strategies.

While it cannot replace community safety competencies within municipal administration,

the CSF serves as a valuable platform for stakeholder coordination and public
engagement. It should be the preferred option for launching safety programs and
gathering public input for safety plans and their review, integrated with the IDP review
cycle. Proper institutionalization of the CSF within the municipality is essential. Additionally,
existing structures like Rapid Response Teams, which also serve as coordination structures
for implementing the NSP GBVF at the local level, should be reassessed. SALGA has
developed detailed recommendations on these matters in the next section of this paper,
addressing institutional experiences and emerging models.

SALGA proposes the stabilisation of community safety policy and the recognition of an
official Community Safety Policy Framework comprising the WPSS, the ICVPS, the IUDF and
all policies for CSFs. These policy instruments should be rationalised and simplified. Any
further steps towards enactment must include clear directives on legislative reform and
systems redesign.

4. Practical lessons and challenges in taking up community safety as a local

government function
4.1 Community safety functions

Local government should adopt a holistic and inclusive approach to community safety
while also focusing on their core functions and leveraging them for positive changes.
These functions include:

- Developing a municipal safety plan, conducting safety audits/surveys, and formulating

an implementation strategy with monitoring and evaluation systems.

- Reviewing by-laws and codes for safety relevance.

- Promoting public participation and managing stakeholder involvement, primarily through

the CSF, throughout the safety strategy's planning, program roll-out, and monitoring and
evaluation.

7 The Civilian Secretariat for Police Services (2016) Policy on the Establishment of Community 24
Safety Forums
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- Incorporating community safety considerations in all municipal line functions, such as

infrastructure, service provision, and urban design.

- Implementing community safety programs and interventions, and collaborating with other
sectors like police, justice, and correctional services.

- Facilitating and coordinating the provision of social services with a strong preventive
impact.

SALGA emphasises the importance of identifying safety outcomes across municipal core
functions and endorses the listed recommendations to integrate preventative violence
and crime prevention approaches into strategic planning processes.

Based on practical experience from community safety projects in which SALGA and its
partners have been involved, the following challenges and opportunities emerge in
relation to these functions.

Improving the design and management of the urban / built environment

While Crime Prevention through Environmental Design (CPTED) approaches have shown
positive results in metropolitan municipalities, there may be challenges in applying these
principles in larger urban areas where town planning practices may not align with CPTED.
In smaller rural and medium-sized municipalities, town planning skills are often outsourced,
which may result in a lack of focus on CPTED in planning briefs and deliverables. In such
cases, the establishment of hubs and specialized support services can help address this
issue. However, it is crucial for future town planning to incorporate CPTED principles in
settlement and infrastructure design, as well as in the ongoing management of urban
spaces and precincts. This ensures that community safety is considered throughout the
planning and development process, promoting safer environments for residents.

Facilitating and coordinating preventative social services

SALGA acknowledges the important role that municipalities already play in promoting
community safety through various initiatives and partnerships. However, there is a need for
a more intentional and coordinated approach. Municipal staff and councillors possess
valuable skills and experience in working with networks and forums that address issues
such as youth resilience, gender-based violence, early childhood development, and
disability support. However, the safety benefits of these efforts are not always recognized,
and there is often a lack of coordination and reflection on how these programs contribute
to overall community safety objectives. It is crucial for the municipality's IDP and strategic
plans to incorporate a community safety planning component that clearly outlines the
contribution of these programs to risk prevention and protective factors, and how the
municipality intends to enhance the effectiveness and coherence of these initiatives.
Efforts are currently underway in partnership with the Department of Government to
provide guidance and promote accountability in integrating community safety measures
and outcomes into integrated development planning.

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Community Safety Forums

Community safety forums have been established in municipalities for several years,
although their full potential is often not realized. SALGA acknowledges the significant
contribution of the Civilian Secretariat for Police Services (CSPS) in developing policy that
clarifies the role of local government in these important forums. The existing CSPS policy
highlights the following key points:

• The crucial role of local government in coordinating local stakeholders, including

government and non-government entities, line departments, and other spheres of
government.

• The importance of community participation in community safety matters.

• The need for improved coordination and synergies between line departments and
multi-sectoral programs when addressing local community safety issues.

• Guidelines on how coordination responsibilities should be delegated to the local and

district levels.

• The obligation to identify and promote crime prevention measures.

• The responsibility to conduct safety audits in collaboration with civil society.

• The management of community safety performance.

• The identification of relevant government role-players on community safety forums,

representing all levels of government.

Moving forward, there are several areas that require attention and improvement regarding
community safety forums (CSFs):

• Understanding and addressing the implications of having CSFs' spatial jurisdiction

linked to both municipal boundaries and specific SAPS station precincts.

• Clarifying the working relationship between CSFs and Community Policing Forums
(CPFs) and recognizing the special status of CPFs within CSFs as valuable sources of
crime and violence information.

• Clearly defining the roles and contributions of different stakeholders within the CSF.

• Expanding upon the two-tier CSF model outlined in the CSPS policy, where the district
CSF consists of representatives from local CSFs under its jurisdiction, to enhance
functionality and integration. This model aligns well with the district development model
(DDM).

8 SALGA Discussion Document on Enhancing the Role of Local Government in Building Safer
Communities, 2020. Document that informed the formulation of this Position Paper.
9 Community_Safety_Plans_Guide_Book_web_Final.pdf (saferspaces.org.za) 26
POSITION PAPER

• Revising the monitoring and evaluation (M&E) framework for CSFs to focus less on
paper-based policy compliance and more on the effective functioning and operations of
CSFs. It should also establish a clear link between the CSF's annual plan and activities and
the official municipal safety plan within the Integrated Development Plan (IDP). Additionally,
incorporating civil society input into the evaluation process is important.

In order to enhance the safety of the most vulnerable in communities, it is important to

consider the recently established Rapid Response Teams (RRTs) as recommended by the
National Strategic Plan on Gender-Based Violence and Femicide. Improved alignment and
collaboration between various local coordinating structures is necessary to ensure
integrated approaches to community safety. This will help avoid competing stakeholder
involvement and uncoordinated efforts towards the same objective.

4.2 IDP and community safety planning

The IDP serves as the primary strategic planning and management instrument for
municipalities. It is mandated by the Municipal Systems Act (Act 32 of 2000) and
encompasses comprehensive and integrated planning for all municipal functions and
services. Without inclusion in the IDP, community safety functions cannot be effectively
prioritized, resourced, or operationalized, and their linkages with other municipal functions
may be overlooked. The IDP process provides many opportunities for integrating
community safety considerations into core municipal functions. This includes aspects such
as urban design, transport planning, management programs for urban spaces and built
environments, infrastructure design, joint operations planning with the police and other
state entities, and spatial planning (e.g., the Spatial Development Framework). These
considerations are discussed in detail in section 4.1 of the discussion document. 8 The
values and norms that should guide municipal safety planning are covered extensively in
the booklet by SALGA and the Civilian Secretariat for Police Service, Developing
Community Safety Plans: A Guidebook for Provincial and Municipal Officials 9, and will not
be repeated here. SALGA acknowledges that the integration of community safety content
and measurable targets within IDPs has been lacking thus far. To address this issue, it is
necessary to move beyond mere guidelines and establish regulatory mechanisms that
mandate the inclusion of community safety elements in IDP content. Simply mentioning
safety considerations is insufficient; a more comprehensive approach is required. The IDP
serves as a vital tool for strategic planning and budget allocation, but the effectiveness of
the planning process itself, including its steps, routines, and cycles, is crucial in ensuring
the integration of safety considerations into engineering and infrastructure plans, local
economic development, service design, licensing and by-laws, and other core municipal
functions. Merely establishing a community safety unit and requiring collaboration with the
IDP unit may not be sufficient in institutional planning. It would be beneficial to introduce a
program that facilitates mutual understanding and alignment between these units in terms
of safety planning. This entails developing a shared understanding of safety in relation to
broader developmental objectives, rather than limiting it to law enforcement
considerations. It is crucial to recognize the importance of inclusive violence prevention
and to understand it within the socio-ecological model, addressing the underlying drivers
of violence.

8 SALGA Discussion Document on Enhancing the Role of Local Government in Building Safer
Communities, 2020. Document that informed the formulation of this Position Paper.
9 Community_Safety_Plans_Guide_Book_web_Final.pdf (saferspaces.org.za)
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There is a noticeable disparity in technical planning capacity, data management, analysis,

and knowledge management among municipalities. This issue can be addressed through
various approaches, such as establishing a National Centre as proposed in the White Paper
on Safety and Security, partnering with research agencies, or implementing specialized
shared services at the district level, similar to the Planning and Implementation
Management Support (PIMS) Centres that were successful in local government
approximately a decade ago. The possibility of utilizing the District Development Model
(DDM) to establish "District Hubs," which would extend services provided by the
Department of Cooperative Governance and Traditional Affairs (CoGTA), has been
discussed. However, further clarification is required on how the necessary skills and
capacities will be assembled and deployed at these hubs. In 2022, a circular was
developed to promote the integration of community safety measures into IDPs. The
purpose of this circular was to offer comprehensive guidance and support for the
development and implementation of safety plans within IDPs. It emphasized the
importance of incorporating projects and commitments from sector departments with
specific safety outcomes in mind. SALGA fully supports this circular and pledges to assist
municipalities in its implementation through capacity development and dissemination in
relevant forums.

SALGA strongly supports the notion that safety plans should be mandatory inclusions
within IDPs, backed by legislation and guided by minimum standards. This is essential to
ensure that safety plans receive adequate resources and are effectively integrated with
other municipal functions. It is important to recognize that this requirement goes beyond
mere compliance or documentation, and should be accompanied by programmatic
interventions and support. This entails exploring systems and procedures that incorporate
community safety outcomes across all municipal functions, thereby mainstreaming the
importance of community safety throughout the municipality.

4.3 Community participation / stakeholder engagement

The legal requirement for community safety planning by local government is derived from
Chapter 4 of the Municipal Systems Act, in conjunction with section 28 (2) & (3) of the same
Act. The SALGA Guidebook, Developing Community Safety Plans, extensively discusses
the challenges faced by local government in promoting community participation in
planning. It also acknowledges the municipal responsibility to empower citizens for
participation, which can be achieved through enhancing their understanding of community
safety concepts and recognizing the existing expertise and knowledge within
communities.

SALGA recognizes that communities engage in municipal affairs through various channels
such as ward committees, IDP representative forums, public hearings, and area-based
management teams. SALGA encourages municipalities to utilize the Community Safety
Forum (CSF) as a platform for stakeholder engagement in community safety matters. The
CSF should play a central role in facilitating interactions such as participatory safety
planning initiatives, community audits, implementation programs, and monitoring and
evaluation. However, it is crucial to ensure alignment and collaboration with other existing
local coordinating structures that facilitate participatory processes with community
members.
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SALGA and GIZ-VCP have collaborated on the development of various resources that
propose innovative partnerships, stakeholder mapping, and co-creation approaches.
These initiatives are aimed at mobilizing interest groups, using unique skills and insights,
and utilizing resources within civil society to achieve stronger impacts in crime and
violence prevention through a place-based approach. The goal is to establish and
strengthen connections and relationships with communities, fostering shared leadership
and sustainable collaboration. It is important to emphasize that these approaches should
not overshadow the primary goal of engagement, which is the co-design of strategies and
solutions, as well as the municipality's accountability to the public for the performance and
outcomes of these safety strategies.

SALGA acknowledges the need to avoid reinventing the wheel. Participatory engagement,
co-design, and planning in local government already involve various mechanisms such as
Community Safety Forums (CSFs), ward consultations, ward, or area-based planning, and
IDP representative forums. These existing platforms can contribute to shaping an inclusive
community safety strategy, and efforts should be made to build upon and integrate them
effectively.

4.4 Inter-governmental relations and coordination of state actors

The imperative for involving a wide range of state and non-state actors in well-coordinated
community safety strategies is rooted in the socio-ecological model, which emphasizes
the interconnectedness of various stakeholders. This principle aligns with the District
Development Model (DDM) and the coordinating responsibilities of Community Safety
Forums (CSFs). The ecological understanding highlights the complex interplay between
individuals, families, communities, and society, which ultimately influences patterns of
social crime and violence. A comprehensive social crime and violence prevention strategy
requires the involvement of diverse agencies beyond the police and criminal justice
system, focusing on long-term and preventative measures.

The White Paper on Safety and Security further emphasizes the role of local government in
community safety. However, SALGA acknowledges the challenge that municipalities most
in need of support and cooperation from central government (such as rural and district
local government) often have less influence over provincial and national governments.
Addressing this challenge requires concerted efforts to enhance collaboration, support,
and resources for municipalities to effectively implement community safety strategies and
initiatives.

In metropolitan areas and large urban governments, municipalities have a better chance of
coordinating efforts and improving intergovernmental relations. The South African Cities
Network (SACN) has identified factors in intergovernmental relations that affect the ability
of local government to take on stronger community safety functions. It is now clear that
national departments are committed to adopting complementary approaches rather than
isolated strategies, which is a positive development. This shift recognizes the importance
of collaboration and coordination between different levels of government in addressing
community safety challenges. Through joint efforts, national departments, provincial
governments, and municipalities can use their strengths, resources, and expertise more
effectively.
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Improved intergovernmental relations in community safety can be achieved by fostering

greater responsiveness from national government in policy formulation, implementation,
and operational aspects. Lessons and evidence from municipal practices in community
safety should inform and guide these efforts, allowing for refinements and adjustments in
the roles of various state actors.

4.5 Institutional experiences and emerging models

a) Locating the community safety function and matters of institutional capacity

SALGA supports the ICVPS approach of finding the community safety capacity in a
position that facilitates alignment across other municipal functions such as IDP, leadership,
data collation, and town/city planning. While the Municipal Manager's office is commonly
considered, the final decision should be based on the best alignment with line functions
and available human resources. SALGA acknowledges that the Municipal Manager's office
is often already burdened with multiple cross-cutting responsibilities.

b) Splitting the responsibility within the administration

The ICVPS recognizes that existing structures/units can be used to perform or support the
community safety function. SALGA acknowledges this reality but suggests reviewing such
arrangements to ensure compatibility with a socio-ecological approach to community
safety. If the function is shared with another department, it is important to have a dedicated
unit or team with the necessary expertise and work plan to ensure adherence to the socio-
ecological approach, focusing on preventive measures against crime and violence rather
than solely response efforts.

In summary, SALGA proposes the following institutional considerations for community

safety:

• There is no one-size-fits-all institutional model.

• In small local municipalities, a small unit with at least one dedicated post offers the best
prospects of success.

• While attaching community safety to other line functions is not ideal, it may be necessary
for smaller municipalities. Measures should be in place to maintain a focus on crime and
violence prevention.

• At the metro level, a formal unit with a dedicated manager and 3-4 research and
facilitation coordinators should be considered as a minimum provision.

• Properly framed job descriptions for staff in the community safety unit are critical.
Generic job descriptions for safety coordinators/managers are available as part of the
VCP resource pack.

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4.6 Differentiation by municipal type and functional relationships

between local and district municipalities
SALGA acknowledges the heterogeneity of local government and the diverse capacities
and resources available to municipalities. This variation is evident in different municipal
categories (local, district, and metropolitan) and types within those categories. Budget
size, often used as an indicator of municipal capability, varies significantly. It is important to
recognize that rural municipalities, including districts, may not have the same capacity to
support the community safety function as metropolitan municipalities and local
municipalities with secondary cities. Metros, while also diverse, have larger budgets,
greater financial independence, and more discretion in spending. They often have
sophisticated community safety departments and units, and some have their own metro
police services. They receive help from additional revenue streams such as a share of the
fuel levy. As such, metros serve as important learning sites for effective and innovative
municipal practices in community safety. SALGA supports the Urban Safety Reference
Group (USRG), facilitated by the South African Cities Network (SACN) and the GIZ-
Inclusive Violence and Crime Prevention (VCP) Programme. The USRG provides a platform
for learning, exchange, and advocacy on urban safety among city practitioners and
national government stakeholders. SALGA acknowledges and endorses the achievements
of the USRG in generating valuable lessons in this field:

• Disaggregating crime data to municipal boundaries to municipal level to identify crime

rate trends rather than working with absolute figures.

• Engaging in participatory safety audits and using the Extended Public Works Programme
(EPWP) to involve communities in addressing safety concerns.

• Addressing public space rehabilitation and homelessness through participatory

interventions and surveys.

• Combating theft of electrical cables through community policing efforts.

• Adopting a service center approach to tackle informal settlement upgrades and combat
illegal services.

While recognizing the unique circumstances of non-metropolitan municipalities, SALGA

emphasizes the importance of all municipalities clearly defining their commitment to
community safety functions in terms of resources, staff time, and the involvement of
management and political leadership. For local municipalities outside the metropolitan
category, capacity-building support is crucial, particularly in conducting safety audits and
accessing, processing, and analyzing relevant data sets. SALGA supports exploring
options such as the District Development Model (DDM) and the proposed National Centre
for Crime and Violence Prevention outlined in the White Paper on Safety and Security to
address these needs. According to SALGA, the White Paper on Safety and Security (WPSS)
provides guidelines for the relationship between local and district municipalities regarding
community safety.

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While community safety is not currently listed as a separate function in the Constitution's
Schedule 4B and 5B, the principles of the Municipal Structures Act are relevant in this
context. SALGA emphasizes that community safety should only be transferred from local to
district municipalities if the local municipality lacks ability and the district has the necessary
resources and capability to fill the gap.

SALGA cautions against assuming that a dedicated unit may not be possible for small,
under-resourced municipalities. Even if a local municipality cannot afford a dedicated unit,
the function can still be performed with administrative and programmatic support from the
district municipality. SALGA emphasizes that the "transfer" of a function from a local to a
district municipality should not be viewed as a permanent or unqualified action. It should
only occur when clear incapacity has been proven, and the transfer should be temporary,
accompanied by interventions aimed at re-establishing local capacity. The Constitution
and local government legislation support this approach, and judicial review can further
enforce it.

It is important to differentiate between the community safety function as a whole and the
specific tasks and responsibilities involved in servicing that function. In certain cases, a
small local municipality may require assistance from the district in tasks such as data
collation and analysis for safety planning or implementing Crime Prevention Through
Environmental Design (CPTED) principles in built environments. However, the delegation of
these tasks to the district does not imply a transfer of the entire function. SALGA
emphasizes that certain safety tasks, such as establishing and maintaining a database of
crime and violence statistics, may be more efficiently performed at the district level due to
economies of scale. This shared service can help multiple local municipalities within the
district. However, it is important to note that this shared service does not diminish the local
municipalities' right to retain the community safety function.

Furthermore, SALGA urges that any future policy developments in this regard should be
based on the actual experiences of district-local cooperation. It is crucial to consider that
not all district municipalities may be capable of replicating successful models
implemented in other districts. Capacity assessments conducted by the Municipal
Demarcation Board (MDB) in 2018 have highlighted capacity constraints at the district
level. Therefore, the introduction of a new community safety framework should be
approached selectively and incrementally, considering the specific capacities and
circumstances of each district municipality.

• SALGA suggests that the transfer of the community safety function from local to district
municipalities should be subject to certain conditions, including:

• Clear evidence demonstrating that the local municipality is unable to effectively perform
the function.

• Clear evidence indicating that the district municipality has greater resources and
capabilities to carry out the function.

• Implementation of a parallel program aimed at building functional competency within the

local municipality.

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• Introduction of shared services or task assistance by the district municipality to address

capacity or achieve economies of scale, while ensuring that it does not undermine the
overall community safety function of the local municipality. These conditions aim to ensure
that the transfer of the community safety function is based on valid justifications, and that
appropriate measures are taken to support and enhance the capacity of both local and
district municipalities in fulfilling their respective roles in community safety.

4.7 Funding and resource allocation

SALGA acknowledges the critical importance of considering the economic and fiscal
realities that local government in South Africa currently faces. During the 2019/2020
financial year, over one-third of municipalities operated with a budget deficit, indicating
that their expenditures exceeded their income. Furthermore, the Auditor General found
that 76% of municipalities had concerning or critically problematic financial health statuses.
SALGA recognizes that the poor national economic climate significantly contributes to the
decline in municipalities' financial health. Additionally, the COVID-19 pandemic has further
worsened the financial and economic crisis faced by local government and the country. To
stabilize debt, the National Treasury plans to implement spending reductions of
approximately R230 billion in 2021/22 and 2022/23, followed by further reductions in
2023/24. These financial challenges highlight the need for careful consideration of
resource allocation and prioritization in the context of community safety. 10 Having set up
the severe constraints posed by the economic and fiscal context, SALGA must address the
question of whether a) community safety constitutes a local government responsibility or
b) that responsibility possibly constitutes an unfunded mandate. 11

• Community safety is indeed a responsibility of local government, but it is not an exclusive

responsibility of government. The Constitution (Section 41 (1)) prescribes that all organs of
state are responsible for ensuring peace and the well-being of the people of South Africa.

• Community safety responsibilities are best understood as outcomes, closely related to

existing local government service obligations as set out in Schedules 4B and 5B of the
Constitution (building regulations, child care facilities, municipal planning, municipal public
transport, cleansing, control of public nuisances, control of undertakings that sell liquor to
the public, noise pollution, public places, street lighting and traffic management). Local
government is thus able to re-orientate or gear these services towards community safety
benefits without necessarily incurring additional costs or liabilities.

• Community safety is therefore not a new function per se but largely a new approach
to service provision that prioritises safety outcomes.

10 National Treasury (2020) Supplementary Budget Review 24 June 2020

11 The Finance and Fiscal Commission defines an unfunded mandate as follows “Unfunded
mandates refer to situations in which sub-national governments are legally mandated in terms
of the Constitution or by policy pronouncement to undertake specific functions but do not
receive funds from nationally raised revenues in order to fulfil these functions.” See Finance and
Fiscal Commission (2011) The Impact of Unfunded Mandates on South African Intergovernmental
Relations in Policy Brief 3 of 2011 33
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SALGA also notes the caution of a legal expert who participated in the scrutiny of the
discussion document, “… in my experience, debates about the formulation of new local
government mandates or the conceptualisation of mandates for local government have
seldom found their way beyond theory, broad policy statements or legal conundrums. It
can also be argued that community safety is an outcome, rather than a mandate or
function.” Despite the existing responsibilities of local government outlined in the
Constitution, the socio-ecological model, and the New Urban Agenda 2016 advocate for
a stronger role for local government in community safety. This includes an expanded scope
of planning, improved inter-governmental coordination, and the facilitation of social
services aimed at preventing violence and crime. As a result, new tasks and obligations
may emerge within existing functions that are not adequately addressed by conventional
revenue and funding mechanisms, such as the Equitable Share grant and conditional
grants.

SALGA suggests that further consideration and reflection on these matters are necessary,
drawing from municipal experiences and documented case studies. It is important to
explore innovative approaches and funding mechanisms to support local government in
fulfilling their enhanced role in community safety, ensuring that they have the necessary
resources and support to address emerging challenges effectively. SALGA acknowledges
that certain metropolitan and larger local municipalities have initiated projects aligned with
the expanded socio-ecological model for violence and crime prevention. These projects,
financed by their own revenue or through innovative utilization of conditional grants, play a
crucial role in fostering innovation and exploring novel approaches to crime prevention.
Insights gathered from SALGA branches and other collaborators highlight the following
opportunities:

• Reformulating the grant criteria of the Extended Public Works Programmes and the
Community Works Programme to explicitly focus on community safety impacts.

• Enhancing the role of Community Safety Forums (CSFs) in coordinating the allocation
of resources from various line departments and agencies to local community safety
initiatives, ensuring maximum impact.

• Incorporating community safety considerations into the screening process of line

department budgets (such as infrastructure, engineering, parks and amenities,
community services) during the municipal budget cycle.

Budgeting and financial provision for expanded community safety functions - a possible mix of solutions
Redirect Integrated CS State funding agencies
Raised by expenditure elements into other (NDA, Lotteries, etc) to
open community safety
the WPSS deemed wasteful line functions streams of funding.

Full inclusion in own Partial inclusion with Limited inclusion with

budget funded by supplementary significant reliance
own revenue contribution by other on other spheres and
spheres grant applications

Metros/LMs with secondary cities / well-resourced DMS / Med LMs / small LMs and rural DMs 34
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• Further exploring the ideas presented in the WPSS and ICVPS, including redirecting
ineffective or wasteful spending, utilizing Skills Education Training Authorities (SETAs)
for capacity building in community safety and early intervention programs, leveraging
donor aid and state funding agencies to support community safety objectives, and
formalizing partnerships with non-governmental organizations in community safety
initiatives.

• Introducing new conditional grants specifically targeting safety priorities, accessible

through application processes (consideration of affordability should account for the
impact of the Covid-19 pandemic and the overall economic downturn).

• Strengthening community safety components in large infrastructure and housing-

related grants, such as the Municipal Infrastructure Grant (MIG) and Development Bank
of Southern Africa (DBSA) program lending. The Urban Services Development Grant,
currently limited to metropolitan municipalities, could be extended to local and district
municipalities to support safety outcomes.

Considering the wide-ranging policy discussions surrounding funding for community

safety functions, it is prudent for local government to anticipate a hybrid solution that
combines the use of own revenue (whenever feasible), coordinated co-funding through
planned efforts involving other spheres of government, and innovative utilization of existing
or reformed conditional grant mechanisms. This approach acknowledges the shared
responsibility of multiple stakeholders and aims to optimize available resources for
community safety initiatives.

5. Conclusion
South Africa possesses a robust policy framework that positions local government as a key
player in the national effort to combat crime and violence. The emphasis on the ecological
approach and social crime prevention within these policies aligns with international best
practices and standards. However, SALGA acknowledges the need to heed the National
Development Plan's call for policy stabilization. In the community safety sector, there has
been an accumulation of policies without sufficient consideration for strategic choices
and their practical implications. To enhance the current policy framework (WPSS, ICVPS,
IUDF, NSP-GBVF, and CSF policies), there is a need for refinement and rationalization to
make them more user-friendly. This entails identifying strategic linkages and aligning core
objectives across these policies during local implementation. It also requires targeted
capacity building processes to support coordinated implementation efforts and
integration at the local level.

The repeated use of concepts like "whole of society" and "whole of government" across
various policy instruments may risk losing impact and relevance among municipal officials.
To effectively implement community safety policies, a more thoughtful approach that
embraces the principle of "less is more" may be necessary. It could be an opportune time
to shift towards the "hard edge" of intergovernmental relations, focusing on regulation and
supervision rather than just cooperation and joint planning (the soft edge). To achieve the
desired change in thinking towards sustainable community safety, there needs to be
increased awareness and political commitment.

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This should be supported by practical demonstrations of effective systems and

procedures that prioritize violence prevention over reactive security approaches. Success
in this endeavor requires renewed political engagement from councillors and the
empowerment of administrators and managers with the necessary skills and knowledge.

Area-based violence prevention interventions (ABVPI) offer a comprehensive and

evidence-based approach that targets specific geographic areas to reduce both violent
incidents and their underlying causes. It integrates social, spatial, and institutional
strategies, with a strong emphasis on inclusive community participation. This approach
allows for a comprehensive understanding of the local neighborhood dynamics and
empowers communities to co-create and design violence prevention approaches based
on their unique knowledge and context.

SALGA acknowledges the significant role envisaged for local government in terms of the
District Development Model and policy documents that emphasize municipalities as key
players in coordinated government strategies for community safety. However, for this vision
to become a reality, provincial and national governments must move away from viewing
municipalities as passive recipients of centrally driven programs and funding. The District
Development Model should establish practical mechanisms that enable municipalities to
serve as platforms for mediating programs, funding, and strategies with other government
entities. The model should also incorporate incentives to encourage provincial and
national governments to align their strategies with local safety priorities and initiatives.

Regarding institutional options within municipal administration, a differentiated approach is

necessary, considering variations in affordability and capacity across municipalities. It is
crucial to consider economies of scale, shared services, and efficient allocation of scarce
skills within district areas, particularly in non-metro environments. The relationship between
local and district municipalities should be guided by pragmatism and the legally mandated
role of district municipalities as sources of support and assistance. Such assistance can be
provided without resorting to the complex process of transferring functions. However, this
should be carefully assessed based on the actual capacity and resources available at the
district level. Metros and municipalities with larger secondary cities could develop
dedicated units and explore more ambitious organizational structures.

Functions and funding: SALGA recognizes that municipalities are wary of assuming
community safety functions that lie outside their functional competency. The principle of
shared functional responsibility for community safety across all government spheres is
valid and aligns with the socio-ecological understanding of crime and violence. In
practice, however, implementing this principle can be complex, especially when local
government is required to coordinate and mobilize inputs from different spheres and
sectors.

Given the current economic and fiscal environment, local government must prioritize
community safety within its existing functions and service responsibilities. This requires a
fresh approach to core municipal functions such as development planning, infrastructure
development, building regulation, regulation of child care facilities, municipal public
transport, cleansing, control of public nuisances, control of undertakings that sell liquor to
the public, noise pollution, public places, and street lighting.
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Within each of these areas, the potential safety impacts should be analyzed and
incorporated into strategy. It is important to document and reflect upon the lessons and
insights gained from practical implementation to support municipal community safety
practitioners and colleagues in associated sector departments in revising service
strategies to achieve desired safety outcomes.

This approach does not negate the possibility of accessing additional funding for
activities necessary to effectively fulfill an expanded community safety mandate.
Dedicated community safety grants from the central government, whether conditional or
program-based, are commonly utilized internationally. These grants can be allocated to
activities and tasks that yield safety outcomes but may not typically be covered by the
budget provisions for basic functions.

As discussed earlier in this paper, incorporating community safety considerations into

infrastructure projects funded by conditional grants can be straightforward. It would
involve adjusting application criteria and reporting indicators to align with safety
objectives. However, the realignment of operational expenditure, particularly for small local
municipalities and rural districts that rely on the Equitable Share grant to subsidize or fully
fund basic services, may pose greater challenges. These municipalities often face budget
constraints, and there may be limited flexibility to add or shift outcomes due to existing
stretched expenditure on subsidized basic services.

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REFERENCES
Auditor General of South Africa (2020) Consolidated General Report on the Local Government Audit
Outcomes 2018-2019

Brown, J. (2015) South Africa’s Insurgent Citizens, Jacana Media, Auckland Park

Centre for the Study of Violence and Reconciliation and Society, Work and Development Institute (2011) The
Smoke that Calls, www.csvr.org.za

Civilian Secretariat for Police Service (2016) Policy on the Establishment of Community Safety Forums

Civilian Secretariat for Police Service (2016) White Paper on Policing

Civilian Secretariat for Police Service (2016) White Paper on Safety and Security

Department of Cooperative Governance and Traditional Affairs (2016) The Integrated Urban Development
Framework (Draft for discussion)

Department of Cooperative Governance and Traditional Affairs (2019): Towards a District Development
Model, Power Point presentation November 2019

Feltes, T. (2013) Community Policing in Germany, Organisation for Security and Co-operation in Europe
Yearbook, Baden-Baden

Finance and Fiscal Commission (2012 / 2013) Submission for the division of revenue – Appendix 2: The
Impact of Unfunded Mandates in South African Inter-governmental Relations

GIZ VCP (2012) An Overview of the extent to which community safety and crime/violence prevention is
factored into the Integrated Development Plans of South African municipalities, project report by Mbumba
Development Services

GIZ VCP (2016) Key Issues related to Local Government’s Role in Community Safety, unpublished project
report by Mbumba Development Services

GIZ VCP (2016) Amathole District Municipality: A model for the district support function to local municipalities
in respect of community safety planning and CSF support, project report by Mbumba Development Services

Krug, E.G., Dahlberg, L. L., Mercy, J.A. , Zwi, A.B. and Lozano, R. (2002) World report on violence and health,
World Health Organization

National Planning Commission (2012) National Development Plan

National Treasury, (2011) Local Government Budgets and Expenditure Review

Phyfer, J. and Wakefield, L. (2015) Violence prevention and early childhood development, in South African
Crime Quarterly, No. 51 of March 2015, Institute of Security Studies

Schönteich, M. & Louw, A. (1999). Crime Trends in South Africa 1985-1998, Centre for the Study of Violence,
and Reconciliation

South African Cities Network (2017 & 2018/2019) State of Urban Safety in South Africa, SACN Urban
Reference Group

South African Cities Network (2016) Local government safety functions and the question of the unfunded
mandates, Urban Safety Reference Group, Urban Safety Brief No 3. /2016

South African Local Government Association (2015) Community Protest: Local Government Perceptions,
ISBN: 978-0-621-44215-1

South African Local Government Association and the Civilian Secretariat for Police Service (2018) Developing
Community Safety Plans: A Guidebook for Provincial and Municipal Officials

UN-Habitat (2015) Conference on Housing and Sustainable Development.

United Nations Office of Drugs and Crime (2010) Handbook on the crime prevention guidelines: Making them
work, Available at UNODC http://www.unodc.org/documents/justice-and-prison-reform/
crimeprevention/10-52410_Guidelines_eBook.pdf

World Health Organisation (WHO) (2015) Preventing youth violence: an overview of the evidence.
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ANNEXURES

1. Global Trends – Community safety and violence prevention in other local government

systems

SALGA has sought to draw comparisons with countries such as Colombia, Jamaica,
Guatemala, Mexico, and Venezuela that share economic, demographic, and violent crime
trends like South Africa. However, it is important to note that many of these countries have
faced long-standing insurgency, the erosion of state institutions, the weakening of local
governments, and the dominance of the narcotics trade. As a result, there is a scarcity of
studies specifically focusing on the role of local government in community safety in
countries experiencing severe economic, political, rule of law crises, and social stress. It is
primarily developed countries that have documented experiences and policy reflections
in this area. Nevertheless, these examples still hold relevance, as their adjusted application
can provide valuable insights for less affluent nations. They serve as an ideal benchmark for
South Africa to aspire to once its economic growth goals are achieved.

12 Centre for the Study of Violence and Reconciliation & Society, Work and Development
Institute (2011) The Smoke that Calls, www.csvr.org.za
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13 Auditor General for Wales (2016) Community safety in Wales, Wales Audit Office 40
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15

14 Feltes, T. (2013) Community Policing in Germany, Organisation for Security and Co-operation
in Europe Yearbook, Baden-Baden
15 ibid 41
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16 Ibid 42
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43
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