FREE STATE DEVELOPMENT AND PLANNING FRAMEWORK
1.1 The Development Planning Framework
1.2 The Role of the Framework - a Process, not a Plan
1.3 Implementing the Framework
2.1 What is Development Planning?
2.2 Development Planning: The National Policy Environment
3.1 A Province in Transition
3.2 Free State Government Vision
3.3 From Vision to Action
3.4 Strengthening the Provincial Government
4.1 Population, Poverty and Income
4.2 Economy
4.3 Social Development
4.4 Physical Infrastructure
4.5 Institutional Environment
5.1 Turning the Vision into Action
5.2 Enhancing Job Creation and Economic Development
5.3 Provision of housing and infrastructure
5.4 Human resource development
5.5 Developing our rural areas
6.1 Enhancing job creation and economic development
6.2 Provision of housing and infrastructure
6.3 Human resource development
6.4 Developing our rural areas
6.5 Support Programmes
9.1 Implementation Structures
9.2 Implementation and the role of the priority cluster groups
9.3 Priorities, Programmes and Resources Alignment
The Free State Government has put forward the provincial Development Planning Framework 1998/99 as the lead document for reconstruction, growth and development. The Framework initiates a process of co-ordinated development planning leading to continued social and economic upliftment of the citizens of the Free State. The Framework sets out provincial priorities, strategies and programmes for addressing reconstruction, growth and development. This draft forms the basis for broader consultation and discussion with the Provincial Governments development partners in national and local government, the private sector and broader civil society.
1.2. The Role of the Framework - a Process, not a Plan
The Development Planning Framework is not a static blueprint for land development. Rather, it is a flexible, broad focus, medium term framework for decision-making and development management. It sets in place directions for action, within which the Free State Government and its development partners can make informed decisions. It allows the Provincial Executive Council and departments to co-ordinate and integrate policies and programmes, and to make the hard strategic choices that catalyse local growth and development.
The intention of the Free State Government is to incorporate the framework within the annual development and service planning cycle of government, tying it to allocation of resources through the Provincial Budget process. As a result, the Framework will be updated annually.
1.3. Implementing the Framework
The 1998/99 Framework sets out a vision and action plan for growth and upliftment in the Free State over the next five years. It represents the combined efforts, resources and programmes of all provincial government departments. The Framework represents a rolling programme of activities until the year 2003.
The Free State Government supports unequivocally the constitutional principle of co-operative governance, and recognises that national departments and the Free States local authorities are indispensable associates in achieving the vision. In addition, we commit ourselves to partnerships with businesses, communities, labour and wider civil society as part of the wider programme to achieve economic, social and community development
Integrated Development Planning is part of the reconstruction and development process to repair the spatial, social economic and environmental damage caused be apartheid to lives, livelihoods and human settlements in South Africa. It represents a fundamental shift away from the top-down, control-oriented planning of the previous regime. It has been defined as:
The critical element for effective development planning at Provincial level is to ensure a link between department service plans and the making of the Provincial Budget.
2.2 Development Planning: The National Policy Environment
The national policy environment underpinning provincial development planning includes the following key policy instruments and legislation:
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focus for the Provincial Government, in conjunction with its partners, has two main
elements - development and growth. Development involves meeting basic needs, tackling poverty, opening up access to opportunity and redistributing wealth among the people and communities of our province. Growth entails providing a competitive and entrepreneurial environment by maximising our physical, economic and human resources to attract and grow business and investment. |
The Free State conjures up images of rolling landscapes and vast farming areas; while there is no doubt that the province remains South Africas agricultural powerhouse, its rural population is declining in numbers. Already almost 70% of our citizens are living in urban settlements. At the same time as this change in its rural nature, our staple extractive industries of the Goldfields are shrinking. Clearly then, the Free State is a province in transition, and the challenge to the Provincial Government is to manage this change in an increasingly competitive local and global environment.
3.2 Free State Government Vision
Our vision for achieving this aim was established in 1996, and it is as follows:
In translating this vision into action the Free State Government has promoted four priorities for development, namely:
| 1. Enhancing job creation and economic development. 2. Provision of housing and infrastructure. 3. Human resource development. 4. Developing our rural areas. |
These priorities are the focus of four Political Priority Clusters, which are high-profile groupings of provincial departments. In addition, six Regional Growth Areas have been chosen as areas for particular attention for provincial programmes, and for crowding in investment. They are:
Sasolburg |
Eastern Free State |
Kroonstad |
Southern Free State |
Bloemfontein/Botshabelo/Thaba Nchu |
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Goldfields |
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The urban localities Sasolburg, Kroonstad, Goldfields and Bloemfontein/Botshablo/Thaba Nchu were identified for these features:
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The two larger regions the Eastern and Southern Free States were identified as broader catchments within which specific sectoral projects could be initiated. The Eastern Free State has significant tourism activity, and substantial potential for further tourism development. Within this region specific areas (for example, Qwa Qwa) can be targeted for locality-specific projects. The Southern Free State is predominantly an area of commercial agriculture, and has been identified for a focused intervention on rural development. |
These areas, and the sectoral Priority Clusters, form the key pillars of the Development Framework.
3.4 Strengthening the Provincial Government
| We have devoted
considerable effort to programmes that help build a streamlined
and effective administration. Examples here include: 1. Service Plans. All the major departments of the Free State Government have strategic service plans. Outstanding plans are expected to be in place by the end of 1998.2. Payroll Control. An audit was undertaken in mid-1998 to verify physically the administrations payroll in ten departments. The subsequent headcount resulted in the removal of ghost workers from the payroll, leading to an estimated R11 million saving to the Provincial exchequer. This exercise will now be extended to the Provincial Department of Education, starting with non-educators in November 1998 and educators in February 1999. 3. Geographical Information System. The Provincial Department of Local Government & Housing is developing a computerised geographical information system to capture and represent development programme data for the Free State. This will help in making decisions for spatial and development planning purposes.4. Batho Pele Public Service Culture. The Provincial Administration has endorsed the principles of the national Bathp Pele campaign to build a culture of public service within its activities. The campaign will be launched in the Free State during September 1998.
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The Free State Government is a major engine for growth and development in the region. Employing over 68 000 people, and with an annual budget of R 6.375m million (1998), we are committed to using our economic and human resource capacity to maximise provincial growth.
We have strengthened our relationships with local authorities in the Province through the process of formulating LDOs and the establishment of PROVLOC, the Free State Provincial- Local Government Forum. Key national departments have representation on important inter-departmental structures - for example, regional officials from Land Affairs and Minerals & Energy attend Planning and Priorities Committee. Provincial officials participate in various national forums, such as the Roads Co-ordinating Committee.
| Overview: the development
challenges and opportunities facing the Free State The Free State faces socio-economic challenges and opportunities common to much of South Africa, and largely attributable to the unequal development and resource distribution of the past. General features include: 1. a Significant housing backlog 2. Iinadequate physical and social infrastructure 3. a Skewed pattern of resource allocation4 . Uncoordinated development efforts 5. High levels of illiteracy and a poor skills base 6. Under-representation of disadvantaged communities in technical and managerial occupations 7. income and infrastructure disparities between rural and urban communities 8. inefficient government bureaucracies 9. inadequate environment control measures |
The Free States estimated total population is 2.47 million (1996 Census Preliminary Population Estimates), which makes it the second smallest provincial population after the Northern Cape.
The estimated growth rate of 1.7% per annum and the population density are the second lowest among the provinces. The ethnic division of the total population is estimated as follows:
![]() Figure 1: Ethnic Composition of the Free State (Source: Central Statistics, Pretoria 1995) |
One of the most outstanding, features of the population of the Free State is the very low population density and the major disparity between the urban and non-urban white population. There has been a marked decline in excess of 2. 5% in the total rural population over the last 15 years.
| 1718000 people |
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752000 people |
| Figure 2 : Estimated Rural and Urban Population | ||
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Figure 3: Estimated Population Ethnic Distribution (Source: Central Statistics 1995)
The poverty profile of the Free State shows an estimated 66% living in poverty, the third highest poverty rates in the country (World Bank Report on Key Indicators of Poverty in South Africa, October 1995). However, as bad as this is, these figures mask even worse conditions, particularly in the former homeland of Qwa Qwa where the figures are at 88%. Rural poverty in particular is difficult to quantify, but estimates indicate that 75% of the poor live in rural areas.
The decline in the provincial growth rate over the last two decades has resulted in a decrease in per capita income, increasing poverty and pressure on the welfare system to meet basic human needs. Extreme inequity also exists in the distribution of income, with people on rural areas poorer than their urban counterparts. Other than people living on farms, these people rely mainly on remittances and state social grants for income. With increasing unemployment families, especially female headed households, people in rural areas, the disabled, youth and other who have special needs, have become increasingly vulnerable and, because they have no security and sustainable livelihoods, they turn to the welfare system for income, maintenance and social support.
The Poverty Gap measures how much money is needed to bring each persons income up to the poverty line. For a household with two adults and three children, this level is estimated at R840 per month in urban areas and R740 in rural areas.
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Southern Free State |
Goldfields | Eastern Free State | Nothern Free State |
Figure 4 : Poverty Gap per Area (Source: Human Sciences Research Council 1995)
Poverty can be measured objectively by income indicators. However, it is also a subjective reality linked to hunger, malnutrition, the ability to afford health care and access to basic services. Absent or inadequate services substantially increase the incidence of poverty, especially for the rural population, women, the elderly and children. The greatest burden of poverty falls on women female-headed households experience a 50 % higher poverty rate than male-headed households and children are the victims, with 45 % of the poor consisting of the children below 16 years. A third of the poor lives in shacks or traditional dwellings and most have no electricity, running water and modern toilets.
Poverty is often accompanied by additional social problems such as family disintegration, adults and children in conflict with the law, and substance abuse. It is this combination of social, economic and emotional deprivation, which heightens the vulnerability of poor individuals and families.
Figures for 1991 indicate that although whites represent only 15 % of the Free State population, they earned nearly 55% of the remuneration in the province compared with the corresponding figure for blacks of about 63% and nearly 44% respectively.
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Figure 5: Annual per capita Income per Ethnic Group
The personal income per capita in the province in 1994 was R7 621 but this figure was distorted by the gross inequalities in income patterns, especially the wage gap as has traditionally existed. This figure does not build into different income patterns between black and white, between male and female, and between urban and rural dwellers.
Salaries and wages represent about 50 percent of total household income, while 19 percent of household income is derived from agricultural activities and 10 percent from self-employment.
The Human Development Index (HDI) measures the relative socio-economic development of an area. It measures the ability of individuals to live a long and healthy life, to communicate and participate in the life of the community, and to have a decent living. It examines basic indicators of life expectancy, adult literacy, the average years of schooling and per capita income in a region.
The Free State ranks in the medium HDI scale with a level of 0.65, below the South African HDI of 0.67. Areas with a HDI below 0.5 are considered to have a low level, and those of 0.8 and above as a high level of human development.
The economic activity of the Free State depends much on the performance of mining, manufacturing, trade and agriculture.
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Figure 6: Contribution to Gross Geographic Product (GGP)
The provinces overall contribution to the South African Gross Domestic Product is 6.4%. However, there are substantial changes in key sectors of production, giving rise to specific challenges and opportunities. Until 1988 the provinces economic activity was mainly concentrated in agriculture and mining. This dependence has declined since then, while the contribution of manufacturing, trade and the service sectors has increased, leading to a more diversified provincial economic structure. In addition, the contribution of previously disadvantaged communities to the Provincial economy is still very limited. Relatively few initiatives have to date been launched to assist them (particularly in remote areas of the Free State) to become more economically active.
Gold mining has suffered in the Free State due to the downturn in gold price, industry restructuring and difficult geological conditions. It is estimated that from 1997 to 1998 jobs in the mining industry in the Goldfields have gone down by approximately 25% in direct mining and around 50% in indirect mining. Due to its labour intensity and vulnerable employment structure, the Goldfields area has borne the brunt of the impact. However, these job losses also have a ripple effect on other regions because some of the miners being retrenched are in fact migrant labourers.
Opportunities do exist to strengthen this sector across the province. These include:
| Opportunities exist in
exploiting niche markets in manufacturing, where there is comparative advantage. Sectors
inlude: 1. petro-chemicals and pharmaceuticals 2. farming machinery and equipment 3. jewellery |
There are approximately 645 manufacturing concerns in the province, with the largest number (comprising 32% of the total) concentrated in the Bloemfontein/Botshabelo/Thaba Nchu region. The manufacturing economy is fairly diversified across the majority of sub-sectors, with food processing the dominant activity (25% of all manufacturing establishments) followed by metal products (16%) and mineral products (8%). Despite the specialised chemical activity at Sasolburg, relatively few concerns are involved in manufacturing chemical end-user products (4%).
Despite new Government policies to promote manufacturing and enhance exports, Free State industrialists are hampered by a dependence on road and rail transport that is costly and often unreliable. These transport modes are required to carry products to the nearest international harbour or airport, and delays can result in missed deliveries and cancellation of orders. This is being addressed, and investigations into creating an industrial development zone, and upgrading Bloemfontein Airport are currently underway.
The Free State is the agricultural powerhouse of South Africa. Commercial agricultural production contributed 14,7% of the total agricultural sector in the RSA.
Agriculture creates more jobs per R1 million value added than any other sector of the economy. This sector has also recorded the highest level of increase in export earnings since 1993. The figure of 74,4% is outstanding by all standards if it is borne in mind that the manufacturing sector was the closest rival at only 23,4%.
Agricultural Production in the Free State: Main Commodities (1994)


Despite its impressive share in the national agricultural economy, the agricultural sector remains highly dualistic: the large farm sector comprising 9 500 large scale commercial farmers controls 98.2% of the land and accounts for nearly all the marketed output. Although agriculture is a major employer, accounting for 14% of the labour force, access to agricultural resources (land, water, services) remains inequitable.
Small scale farmers produce mainly for subsistence with the exception of a few cases of small and medium sized farms owned by emerging farmers. There is definitely potential for expansion, but particular problems exist in developing this sector due to land availability and availability of credit.
| Tourist Facilities include: 9 000 beds for tourists, available in the hotels, motels, guest farms, guest houses and the 11 holiday resorts in the province.14 provincial nature reserves not only protect the natural resources and the wildlife diversity of the province but also provide outdoor recreation opportunities.12 state dams and the different river systems in the province make the Free State the most water rich province in South Africa. 2 casinos in the province also attract many visitors. |
The office, business and service sector in the Free State is dominated by Bloemfontein, which has the major share of the Provinces employment in these activities.
Leisure and eco-tourism is a relatively undeveloped sector nationally, and often cited as having potential for growth.
The challenge to the Free State Government is to build on and develop these resources in a sustainable and equitable fashion.
The Free State must meet major challenges in redressing the apartheid imbalances of provision and access to social services. While the Province has not suffered from endemic violence in comparison to elsewhere in the country, the majority of its citizens face major inequalities and unmet needs in health, welfare and education.
The 1995 October Household Survey shows that the public service is especially significant in meeting health-care needs of the majority, poorer communities of the Province.
First Source of Health Care:
Public Health 70% African households 28% White Households
Private Health 28% African Households 71% African Households
Certain health status indicators show that in certain areas the Free State population suffers from poorer health in comparison to South Africa:
Life Expectancy at Birth - Males |
Life Expectancy at Birth - Females |
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Infant Mortality Rate |
Incidence of measles per 100 000 population |
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Figure 9: Indicators of Health in the Free State
(Source: Health Care in the Free State (1996), Health Systems Trust & Department of Health)
The Free State Government had to create a unified health service from the administrative and management entities of the previous Orange Free State, Qwa-Qwa and part of Bophuthatswana. The inheritance from the previous dispensation means that there are marked disparities in resources and provision across the Province, and that a central key feature of the work of the Provincial Department of Health is the struggle towards greater equity in health services in the Free State.
The Free State has made major efforts in the provision of regionally targeted health services; and the shift from curative to preventative and primary health care. Regional hospitals have been grouped into three areas (North, South West and East) to promote more efficient use of these expensive facilities. Universal access to primary health care has improved through the extension of clinic hours and new/improved facilities.
The provision of an appropriate network of developmental social welfare services with a view to upholding welfare rights, facilitating the meeting of basic human needs, releasing peoples energies and helping them to achieve their aspirations, build their self reliance and enable them to participate fully in all spheres of social, economic and political life.
Social Welfare therefore addresses the needs and problems of the poorer sections of communities by effecting preventative, curative, promotive and developmental services. These services are aimed at addressing the alienation and the economic and social marginalisation of sectors of the community who are living in poverty, are vulnerable and have special needs. Services are further aimed at building capacities of communities to become self reliant and less dependant on the state to sustain their livelihoods. There are currently 180 821people who are currently dependant on social security (pensions and grants), amounting to R1 014 billion. Details regarding beneficiaries are as follows:

Figure 10 : Beneficiary take-up of Social Security as at May 1998
Source: Social Welfare Report- May 1998

Figure 11: Social Welfare Budget Allocations
Given the nature and extent of poverty in The Free State, the demand for social security, which is also guaranteed by the Constitution, will not decline. It enables the poorest of the poor to meet at least minimum subsistence levels. These will however need to be addressed through poverty targeted programmes within a broad developmental social welfare context.
The Free State Government provides primary, secondary, tertiary and adult education and training to ensure the Province has an appropriately skilled and educated workforce.
Education Attainment - The 1995 October Household Survey demonstrated a distinct pattern of educational attainment by race and gender in the Free State, the direct result of the apartheid-based education systems of the past. For adults aged 20 years and over, the percentage with a very low level of education (less than Standard 4) is much higher among Africans (33% among males, and 38% among females) than among whites (less than 2% for both males and females). Correspondingly, the percentage with Standard 10 or higher level of education (certificate, diploma or degree) is very low among Africans (17% of males, and 13% of females) compared to whites (74% white males, 70% white females).
The legacy of the past continues in the low 1997 matric provincial pass rates of 42%.
Lost Generation The effect of apartheid-based education in the 1970s and 80s has created a population cohort of over-age learners within the Province. In 1998 there is an enrolment of almost 65 000 learners over the age of 20. Along with out-of-school youth, this cohort represents the lost generation, whose education was disrupted, or who were denied opportunities in the education system of the 70s and 80s.
Schools In 1998 there are almost 3 000 schools in the Free State, with the public sector being the dominant provider of faciliites for the majority of learners in the Provnice. (See Table 1 below)
Over half of independent schools (32 of the 57) receive subsidies from the Provincial government, totalling R13.75 million in financial year 1998/99. This subsidy is to assist schools with payment of teachers salaries and acquisition of equipment. It is closely monitored to ensure effective spending of public money, to prevent the establishment of fly-by-night schools by unscrupulous operators and to maintain correct standards of education.
Type |
Number |
Classrooms |
||
Farm |
Primary Intermediate Combined |
1758 62 17 |
1 837 |
79 424 |
Independent |
Primary Intermediate Combined Ordinary secondary Comp secondary |
19 8 21 7 1? |
57 |
12 423 |
Mine |
Primary Intermediate |
5 3 |
8 |
2 741 |
Public |
Primary Intermediate Combined Ordinary secondary comp secondary EEC Special Specialised Agric secondary technical secondary |
452 99 70 229 20 1 7 13 11 9 |
911 |
721 478 |
TOTAL |
2812 |
816 066 |
Table 1: Type and number of Schools in Free State Source: Free State Education Management Information Systems, September 1998
Learner-Educator Ratios: The total number of learners in the Free State in September 1998 was 816 066 (all sectors). However, as information on the number of educators in independent schools is not made available, the educator-learner ratio only applies to the other sectors.
Sector |
Learners |
Educators |
Ratio |
Farm |
78 424 |
3 441 |
23:1 |
Mine |
2 741 |
88 |
31:1 |
Public |
721 478 |
21 889.85 |
33:1 |
TOTAL |
803 643 |
25 418.85 |
31.6:1 |
Table 2: Learner Educator Ratios in Free State
These ratios are particularly positive, with an overall ratio of 31,6:1. In addition, the national target ratio is 34:1 for public sector schools the Free State situation is favourable in this regard, with a ratio of 33:1.
However, this is not a cause for complacency, as a number of underlying factors show:
Even though recent South African Police Service statistics indicate that levels of serious crime are generally stabilising, the incidence of crime in the country is still at a very high and unacceptable level. Within South Africa, the Free State generally occupies a mid- or lower-level position in a comparison of crime ratios with other provinces. The Province features serious crime rates less than the national average in the following areas: murder and attempted murder; robbery with aggravating circumstances; theft of motor vehicles, residential housebreaking; and fraud. Unfortunately, levels in other areas are higher: stock-theft (second highest in South Africa); assault (third highest); housebreaking at business premises, shoplifting, other thefts and rape (fourth highest).
Arson, in the form of the deliberate veld fires, features higher than the national average in the Southern Free State. (Source: SAPS Crime Information Management Centre, Quarterly Report The Incidence of Serious Crime January-March 1998, July 1998).
In addition, attacks on farm owners and labourers in the Free State have recently increased. There is serious concern over the escalation in this type of crime, and the matter is high on the Provincial Public Safety & Security agenda.
The incidence of crime in the Free State is generally associated with increasing rates of urbanisation, unemployment, high levels of relative deprivation and expectations, and the breakdown of traditional family ties. As such, opportunities to create a safe and secure environment in which crime is at manageable levels are inextricably linked with continued socio-economic development, investment and job creation.
The Free State road network comprises 885 km national roads, 7 045 km blacktop roads, 21 942 km secondary gravel roads and over 20 000 km tertiary gravel roads.
This major infrastructural asset is deteriorating at an alarming rate, with negative effects on social and economic development. Township and developing communities are particularly disadvantaged in the provision of access roads and internal collector streets the backlog of 150 km will need some R200 million to address. The key challenge is to expand road distribution, particularly in rural areas, and to find funding for regular road maintenance. Upgrading roads is critical, and provides opportunities for labour- based construction employment.
The Free State has an adequate rail network, which is particularly necessary for the transport of bulk products and containers. Custom clearing facilities (inland ports) have been set up in Bloemfontein, Ficksburg and Sasolburg.
There are scheduled air services to both Bloemfontein and Welkom airports. However, air links from Bloemfontein need to be strengthened to certain secondary cities (for example, East London) and for international connections, while Welkom needs the establishment of an air freight terminal to strengthen the areas economic growth strategy.
Many challenges remain in upgrading standards and distribution of water and sanitation systems across the Province. The 1995 October Household Survey shows that tap water is the main source of drinking water in the Free State, with over 80% of households using this source.
In 1995 it was estimated that over 26 000 households in the Free State did not have access to a piped potable water supply, either in the house, yard or via communal standpipe. Since then, there has substantial progress made in extending this supply to towns and smaller settlements, with over R124 million spent, and a further R92 million planned on water supply projects.
There were an estimated 177 000 households in 1995 who depended on pit latrines or bucket removals for sanitation. These are primarily African households: 40% of African households in urban areas rely on bucket toilets, compared to the 25% who have a flush toilet in their dwelling. In non-urban areas, 37% of African households have a pit latrine on site, while 24% have no toilet facility at all.
Some R72 million has been spent on sanitation projects since then, with a further R 90 million planned.
Due to the Free States prevailing climatic conditions, infrastructure for agricultural/irrigation water supply is critical for the successful establishment of sustainable small-farmer activities. Examples of current agricultural projects include Etsa Phapang, ThabaNchu, Oppermansgronde, Thabong, Bethlehem, Jacobsdal, Kutlanong, Kroonstad and Koffiefontein.

Electricity is vital as a cheap, safe source of energy for economic growth and domestic use.
General patterns from the 1995 October Household Survey show that the proportions of total Free State households using electricity for cooking, heating and lighting are 56%, 54% and 71% respectively.
Findings also show that 70% of urban households use electricity as the main source of energy for cooking, compared to 28% of non-urban households, where other energy sources (notably wood) are used.
Eskom is the major supplier of electricity in the Province, with a network of over 30 000km. Approximately 170 towns and villages are supplied, with the mines being the biggest consumers of electricity. The countrys only two hydro-electric power stations are situated at the Gariep and Vanderkloof Dams. There is a planned restructuring of electricity distribution in South Africa, leading to the formation of Regional Electricity Distributors (REDS) involving both Eskom and municipalities. While plans are still being formulated it appears that the Free State and Northern Cape regions may form one RED.
Generation capacity is available, but the key challenge is one of distribution to still unserviced areas, largely in former black townships and rural areas.
Eskom has plans for a further 24 000 household connections to be made over the period 1998/99, at a capital cost of over R67 million.
The major issue in this sector is not of capacity but of distribution.
Lack of adequate post and telecommunications capacity in areas of the Province has a negative social and economic impact. The 1995 October Household Survey indicated that about 25% of Free State households have a telephone in their dwelling, compared to 32% nationally. Within this total, there is a marked disparity by race: 72% of white households have a telephone, compared to 11% of black households.
Telephone distribution also varies by location: only 6% of households in non-urban areas in the Province have a telephone in the dwelling compared with 36% of households in urban areas. The opportunity occurs here for an aggressive expansion of the network.
Solid waste production in the Free State comprises industrial, domestic and hazardous waste. The Free State Government maintains an overview on the adequacy of existing infrastructure, including mining dumps, availability of landfill sites, number of households with access to adequate waste disposal facilities, and subsequent health and hygiene issues.
Bloemfontein, in the Central Free State, is the provincial capital and judicial capital of South Africa. Other major towns and cities are Bethlehem, Harrismith (in the Eastern Free State), Kroonstad, Sasolburg (in the Northern Free State) and Welkom (in the Goldfields).
The official and functional rates of urbanisation are 54% and 74% respectively, a situation that is placing great strain on the built form and infrastructure of the Provinces urban settlements. In common with the rest of the country, the Free States urban settlements are characterised by spatial distortions according to race and class, urban sprawl, inefficient transport, land market inefficiency, informal settlements, and the concentration of the poor in relatively high density peripheral areas.
The Free State housing backlog is approximately 116 000.
In many ways, economic success depends on urban success. More efficient and sustainable urban settlements are crucial to Government strategies for growth, poverty alleviation and the creation of a more equitable society. The challenge to the Free State Government is to support and assist municipalities in strengthening urban economies and overcoming apartheid-based dysfunctional structures.
Opportunities exist to build on the identified areas of growth potential, and to initiate focused corridor-type developments.
The South African Constitution recognises the crucial importance of Provincial administrations and municipalities as engines for growth, development and transformation. The White Paper on Local Government (March 1998) promotes the idea of developmental local government, focussing its efforts on promoting development, and actively ensuring that the socio-economic conditions of the locality are conducive to the creation of employment opportunities.
There is a range of medium size councils (for example, Odendaals, Parys and Harrismith) with councils of between 10 20 members, while smaller councils (up to 10 members) include rural and local areas such as Soutpan, Excelsior, Tweespruit and Oppermansgronde.
There are a wide range of challenges facing the various government components of the institutional environment. These include:
There are increasing opportunities across the range of government institutions for the development of various forms of public-private-community partnerships. These can be used to mobilise resources for development via for-profit businesses, non-governmental organisations and community-based institutions.
The Free State Government has identified four key sectoral priorities for turning our vision into action. While each strategy area has its own coherence, it is vital that there is co-operation and co-ordination across programmes to promote reconstruction, growth and development.
Our vision has been tested against prevailing social, economic and community conditions in the Province to identify challenges and opportunities. Four priority areas have been identified to meet problems and develop opportunities by identifying key strategies in each area. Departmental programmes are designed to further these key sectoral strategies, and will translate into action and delivery on the ground.
The four Priority areas, and the key departments responsible for meeting sector objectives are:
5.2 Enhancing Job Creation and Economic DevelopmentThe Free State has a strong farming and agri-business sector
The commercial agricultural sector currently employs between 110 000 and 116 000 workers.
The Provincial Department of Agriculture has development programmes designed to create jobs through agricultural processing and linked non-agricultural self-employment in small, medium and micro enterprises. These synergies will be realised through:
Programme strategies are:
Leisure, eco- and agri-tourism has great potential for growth
Tourism is contributing on a growing scale to the economy of the Free State, growing from a relatively low base. The market is providing increasing numbers of new tourism products in the province, including holiday farms, hiking trails, 4x4 trails, private nature reserves and hunting farms. There are also growing opportunities for developing handicrafts.
Programme strategies are:
Attracting foreign direct investment in areas of comparative advantage
The Free State has a number of areas of manufacturing comparative advantage that lend themselves to attracting direct foreign investment. The comprehensive Investor Targeting Strategy identifies the following opportunities:
There is the potential to develop growth corridors and clusters within the Free State
The Provincial Spatial Development framework has identified a potential growth corridor along the N1 national road. Other possibilities exist along an Eastern Free State-Lesotho axis for tourism purposes, and between Bloemfontein/Botshabelo/Thaba Nchu.
The Free State economy is in decline due to its structure, the fall in demand for primary commodities and the increased internationally competitive environment.
The Free State Government has developed a new strategy for restructuring the economy and redistributing the benefits of sustainable growth: Positioning the Free State Province on the High Road aimed at Sustainable Growth and Development' (July 1998)
The Goldfields production and employment structure is highly concentrated and dependent on mining
Free State Government policy is to encourage economic diversification in Goldfields by broadening and expanding the local production base by stimulating manufacturing and beneficiation of local materials. The Harmony Gold Refinery is now able to sell gold directly to jewellery manufacturers, which will assist in developing a high-quality, high-value added jewellery production sector.
The legislative environment often inhibits business investment
The Provincial Government has begun a process of repealing by-laws and conditions that restrict commerce and small business development.
There is a lack of diversification in manufacturing
The Provincial Government is supporting efforts to diversify this sector by working with the Free State Development Corporation in assisting the growth and development of SMMEs though the provision of loan finance, technical skills provision and aftercare services.
Relatively high levels of crime create negative perceptions about investing in the Free State
Although this is a country-wide problem, and has numerous complexities, the Free State Government is implementing strategies to address this, which include:
The major urban centres of the Free State are strong nodes for development.
Efforts will be focused on integrating city, town and townships into an efficient and sustainable form, conducive to generating growth, through crowding in suitable housing and infrastructure development. A programme of improving township access roads will be a key component of this strategy.
District Councils have resources available to address infrastructure development.
The Provincial Government will encourage planned infrastructure investment through close co-operation between District Councils and municipalities.
Specific infrastructure development and improvement programmes are being implemented by major parastatals, such as Eskom, Telkom, and the regional Water Boards.
The Provincial Government will co-ordinate and develop synergy with the parastatals to ensure organised delivery focus and maximum development impact.
The identification of specific localities as having potential for growth will enable targeted delivery of infrastructure programmes
The Provincial Government will direct infrastructure development into the identified growth points, focusing in particular on:
There is an increasing interest in self-help/self-build housing solutions
The Provincial Government will:
There are still major backlogs in infrastructure across the Province, due to financial, capacity or administrative constraints. At July 1998, for example, only 37 per cent of the target of delivering 69 000 housing subsidies had been met.
The Provincial Government will make a concerted effort to ensure that available housing subsidies are unlocked by reviewing projects, reallocating subsidies and speeding up administrative procedures.
There are still substantial race, class and area-based inequalities in infrastructure provision
The LDO process will assist in fast-tracking integrated development in the province, and combined with the Consolidated Municipal Infrastructure Programme will enable continued targeting of service provision to areas of most need.
Community disputes over access to infrastructure occur sporadically throughout the Province
The provincial Department of Local Government & Housing, together with FRELOGA and the Centre for Conflict Resolution has established mechanisms for resolving disputes over development projects.
Road infrastructure needs have not been addressed in a prioritised fashion
The provincial Department of Public Works, Roads & Transport is establishing a data bank of roads infrastructure needs to rank them in order of severity and urgency.
Private involvement in the delivery and financing of housing, schools and other infrastructure has proved difficult to unlock.
While this is a country-wide syndrome, the Free State Government will redouble its efforts in promoting public-private partnerships in infrastructure provision.
Public sector finance for basic infrastructure needs is declining at provincial and national level
The Free State Government will focus its limited resources on development growth points, while striving to ensure that programmes are in place across the Province to meet at least minimum standards of infrastructure.
There is a lack of off- and on-farm infrastructure to support small and emerging agricultural enterprises
The provincial Department of Agriculture will provide grant funding via its Community Project Fund to finance new infrastructure to improve agricultural productivity. Categories of infrastructure include pumping stations, canals, water and irrigation pipelines, access roads, soil conservation structures, fencing, kraals, and production buildings.
The Free State Government will continue to be the main provider of basic education, health and welfare systems in the Province. Investing in people human resource development in both public and private sectors is the key to creating a strong resource base to create economic growth and an effective administration.
The opportunity exists to create an integrated system of HRD inside and outside the Free State public service
An opportunity exists to create a first class, cost effective and affordable health service for the people of the province
To maintain progress in treating key diseases, strategies for the health service include:
The poorest of the poor carry the heaviest burden of poverty, lack of dignity and the full impact of associated social problems
The Social Welfare strategies to address this include:
There are critical gaps in key health personnel in the Free State. Only 33% of Medical Officer posts, 42% of pharmacist posts and 52% of nursing assistant posts are currently filled.
Deepening Primary Health Care service delivery and access for users
Create women-focused health services in specialised areas
There is a lack of farming and business skills among the poor rural communities, and Land Reform Programme beneficiaries
The provincial Department of Agriculture has developed a strategy for training in these areas, including:
In addition, the FS Department of Land Affairs provides skills training and capacity building programmes to Land Reform Programme beneficiaries.
Rural development is the support and active involvement of rural people and communities to initiate measures for improvement of their material, moral and social well-being. (Definition adopted at the Free State Rural Development Summit, October 1997). In line with the national Rural Development Framework, the Free State Government has set in train a dynamic process of combined government action targeted at rural development.
The Rural Development Strategy Cluster is charged with developing and implementing this cross-cutting strategy. However, there has also been a substantial development and co-ordination effort, particularly from the provincial Department of Agriculture and the Free State office of the national Department of Land Affairs. (FSDLA)
Opportunities exist to strengthen the existing commercial agriculture base in Free State rural areas
The Free State Department of Agriculture has a strategy to support and assist the commercial farming sector by:
In addition, the DoA is promoting increases in farm labour productivity through increased training and upskilling of farm workers, legal rights advice, and training farmers to use their labour most effectively.
There is potential to exploit new product markets
The DoA and FSDLA have a strategy to develop and exploit new product markets, particularly increased private sector involvement. This has led to the development of a smallholder intensive project in the Eastern Free State growing apples for export, with associated packing facilities in partnership with the private sector.
Commonages are available to be used in more productive ways
Commonages and other peri-urban land can be acquired and used for land development, food production and agriculturally based employment. This is a joint initiative between FS DoA and FSDLA, with projects at Dewetsdorp, Hobhouse, Reitz, Fouriesburg, Bethlehem, Koffiefontein, Clarens and Heilbron.
There is potential to develop small farmers and agriculture-linked entrepreneurs
Part of the strategy to strengthen economic activity in rural areas involves support to develop small farmers and agriculture-linked enterprises. Programmes to optimise this strategy include:
There is a demand for market garden produce in rural towns
The DoA has a strategy to assist the establishment of communal gardens and peri-urban market gardens by providing funds for infrastructure development (in collaboration with local councils), input packages, and for simple irrigation development where feasible.
The rate of rural to urban migration is increasing
The rate of voluntary and involuntary migration from the land is increasing, and places growing strain on service provision, economic base and functions of local municipalities. The challenge has to be met through a dynamic and multi-sectoral strategy, based on strengthening the rural economy and livelihoods, improving infrastructure, creating effective local authorities and building social sustainability. One specific activity involves encouraging farm workers to stay in rural areas, through assistance in acquiring equity in farms, in some cases jointly with the farmer.
There is a need for increased food security for the rural and peri-urban poor to improve health and social security of households
The strategy here is to encourage households to establish and maintain backyard gardens to grow vegetable produce primarily for own consumption. The DoA has established a programme of training and start-up input packages via co-operatives/gardening clubs, and works on this programme together with the Departments of Health and Social Welfare
The need for land reform is crucial
Access to land is crucial to rural development and agrarian reform. Ownership of land and access to it is the first step to an independent existence. Consequently, resistance to change in land ownership patterns in the Free State impacts negatively on the creation of sustainable, equitable rural livelihoods. The FSDLA is leading the implementation of a demand-led land reform programme, with the following key initiatives:
Rural local authorities face increasing strain and capacity constraints
The Free State Rural Development Strategy Cluster is promoting a strategy to foster and maintain a efficient, inclusive, financially responsible and developmental local government in rural areas. Support programmes include:
There is a need to build participatory local governance in rural areas
Strategies include:
Rural households and enterprises experience difficulties in gaining access to finance and credit
The DoAs strategy is to develop advice, support and grant aid mechanisms to increase the availability of development finance in rural areas. Particular programmes of note are:
There are still major infrastructure requirements in rural areas
The Provincial Government will require all continuing infrastructure programmes to demonstrate and implement a significant rural service component
Rural women remain a marginalised and silent group
The Department of Social Welfare is implementing a strategy to address womens issues, including:
The FSDLA is working to ensure that rural women have independent land rights
There are disparities between the attention and resources allocated to urban and rural areas
Provincial government departments will be held accountable for the impact of their expenditure on the rural communities of the FS. They will be required to demonstrate that equitable levels of expenditure are allocated to the rural areas of the Province, by means of an annual review.
National government departments will similarly be held accountable. They will be required to make available the levels of financial allocations for their activities in the Free State, and the funding formulae against which these allocations are made. This will be monitored by the lead departments of the Rural Development Cluster, together with the provincial Department of Finance, for the purposes of cross-sectoral co-ordination and determination of appropriate levels of funding.
This section sets out how Priority area strategies are currently translated into action and delivery. It sets out the key departmental programmes for the year 1998/99.
Key Service Delivery Programmes for 1998/99
Economic Development Services
Infrastructure and Job Creation
Key Service Delivery Programmes for 1998/99
Housing Programme
The Free State has an estimated backlog of 116 000 houses. So far 25 685 housing subsidies have been delivered out of a 1999 target of 69 000. It is anticipated that further subsidies will be delivered over the present financial year
Transport and Municipal Infrastructure
Social and Other Infrastructure
All the above programmes have the potential to create a substantial number of temporary and permanent construction-linked jobs through the use of small and emerging contractors and labour-based methodologies.
Key Service Delivery Programmes for 1998/99
Education Services
Provincial government is committed to creating and managing an effective and efficient education system that will develop human resources to contribute to the socio-economic viability of the Free State, and provide quality and relevant education to all learners.
1998/99 programmes are:
Welfare Services
The Provincial Government aims to provide a people-centred social welfare service which meets basic needs and provides for the development and self-reliance of individuals, families and communities of the Free State. Key programmes for 1998/99 are:
Health Services
The Provincial Government aims to make communities in the Free state healthy and self-reliant, and to provide health care services at the most appropriate level to meet needs. Key programmes and priorities during 1998/99 are:
Key implementation structures for service delivery and furthering activities within the development planning framework are the Provincial Facilitating Committee for developing district based health care (PFC) and the District Facilitating Committee (DFC).
The PFC facilitates, co-ordinates and monitors district development throughout the province to ensure equitable development. The PFC provides empowerment and capacity building to the DFCs, who are responsible for facilitating district development through advising on district health services, assessing health needs and planning for them and co-ordinating intersectoral participation on health matters within their district.
Sports, Arts, Culture, Science & Technology Services
The Provincial Government has the broad aim to develop equitable participation, awareness and resources in sports, arts, culture, science and technology. Key programmes for 1998/99 include:
All other Provincial Departments Human Resource Development Programmes
All departments have programmes of in-house training and development to strengthen personnel capacity in the delivery of their respective services.
Key Service Delivery Programmes for 1998/99
The main activities of these departments in 1998/99 will be to conclude the Rural Development Strategy and implement the cross-cutting activities identified earlier in an integrated programme to further rural development. In particular this will be undertaken in close co-operation with the Free State Department of Land Affairs. The South West Free State will be given special attention as a pilot project in developing developmental local government and development management initiatives.
6.5 Support Programmes
The Provincial Government has in place a wide range of support programmes to underpin and facilitate the work of frontline departments and Cluster-linked activities:
Financial Services
Provincial Service Commission
Public Safety and Security
In co-operation with the Department of Social Welfare, further strategies include:
Corporate Services
The provision of institutional support to departments including:
This section summarises the Free State Provincial Budget for 1998/99 in Figure 13.
Figure 13: Free State Provincial Budget 1998/99

Total Budget expenses R
Less Recovery of Internal Charges R 28 453
TOTAL R 6 375 000
The table below and pie chart show the main budget allocations as an illustration of the financial resources set against Priority Areas.
CLUSTER |
Amount R 000 |
Percentage |
|
Job Creation & Economic Development |
154 875 |
2.43% |
|
Human Resource Development |
3 855 843 |
60.48% |
|
Housing & Infrastructure |
636 882 |
9.99% |
|
Administration / Political / Other * |
1 727 400 |
27.10% |
|
TOTAL |
6 375 000 |
100.00% |
Table 2: Budget Allocations for Priority Areas

8 PROVINCIAL FLAGSHIP PROGRAMMES
The Free State Government has identified strategic Flagship Programmes for growth and development in the province. These programmes are high-profile, high-impact and form significant interventions to turn plans into action. Usually undertaken in conjunction with government or other sector partners, these programmes are aimed at rapid and visible delivery in service improvements, economic growth and investment, or in meeting basic needs.
Flagship Programmes are selected on the following criteria:
In many cases, many of these Flagship Programmes and projects are already underway, and implementation will continue over the year 1998/99.
Flagship Programme |
Objectives |
Partners involved |
| 1 Economic Development and Job Creation | ||
|
Attract direct foreign investment in target growth sectors |
|
|
Production of downstream high-value chemical products |
|
|
Assist small-scale miners into viable economic production |
|
|
Attract more tourists to Province |
|
| 2 Human Resource Development and Support for Disadvantaged Groups | ||
|
Development of small-scale enterprises with women, supported by educare services |
|
|
Reconstruction of the culture of learning and teaching professionalism |
|
|
Establish role models for the restoration of learning and teaching in schools |
|
Flagship Programme |
Objectives |
Partners involved |
|
Performance awards to encourage better achievement in previously disadvantaged schools |
|
|
New technology system to improve and extend service and reduce fraud |
|
|
To re-orientate health and welfare managers respectively towards the comprehensive Primary Health Care orientated health care system and a needs and development driven welfare system |
|
|
To improve access to health care faciliites |
|
| 3 Strategic Developments, Housing and Infrastructure | ||
|
Planning and development initiative for region |
|
|
Provision of services to meet basic needs |
|
Flagship Programme |
Objectives |
Partners involved |
|
Upgrading land rights for over 36 000 beneficiaries |
|
|
Establish Land Development Objectives by all municipalities |
|
|
Secure land rights for rural dwellers |
|
| 4 Rural Development | ||
|
Capital grant programme to establish food and agriculture enterprises |
|
|
Build developmental local government in seven municipalities |
|
| 5 Support Programmes | ||
|
Improve safety and security in key areas |
|
The Free State Development Planning Framework 1998/99 will be implemented over the current financial year, with programmes and delivery targets extending well into the future. The Provincial Executive Council, led by the Premier, is responsible for providing overall direction and leadership.
The relevant Executive Council Committees ensure that effective co-ordination takes place, with programme implementation resting with the Heads of Departments and their Inter-Departmental Management Committee, headed by the Director General. All Free State Government structures are accountable to the Provincial legislature, and to the electorate, the citizens of the Free State.
The Priority Cluster Groups have set the framework for identifying, initiating and implementing growth and development activities in their focus areas. The next stages will involve strengthening linkages and maximising the potential synergies between line departments, and translating this into visible delivery programmes and projects.
9.3 Priorities, Programmes and Resources Alignment
Ensuring the alignment of planning, programmes, human and financial resources will be a feature of Free State development planning over the current financial year. Effectively, this will translate into a Development Planning Cycle, ultimately leading to an integrated process across the range of Provincial Government departments. This ties into the ongoing process of developing the Medium Term Expenditure Framework.
The pie chart showing the 1998/99 Free State Provincial Budget shows the distribution of planned expenditure by three of the four Priority Clusters. A cross-cutting exercise will now be undertaken to assess the proportion of expenditure that is applied and directed to services and development in rural areas.
The 1998/99 Integrated Development Planning Framework sets out the Free State Governments assessment of the prevailing socio-economic conditions in the Province. We have appraised the major challenges and opportunities facing us, and set out strategies to address them. In particular the Framework shows how we are allocating resources to meet our most pressing needs.
The Free State Government is but a single role-player in accelerating social and economic growth in our Province. We look forward to engaging all stakeholders in the process, with a genuine commitment to build partnerships between ourselves, business, labour, other spheres of government and the organised community.
Let us all work together towards the goals of success, prosperity and harmony in the Free State.
South Africa is striving to update and improve the statistics used for planning purposes. Although preliminary population estimates have been produced, the full details of the 1996 National Population Census are still to be provided. Where possible, this document uses the most up-to-date statistics available. Main sources include:
The source of other statistics is given in the text.