5. Land Use Analysis

Transcription

1 5.1 Mixed Land Use Activities Introduction The establishment of an appropriate mix of land use activities in support of a public transport system is a fundamental tenet. The aim of mixing land uses within a public transport context is to provide people with the opportunity to undertake multiple activities in one trip, and to encourage non-motorised trips, such as walking and cycling, through the provision of a diverse range of activities- for example a high street. The mixed use approach is supported by the CoJ SDF through land development policies with regard to Transport Orientated Developments around rail stations, around BRT stops, and as part of its strategy to develop viable nodes. The term land use mix refers to both the horizontal mix of uses, i.e. the degree to which different land uses are contained within a geographic area, generally a building, street or neighbourhood; and to the vertical (and / or onsite) mix of uses within a building and / or site, generally referred to as a mixed-use development Existing Land Use Activities focus. The adjoining areas of Doornfontein and New Doornfontein are tertiary education and light industrial and manufacturing areas, interspersed with offices, some commercial and retail activities along Joe Slovo drive. Included in this activity cluster are some lower- to medium density residential developments, as well as high rise residential apartments. Another sub-area within Quadrant 1 is the Troyeville, Bertrams, Lorentzville, Judiths Paarl residential area, comprising low to medium density residential neighbourhoods, with a mixed use high street (in decline) along Derby Road. The southern portion of the quadrant comprises the Fairview, Jeppestown, Belgravia historical low rise eastern residential suburbs, with a strip of medium rise apartments and mixed use retail and commercial uses along the Jules Street activity spine. The remainder of the quadrant includes the industrial and manufacturing areas, wedged between the railway line in the north and the freeway in the south (Benrose, Droste Park, & eastern areas of City & Suburban). Quadrant 2: The north eastern portion of the study area. This comprises the high rise residential neighbourhoods of Hillbrow and Berea with local convenience retail and entertainment high-streets. The second sub-area is formed by the medium rise residential neighbourhoods of Yeoville and Bellevue, which includes the distinctive Rocky Str. mixed activity high street. The study area (excluding the southern industrial belt) is defined as the Johannesburg Central Business District mixed use node. The land use status quo is described as a very diverse mix of land use activities occurs. A vertical mix of uses not prevalent in other nodes also identifies the area. There is a lack of public parking in the node. The established and recognized industrial areas of City and Suburban, Droste Park and Benrose are within the CBD nodal boundary (CoJ, SDF, 2008/9). Albeit that the study area as a whole is identified as the primary urban mixed use node, the spatial extent yields various sub-areas where the existing land use activity pattern varies from some predominantly mono-use areas to more mixed pockets. A simplified analysis per quadrant highlights the following (Figure 5.1.A): Quadrant 1: The eastern portion of the study area. One sub-area encompasses the Ellis Park precinct, with its sporting and recreational activity Quadrant 3: The historical Central Business District area, forming the core of the study area. This has a diversity of land use activities that are clustered into the following groupings: (a) The retail heart centred around Eloff and Joubert streets, anchored by the Carlton Centre in the south and Park Station in the north, linked by the pedestrianised retail street of Small Street mall. The area has a significant concentration of informal traders as well. (b) The library gardens precinct, which encompasses the provincial legislature and associated administration offices, with a variety if public facilities and private institutions. It also includes a significant office component structured around Kerk Street, the most dominant being the FNB office complex termed Bank City. (c) The south eastern precinct structured around the ABSA bank corporate office cluster, with surrounding commercial and light industrial activities. (d) The eastern cluster of activities, comprising a significant high density residential component and commercial activity. This includes the fashion district. March 2010 JICTTS Report 1 - Final 5-1

2 Figure 5.1.A: Existing Land Use Activities. Legend Land Use Activity: Residential Sport, Recreation & Education Cultural Mixed- Braamfontein Retail & Residential Office (Corporate) Government & Institutional Mixed- Fordsburg Wholesale Retail Public Transport Facility: Railway Stations Taxi Facility March 2010 JICTTS Report 1 - Final 5-2

3 Quadrant 4: The north eastern portion of the study area. (a) The Newtown Cultural precinct with its cultural, educational and entertainment (theatre, music and visual arts) facilities, and associated office, commercial and residential activities. (b) The greater Westgate precinct which includes Westgate station and encompasses the corporate mining (around Main Street), insurance (Zurich) and banking (Standard Bank) office clusters. The magistrates court and some minor commercial activity also occur in this precinct. (c) The Fordsburg precinct, comprising retail, light industrial and a clustered residential mix in medium rise apartments near the Oriental Plaza. The mixed use activities stretch westwards into Mayfair along the Main Road activity spine. It is a historic and well-established neighbourhood, with a vibrant street life. The southern areas of the precinct border on to the mining belt with industrial activities and a wholesale retail cluster. (d) The Vrededorp / Pageview low density residential neighbourhoods. (e) The Braamfontein precinct which is a cluster of tertiary institutional (Wits), corporate and general offices, municipal and civic uses, and cultural activities. It includes activity street retail uses that serve the precinct, as well as a significant residential population. As a result there are a significant amount of high rise apartments, catering for both the student and young professional market. Quadrant 5: The south western quadrant of the study area, south of the freeway up to the railway line, encompassing the industrial areas of Selby, Park Central and City Deep. The activities are within the mining belt area and comprise heavy to light industrial, manufacturing and commercial; including transport and motor-industry orientated activities. Quadrant 6: The south eastern quadrant of the study area, south of the freeway up to the railway line, encompassing the extensive goods and container area of greater Kaserne. There are very few dispersed industrial activities within the precinct. In conclusion, the study area is made up of a variety of interlinked and connected sub-precincts; each of a particular character and associated land use activity. Some are more mono-use in nature, such as the extensive industrial areas and residential precincts, and others tend toward greater mix of activity Existing Transport Facilities The study area includes the historic urban areas from which the City of Johannesburg originated. In this regard the initial public transport development was established through the railway network, establishing the railway stations as important public transport facilities. In particular Park Station, which is the largest and busiest railway station in the country. This has grown into a multimodal transport hub, that sends and receives both local, national and international commuters via a variety of transport modes (rail, bus and taxi). The commuter rail traverses through the study area, predominantly in an eastwest direction, serving the adjoining suburbs and industrial areas. A total of 12 railway stations are situated within the study area. During the 1970 s and 1980 s a commuter bus system was also at its strongest, serving the entire study area. This service continues to the present day, albeit at a much reduced frequency and reduced routes. A major investment, in order to boost facilities and services, was the redevelopment of the central bus station into Ghandi square, which has become a central public transport pivot in the inner core, very centrally located for commuters. As the public transport mode shifted away from predominantly railway and bus, in the late 1980 s, to increasingly minibus-taxi during the 1990 s, a series of taxi orientated facilities were incrementally established, particularly within the inner core. These were provided in response to the growth of the taxi industry and the associated need for facilities and services. The taxi industry has been so successful, that it also forced the reduction in the railway public transport service. The existing public transport facilities include (Figure 5.1.A): Quadrant 1: 4 stations (George Koch, Jeppe, Ellis Park & Doornfontein), Jeppe Station taxi rank, Transport Square taxi rank. Quadrant 2: A small taxi rank in Hillbrow, otherwise served by taxi and bus routes throughout the area. However the quadrant adjoins the multi-modal Park Station facility, as well as the Gautrain rapid rail station. March 2010 JICTTS Report 1 - Final 5-3

4 Quadrant 3: The core of the study area, including the multi-modal Park City railway station, Faraday station, and 5 taxi ranking and holding facilities (2xMetro Mall, Jack Mincer, Faraday & Transport Square Ellis Park). There are numerous taxi ranking areas, both formal and informal throughout the quadrant (refer to transport analysis for greater detail). Quadrant 4: 3 stations (Westgate, Braamfontein & Mayfair), as well as bus and taxi services. Quadrant 5: Traversed by bus and taxi services, one station at Village Main (unknown whether still operational). Quadrant 6: Traversed by bus and taxi services, one station at Kaserne (unknown whether still operational) The Benefits of Mixed Use Development The approach to establish a mix of land use activities is important for a number of reasons: The establishment of vertical mixed use building developments, supported by a mix in land use activities (horizontal mixed use), enables economic viability, supports public transport, reduces the need to travel, and enables walkability. Increased and more convenient access to facilities and public transport. Travel-to-work congestion is minimised; reducing commuting distances. Providing greater opportunities for social interaction. Enabling the establishment of socially diverse communities. Providing localised economic opportunities. A positive contribution to reducing vehicle emissions and other related environmental issues (greater energy efficiency and more efficient use of space and buildings). Increase the threshold and viability of the existing and planned transport infrastructure; as. well as for urban facilities and the support of convenience retail. Improved urban vitality and street life, which also improves safety and security with regard to eyes on streets. Increased consumer choice of lifestyle, location and building type; and associated visual stimulation due to diversity in built form and designed public space environment. A measure of the success and sustainability of a mixed land use area is the product of the distances people have to walk to access daily facilitiesincluding access to public transport- the presence of a sufficient range of facilities and activities to support the needs of the working and residential population, and a public realm of places and spaces where a variety of activities can take place Economic Considerations and Mixed Land Use The mixed land use activity approach is a sound principle that supports public transport systems. However, the principle must be supported by economic growth and development. Given the extent of the study area, and the fact that there are sub-precincts that represent a particular economic sector which are more mono-use in nature, there is scope to retain and strengthen these particular sub-precincts, due to the important economic role they play. Furthermore the physical compatibility and economic synergy of appropriate land use activities also directs the mix of land uses. Viruly consulting prepared an Inner City Property Market Strategy (City of Johannesburg, 2009), which identified the following trends: Residential: vibrant lower to middle income node; conversion of commercial (& C grade offices) in to residential; lack of supporting social facilities; commercial values rising affecting residential conversion viability; developers considering converting industrial space; residential supports retail. Retail: patchy performance; serving different income groups- from formal retail, whole-sale to street trading; have different space requirements, in particular lower end of the retail market street traders undertake appropriate interventions to incorporate. Industrial: some space functionally, physically & economically obsolete (serves only lower end of the market); opportunity to demolish & develop residential; conversely retain industrial & upgrade in time for next industrial market upswing. Offices: anchored by banks & institutions; affordable lower grade stock for small businesses; C-grade space is being converted to residential. March 2010 JICTTS Report 1 - Final 5-4

5 The proposed interventions from the property strategy include: Proposed Inner City Planning Commission- establish a holistic vision and development plan. Urban management to maintain a quality public environment. Consolidating & expanding public transport. People interventions: social welfare, policing, schooling and employment creation. Including the provision of social infrastructure to support the growing residential development. Place interventions- interventions within the built environment, including the public sphere, that improve health, wellbeing and education, as well as create employment opportunities. Support property market fundamentals for office market, to retain value. Promote an inclusionary inner city commercial property market. The development of affordable commercial (industrial and office) space (e.g. enterprise hives) on a subsidised basis. For example policy should encourage developers to develop a proportion of their space for smaller users. This could, in particular, be applied to ground floor retailing. The provision of such space could be linked to zoning relaxation incentives; Continue with interventions that city agencies undertake, also focus on public land to drive desired development and act as a catalyst. Effective urban management, including expenditure on infrastructural expenditure remains the most critical supportive intervention. Yet such interventions should be more carefully integrated with demand and people centered interventions The opportunity to redevelop old and obsolete industrial space into higher density residential developments. However, the decision to retain industrial space or convert the space into residential units is presently marginal from a financial feasibility perspective Recommendations Mixed use development, not only supports public transport thresholds, but also enables the development of supporting convenience retail and social facilities, enabling the establishment of integrated development. The provision of these facilities, together with appropriate accessibility on foot, will potentially de-incentivise car ownership and reduce travel distances and trips. The proposed land use activities must be symbiotic and complementary. The property market assessment implies that not necessarily all areas should be converted to residential and / or mixed use. Some of the industrial land use areas, given their age and in part their obsolescence, are an important economic asset, that are in a position to be redeveloped for modern industrial space. Mixed use development (Figure 5.1.B) should be promoted around the public transport facilities, with concomitant employment opportunities, in order to increase public transport viability and mode share. Not all public transport facilities play the same role. The railway stations in the outer quadrants serve local precincts, providing commuter services for both residential and working populations, and potentially forming the anchor to the precinct. The railway stations within the central quadrant and inner core form multi-modal transport hubs, serving a range of functions. The primary transport hub is Park Station, and the secondary ones are Westgate and Faraday stations. In addition mixed use activities should be promoted in association with all public transport infrastructure, including the BRT stops and routes, as well along bus routes and stops. The mixed use along the various activity and high streets is to be consolidated and enhanced. Associated mixed use building typologies require that an active ground floor frontage be established, ensuring that interest, life and vitality are added to the public realm. This also ensures that mono-use areas are avoided, which result in the inefficient and under-utilisation of infrastructure and services. In designated industrial core areas, where residential and land use mix is undesirable, in order to retain and strengthen the particular economic sector, a minimum of convenience retail and associated activities in support of the workforce needs should be provided. This should include walkable access to public transport. The walkability of the inner core (see following section), and accessibility to a diversity of transport modes, warrants the development of mixed use throughout the inner core. Quadrant 2 is oversubscribed with development intensity and associated residential density (see following section). For this reason mixed use development is not proposed. However the development of supporting social facilities and supporting retail facilities to enable the development of a liveable environment is proposed (as per recommendations in other studies). Mixed use development should complement the existing character of precincts such as the core quadrant, Braamfontein, Newtown, the Gauteng Legislature and within the retail district. March 2010 JICTTS Report 1 - Final 5-5

6 Figure 5.1.B: Proposed Focus Areas for Mixed Use Development Legend Local precinct orientated mixed use development centred around stations. Mixed-use development in support of multi-modal transportation hubs within the inner core. March 2010 JICTTS Report 1 - Final 5-6

7 5.2 Residential Densification Introduction The establishment of appropriate residential densities in support of a public transport system is a well established tenet. The National Land Transport Act includes the establishment of high density development as one of its strategic objectives. This supports differentiated public transport provision and enhances operating efficiency. This approach is supported by the CoJ through land development policies in its SDF and the ITP Existing Residential Densities within the Study Area The existing residential densities within the study area vary to a considerable degree; they range from as low as persons per hectare to as high as persons per hectare (Figure 5.2.A). This clearly indicates the uneven spread of the estimated 400,000 people that reside in the study area. Consequently some of the quadrants support public transport and others require additional residential development to achieve the minimum thresholds. As identified in the JICUDIP (2009), the residential character of the study area is structured into distinctive areas, establishing a diverse density range: The Fordsburg and surrounds area, comprising retail, light industrial and a clustered residential mix in medium rise apartments near the Oriental Plaza, stretching westwards into Mayfair. It is a historic and well-established neighbourhood, with a vibrant street life. The Vrededorp / Pageview low density residential neighbourhoods. The high rise residential neighbourhoods of Hillbrow and Berea with retail and entertainment activity strips. The medium rise residential neighbourhoods of Yeoville and Bellevue, which includes the distinctive Rocky Str. high street. The historical low rise eastern residential suburbs, interspersed with small pockets of medium rise apartments, including Bertrams, Troyeville, Jeppestown and Fairview. The areas devoid of residential development, including the predominantly industrial, manufacturing and commercial areas of Benrose, City & Suburban, as well as the southern industrial belt of Selby, City Deep & Kaserne. The CBD Inner Core with pockets of high rise residential development in its north-eastern portion, around Park Station and Joubert Park; the medium rise residential development in the western section around Newtown and isolated residential developments in its south-western portion. The high rise residential developments in Braamfontein, accommodating a significant student population, interspersed with apartments for young professionals in mixed use buildings Residential Densification to support overall sustainability The approach to increase residential density with regard to public transport supports the fundamental objective to achieve sustainability. Thus density is utilised to generate a critical mass of people able to support urban services and activities. The approach is fundamental to the establishment of sustainable urban environments, which should offer a good quality of life, utilise resources efficiently and minimise their consumption (such as energy, land & water) and enable the development of, as well as, incorporate renewable resource development. The benefits of increased densities include: Social: Social proximity encourages positive interaction & diversity. It improves the viability of and access to community services & facilities; and enables more and better integrated social housing. Economic: Enhances economic viability of the development, and provides economies of scale / economies of infrastructure. Transport: Supports public transport; reduces travel and parking demand (reduces car use in terms of both mode share and distance travelled; and focus is on a walkable lateral scale of development); and makes basement / underground (off-street) parking more economically viable. Environmental: Increases energy efficiency; decreases resource consumption; creates less pollution (reduced CO² emissions); preserves and helps fund maintenance of public open space; and avoids and / or reduces sprawl by reducing the overall demand for land. (Source: Urban Design Compendium, English Partnerships) Research in the UK has indicated that increased densities influences travel behaviour, the primary association being travel distance. The lower the density, the longer the travel distance and the higher the percentage share of car mode. Data trends from the UK show that areas with higher densities tend to have shorter annual travel distances and lower car mode shares than average. Distance by public transport increases with density, particularly over March 2010 JICTTS Report 1 - Final 5-7

8 Figure 5.2.A. Existing Population and Density. March 2010 JICTTS Report 1 - Final 5-8

9 30 persons per hectare (Planning for Sustainable Travel; Figure 5.2.B: Research Outcomes on Density Thresholds It is important to note that density is intertwined with other urban variables, namely the mix of uses, settlement size and accessibility to public transport Density Threshold There has been much discussion around the range of densities that best support viable public transport. In part minimum densities for viable public transport depend on the type of public transport, the local urban and cultural context, and the availability of alternative modes. It is the norm that people are willing to walk up to m to access public transport. This may be longer in more extensive urban areas. In the South African context a target has been set to reduce the walking distance to publictransport facilities to less than one kilometre, which takes about 15 minutes to walk (Guidelines for Human Settlement Planning and Design, CSIR, 2000). The latter objective should be regarded as a minimum. The distance is used as a catchment area for development around public transport interchanges. The range of available public transport options is in part influenced by the higher densities, which allow for higher frequency and specification in services and help to justify dedicated rights-of-way. As stated in Planning for Sustainable Travel- Summary Guide (Commission for Integrated Transport, October 2009): Rudlin and Falk (2000), CABE (2005) and others give a range of density gradients (Figure 5.2.B) and indicative minimum densities for a bus service at 25 units/ha and for a tram service at 60 units/ha. Suitable densities for transport services are however contextually specific depending on a range of factors, including local car ownership levels, mode split, trip distribution and proposed public transport service specification (including capacity, frequency and cost) (Halcrow, 2007) (Planning for Sustainable Travel; Furthermore it is stated in the (Guidelines for Human Settlement Planning and Design, CSIR, 2000) that appropriate densities are specific to a range of social, economic and environmental factors- with a gross density of over 50 du/ha (approximately 150 persons/ha) likely to be appropriate in most developing urban areas of South Africa. Senior et al (A Housing Options Assessment Manual, Urban Foundation, 1988) have shown that where gross densities are lower than 100 persons per hectare (pph), people begin to rely on motorised Source: Planning for Sustainable Travel; March 2010 JICTTS Report 1 - Final 5-9

10 transport, rather than pedestrian transport linked to public transport and general walkability. This equates to a minimum of 31 du/ha (gross) by applying the City of Johannesburg average household size. The CSIR s Guidelines for Human Settlement Planning and Design (2000) consider a gross density of 50 du/ha (i.e. 160 pph gross) to be appropriate in the urban areas of South Africa. Thorne (1994) proposes a gross residential density range of 63 du/ha to 141 du/ah (i.e. 200pph to 450pph gross). Del Mistro (1988) considers 94 du/ha (i.e. 300pph gross) as an optimal density. There is continued discussion as to the appropriate density levels. In the UK overall planning guidance advises an indicative minimum of 30 du/ha. However, much higher densities can be achieved in many areas, up to du/ha depending on context, and even du/ha or more around important public transport interchanges. A set of density ranges can be developed for each local area reflecting contextual issues ((Planning for Sustainable Travel; The current CoJ SDF (2008/9) policy with regard to residential densification: Promotes mixed-use, Transport-Orientated Development (TOD) at rail stations; the principles include: (1) high-density residential housing typologies; (2) pedestrian friendly environments and non-motorised transport options; (3) degree of mixed use (convenience retail / social amenity / open space); and (4) limited private vehicle parking. Strategic densification: Within a CBD / Metropolitan / Regional node (virtually the entire study area); 100 du/ha+; areas contiguous to the former, a range of 40du/ha to 80du/ha; areas within 500m of the CBD or Metropolitan Nodal Boundarya range of du per ha could be supported. All must be considered in terms of infrastructure, access and design. Density guidelines in support of public transport (CoJ SDF, 2008/9): LOCATION PARAMETERS Erven / farm portions Within 500m * of an existing or proposed train station Adjacent to and fronting on to a Phase 1 BRT Route # Within 200m* of a Phase 1 BRT Route # Fronting on to an existing Mobility Road Fronting on to an existing Mobility Spine DESIRED UNITS PER HA (Max. no. Indicated NOT CUMULATIVE) To be determined per development proposal. Where infrastructure, access and design allows du per ha could be supported To be determined per development proposal. Where infrastructure, access and design allows du per ha could be supported To be determined per development proposal. Where infrastructure, access and design allows du per ha could be supported To be determined per development proposal. Where infrastructure, access and design allows du per ha could be supported To be determined per development proposal. Where infrastructure, access and design allows du per ha could be supported The city also has a density bonus programme in place with regard to certain BRT routes, which aims to encourage higher density residential development. The average dwelling unit density for the study area is estimated at du/ha (around 150 p/ha). Overall thus the study area already supports minimum residential density thresholds in support of public transport, pegged at 30 du/ha gross. However this minimum is not in all areas, but is unevenly distributed, occurring in pockets of concentration and oversupply. Furthermore, the various transport hubs and public transport facilities present opportunities to provide increased residential densities Recommendations Residential densities should thus be increased and maximised throughout the study area, taking into consideration public transport access, infrastructure and appropriate place making. This should be undertaken within the following parameters: The efficient utilisation of land in order to reduce and adapt to the impacts of climate change, promoting sustainable development. The current and future levels of public transport accessibility. Due consideration of the local, existing and historical residential context, which should not prevent residential densification, nor dictate a particular style or form. In principle good design and layout of new development, if well done, can lead to the more efficient design solution and improved land use, without compromising the quality and history of the local environment In principle development should be to the highest density possible, in consideration of the local density range, and within the context of quality of life and public transport availability considerations (existing and future). The increased densities need to be consistent with liveability objectives and type of accommodation needs. The highest densities should be promoted around the transport hubs in the inner core, within a 10 minute walk or approximate 800 metre radius catchment, and around railway stations within a 5 minute walk or approximate 400 metre radius catchment. This distance assumes direct connectivity and access; where the latter is not the case, the density distance should be March 2010 JICTTS Report 1 - Final 5-10

11 reduced. Increased densities (within the medium density range) should also be promoted along the BRT and bus routes- typically the activity and high streets within the study area. In the remainder of the study area, the residential densities should be increased to the minimum range of 30 to 50 du/ha gross. on synergies of usage, as well as reduce expansive land requirements. For example sports clubs can accommodate two or more sport activities, school halls. can double up as community halls for meetings etc. The proposed density thresholds reinforce existing policy and the principles of TOD development as outlined in the CoJ SDF 2008/9. The grading of densities from higher, medium to lower density is also reinforced as per exiting policy. However this should be considered over a distance of 400m, as opposed to the current 200m in BRT and SDF policy. The Hillbrow, Joubert Park and Berea residential neighbourhoods are oversubscribed with regard to residential density. In this context a public transport service is required, as well as ensuring pedestrian connections with other parts of the study area, to improve public transport access and walkability respectively. Where new public transport facilities and services are proposed, the development should be configured such that it supports the public transport patronage. This requires that the interrelationships between public transport accessibility, parking and density be duly considered. Encompassed in the higher residential density principle is the provision of a mixed residential / housing typology and associated tenure mix. This enables people from diverse income groups to live in the development and / or node. This is to be underpinned by a design approach that ensures a quality building design and aesthetics, with associated management regimes, to ensure upkeep of standards and appropriate maintenance of the development. An important component in the establishment of a sustainable residential environment is the inclusion of the appropriate number of social facilities. This is not within the scope of this study and has been appropriately highlighted by the CoJ JICUDIP and is reiterated here. Increased residential densities increase the demand for these facilities. In general the facilities should be clustered and / or included in the vertical mix of buildings, in order to maximise March 2010 JICTTS Report 1 - Final 5-11

12 Figure 5.2.b: Proposed Focus Areas for Residential Densification supporting Public Transport Legend Local precinct orientated densification centred around stations (400m /5 min). Densification in respect of identified transport hubs (800m / 10min). Note: Westgate & Faraday reduced as walkability impaired. March 2010 JICTTS Report 1 - Final 5-12

13 5.3 Walkability Introduction The movement framework of the study area is fundamentally structured by the existing street network. In principle it has been understood that a street grid is one of the best ways of achieving efficient connections, providing a simple structure and choice, which allows for movement and access within an area. The form the grid may be orthogonal or more irregular, but its qualities remain the same. The nature of the grid also enables general traffic management, and allows for the differentiation of users and activities The Existing Street Grid and Block Configuration Quadrants 1 to 4 have an existing street grid, that links with the street grid of the core quadrant, the historic origin of the urban system. The existing street configuration of the core area comprises in part an extended orthogonal (north-south and east-west) street grid that is severed / disrupted in parts by topography as well as the railway system that is below ground level and cuts a trench through the street system. The latter requires extensive bridging infrastructure for the continuation of the street system, which has only been done in parts. The east-west ridge systems that traverse the study area establish a topography according to which the street grid systems in the various quadrants have been adjusted, for example within the Fairview / Troyeville and Ellis Park suburbs. The street grid is orientated in parallel to the ridge systems between Langerman Kop and the Yeoville ridges, orientating the street grid more toward the north-east, and conversely more to the north-west in Fordsburg & Mayfair. Throughout the remaining quadrants the street grid has been orientated to the north, to maximise the development and living benefits of a north orientation. were of a less intense land use activity, and included residential suburban and neighbourhood development, have more rectangular block sizes. These include a typical block of 95m x 67m, the long side in an east-west direction to maximise north orientation for the subdivided sites within, and a sanitary lane along the centre of the block in an east-west direction. In other parts the block size increases to 158m x 63m. The southern areas of the study area form part of the east-west mining belt. This includes the southern parts of Quadrants 1, 3 and 4, and the whole of Quadrants 5 & 6. These were the areas where Joburg s gold mining took place. Once the gold resources were exhausted, the area was developed for industrial and manufacturing purposes. Initially together with the mining activity, but continued as the best suitable land use with regard to the extensive undermining in the area (which affected geological conditions, allowing on more lightweight structures), the toxicity of the surface due to gold mining processes, and the extensive mine-dumps which occupy extensive surface areas. As a result there is a cluster of interconnected street grids within the Selby area, but for the remainder there are extensive land parcels, with main routes traversing the industrial belt in a north south direction, and sparse east-west connections. This area has poor permeability and limited connectivity. The street grid system of the study area provides very good connectivity, access and permeability. All the quadrants are well connected with major routes, not only due to the continuity of the grid system, but also due to the origin of the main routes from the core quadrant 3, which radiate out in all directions to all parts of the Joburg urban system and beyond. Due to the north orientation of the street in Quadrants 1 to 4, the block size is rectangular in an east-west direction. The core quadrant has a square block size of 63m x 63m, which is extended eastward within Marshalltown, City & Suburban and into Jeppestown. These formed the historical origin of the urban system of Johannesburg. The areas that followed in Quadrants 1, 2 & 4, which March 2010 JICTTS Report 1 - Final 5-13

14 5. Land Use Analysis Figure 5.3.A: Existing Street Grid and Block Configuration March 2010 JICTTS Report 1 - Final 5-14

15 5.3.3 The Benefits of the Street Grid Choice- the grid allows for a greater choice regarding the direction of movement and the choice of destination. Permeability- the grid provides for good passage and the flows of people, vehicles and goods throughout the urban system. In particular a smaller grid block allows for potentially increased flows. Capital Web- the street grid also forms an integral part of the capital web of the urban system, i.e. the public infrastructure investment comprising the streets and sidewalks, public spaces and community facilities, as well as the associated engineering services, which combined form the public environment. Access- the street grid enables very good and direct access to all sites and areas within the urban environment. Disruptions (through topography etc.) and discontinuities reduce the accessibility. Connectivity- the ability to establish a continuous street system and associated built form, enables the grid to establish strong connections throughout the area and with adjoining areas. Growth- the grid allows for growth, enabling expansion in various directions, given topographical and other physical constraints. Adaptable- the blocks formed by the grid can be combined into coarser levels of resolution, and conversely broken down to finer levels of resolution, to vary and adapt the urban form and urban structure in order to respond to growth requirements, intensity of activity and physical conditions (e.g. topography). Differentiated movement hierarchy and activity concentrations- the accessibility of the grid, combined with the widths and continuity on selected streets within it, increase the structuring qualities of the grid, and enables the establishment of both a hierarchy of movement and hierarchy of activity, the latter being concentrated in some areas and more dispersed in others. Environmental Areas- The grid can be structured into larger character areas, where certain movement modes are restricted, redirecting these to higher order movement routes, allowing for the consolidation of blocks into an environmental area public square...with through movement limited pedestrian movement for example A Supporting Block Structure The block structure of the grid is determined by the spacing between the streets and represents the land area of the grid. This structure can vary considerably in shape and size, influenced by a variety of factors, configuration of streets, including topography, preferred orientation and adjoining land use activities, as well as the site subdivision, uses and building types. In terms of an optimum network for pedestrian and vehicular movement needs, it has been found that a block size of m is the most suited (Urban Design Compendium, English Partnerships). In city centre areas, where the pedestrian activity is the most intense, a block structure of 50 70m provides an optimum circulation network. The city centre block structure has shown to enable ease of access, the ability to sustain a variety of building types and uses, and has a good ability to change over time. The shape of the block is also a factor with regard to movement and land use activity. In general, square blocks offer the most flexible basis for accommodating a range of commercial and residential buildings, as well as allow for a variety of options for internal treatment. Rectangular blocks that are for example 110m deep, are able to accommodate larger buildings and more space extensive land use activities, for example industrial and manufacturing uses. These may then be more appropriately situated at the transition zones of city centres. Irregular blocks can be included to respond to particular topographic conditions and the creation of focal points such as public squares or public parks. The block structure also enables the development of perimeter blocks. In this regard the edges of the blocks should be lined with a continuity of buildings, allowing for the accommodation of a diversity of building types and activities at medium to high densities. This also simultaneously ensures a positive relation of the building with the public realm and street space. March 2010 JICTTS Report 1 - Final 5-15

16 The perimeter block built form also ensures that a clear distinction is made between the public and private environments. The public front faces directly on to the streets, squares and parks, animating these public spaces. In turn the interior of the blocks, and the back of buildings, are more community and semi-private spaces for the residential and workforce inhabitants. The distance between buildings also needs to be considered in terms of privacy, natural air and light penetration Walkability Thresholds and Distances Walking as a mode of transport is significant within the study area. The latest household survey states that 43% of people walk. As a result the walkability of the study area forms a significant factor in the residential and working lives of the population. Research in the USA has shown that the average adult walks at a speed of between 0.9m & 1.2m per second, this translates into general walking speed of between 3.3km/hour and 4.4km/hour. The average walking speed for children, the elderly & physically challenged, reduces to 0.6m & 0.75m per second, this translates into general walking speed of between 2.2km/hour and 2.7km/hour. Transportation planners apply a standard of an average of 1m per second, taking into consideration the ageing of the population. This translates into 3.6km/hour. International urban design standards define a walkable neighbourhood as an area with a radius of 400m from the core, and have estimated that this takes a 5minute walk. This translates into 4.8km per hour. The concept of Sustainable Community Units (SCU s) has been proposed on Cities Network, being applied in Cape Town. The SCUs are based on a walking distance from centre to periphery of 2km or 30 minutes. This translates into 6 minutes per 400m. The above outline of walkability threshold shows quite a variation in range. The factors influencing walkability: - age of the person and physical ability; - real and perceived distance; - safety (personal security & traffic safety); - comfort (weather conditions, shelter from the elements); - interest (destination); and - directness of route Existing Walkability from Transport Hubs / Facilities (Figure 5.3.B) - The Park Station, Metro Mall & Jack Mincer transport facilities are clustered the closest, all within a 10 minute walk between them. - The southern public transport facilities, Ghandi Square, Westgate & Faraday are within a 20 minute walk of one another. - New Doornfontein Station is the furthest east in the inner core. It is 15 minutes from the nearest neighbouring public transport facility. The BRT route is well positioned with regard to pedestrian access & walkability- Market & Commissioner are central within the core, in close proximity to Ghandi Square & 10 minutes walk from Park Station (along Joubert & Small Street). The eastern north-south route to Hillbrow, is more remote from existing public transport nodes, but fills an existing vacuum of public transport facilities. The western north-south routing reinforces links with Westgate, and passes in close proximity to Park Station. Existing Walkability within Inner Core (Figure 5.3.C) - The inner core is 2.4km east-west and 1.5km north-south in length. Based on a standard walkability of 5minutes for 400m, the Inner Coe could be traversed as follows: - Approximately 30min. east-west. - Approximately 20min. north-south. - Note: From the centrally situated Retail District (along Eloff & Joubert), walking distances are as follows: 5-7min: Park Station & Gandhi Square 8-10min: Metro Mall Taxi s 10min: Jack Mincer Taxi's 18min: Farraday 20min: Westgate & New Doornfontein March 2010 JICTTS Report 1 - Final 5-16

17 Figure 5.3.B. Walkability from the Transport Hubs Minutes walking distance: 5 minutes (400m) 10 minutes (800m) Braamfontein Park Station New Doornfontein MetroMall Jeppe Minutes walking distance: 5 minutes (400m) 10 minutes (800m) Westagte Gandhi Square Faraday March 2010 JICTTS Report 1 - Final 5-17

18 Figure 5.3.C. Walkability within the Inner Core Park Station New Doornfontein MetroMall Gandhi Square Minutes walking distance: 5 minutes (400m) 10 minutes (800m) 15 minutes (1200m) 20 minutes (1600m) Retail District Westagte Farraday March 2010 JICTTS Report 1 - Final 5-18

19 5.3.6 Recommendations Work on a basis of 400m = 5minutes, and 800m = 10 minutes; let this become the defining catchment for the transport hubs; also overlaps with what is considered to be a walkable neighbourhood. Walkability throughout the core given distances are not onerous, reinforce existing pedestrian network, ensure the establishment of new pedestrian linkages with key transport facilities, ensure routes throughout the inner core to ensure pedestrian street coverage throughout the inner core. Retain the permeability of the grid to ensure continued connectivity and access throughout the study area. Even if two blocks within the study area are consolidated, and the street space between them is privatised, a super-block is formed, which reduces the study area s connectivity and permeability. It would also form a physical barrier, which is undesirable and difficult to support in the context of the study area s refined 63 63m block structure. Where new development is proposed, the existing grid structure should be extended. Retain current block size, where blocks are to be consolidated, ensure pedestrian permeability and / or semi-pedestrian areas (e.g. semipedestrianised streets with parking courts, allowing for slow moving traffic) at ground level. An example is Bank City, with its public square in the centre, which allows for pedestrian through-movement by forming an extension to the east-west pedestrianised Kerk Street, and allows for north-south throughtraffic. Establish a hierarchy of interlinked movement systems, with associated activity dispersion and concentration, that consider both pedestrians and vehicles. This could range from a fully pedestrianised street, to a semipedestrianised street, to well-designed sidewalks within various street types. Reinforce the existing character areas of the study area, by aggregating the street blocks into environmental areas according to the identified character, and establishing a supportive movement and street space hierarchy. Aerial walkways could also be considered as connections between buildings and blocks. However this should be selectively applied in special situations, as aerial connections form isolated pedestrian movement, and reduce the activities that would normally animate the street. March 2010 JICTTS Report 1 - Final 5-19

20 5.4 The Transport Hubs Introduction The consolidation of some of the existing transport facilities into multi-modal transport hubs forms an important component of a sustainable public transport strategy. In general terms the multi-modal transport hubs establish greater efficiencies as transport functions are physically concentrated and effect intermodal transfer and synergies, which lead to a more effective service, and form an important component to achieving and integrated public transport system Role and Function The existing transport facilities generally service a single mode of public transport, with links to another mode serving the particular facility. For example many railway stations have an associated taxi rank, with transfers from rail to taxi s, who provide public transport within the study area. However, it is once again highlighted that 43% of commuters walk, and in this context combined with the walkability of the inner core many people choose to walk to their end-destination. In this regard good and convenient pedestrian connections and paths from (and to) the transport facilities to key destinations and with other public transport facilities are an important component. The conceived multi-modal transport hubs for the study area go beyond the mere location and functioning of public transport facilities and services, and should be understood as Multi-Modal Mixed Use Precincts, that at minimum cover a catchment area of a 400m walking radius. These precincts in general reflect a higher agglomeration of public transport services and facilities, potentially including train stations, taxi ranks, bus stations and BRT. They have the potential to form a mixed use environment retail/office/residential; and allow for the establishment of a pedestrian friendly public environment, that enables non-motorised transport. Doornfontein Station (supported by Ellis Park Station) Of the above Park Station is the primary hub, which facilitates and receives the widest range of commuters, from international, intra-national, interprovincial, inter-city, and daily railway and taxi commuters. It is the key public transport facility within the study area, and its role should be enhanced and strengthened. The other transport hubs role is not as diverse and inter-modal as that of Park Station, their focus would be on commuting and the interface with local services, such as normal bus, BRT, and as an entrance into the study area from which certain destinations can be reached on foot, via an interconnected pedestrian network. The Metro Mall taxi facility, and Kaserne, are not considered to be multi-modal transport hubs in themselves, but are viewed as facilities in support of the functions and activities of the Park Station hub, effectively becoming an extension to the latter. They enable inter-modal connectivity and support daily commuting, particularly with to Soweto and other areas of Johannesburg. The remaining stations around the periphery of the inner core, such as Braamfontein, Mayfair, Jeppe and others, are tertiary facilities, which form part of local neighbourhood precincts. These can potentially be developed as mixed use neighbourhoods in synergy with existing activities and land uses. The others, which are situated in more industrial areas, enabling the access of employees to work, should strengthen their commuter function and associated support activities. The multi-modal transport hubs within the study area include: Park Station Westgate Station Faraday Station March 2010 JICTTS Report 1 - Final 5-20

21 5.4.3 Development Principles The following development principles should guide the establishment of a multi-modal public transport facility. In order to proactively encourage sustainable travel, the aim should be to locate and manage key facilities in a manner that will: Be conveniently accessible by public transport, for commuters and employees within a 400m walking distance catchment area. Support and facilitate the improvement of public transport services through the concentration of activities and higher residential and employment densities. Concurrently this requires the provision of a high level of public transport service, in terms of frequency and speed. Reduce the average travel time and travel distance. Maximise the proportion of travel by non-motorised modes, namely walking and cycling. Complement existing land use activities within the area and support existing land use development strategies. Whenever appropriate, establish a land use activity mix that enables trip purposes to be combined in a single journey to the desired destination. In general a high level of convenience retail supported by selected destination retail, personal services, community and social facilities and recreational facilities supported by incremental housing of medium to higher densities. Establish a complementary parking management programme (public and private), encompassing parking facilities provision (on street and off street), the management thereof in manner that encourages the utilisation of public transport facilities. Establish clear, direct and well-signed routes both for vehicles and pedestrians to and from the facility. Establish a pedestrian friendly environment, giving pedestrians priority, with well-placed crossings on major roads. Establishes improved accessibility by enabling many people to reach the facility, with its activities and as a destination, quite quickly, easily and conveniently. In contrast, inaccessible places can only be reached by a few people in the same amount of time. Allows for the inclusion of key facilities within the hub, which serve a wider catchment area than the immediate neighbourhood in which they are situated. Examples include employment centres, shopping centres, hospitals, educational institutions, leisure centres and cultural attractions. The accessibility of key facilities is therefore of particular importance because they are major travel generators (for both employees and consumers / patrons) and wider access has strong additional social benefits. Enables accessibility at a local level within the hub s catchment area to convenience retail that meet daily needs of the local residential and employee population. Considers accessibility with regard for persons with disabilities, as well as the aged and children Include within the development of the hub the potential to establish local employment opportunities, which potentially reduces commuting distances and conversely potentially provides employment opportunities near homes. Large employment generators should be at locations that are the most accessible by public transport, walking and cycling (which are the areas with large population catchments), and vice versa. Support housing type and affordability that is consistent with local employment opportunities in order to discourage in/out commuting. March 2010 JICTTS Report 1 - Final 5-21

22 5.4.4 Broad Assessment of Development Potential Per Hub Figure 5.4.A. Transport Hubs Possible Development Potential A broad assessment of the latent development potential within each of the identified transport hubs was undertaken. The summary is outlined in the adjacent Figure 5.4.A. It is estimated that a total of 2,2 million square metres of floor area is available over a land area of 54ha. This assumes a decking of the railway yards, the development of vacant land portions and the redevelopment of strategic land parcels; all based on a floor area ratio allowed by the town planning scheme. It is noted that these are only estimates, to give an indication of potential development. The estimate includes the Standard Bank Ussher Site proposal, for which application has been made. Other private developers have not made any firm commitments, including Park Station, and thus their proposals can only be considered as ideas. Accordingly the approach was taken to identify the relevant land areas and apply a floor area ratio that would likely be allowed in terms of the current town planning scheme, based on the approach that a similar floor area ration would be permitted. Of the 2.2 million square metres of floor area, the CoJ has control over 500,000m² (23%), assuming the development of all its areas. 926,000m² (42%) of floor area is under the control of Transnet (northern Newtown land and decking over railway); and the remaining 774,000m² (35%) of floor area is in private hands. The assessment indicates that the City of Johannesburg has some key sites within Kaserne, Westgate and Faraday that must be developed in a way to form catalysts for development, as well as enabling the realisation of a public transport strategy. Furthermore the city will require to establish strategic partnerships with both Transnet and key private land owners in order to realise the full development potential indicated here. This initial assessment indicates the following potential for each of the transport hubs. The latter will inform the proposed transport plan as potential opportunities. They will then either be ratified or replaced by other initiatives as required by the integrated transport plan. March 2010 JICTTS Report 1 - Final 5-22