Specialist Study : Port-City Land Use Planning

PORT OF CAPE TOWN

STRATEGIC ENVIRONMENTAL ASSESSMENT

SPECIALIST STUDY : PORT-CITY LAND USE PLANNING

REPORT PREPARED FOR

CSIR : ENVIRONMENTEK

BY

MARCH 2003

Specialist Study: Port-City Land Use Planning

SUMMARY

BACKGROUND

At the beginning of 2002 CSIR Environmentek commenced with a Strategic Environmental Assessment of the Port of Cape Town. Following interaction with stakeholder groups during the year, a final Scoping Report was produced in October 2002. In the Scoping Report, many factors affecting sustainable port development were analysed and issues requiring further study were identified. One of the issues or specialist studies was a "Port-City Land Use Planning Study". This report is therefore a result of the SEA process to date.

PURPOSE OF REPORT

The purpose of this report is to provide NPA with an audit of the status of planning policies and development projects on the periphery of the port. In so doing, the study will identify issues arising from physical development in the city, the potential impact of these issues on development of the port and what procedures, measures or interventions are necessary in order to address these issues.

LEGISLATION

The legislation controlling development in the port is the Legal Succession to SATS Act, No. 9 of 1989. This Act and its amendments provide for the development of the harbour for transportation and related purposes. In terms of the Act, such development may occur without any further approval of the local authority. This status is specifically addressed in Section 13 of the Act, which states that all land owned by the Company, Transnet, used generally for transport or railway or harbour or pipeline purposes or related activities "shall be deemed to have been zoned for transport uses in terms of such zoning schemes as of right and without having to obtain the consent of any competent authority".

PLANNING POLICIES AND STUDIES

A number of City Council Planning documents were assessed with regard to implications for the port. The policies which emerge from this analysis are:

(a)The establishment of three green mountain–sea links via Portswood Road (“West Link”), Heerengracht (“Central Link”) and Searle Street extension through Culemborg (“East Link”/”Trafalgar Park Public Way”).

(b)The establishment of five view corridors and ultimately public access to Duncan Dock via Buitengragt, Long, Heerengracht, D.F. Malan and Oswald Pirow Streets.

(c) The construction of a new Duncan Road or parallel facility along the water’s edge for public access.

(d)The creation of a new public square at the intersection of the Heerengracht extension and Duncan Dock, referred to as “Harbour Square” or “Port Square”.

(e)Duncan Dock and the Yacht Basin to become tourism destinations with a cruise-liner terminal to be constructed within Duncan Dock or at the northern end of South Arm.

SURROUNDING DEVELOPMENT

The area surrounding the port was analysed in terms of zoning, land ownership and uses. Because this area is seen as having a significant impact on the port, sub-areas were analysed in more detail. The sub-areas are:

• the V&AW which comprises a range of uses, namely retail, entertainment, restaurants, cinemas, special uses (e.g. an aquarium), offices, corporate head offices, educational, hotels, a residential marina, fishing industry and pleasure craft activities;
• the Foreshore, which consists mostly of office towers, with the exception of three hotels, the convention centre and hotel, currently under construction and civic uses, including the Civic Centre and Artscape Complex;

SUMMARY CNTD.

• Oswald Pirow Precinct, which consists of predominantly motor-related retail, including the Culemborg Motor City;
• Culemborg Precinct, which is largely derelict land, accommodating the PX Shed and a few small industrial uses, with Spoornet’s marshalling yards and coach maintenance facilities further south;
• Woodstock Industrial Area, in the vicinity of Lower Church Street, which accommodates manufacturing and service industrial uses, with a number of offices;
• Salt River Power Station site which is largely vacant, save for the historical section of the entrance building; and
• Paarden Island Industrial Area which is fully developed and accommodates a range of manufacturing and service industrial uses and retail outlets.

DEVELOPMENT BULK PER MAJOR PROJECT

As the amount of development bulk in each major project adjoining the port will have an impact on traffic circulation within the City Bowl and on the operation of the port, development bulk for each project was analysed. The amount of development bulk can be summarised as follows:

ISSUES AND OBJECTIVES

As a result of development in the City Bowl and the development imperatives of the port, a number of issues were identified. These issues can be categorised as follows:

1.Port issues: The objectives to be set and actions to be taken require the involvement of NPA and Transnet.

2.Sectoral/Institutional issues: These are issues which involve NPA, public authorities and central city stakeholders in order to formulate strategies and policies for the port and/or city in general.

3.Focus Area Issues: These are issues which are particular to a geographic or functional area and which require the involvement of NPA and a specific landowner/s and the City of Cape Town.

Port issues relate primarily to finalising port planning in terms of the Port Development Framework and clarifying each of Transnet’s Business Unit’s land requirements in central Cape Town. Resolution on these matters should precede any engagement with the authorities on more specific issues.

CONCLUSION

The resolution of these area specific issues is dependent on a formal port/city forum and the involvement of the port in processes determining central city planning and development.

In tandem with this interface, a document recording the City’s development intentions for the study area, possibly an update of the 1989 Contextual Framework, will need to be produced by the City of Cape Town.

SEA : Port of Cape Town1

Specialist Study: Port-City Land Use Planning

SUMMARY CNTD.

SUMMARY CNTD.

SEA : Port of Cape Town1

Specialist Study: Port-City Land Use Planning

CONTENTSPage

SUMMARY

GLOSSARY AND DEFINITIONS USED

1.INTRODUCTION1

1.1Background to Report1

1.2Purpose of Report1

1.3Approach1

1. CONTEXTUAL ANALYSIS7

2.1LEGISLATIVE CONTEXT7

2.2PHYSICAL CONTEXT9

3.PLANNING POLICIES AND STUDIES12

3.1CAPE METROPOLITAN AREA – PENINSULA:12

URBAN STRUCTURE PLAN, 1988

3.2CONTEXTUAL FRAMEWORK FOR CAPE TOWN12

CENTRAL WATERFRONT, 1989

3.3CAPE TOWN METROPOLITAN SPATIAL12

DEVELOPMENT FRAMEWORK (MSDF) 2001

3.4CAPE TOWN ADMINISTRATION: MUNICIPAL SPATIAL13

DEVELOPMENT FRAMEWORK (MUNI-SDF) 1999

3.5DRAFT CITY BOWL DEVELOPMENT AREA:13

EXECUTIVE SUMMARY, 1997

3.6DRAFT CAPE TOWN CENTRAL CITY14

DEVELOPMENT FRAMEWORK, 2002

3.7URBAN DESIGN FRAMEWORK FOR THE CAPE14

TOWN FORESHORE, 2002

3.8MOVING AHEAD: CAPE METROPOLITAN TRANSPORT15

PLAN – 1998 & 1999

3.9INTEGRATED INNER CITY PUBLIC TRANSPORT15

SYSTEM, 1998

3.10SUMMARY16

4.EXISTING ENVIRONMENT25

4.1zoning25

Page

4.2land ownership25

4.3current land use26

4.4EXISTING AND PROPOSED TRANSPORT27

INFRASTRUCTURE

5.MAJOR DEVELOPMENT PROJECTS34

5.1VICTORIA & ALFRED WATERFRONT 34

5.2ROGGEBAAI CANAL AND TOURISM PRECINCT35

5.3ICS/POWER STATION SITE35

5.4NORTHERN FORESHORE DEVELOPMENT35

SUBDIVISIONAL AREA

5.5CAPE TOWN INTERNATIONAL CONVENTION36

CENTRE (CTICC)

5.6“NASPERS SITE”37

5.7CULEMBORG PRECINCT37

5.8OTHER DEVELOPMENTS38

5.9SUMMARY39

6.CENTRAL CITY ECONOMY48

6.1INTEGRATED DEVELOPMENT PLAN48

6.2JOINT MARKETING INITIATIVE48

6.3THE TOURISM SECTOR49

7.ISSUES AND OBJECTIVES51

7.1PORT ISSUES51

7.2SECTORAL/INSTITUTIONAL ISSUES51

7.3FOCUS AREAS ISSUES52

8.GUIDELINES FOR MANAGEMENT OF ISSUES66

8.1ORGANISATIONAL FRAMEWORK66

8.2MANAGEMENT OF ISSUES66

8.3RECORDAL OF ISSUES67

9.CONCLUSION68

REFERENCES69

INTERVIEWS AND CORRESPONDENCE70

LIST OF FIGURES

1.Study Area

2.Port of Cape Town Development Framework – Short Term

3.Port of Cape Town Development Framework – Medium Term

4.Port of Cape Town Development Framework – Long Term

5.Metropolitan Context

6.Local Context

7.Cape Metropolitan Area – Peninsula: Urban Structure Plan

8.Cape Town Metropolitan Spatial Development Framework (MSDF)

9.Cape Town Administration: Municipal Spatial Development Framework (Muni-SDF)

10.Draft City Bowl Development Area – Strategic Framework

11.Draft Cape Town Central City Development Framework - District 11

12.Urban Design Framework for the Cape Town Foreshore

13.Cape Town Integrated Inner City Public Transport System - Inner City Bus Route

14.Current Zoning

15.Land Ownership

16.Current Land Use

17.Proposed Transport Infrastructure

18.V&A Waterfront : Development Parameters

19.V&A Waterfront : Revised Development Framework (1997)

20.Roggebaai Canal : Development Parameters

21.ICS / Power Station Precinct : Development Parameters

22.Northern Foreshore Subdivisional Area : Development Parameters

23.Cape Town International Convention Centre : Development Parameters

24.Culemborg Precinct – Development Parameters

25.Culemborg Precinct – Urban Design Concept

26.Cape Town CBD: Tourism Products

27.Index to Focus Areas

28.(a)Focus Area 1: South Arm - Existing Activities

28.(b)Focus Area 1: South Arm - Development Informants

29.(a)Focus Area 2: Roggebaai Canal - Existing Activities

29.(b)Focus Area 2: Roggebaai Canal - Development Informants

30.(a)Focus Area 3: CTICC / Central Foreshore - Existing Activities

30.(b)Focus Area 3: CTICC / Central Foreshore - Development Informants

31.(a)Focus Area 4: Oswald Pirow / Culemborg West - Existing Activities

31.(b)Focus Area 4: Oswald Pirow / Culemborg West - Development Informants

32.(a)Focus Area 5: Yacht Basin / Culemborg East - Existing Activities

32.(b)Focus Area 5: Yacht Basin / Culemborg East - Development Informants

33.(a)Focus Area 6: Paarden Eiland - Existing Activities

33.(b)Focus Area 6: Paarden Eiland - Development Informants

SEA : Port of Cape Town1

Specialist Study: Port-City Land Use Planning

GLOSSARY AND DEFINITIONS USED

CTPCape Town Partnership

CityCape Town CBD or Central Foreshore geographic area

CTICCCape Town International Convention Centre

CBDCentral Business District

City/CCCCity of Cape Town, Administrative authority

IDPIntegrated Development Plan

LUPOLand Use Planning Ordinance

NPANational Ports Authority of South Africa

PDFPort Development Framework

P/portPort of Cape Town, Administrative entity or geographic area

SDPSite Development Plan

SAPOSouth African Port Operations

SARCCSouth African Railway Commuter Corporation

SEAStrategic Environmental Assessment

TIATraffic Impact Assessment

V&AWVictoria & Alfred Waterfront

SEA : Port of Cape Town1

Specialist Study: Port-City Land Use Planning

1.INTRODUCTION

1.1BACKGROUND

At the beginning of 2002 CSIR Environmentek commenced with a Strategic Environmental Assessment of the Port of Cape Town. Following interaction with stakeholder groups during the year, a final Scoping Report was produced in October 2002. In the Scoping Report, many factors affecting sustainable port development were analysed and issues requiring further study were identified. One of the issues or specialist studies was a "Port-City Land Use Planning Study". This report is therefore a result of the SEA process to date.

The aim of the SEA is to identify relevant information that will "facilitate a more integrated and sustainable approach to future local port planning". As part of the SEA, this report is aimed at identifying legislative, planning and development issues which impact on the development of the port. Together with the Port Development Framework, the SEA Scoping Report and other specialist studies, it is envisaged that the report will be a source of information on planning and development in the city and the port for all decision-makers involved in the long term development of the port.

1.2PURPOSE OF THIS REPORT

The primary purpose of this report is therefore to provide information on key issues, City planning initiatives and policies, and development projects for an area surrounding the port. See Figure 1. As the symbiotic relationship between this area and the port requires that both port and city function optimally and efficiently, it is important for both NPA and CCC to identify opportunities for, and constraints to mutually beneficial development. Thus the purpose of this report is also to identify which issues should be reviewed by NPA and CCC and to what end.

The forum (and its function and operation) for such review is the topic of the Specialist Study: Institutional Framework.

Ultimately, the purpose of this report is to provide NPA with an audit of the status of planning policies and development projects on the periphery of the port. In so doing, the study will identify issues arising from physical development in the city, the potential impact of these issues on development of the port and what procedures, measures or interventions are necessary in order to address these issues.

1.3APPROACH

Although this report is mostly concerned with operational and management issues relating to the built environment, it follows the analytical path of national State of Environment reporting, i.e. State- Pressures- Response. In planning terms, there is a similar study sequence and thus the approach to studying port/city planning and development issues has been as follows:

• analysis of existing conditions,
• synthesis of information,
• identification of issues (opportunities and constraints),
• proposals or interventions (recommendations on managing issues or development guidelines), and
• procedures for implementation of proposals/recommendations.

This study approach assumes that the port's current and future development requirements are as defined in the SEA and PDF. These requirements are described under the following categories:

GOAL OF PORT DEVELOPMENT, as summed up in NPA's mission statement:

"to facilitate economic growth in South Africa by providing and sustaining port systems that are amongst the best in the world."

ROLE OF THE PORT OF CAPE TOWN:

"... to promote both national and international trade through cost-effective cargo management, maritime and other related services and as a consequence, make a valuable contribution to the economic growth of the Cape region and the country.." (SEA, pg 1).

DEVELOPMENT OBJECTIVES:

To provide facilities for the core businesses of the port mindful of "...historical, spatial and transportation constraints, changing shipping and handling methods, and new markets and cargoes" (PDF). The plan indicating the provision of such facilities must be " flexible and incrementally implementable" (PDF).

For the port then, goals, development objectives and implementation strategies have been established, and are recorded in the PDF, January 2002. Figures 2, 3 and 4 are extracts from the PDF.