City of Johannesburg Department: Development Planning And Urban Management Development Planning and Facilitation

Marlboro Urban Development Framework: Discussion Document July 2007

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Prepared for Department of Development Planning and Urban Management: Development Planning and Facilitation Prepared by

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PART 1 - INTRODUCTION AND BACKGROUND................................................................. 1 1. Introduction.................................................................................................................... 1 2. Objectives and Structure ................................................................................................ 1 3. Marlboro Context ............................................................................................................ 2 4. Policy Context ................................................................................................................ 3 5. Methodology.................................................................................................................. 4 6. Conclusion...................................................................................................................... 5 PART 2 - OBJECTIVES AND OUTCOMES........................................................................... 5 1. Objectives....................................................................................................................... 5

1.1 National and Provincial Objectives ......................................................................... 5 1.2 City Objectives ....................................................................................................... 6 1.3 Gautrain Objectives................................................................................................ 8

2. Development Legislation and Policy Directives............................................................... 9 2.1 Development Facilitation Act, Act of 67 of 1995 ..................................................... 9 2.2 Gauteng Planning and Development Act (Act 3 of 2003)...................................... 10 2.3 Bulk Contributions ................................................................................................ 11

3. Transportation Framework Parameters ........................................................................ 11 3.1 Legislative Framework ......................................................................................... 11

3.1.1 White paper on National Transport Policy, 20 August 1996.............................. 11 3.1.2 National Land Transport Transition Act, Act of 22 of 2000 (NLTTA) ................. 12 3.1.3 Other Relevant Legislation ............................................................................... 13

3.2 Policy Parameters ............................................................................................... 13 3.2.1 Latest Revision of Policy of Traffic Impact Assessments in Gauteng................ 13 3.2.2 The Johannesburg Integrated Transport PLAN (ITP) ....................................... 14

3.3 Conclusion ........................................................................................................... 15 PART 3 - STRATEGIC ASSESSMENT ............................................................................... 17 1. Regional Role and Context ........................................................................................... 17 2. Spatial Structure and Land Use ................................................................................... 18

2.2 Land Use.............................................................................................................. 20 3. Transportation ............................................................................................................. 22

3.1 The GRRL Marlboro Station Impact Area............................................................. 22 3.2 The GRRL Marlboro Station Impact Area Road Network...................................... 22 3.3 Traffic Information ................................................................................................ 24

3.3.1 Traffic Volumes ................................................................................................ 24 3.3.2 Traffic Operations............................................................................................. 28 3.3.3 Traffic Volume Growth Rates............................................................................ 31 3.3.4 The stabilisation of the City of Johannesburg Traffic Signal System ................. 32 3.3.5 Parking............................................................................................................. 32

3.4 Public Transport Information ................................................................................ 32 3.4.1 The SPTN ........................................................................................................ 32 3.4.2 The Establishment of an Operating License Strategy (OLS)............................. 34 3.4.3 The Implementation of a Bus Rationalisation Plan (RATPLAN) ........................ 34 3.4.4 The Development and Integration of Commuter Rail into the Transportation System 34 3.4.5 The Introduction of an Integrated Fares and Ticketing System ......................... 34 3.4.6 The Development and Provision of Maps, Timetables and Passenger Information ................................................................................................................... 34 3.4.7 The Johannesburg Bus Rapid Transit (BRT) System ....................................... 35 3.4.8 The GRRL Feeder Distribution system ............................................................. 35

4. Infrastructure ................................................................................................................ 36 4.1 Water and Sanitation............................................................................................ 36 4.2 Roads and Transportation.................................................................................... 37

PART 4 - KEY FINDINGS AND CHALLENGES................................................................... 46

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4.1 General Assessment ........................................................................................... 46 4.2 Goals and Objectives ........................................................................................... 46

PART 5 - DEVELOPMENT FRAMEWORK.......................................................................... 69 Introduction.......................................................................................................................... 69 1. Urban Design Framework............................................................................................. 70

1.1 Principles and Standards ..................................................................................... 70 1.2 A development concept and approach ................................................................. 71

2. Transportation Framework............................................................................................ 79 2.1 General ................................................................................................................ 79 2.2 Framework Elements ........................................................................................... 80

2.2.1 Reviewing Transport Impact of Development ................................................... 80 2.2.2 Reduction in Private Vehicle Trips .................................................................... 84 2.2.3 Quantification of the Impact of Land Use on Transport Demand....................... 86 2.2.4 Reduction in parking......................................................................................... 87

2.3 Effect of Distance from Mode on Person Trip Assignment.................................... 88 2.3.2 Components of the PTAL Method..................................................................... 90 2.3.3 Advantages and Disadvantages ....................................................................... 94 2.3.4 Other Similar Models Applied Internationally .................................................... 94

2.4 Precinct Roads Masterplan .................................................................................. 95 2.5 Bulk contributions................................................................................................. 96

2.5.1 Purpose and Basic Content .............................................................................. 96 2.5.2 Relevance to Transportation UDF .................................................................... 97

PART 6 – IMPLEMENTATION ............................................................................................ 98 6.1 Management Guidelines: Transportation............................................................ 105

Class 2 Road.............................................................................................................. 106 Class 3 Road.............................................................................................................. 114 Class 4 and 5 Roads .................................................................................................. 123

6.2 Management Mechanism: Transportation Plan .................................................. 132 6.2.1 Stages of Developing a Travel Plan and its Content ....................................... 133

6.3 Performance Review and Indicators.................................................................. 138

INTRODUCTION AND BACKGROUND

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PART 1 - INTRODUCTION AND BACKGROUND

1. Introduction

The Marlboro Gautrain Rapid Rail Link (GRRL) Station is the only Johannesburg station that is not

located in an already developed and established node. The station is therefore seen as a major

catalyst for development in the area, development that will also benefit the Alexandra community.

The development dynamics in the area is not only related to the station area and immediate

surroundings, but also to the wider sub regional area. The current development frameworks that are

under discussion comprise approximately …..ha in extent and if the proposals are turned into reality, a

whole new “city” will develop around the Marlboro Station area. The change will influence movement

patterns, result in a major increase in population, new activities and land uses will be created and

established and the environment will come under pressure, thus all these issues and dynamics that

will have to be understood and carefully planned for.

For this reason, the City’s Development Planning and Facilitation directorate called for proposals in

February 2007 to develop an Urban Development Framework for the Marlboro Station precinct. Due to

the nature of the area, the study area boundary is indicated as basically the same as the Station

Functional Area Guidelines March 2003 proposal.

2. Objectives and Structure

The objective of the Marlboro Urban Development Framework (RUDF) is to provide a set of

development principles and specific urban design and transportation guidelines for future development

in Marlboro. The anticipated outcomes of the implementation of the framework are:

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INTRODUCTION AND BACKGROUND

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• Meeting public sector policy outcomes

• Ensuring integrated and sustainable development

• Protecting and enhancing land value

• Providing certainty

• Improvements in pedestrian and vehicle movements

• Promoting the development of a compact, pedestrian friendly environment

In order to deliver on the above, the document is structure in the following way:

• Identifying important policy directives and development needs – Part 2

• Assessing the status quo and development conditions in terms of policy directives and

development needs – Part 3

• Identifying key issues that need to be address – Part 4

• Providing a framework with development principles – Part 5

• Implementation guidelines – Part 6

3. Marlboro Context

The Marlboro Station area is located along Marlboro Drive and between the intersection of Marlboro

Drive and Northway and Marlboro Drive and the N3 highway. The immediate surroundings comprise in

general of large tracks of vacant land to the north, established residential areas to the north west and

west, the communities of Alexandra to the south and the Lindbro Commercial estate and small

holdings to the north east and south east respectively.

The area has been the topic of two previous spatial planning studies related to the GRRL project i.e.

Station Functional Area Guidelines March 2003, and the Marlboro Station Opportunity Map, August

2005. Key vision components were identified in the Station Functional Area Guidelines and included:

• That the station area could be a major catalyst to unlock commercial development and

opportunities within the Alexandra node.

• That a significant commercial node could be established at the intersection of the N3 highway and

Marlboro drive.

• Residential development is an obvious need in the area but residential typologies should

encourage high density and new urban forms.

• Important linkages ought to be created, especially north south.

• The vacant land is an important resource that should be optimally used.

INTRODUCTION AND BACKGROUND

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Probably the biggest challenge is to envisage the future of the area, and what it could develop into and

how it could look. It is interesting that if one look past the current appearance of the area that it is

possible to fit another Rosebank on the 800m footprint radius or even large parts of Sandton.

There is clearly potential for development and there is a clear policy framework that provides guidance

for how development should occur in the City and they are guidelines on accessibility, densities, nodal

development and sustainable development to mention a few.

4. Policy Context

National, provincial and local policy is starting to highlight more compact, mix use developments at

appropriate locations. As a principle, compact, mix use development was introduced in especially the

Development Facilitation Act, 1995.

The purpose of this section is not to identify all possible types of legislation and policies that will impact

on the area, but rather to focus on current policy or strategy that relates more directly to urban

development and investment. It will therefore specifically discuss the implications of the development

of Marlboro in terms of the following:

• Development Facilitation Act (DFA)

• Gauteng Planning and Development Act

• Accelerated and Shared Growth – South Africa (ASGISA)

• Relevant Transportation legislation

• The National Spatial Development Perspective (NSDP)

• The Gauteng Growth and Development Strategy (GGDS)

• Gauteng Spatial Development Perspective (GSDP)

• The City of Johannesburg’s Growth and Development Strategy (GDS) and Integrated

Development Plan (IDP)

• The City of Johannesburg’s Spatial Development Framework (SDF) and Regional Spatial

Development Frameworks (RSDFs)

• Gautrain objectives

From the above the emphasis will be on the application of the City’s nodal, density and transportation

policy.

INTRODUCTION AND BACKGROUND

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5. Methodology

The development of Marlboro does not occur in isolation. It is clear from the previous section that the

area has an important role to play in ensuring that national, provincial and city policy is implemented

so hat the planning and development response match the policy outcomes.

The study approach followed is therefore based on an assessment of the local and regional contexts

in terms of the policy.

Legislative and Policy directives and imperatives

Strategic AssessmentLocal Context Regional Context

Match imperatives

with assessment

Frameworks

Implementation

Institutional andManagement Interventions

DevelopmentInterventions

Monitoring

INTRODUCTION AND BACKGROUND

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6. Conclusion

National, provincial and local policy is starting to highlight more compact, mix use developments at

appropriate locations. As a principle, compact, mixed use development was introduced in especially

the Development Facilitation Act, 1995 and will be the foundation for the Marlboro Urban Development

Framework.

There is an opportunity to use Marlboro as a showcase for implementation in terms of the City’s

policies as Marlboro more than ever complies with the policy requirements and the challenges is now

how to implement and embed the policy intentions into the lives of communities.