CITY OF CAPE TOWN

Transit Oriented Development

Strategic Framework

Transit Oriented Development (TOD) represents the intricate relationship between “Transit” (the operational/
access imperative of an urban environment) and “Development” (the spatial manifestation of those that are
within the urban economy). TOD is about changing, developing and stimulating the built form of the city in
such a way that the movement patterns of people and goods are optimised to create urban efficiencies and
enable social equality and economic development.
Abbreviations and Acronyms
BRT Bus Rapid Transit
CBD Central Business District
CDS City Development Strategy
CIDs City Improvement Districts
CITP Comprehensive Integrated Transport Plan (previously referred to as the ITP)
COD City Oriented Development
CTSDF Cape Town Spatial Development Framework
CTZS Cape Town Zoning Scheme
DoRA Division of Revenue Act
DSP District Spatial Plan
EESP Energy, Environmental and Spatial Planning
IHSF Integrated Human Settlement Framework
IDP Integrated Development Plan
IPTN Integrated Public Transport Network
IRT Integrated Rapid Transit
ITP Integrated Transport Plan
ITS Intelligent Transport System
IZs Integration Zones
LVC Land Value Capture
LUPA Land Use Planning Act
MATR Municipal Asset Transfer Regulations
MFMA Municipal Finance Management (Act 56 of 2003)
MLTF Municipal Land Transport Fund
MPBL Municipal Planning By-Law
MRE Municipal Regulatory Entity
NDoT National Department of Transport
NLTA National Land Transport (Act 5 of 2009)
PRE Provincial Regulatory Entity
PTISG Public Transport Infrastructure and Systems Grant
PTIG Public Transport Infrastructure Grant
PTNG Public Transport Network Grant
PTNOG Public Transport Network Operations Grant
PTOG Public Transport Operating Grant
SARS South African Revenue Service
SCM Supply Chain Management
SDA Service Delivery Agreement
SDS Social Development Strategy
SPLUMA Spatial Planning and Land Use Management Act
SPUD Spatial Planning and Urban Design
TAPs Transit Accessible Precincts
TAZs Transport Analysis Zones
TDM Travel Demand Management
TDA Transport and Urban Development Authority
TIC Transport Information Centre
TMC Traffic Management Centre
TOD Transit Oriented Development
TDM Travel Demand Management
UDZ Urban Development Zone
Approved by the Council of the City of Cape Town on 31 March 2016 @ 10:00

2
Glossary
Within the context of this TOD Strategy, Trip: Is travel from a point of origin to a destination point
the following definitions apply: per selected mode of travel.

Transition zones: These are classified as areas between the

Bi-directional flow: is a balanced two-way commuting
TAPs and the City’s urban edge.
flow or pattern which ensures efficient use of available
transit capacity. Journey: A single journey may be made up of multiple trips
for example in a home to work public transport journey a
Densification: Increased use of space, both horizontally
traveller may walk to a taxi or feeder bus stop (one walking
and vertically, within existing areas/properties and new
trip), catch a taxi or feeder bus to a BRT station (one taxi or
developments, accompanied by an increased number of
feeder bus trip), travel by BRT to a taxi or feeder bus stop
units and/or population threshold.
(one BRT trip), catch a taxi or feeder bus to an approximate
Heuristic optimisation: The heuristic optimisation final destination (an additional taxi or feeder bus trip) and
method uses a genetic algorithm to produce a series walk the rest of the way to the final destination (additional
of trip productions and attractions, referred to as a walking trip). This typical journey would therefore consist of
generation. The generation contains a population made five trips.
up of individuals. An individual is made up of a set of
Trip attraction: Refers to the destination of a trip or series
trip productions and attractions. In this context a land
of trips. Destinations are influenced by the purpose/s for
use scenario is seen as an individual, thus the algorithm
which land is used and the time of day. Generally speaking
produces ‘genetically enhanced’ or improved variants of it.
non-residential land use (e.g. business, industrial, office,
Intensification: achieving a greater spectrum of mixed education) attract trips in the morning when everyone
uses (commercial, industrial and residential) through the travels to work. The flow is reversed in the afternoon when
increased use of space, both horizontally and vertically, everyone travels back home.
within existing areas or properties and new developments,
Trip production: Refers to the origin of a trip or series of
accompanied by an increased number of units and/or
trips. Origins are influenced by the purpose/s for which
population thresholds, in accessible, high opportunity
land is used and the time of day (see also: trip attraction).
locations.
Unmet demand: The demand from a transport-optimisation
Land Value Capture (LVC): policy and regulatory
perspective for trip-producing and/or trip-attracting
mechanisms that allow a public entity to “capture” the
land use/s at varying levels of intensity which cannot be
increased value (direct or indirect) of land resulting from
accommodated by the available supply of same given the
private and/or public sector improvements.
current land use requirements or current land use trend
Mixed land use: Area of existing or proposed horizontal (e.g. current residential/non-residential mix).
and/or vertical integration of suitable and compatible
residential and non-residential land uses within the same
area or on the same parcel of land; implies contextually
appropriate intensity of land uses that should facilitate
efficient public transport and a vibrant local urban
environment.

Overlay zones: Is a regulatory tool that refers to a zoning,

in addition to the base zoning, stipulating the purposes for
which land may be used and the development rule which
may be more or less restrictive than the base zoning.

Tidal flow: Is a periodic variation in the pattern of transit

commuting associated with centralised employment
location and peak travel demand. That is, high
concentration of public transport trips inbound to the
CBD during the morning peak and outbound in the
evening peak.

Transport Analysis Zones (TAZs): Unit of theoretical spatial

subdivision of the city for the purpose of transport modelling
and analysis.

Transit Accessible Precincts (TAPs): These are spatially

defined zones used to measure the performance of
the model outputs of the TOD Comprehensive Model.
Precincts are confined to a 500m radius from a higher order
public transport station. They were identified based on
their level of access to the transit network.

4
Contents
Abbreviations and Acronyms 2 List of Figures
Glossary 4
Figure 1: TOD Strategic Framework Methodology and Structure 10
1. Introduction 9 Figure 2: Cape Town’s Gini Coefficient 12
1.1. Methodology 9 Figure 3: Transport Energy Consumption and Vehicle Emissions in Cape Town 13
Figure 4: Cape Town Urban Footprint 13
2. Problem Statement 11 Figure 5: Strategic Intent of the TOD Strategic Framework 18
2.1. High operational cost of public transport 12 Figure 6: Virtuous Cycle of TOD 21
2.2. Rising social inequality 12 Figure 7: TOD Principles 21
2.3. Environmental degradation 13 Figure 8: Key Role Players in the Property Development Process 22
2.4. Reason for challenges facing Cape Town 14 Figure 9: Motives for Engaging In Development 26
3. Strategic Intent 17 Figure 10: TOD and the Different Scales of Planning 28
Figure 11: Graphic Harvest of Outcome of TOD Summit October 2014 29
4. Defining TOD 19
Figure 12: National Development Plan – Approach to Change 30
4.1. International TOD Perspective and Best Practice 19
Figure 13: Draft Integrated Urban Development Framework 30
4.2. TOD in the context of Cape Town 20
Figure 14: Schematic Depiction of the TODC Methodology 34
4.3. Drivers of development 21
Figure 15: Transit Accessible Precincts (500m radius around rail and BRT stations) 35
4.4. Desired outcomes 29
Figure 16: Current Trips 36
4.5. Vision 29
Figure 17: Spatial Allocation of New Trips Following Transport Optimisation Process 37
4.6. Objectives 29
Figure 18: Potential Optimisation Improvements 38
5. Regulatory and Policy Context 30 Figure 19: TOD Land Use Scenario Depicting Growth Only 39
5.1. National Development Plan Vision 2030 30 Figure 20: TOD Land Use Scenario Depicting Current and Future Development 39
5.2. Draft Integrated Urban Development Framework (IUDF), 2014 30 Figure 21: Non-Residential Demand and Supply 40
Figure 22: Residential Demand and Supply 41
6. Desired End State: TOD Comprehensive 33
Figure 23: Unmet Demand 42
6.1. Premise and Purpose 33
Figure 24: Proposed IPTN Overall Network Plan Rollout Next Three Years 44
6.2. Parameters for the TOD Comprehensive Land Use Scenario 33
Figure 25: TOD Strategic Programmes 45
6.3. Methodology 34
Figure 26: Relationship between Public Transport Operational and Financial Efficiencies and TOD 48
6.4. Transit Accessible Precincts (TAPs) 35
Figure 27: Adaptation of Station from Open to Closed 49
6.5. Preliminary Findings 36
Figure 28: Stages of the Property Cycle 52
6.6. Preliminary review of the Optimisation Processes 42
Figure 29: Spatial Targeting of Implementation Tools 60
6.7. Way forward for TOD Comprehensive 43
Figure 30: Zoning 61
6.8. Prioritisation of TOD Intervention 43
Figure 31: Illegal Uses and Rezoning Applications 62
7. TOD Implementation Programmes 45 Figure 32: Access Spacing 63
7.1. Institutional Alignment 45 Figure 33: Strandfontein Road Current Built Form 65
7.2. Integrated Business Model 46
• Potential and Scale 47 List of Tables
• Location and form 47
Table 1: Demand-side Factors for Choice Residential Users 23
7.3. Civil Society Participation 49
Table 2: Demand-side Factors of Businesses 23
7.4. Private Sector Collaboration 50
Table 3: Transport Objectives and Associated Land Use Interventions 33
8. Implementation Strategy 53 Table 4: IPTN Corridor Prioritisation (as at July 2015 IPTN Draft Implementation Plan) 43
8.1. TOD Toolkit 53 Table 5: TOD Toolkit – Metropolitan Scale 53
Table 6: TOD Toolkit Corridor, Nodal and Precinct Level 57
9. Application of TOD Toolkit 60
Table 7: TOD Toolkit Project and Programme Scale 59
9.1. Public Sector 60
Table 8: Lansdowne Wetton Corridor Land Use Strategy Nodal Identification 64
9.2. Private Sector 60
Table 9: TOD Implementation Programme 67
10. Implementation Plan for TOD Programmes 67 Table 10: Transport Modelling Objectives and Indicators 69

11. Monitoring, Evaluation and Review 69

12. Strategy Review 70

13. Annexure A: TOD Comprehensive Land Use Scenario Technical Report 73

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5
 SECTION 1:
Introduction – Regulatory
and Policy Context

7
 1. Problem Statement and Strategic Intent

A broad overview of the key urban development

challenges experienced in Cape Town and why we

1. Introduction
have selected TOD as our solution.

2. Defining Transit Oriented Development

In the Context of Cape Town.

3. Desired End State: TOD Comprehensive

Transit Oriented Development (TOD) 1.1. Methodology Working towards the most sustainable urban
form for Cape Town.
represents the intricate relationship Figure 1 on page 9, provides a graphical representation of

between “Transit” (the operational/

the methodology for the development of the TOD Strategic
Framework as well as the structural logic of this document. 4. TOD Programmes for Strategic Intervention

access imperative of an urban The first stage of the document explores the integrated Fundamental programmes to ensure the successful

environment) and “Development”

implementation of TOD in Cape Town.
land use and transport inefficiencies that prevail in the
(the spatial manifestation of those City of Cape Town. This is critical to grasp the key
challenges facing the city and more importantly the reasons
that are within the urban economy). that drive these challenges. This is followed by an overview
TOD is about changing, developing of the concept of Transit Oriented Development and its
potential as a long term development strategy to address
and stimulating the built form of the the urban inefficiencies of Cape Town and a detailed Institutional Integrated Private Sector Civil Society

city in such a way that the movement

analysis of the role players and their motives for engaging Alignment Business Model Collaboration Participation

in development to establish a vision for TOD in Cape Town.

patterns of people and goods are In order to identify a suitable sequence of plans to
optimised to create urban efficiencies implement TOD, it becomes necessary to establish a
and enable social equality and desired end state or common goal to progress towards.
To this end the TOD Comprehensive Land Use Model was
economic development. used in Stage 3 to identify the most sustainable urban 5. Strategic Levers
form that would result in the complete realisation of the
principles, objectives and vision of TOD for Cape Town. Each focus area will propose a set of strategic levers and
tools to facilitate the implementation of TOD categorised
In the context of this Strategic Framework, TOD is seen as in terms of their appropriate scale of planning.
Based on the key findings from the above, Stage 4
a planning, design and implementation approach that can
identifies the necessary TOD programmes and associated
be employed to address inefficiencies in the urban form
strategic levers to shift development progressively toward
of the city. TOD does not solely belong to one discipline
the City’s desired end state. This gives effect to a TOD
but rather is seen as a key transversal development and
implementation toolkit which contains tools categorised
management premise to addressing urbanisation, urban
at the metropolitan, corridor, nodal, precinct and project
growth and service delivery with transport being the
scales of planning to facilitate the implementation of the
catalyst to achieving operational efficiencies in the urban Metro Corridor Nodal Precinct Project
relevant TOD programme.
environment for both the City and its citizens. It is an
approach that enables a change in the principles of the Stage 6 of the methodology, adopts two high-level spatial
space economy, forcing long term efficiencies through targeting mechanisms to depict how one would apply
integrated implementation and service delivery. the most appropriate tool(s), contained in the toolkit, to
the relevant sector (public and private) of development.
Taking the above into account the purpose of the City of
This is followed by a plan of action (Stage 7) to implement
Cape Town TOD Strategic Framework is to identify the
TOD and finally an approach to monitoring and evaluation TOD Toolkit
tools and mechanisms to be employed by various role
(Stage 8).
players who have a collective impact on development
to ensure that they move progressively toward a more 6. Higher Level Spatial Targeting
sustainable, compact and equitable urban form.

7. Implementation Plan for TOD Programmes

8. Monitoring and Evaluation

Figure 1: TOD Strategic Framework Methodology and Structure

10
2. Problem Statement

Cape Town’s urban form and The contributing factors to this dilemma include: This is evident by the following developmental characteristics:
structure is characterised by • A radial transport network.
2.1. High Operational Cost of Public Transport 2.2. Rising Social Inequality
dispersed development patterns • Historical spatial planning and socio-economic
engineering which has resulted in:
and inequitable access for many
Providing high quality and affordable public transport • Figure 2 below depicts Cape Town’s Gini coefficient
• The majority of the urban poor residing in remote has become a significant focus of the City of Cape which measures the city’s income equality. South Africa’s
of its users. In part, this can be areas. Town over the last five years to facilitate equitable and income disparity is among the highest in the world

attributed to segregated apartheid

• Dispersed communities with no economic base and affordable access to the public (especially the poor). This and whilst Cape Town is seen as the least unequal
with little development between them. is evident by new transit developments such MyCiTi and city in South Africa, its coefficient remains significantly
planning, but more recently has • The separation of land uses and long distances PRASA’s Rail Modernisation Plan. However, the ongoing high and has, in fact, risen in recent years. This
between places of work and residence. operational costs necessary to sustain this standard of developmental indicator suggests that the City requires
become a trend exacerbated by public transport in the current dispersed urban form of stronger initiatives to redress past injustices and
socio-economic reality. Population The City of Cape Town has attempted to address many
of these factors through sound development policy and
Cape Town has become financially unsustainable, which promote inclusivity. Furthermore public-led investment
is particularly evident in the City’s rollout of MyCiTi. decisions that support social polarisation, such as
and residential densities in many key projects targeted at achieving a sustainable form Current land use patterns result in longer distance trips, housing located in dormitory locations (where access to
of the formally developed areas of of development and to address past injustices through
improved urban, environmental and socio-economic
tidal flows and limited seat renewals, factors which make
it very difficult to generate sufficient revenue returns to
economic and social opportunities is constrained), need
to be reconsidered. According to Transport for Cape
the city remain extremely low by efficiencies. Whilst significant progress has been made stay within a reasonable level of subsidisation. The 2015 Town’s Transport Development Index, 95% of public
international standards and access is
since 1994, the pace of improvement has been slow. MyCiTi Business Plan for Phase 1 and the N2 Express BRT transport users are in the low to low-medium income
Furthermore in some instances inappropriate public-led service have recently reported a R52 million unfunded groups. The average direct transport cost for the low
further constrained by mountain and investment projects and development regulations have deficit for the 2016/17 financial year, a result of public income public transport user group is 45% of their
sea. This has led to the development
worsened the city’s urban form with financial, social and transport responding to the demand for travel based on monthly household income. The greater the cost of
environmental consequences. the existing spatial patterns of the city. This strengthens transport the less disposable income poor communities
of poorer residential communities in the desire to manage development more sustainably and have, and the greater inequality exists. The following
locations far away from employment compactly. The City and National Grant Funding for public
transport are placing more pressure on municipalities to
factors are considered to contribute to the high levels
of inequality:
and opportunities, making the cost vigorously pursue effective land use intervention and forms
• unemployment or having a poor quality (i.e. low
of providing and using a high quality of Transit Oriented Development to ensure the long term
sustainability of public transport and a more efficient use
paid or precarious) job

public transport unsustainable (for

• low levels of education and skills
of grant funding.
• the size and type of family
the City and households). • gender
• disability or ill-health
• being a member of minority ethnic groups
Cape Town GINI Coefficient 2001 – 2012
• living in a remote or very disadvantaged community
0.90
0.80
0.67 0.67 Taking the above into account, going forward, the City of
0.70 0.60 0.59 0.57 Cape Town must learn to use its resources more effectively

Gini Coefficient
0.60
0.50 to address inequality.
0.40
0.30
0.20
0.10
0.00
2001 2006 2007 2008 2009 2010 2011 2012
Year

Figure 2: Cape Town’s Gini Coefficient

(Western Cape Provincial Treasury, 2011; Wesgro, 2012; Bosch et. al., 2010)

12
11
2.3. Environmental Degradation 2.4. Reason for Challenges Facing Cape Town Key Challenges
a) Lack of Institutional Alignment
2.3.1. Energy Consumption and Greenhouse Gas Emissions 2.3.2. Sprawling Urban Footprint To a large extent the City’s inability to restructure its
urban form sustainably can be attributed to following The City of Cape Town is structured in hierarchical line
Transport continues to dominate energy consumption in As new developments are located on the outskirts of the directorates which enable specialisation in specific areas
key inefficiencies:
Cape Town. This is made up of passenger, commercial, city, urban sprawl contributes to the loss of valuable land and provides a clear chain of accountability. However, this
industrial (petrol and diesel) and aviation and marine for Cape Town’s future growth potential, and also drives 2.4.1. Fragmented Governance type of organisation has its shortcomings,
transport. An astounding 91% of all liquid fuel relating to up the cost of services (such as electricity, water and waste as each directorate is vertically isolated in its own ‘silo’ with
passenger transport is consumed by private cars, with an removal) which must be supplied to increasingly outlying There appears to be a disconnect between the policy
minimal horizontal links between directorates
associated annual cost of R10–12 billion (ZAR in constant and peripheral areas. Urban sprawl has created long travel directives which pertain to sustainable development
and departments within directorates.
2005 terms). Public transport such as Metrorail, buses and distances with fragmented and dispersed urban activity and some of the decisions made by various directorates
minibuses, on the other hand (which transport nearly half patterns, which make it difficult to develop a viable public of local, provincial and national government. The number This may result in:
of all city passengers daily) consumes only 9% of all liquid transport system. This has a negative impact on the of the City’s long term policy statements of intent without
• decisions made in isolation from other departments
fuel relating to passenger transport (Cape Town State of mobility of poorer people, who are dependent on public implementation on the ground indicates that conventional
• contradictory approaches to single issues
Energy Report, 2015). The massive sums of carbon transport (travel and fuel costs), and is unsustainable in solutions of funding mechanisms and policy coordination
• duplication of work
emissions from private sector transport result in poor levels an oil-constrained world (City of Cape Town Densification are insufficient and not well-matched to existing barriers.
• missed opportunities in improving service delivery
of air quality and an acceleration of climate change which Policy, 2012). As a government institution the City is under immense
• difficulties in implementing coordinated strategy
lowers the City’s resilience. Based on the indicators above it pressure to act swiftly on development decisions such
• complexities of rules and regulations, due to sectoral
stands to reason that embracing TOD can significantly as housing in order to address the short term needs of
differences in goals and priorities
minimise Cape Town’s footprint by inducing a greater shift the poor, which tends to conflict with the principles of
• lack of clarity around who should take the lead/
to public transport. sustainable development and TOD.
responsibilities, and possibly a lack of vision and belief
(e.g. does TOD strategy leave the redevelopment of
station precincts up to the market, or led by authorities?
If roles are not clearly defined, nobody will take
Cape Town Energy Consumption By Sector 2001 – 2012
(including aviation, international marine, electricity losses) responsibility)
160 • changing planning context under less than ideal
Millions

140
financial and political circumstances
120
b) Inappropriate and Contradictory Policy
100
2001 Legislation and policy (at local, provincial and national
80 2007 scale) sometimes hinder the City’s ability to effectively
GJ

2012
60 manage the growth of Cape Town’s urban form
40 sustainably (for example road classification standards/
20 requirements which impede incremental densification
0
and undermine the use of public transport services).
Residential Commercial and Transport TOTAL In addition there are some national legislative requirements
Industrial
that prevent the City from leveraging their assets in
Sources: CCT, DoE, Eskom, SAPIA, SEA
a way that will effectively influence the private sector.
For example the MFMA prevents the sub-contracting
Cape Town Emissions By Sector 2012
(including aviation, international marine, electricity losses) of immovable property which limits the City’s ability to
engage effectively with property developers (MFMA, No.
Total tCO2e:
21 282 238 56 of 2003). Furthermore spatial planning policy directives
Industrial
11%
have not been matched with changes in the zoning scheme
Figure 4: Cape Town’s Urban Footprint and other regulations. Thus following planning policy has
Transport
33% not made the process significantly easier for the developer
in comparison to developing in an area that is not aligned
Commercial with policy. Coordination between conventional divergent
26%
sectors of land use planning and transport, across multiple
levels of scale and sufficiently responsive market conditions
are required for TOD implementation.
Loses Government
5% 2%
Residential
Agriculture
22%
1%

Figure 3: Transport Energy Consumption and Vehicle Emissions in Cape Town

14
2.4.2. Lack of Integrated Financial Resources Key Challenges 2.4.4. Unsustainable User Culture
The city’s current urban form makes the cost of operating a) Perceived Financial Risk Key Challenges
high quality public transport, at a level attractive enough Developers and investors may find it difficult to conceive a) Negative Preconception of TOD
to influence travel demand behaviour, unsustainable. that TOD can be profitable particularly in areas that lack
Resistance to TOD comes from residents of existing
Government and other public transit operating companies market demand. There is a perception that TOD involves
neighbourhoods and communities that may be targeted
cannot afford to provide a level of service that is efficient and higher risks and costs than other types of development.
for transit improvements. Residents may have concerns that
accessible to residents who are located far from high order However recent engagements with lending institutions
TOD will detract from the character of the neighbourhood,
trunk services. A greater intensity of business, commercial suggest that they see value in compact growth and TOD
create localised traffic congestion or lower property values
and mixed use development in the right location is required for the following reasons:
due to the potential integration of income groups. The
to substantially improve bi-directional flows, seat renewal and • Promotes critical mass, and prevents relocation away resistance also comes from new residents, as expressed by
off-peak ridership, which can significantly improve the financial from existing growth areas. choices made to buy homes in the suburbs rather than in
feasibility of public transit. • Compact development improves the proportion of TOD areas.
disposable income available for property investment
It is widely viewed that TOD can lower infrastructure costs
and ability to repay loans over transport costs. To begin to identify what changes are necessary, or rather
in the long run but the initial TOD infrastructure needs
how the City can use its resources in a better way,
can be considerable and can require extensive public b) Lack of engagement and understanding of the to address the problems described in this chapter,
investment. There is no single source of funds for TOD; property market and private sector in developing policy it becomes clear that the City requires an integrated and
instead, a number of funding sources are needed such which translates to interventions and mechanisms to united approach to progressively move towards a more
alternative revenue sources (i.e. Land Value Capture), achieve TOD sustainable urban form.
private sector partnerships. (Sustainable Cities Institute,
2013). National funding in South Africa is currently c) Uncertainty
structured in a very ad hoc sense, which often causes Uncertainty describes an outcome that may or may not
a misalignment between development opportunities. occur and its probability of occurring is unknown. This
There needs to be a degree of flexibility built into current usually applies when there is a lack of knowledge and
funding structures to enable a cross-subsidisation of poor or imperfect information about all factors that will
funding of projects that align to the same TOD agenda. impact on the success of a potential development or
project. Municipal land use planning-approvals required
to legalise development proposals (through zoning and
2.4.3. Sub-optimal Relationship with the Private Sector building regulations) sometimes create uncertainty. Existing
timeframes for land use applications in Cape Town are 180
Property development, from the perspective of the days from day of receipt (City of Cape Town Municipal
developer, can be broadly described as a process which Planning By-Law: Chapter 7, part 3, number 102 (1)).
is based on supply and demand. Much like any other However there are instances whereby the complexity and
economic activity it seeks to meet the demands which scale of a development proposal may result in further
arise in the property market such as demand for space delay. In terms of the By-Law, the municipality is allowed to
to work in, to operate businesses from, to live in and extend the timeframe without the applicant’s (or in this case
spaces for leisure or recreational activities (Isaac, et al. the developer’s) agreement (City of Cape Town Municipal
2010). Historically private sector led developments have Planning By-Law: Chapter 7, part 3, number 102 (2)).
largely ignored the City’s proposed spatial restructuring Furthermore the process in itself is very bureaucratic and
planning policy directives. This is due, largely, to a lack of onerous especially if other approvals are necessary such as
understanding of the market and particularly the motives EIAs (Environmental Impact Assessments), HIAs (Heritage
that drive private sector led development. Impact Assessments) etc. The combination of these factors
makes it unclear to developers. As a result the process
either deters their interest because of the risk of time
delays is unknown or it can create higher costs during the
construction period of development which will impact on
the success or failure of the development in question.

The same problem of uncertainty is experienced by

businesses and entrepreneurs in that the cost of doing
business is affected by the barriers to starting, operating,
the bureaucracy involved in doing business (i.e. planning
approvals, business licences), access to land, the cost of
infrastructure and the cost of enforcing contracts. The risk
of doing business is likely to be lower if the rules of the
development game are transparent, predictable and well
enforced (OECD, 2004).

16
 Citywide Process to Institutionalise TOD

New IDP WHAT are the parameters

3. Strategic Intent
necessary to achieve
TOD in Cape Town?

BEPP

Cape Town Spatial Development

Framework Review
The Cape Town City Council in its The TOD Comprehensive land use scenario is a
representation of the TOD assumptions and principles Densification Policy
unanimous approval of the Integrated contained in the IPTN. The land use scenario was District Spatial Plans
Local Area Plans
Public Transport Network (IPTN) developed to assess the impacts of such a scenario on
the IPTN (i.e. all future development based on TOD
Plan in 2014, ref C59/06/14, took principles and assumptions). In the context of this Medium-Term Infrastructure
the decision to investigate a TOD Strategic Framework this land use scenario is useful in
that it depicts the optimised location of future growth
Investment Framework

approach to addressing urban in Cape Town (projected new development) for 2032 to Comprehensive Integrated
inefficiencies in Cape Town through support the City’s current IPTN and principles of TOD.
Within this framework it is intended to be used in its
Transport Plan (CITP)

the development of a Transit current form as a strategic informant to the ideal locations

Oriented Development
of new residential and non-residential developments
at a metropolitan scale. The TOD Comprehensive land
Comprehensive land use scenario and use scenario will continue to be refined according to 2032 Integrated Public WHERE is future

to use the IPTN Plan as a “guideline

the outlined methodology but the intent of the scenario Transport Network Plan (IPTN) development and travel
remains constant i.e. to illustrate the ideal locations of demand located to give
for the alignment of all City plans and future residential and non-residential growth towards The TOD principles were adopted by Council effect to TOD?
the year 2032. The land use scenario will evolve through through the approval of the 2032 IPTN
projects for community development ongoing refinement and optimisation using sensitivity
along the identified corridors”. testing and incorporation of physical, environmental,
TOD Strategy and TOD Comprehensive
economic and social realities. As such, the TOD
The intent of the TOD Strategic Comprehensive land use model can be used as a land use Land Use Scenario
Framework is to establish an scenario in future metropolitan development planning.

implementation plan for TOD to be The TOD Strategic Framework for the City of Cape Town

adopted by the City both politically

is seen as a policy mechanism to implement TOD in
Cape Town. It identifies the tools and mechanisms to be
and administratively. employed by various role players who have a collective IPTN Rollout Plan WHEN are corridors
impact on development to ensure that they move prioritised for
IHSF Rollout Plan
progressively toward the new TOD vision for the City. TOD implementation?
Ultimately the TOD Strategy must trigger a paradigm shift City Implementation Plans
through direct public and private sustainable investment Growth Management Plan
into the built form. Figure 5 on page 17 depicts the
institutional role of the TOD Strategic Framework within
the City’s administration and decision-making processes.

HOW is TOD implemented

and WHO are the
Implementation Tools for key role players?
Public and Private Sector Development:

Metropolitan
Corridor
Nodal
Precinct
Project and Programme

Figure 5: Strategic Intent of the TOD Strategic Framework

18
4. Defining TOD

4.1. International TOD Perspective and Best Practice The Standard recognises urban development projects that 4.1.2. C40 Climate Change Leadership Group TOD Network 4.2. TOD in the Context of Cape Town
are located within walking distance of a high-capacity transit
There are multiple theoretical descriptions of Transit stations and that present specific urban design and land C40 is a network of the world’s megacities taking action South Africa’s National Development Plan 2030 outlines
Oriented Development in planning literature; most use characteristics known to support, facilitate and prioritise to reduce greenhouse gas emissions. With a unique set “an approach to change” which shows the cycle of
often it is used to describe an approach to development the use of public transport, walking, cycling and other of assets, the C40 works with participating cities to development with social cohesion illustrating the
that responds to an integrated, hierarchical public non-motorised modes. As such, the Standard recognises address climate risks and impacts locally and globally. relationship between development and the quality of
transport network in relation to its intensity and density. development that is pro-actively oriented toward, rather Cities worldwide are aiming to create more liveable, life of the citizens, a concept at the heart of TOD. The
“Transit Oriented Development (TOD) is a term which than simply adjacent to, public transport. well-connected communities to reverse the trend of National Government’s Priority Outcomes speak to TOD
encapsulates the process of focussing the development “urban sprawl” development, which relies on private in three of the outcomes, namely:
of housing, employment, activity sites and public services The TOD Standard is based on ITDP’s Principles of Urban vehicle travel and poorly connected public transport • Outcome 6: An effective, competitive and responsive
around existing or new railway stations served by Development for Transport in Urban Life as follows: routes. The C40 Transit Oriented Development Network economic infrastructure network
frequent, high quality and efficient intra-urban rail services Develop neighbourhoods that promote walking aims to support global cities to become more compact • Outcome 8: Sustainable human settlements and an
(Cervero, 1998; Curtis et al., 2009). TOD is designed to [WALK] and connected, minimising vehicle kilometres travelled improved quality of household life
create a relatively high density, compact and mixed urban Prioritise non-motorised transport networks [CYCLE] and increasing access to public transportation and • Outcome 9: Responsive, accountable, effective and
form (Loo et al., 2010). In the United States, TOD is now Create dense networks of streets and paths economic activity. efficient local government system
a very important part of a broader smart growth approach [CONNECT]
to urban development including new urbanism, urban The C40 Transit Oriented Development Network creates a It becomes clear that TOD is a development strategy
Locate development near high-quality public transport
infill, urban growth boundaries, historic preservation, platform to share best practices from around the world to with a bias towards viable public transport and therefore
[TRANSIT]
affordable housing and inclusionary zoning (Goetz, accelerate and advance actions and policies for integrated speaks to urban form, development type, development
Plan for mixed use [PLAN]
2012).” (Knowles, R.D, Journal for Transport Geography land use and transportation. Transit oriented development intensity and development mix. TOD requires a city’s
Match density and transit capacity [DENSIFY]
22, 2012). approaches offer solutions to reduce carbon emissions, transport system to respond to urban development in
Create compact regions with short commutes
traffic congestion, and air-pollution, while also increasing a way that caters for the needs of the passengers while
[COMPACT]
The concept of TOD, which focuses on the symbiotic economic prosperity by connecting housing to economic remaining affordable to the City and its residents however
Increase mobility by regulating parking and road use
relationship between urban development and transport, is and employment opportunities. The City of Cape Town it may also require the development of new transport
[SHIFT]
used internationally to varying degrees from the Americas, participated in the first workshop of the global TOD infrastructure to be used proactively, to drive sustainable
to Europe and Asia to create more liveable cities and make Together, these urban development principles are Network which took place in Addis Ababa, Ethiopia on the and compact development. The dynamic interplay
use of the Land Value Capture, primarily associated with intended to foster efficient spatial configurations that 24th, 25th and 26th of February 2014. Since this workshop between land use and transport results in a virtuous cycle
main public transport lines. enable high-quality, car-free lifestyles. C40 has convened several webinars which provide a live of benefits for the future growth of the city and its citizens
web-based platform for cities from around the world to (see Figure 6 on page 20). The adoption of sustainable
4.1.1. Institute of Transport Development Policy: The Purpose of the TOD Standard present and share lessons learnt and innovations with principles to stimulate compact and mixed development
TOD Standard regard to TOD in practice. around public transport will provide optimum land
The Standard is an assessment, recognition and policy use conditions to enable an affordable, accessible and
The Transit Oriented Development (TOD) Standard (“the
guidance tool uniquely focused on the integration of land C40 does not provide specific strategies or tools for efficient public transport system in Cape Town. In turn a
Standard”) is an initiative developed by the Institute
use and transport practices. It is aimed at a broad range of TOD itself but it creates an enabling environment for the compact city form and sustainable public transport system
for Transportation and Development Policy (ITDP) to
urban development stakeholders, including governments, City to draw from the experiences of other global cities will result in the following environmental, social and
draw on international expertise to come to a common
developers and investors, planners and designers, which assist in the design of an appropriate and effective economic efficiencies:
understanding of what constitutes urban development
sustainable development advocates and interested citizens. strategy for Cape Town.
best practice. This includes promoting sustainable • reduced energy consumption and emissions
It can be used to:
urban transport while minimising the use of personal • provides access to economic opportunity, by linking jobs
motor vehicles and reducing the Greenhouse Gas (GHG) • Evaluate the transit orientation of completed urban to housing and enhancing social mobility. This reduces
emissions and other negative externalities associated with development projects direct and indirect costs for households and employers
their use. • Evaluate projects at the planning or design phases to which enables better monetary retention (savings) and
identify gaps and opportunities for improvement ability to participate in the economy
• Guide policy and regulations relevant to urban • improved economic growth in terms of attracting and
planning, transportation planning, land use, urban facilitating new investment and entrepreneurship
design and parking (Source: ITDP TOD Standard)

Whilst all the TOD principles identified in the ITDP TOD

Standard are relevant to TOD in general the City of
Cape Town TOD Strategic Framework must consider
the principles of TOD that are relevant for our specific
problems and the development solutions to address these
problems and a means to implement them.

20
 Taking the adjacent diagram into account and in terms of The four key agents or stakeholders are as follows:
the 2032 Integrated Public Transport Network (IPTN) plan
TOD as it applies to the City of Cape Town is defined Cape
Town’s best long term development strategy to address
Reduced energy Reduced direct and indirect spatial inequality, improve public transport affordability,
consumption and costs for households
emissions and employers and arrest sprawl, which is driven by the integration
of sustainable public transport and strategic land use 4. Government 1. User
intervention and built on the principles of affordability,
accessibility, efficiency, intensification and densification

TOD (see Figure 7: TOD Principles).

The core TOD principles are defined below:

Property
1) Affordability – reduce the cost of public transport to Development
Sustainable and Economic growth
commuters and the cost of providing public transport to
affordable public the City.
transport

2) Accessibility – facilitate equal access to social and

economic activity through strategic urban development 3. Investor 2. Developer
and the provision of safe public transport.
Compact development, transit

3) Efficiency – provide an environment and level of service

adjacent land use (mixed use
and high density)
that reduces trip lengths and dependence on
Figure 6: Virtuous Cycle of TOD private vehicles.
Figure 8: Key Role-players in Property Development Process
4) Intensification and Densification – manage the desired
form, composition and location of urban development
conducive to affordable, accessible and efficient public
transport. 4.3.1. User Market
The user market is made up of people (in the form of
Driver Driver Whilst the objectives and principles of TOD in Cape Town
citizens, entrepreneurs and businesses) and their needs,
provide a base to inform long term development planning
material desires and purchasing power. They ultimately

TOD
it still becomes fundamental to the establishment of a
Sustainable Public Strategic Land Use determine the demand to which the market responds. In
Transport System Intervention
potential implementation strategy for TOD to understand
terms of property, demand represents the potential users
the key role players that drive development.
of a development, i.e. the buyers, renters, clientele or
customers it will attract (Appraisal Institute, 2014).

Residents
4.3. Drivers of Development In the context of Cape Town there are two broad groups
Accessibility of residential user markets: those who have the luxury of
Affordability
Development is ultimately a product of the decisions
made by people; therefore it is essential to understand choice (the ability to buy and/or rent) and those whose
Efficiency
the different roles and responsibilities they play in the choices are limited (the inability to buy and/or rent). These
Intensification
development process, and in particular the factors that groups are often serviced by different agencies; the private
Densification
inform their decisions and actions. This is necessary sector caters for choice whereas government prioritises
to begin to identify the appropriate tools and social equity. However there are instances where both
mechanisms to shift their behaviour which will in turn the private and public sector work together, when public
alter the form and manner in which development occurs subsidies are offered to the private sector to develop social
Principles across Cape Town and facilitate the orientation of housing (i.e. GAP). Table 1 on page 23 contains a number
development around transit. of demand side factors that will inform choice of location
Figure 7: TOD Principles and form of development for residential users.

22
The behaviour of citizens in South Africa is currently embedded sprawling development. Furthermore the continued rollout of 4.3.2. Private Sector Developers 4.3.5. Public and Private Motives for Engaging in
within a culture of low density and suburban development, low density RDP houses has fashioned an expectation from the Development
A developer’s principle goal is to derive the highest profit
which is exacerbated by the City’s approach to sustainable needs user to receive standardised single dwelling low density
from an investment, which can be achieved through the Private Sector (Formal)
urban development in both user markets. In terms of choice housing typologies. Whilst RDP-type housing is considered
acquisition (purchase) and disposal (sale) of property or The private sector prioritises financial gain over public
users, the approval of development application outside dense in the context of Cape Town, its continued rollout limits
financing the development/redevelopment of new space. good. Their mandate is to meet the financial obligations
the urban edge has set a dangerous precedent for further the City’s potential to pursue higher density options.
They do this by identifying the demand in the property of their investors and to turn a profit. Each developer is
market such as demand for space to work in, to operate unique and will likely have its own profit benchmark, based
businesses from, to live in and spaces for leisure or on their cost and income projections, however their ideal
Sector of Demand-side Factors
recreational activities (Isaac, et al. 2010), determining its goal is to maximise profits (factors that increase income)
Development
financial feasibility and finally by embarking on a process and minimise risk (factors that reduce costs).
Residential • Financial considerations such as savings levels and lending requirements (e.g. interest rates on of development (described in Figure 9). It is critical to note
Market mortgages, points charged, loan-to-value ratios) that no private sector led project will get built unless it The following factors associated with income and costs
• Land use patterns and directions of city and area growth and development yields a return on investment or receives a public subsidy are considered as key informants to a developer’s
• Factors affecting the physical appeal of the neighbourhood, e.g. geography and geology (climate, to compensate for underperformance (Belzer and Autler, decision-making process when undertaking development
topography, drainage, bedrock and natural or man-made barriers) 2002). Each developer is unique and will likely have its feasibilities:
• Local tax structure and administration, assessed values, taxes and special assessments own profit benchmark, which is a function of cost and
Income:
• Availability of public services and community facilities (cultural institutions, educational facilities, health income and will ideally be projected through a
and medical facilities, fire and police protection, access to technology) developer’s feasibility. • Market Indicators: Vacancy rates, property values and
• Externalities (noise, odours etc.) rental returns from adjacent properties will determine if
4.3.3. Investors the location and market is ripe for new development.
Table 1: Demand-side Factors for Choice Residential Users (Adapted from the Appraisal Institute, 2014) • Marketability: The attractiveness of the development
An investment institution’s primary focus, when lending
and it surrounds to the potential buyers, which includes
funds to developers, is how the loan fits into their loan
the quality of development and its surrounding area (i.e.
portfolio and its marketability on the secondary market.
accessibility to transport, amenities, safety etc.).
Business They specifically offer loans to developer who can provide
Business needs are focused primarily on profitability. factors that will inform the location and form of the best surety. All investors require a financial return on Costs:
The following table depicts a number of demand-side development for businesses by property sector. their investment.
• Land Costs: Developers tend to have a maximum price
4.3.4. Government they are willing to spend on land in a particular location.
• Infrastructure Availability: new infrastructure
Sector of Demand-side Factors Although development activity is largely dominated by requirements will trigger a development contribution
Development the private sector, it usually takes place within a regulatory which increases the capital cost of the developer.
framework set by government, through development • Certainty and Timing: lags in the construction period
Retail Market • Household incomes and percentage of income spent on retail purchases (effective purchasing power) plans and control mechanisms (i.e. zoning regulations). due to delayed or prolonged planning approvals
and percentage of disposable income spent on various specific retail categories Furthermore there are specific forms of development which result in higher holding costs. Uncertainty in
• Rate of sales retention in a potential trade are undertaken solely by government such as public and planning approvals (land use, environmental, access
• Profit benchmarks for retail facilities and sales volume per square foot recreational facilities, offices for its own use and affordable arrangements etc.) may also deter developers from
• Retail vacancy and trends in the market housing where government is seen both as the developer engaging in development.
• Land use patterns and directions of growth of the city and investor. • Development Costs: demolition costs, site clearance
• Accessibility (transportation services and highway systems) and cost of transportation
and preparation, building cost (main contract),
• Factors that affect the appeal of the retail centre (image, quality of goods and tenant reputation)
building cost inflation, landscaping, external signage,
Office Market • Area employers who use office space, current and estimated future staffing needs contingencies, offsite works, interest on loans, parking
• Category/nature of work etc. Direct costs related to both the type and quality of
• Land use patterns and directions of growth of the city the end product.
• Accessibility (transportation services and highway systems) and cost of transportation
• Factors that affect the appeal of the retail centre (quality of construction, management, and mix of tenants)
• Availability of support facilities (shops, restaurants, recreational facilities)
Industrial • Presence of raw materials
Market • Exchange capability (currency values and trade barriers)
• Area employers who use industrial space, current and estimated availability of skilled and unskilled
labour
• Land use patterns and directions of growth of the city
• Accessibility (transportation services and highway systems) and cost of transportation
• Employment in manufacturing, wholesale, retail, transportation, communications or public utilities
• National and regional economic growth that affects local demand
• Retail sales (applicable in market analysis for retail storage and wholesale distribution properties)
• Cargo flows by transport type (i.e. truck, rail, water, air) and product type (i.e. high or low bulk)
Table 2: Demand-side Factors of Businesses (Adapted from the Appraisal Institute, 2014)

24
Private Sector (Informal) Public Sector
Demand
Informal economic development takes the form of small The public sector’s primary reason for engaging in Choice User Needs User
scale business in localised markets (e.g. spazas, hawkers development is to promote public good and provide

User Market
people or businesses who can afford people who cannot afford to rent
etc.) which is often clustered around public transport basic services for all. However due to backlogs created by to rent or buy or buy
facilities and areas with high pedestrian circulation. The historic decisions and policy which has consequently led
City needs to optimise the following to promote informal to high levels of social inequality, promoting social equity
development where it is contextually appropriate and has become a key motive for engaging in development
aligned to TOD principles: (which often translates in the prioritisation of the short
• Provision of public services (e.g. waste collection and term needs of the poor). The restrictive nature of human
management, consideration and integration social and
transit)
settlements grants coupled with political pressure to
expedite the rollout of housing and the associated Private Sector Location Public Sector

• Provision of commercial space (public incubators, attractiveness of greenfields developments has resulted in
trading stalls etc.) the provision of services to the poor in poor locations.
• Allow flexible development parameters and guidelines
Taking this into consideration it becomes clear that the
that permit the use and conversion of residential space; development process is quite complex and agents that
provision and design of such properties should manage regulate the process have different motives which often
the negative externalities (e.g. noise) and accommodate impacts on the location and form development takes.
Profit Social Equity
Primary reason for
(e.g. through increased infrastructure capacity) What is perceived to be sustainable in terms of City engaging in development

Developer
• Development of public transport facility management policy and regulation is not always profitable and what
capabilities by the informal sector is profitable is not always sustainable. Typically (in Cape
(South African Cities Network, 2015) Town) the private sector has largely ignored the City’s Costs Income
proposed spatial restructuring planning policy directives,
which have sought to promote densification and mixed
use in transport corridors and restrict further sprawl of low Infrastructure Market Indicators:
density development on the periphery. A similar disregard Availability - Vacancy Addressing housing backlog
- Comparable rentals/sales Timing
for policy has also been experienced by the public Land Cost
- Cap rates etc.
sector and their approach to housing delivery which has Development Costs Funding
consequently led to the development of poorly located Social arrest
Timing
housing settlements in isolation from economic and social Marketability: Land Ownership
- Quality of Urban Environment
opportunities and affordable transport, exacerbating - Safety
spatial inequality as oppose to redressing it. - Accessibility

Government Investor
Return on Investment Social Equity
Primary reason for
engaging in development

Policy and Regulatory Compliant

Figure 9: Motives for Engaging In Development

26
4.3.6. TOD Applied at Different Scales The next level of TOD can be applied at a corridor level
where the focus must be on land development to promote
It is acknowledged that TOD means different things at
bi-directional flow of trips and the financial sustainability
different scales. Understanding this difference helps
of trunk public transport services whilst playing a role in
to identify the appropriate tools and mechanisms to
achieving the metro scale balancing mentioned above. 1. Metropolitan
implement TOD and the scale of planning at which they
Integrated transport and land use planning at a corridor Planning/Interventions at this scale centre
should be applied.
scale is required to give context to local area and precinct around policy and long term visioning to
At a metropolitan scale TOD intervention should ideally try planning initiatives. This will promote land development establish the broader principles and
to consolidate the relationship between land use and travel along selected transit corridors, where the combination of objectives of TOD.
patterns across the city with the principle aim of achieving transport investment and development would optimise the
an optimisation of travel that meets a set of predefined utilisation of transport.
indicators (refer to Table 10 in Chapter 11). Development
At nodal, precinct and project level TOD principles can
of land produces and attracts trips with varying
be applied to facilitate better interfaces between the
characteristics depending on the type and location of
transport systems, land developments and people. A key
the land use. This theoretical optimisation between travel
consideration is the allocation of space, creation of more
demand patterns and strategic land use form the basis for
opportunities for walking and cycling and greater use of
the TOD Comprehensive urban growth land use scenario
public spaces with sound urban design to create a sense of
(discussed later in this document). To this end TOD at 2. Corridor
place. This is illustrated graphically in Figure 10 on page 27.
the metropolitan scale as applied to Cape Town currently Integrated transport and land use planning at a
seeks to employ the future growth of the city by spatially corridor scale is required to give context to local
distributing optimum land uses to ideal locations at the Metro

area and precinct planning initiatives. This will

ideal time to optimise citywide travel patterns toward long promote land development along selected
term efficiency and sustainability. transit corridors, where the combination of
transport investment and development would
optimise the utilisation of transport.
Nodal

4. Precinct
At the lowest level, the Precinct
Plan must ensure appropriate
urban design and placing
of infrastructure and facilities, in
support of both the higher order
corridor and local destinations
within the node or zone.

3. Nodal/Local Area
Urban nodes are characterised by
the intensity, mix and clustering of 5. Projects and Programmes
activity or land use. Nodal planning Projects and Programmes are identified
attempts to consolidate and define in the Nodal and Precinct planning stages.
the role of the node or zone in They are seen as practical mechanisms to
the context of the corridors. The improve the quality and attractiveness of
aim is to determine the desired the urban environment in order to facilitate
density and mix of land use within the contextual objectives of TOD at the
the study node or zone. appropriate scale.

Figure 10: TOD and the Different Scales of Planning

28
4.4. Desired Outcomes 4.5. Vision
5. Regulatory and Policy Context
In October 2014 TDA, formerly known as Transport for The vision for Transit Oriented Development for
Cape Town (TCT), hosted a Transit Oriented Development Cape Town is:
Summit with the aim of engaging with a wide range of
stakeholders and role players to help provide a focused To progressively move toward a compact, well connected,
approach to developing an effective TOD Strategy. The efficient, resilient urban form and movement system that is Below is a summary of key policy at national government
Summit was held over two days starting with key note conducive to economic and social efficiency and equality level which provides the mandate for local government
addresses to stimulate the debate and culminating in whilst providing cost effective access and mobility, with the to develop its own TOD policy and strategies. There is Rising Liv
in
Standard g
a World Café style workshop where each delegate was least possible negative impact on the environment. a quagmire of policies and strategies in play within the s
s
on

t
afforded the opportunity to engage on various aspects of iti
functioning of the City of Cape Town which may either

f Developmen

nd
TOD. The outcomes of this very informative summit are

Co
facilitate or create obstacles to achieving TOD principles.
4.6. Objectives

Po uction
Re
Strong
best described graphically as in Figure 11 below.

ver
d
A thorough audit will need to be undertaken on all Leadership

ty
The objectives of TOD in Cape Town are defined relevant policy and strategies of the City to identify those

ortunities
The desired outcome of TOD in general is a future spatial
as follows: that create barriers to TOD that will need Effective
Government Social
form of Cape Town that is compact, well connected, to be amended or eliminated. Active Cohesion
efficient, resilient and conducive to economic efficiency 1) Maximise “location efficiency” so that people can walk,

Opp
Citizenry

Grow
and equality whilst providing cost effective access and cycle and use public transport. This can be achieved

th
through a comprehensive approach to land use density,
5.1. National Development Plan Vision 2030

o
mobility with the least possible environmental impact.
mix and intensity, as well as a focus on prioritised public

cle
en

t
The desired outcome of the City of Cape Town TOD transport at a metro, corridor, nodal and precinct scale. The South African National Development Plan (NDP) is a Ca
pa loy
m

Cy
b ili p
tie s Em
Strategic Framework is to determine specific mechanisms 2) Boost ridership and minimise congestion thereby broad strategic framework to guide key choices and actions.
for public and private investment that will give effect ensuring that the public transport system becomes
to efficiencies in the built form. Further to this the TOD more viable. Context of the National Government Priority Outcomes
Strategic Framework must identify the type, location and 3) Provide a rich mix of housing, shopping, recreational and
sequence of future land use development in support transportation choices. • Outcome 6 – An effective, competitive and responsive
of TOD principles and to develop and provide a set 4) Enable cost and operational efficiencies in the provision economic infrastructure network Figure 12: National Development Plan – Approach to Change
of appropriate tools and mechanisms to enable City and design of urban infrastructure. • Outcome 8 – Sustainable human settlements and an
Departments to achieve the outcomes of TOD as approved 5) Drive down the cost of the User Access Priority for both improved quality of household life
and for private development to follow suit. new and existing residents. • Outcome 9 – Responsive, accountable, effective and
6) Create a sense of place. efficient local government system

5.2. Draft Integrated Urban Development The eight levers are premised on an understanding that (1)
Framework (IUDF) 2014 spatial planning forms the basis for achieving integrated
urban development, which follows a specific sequence of
The IUDF marks a new deal for South African cities and towns. urban policy actions; (2) integrated transport that informs (3)
It sets out a policy framework to guide the development targeted investments into integrated human settlements,
of inclusive, resilient and liveable urban settlements, while underpinned by (4) integrated infrastructure network systems
squarely addressing the unique conditions and challenges and (5) efficient land governance, which all together can
facing South Africa’s cities and towns. It provides a new trigger (6) economic diversification and inclusion, and (7)
approach to urban investment by the developmental state, empowered communities, which in turn will demand (8) deep
which in turn guides the private sector and households. governance reform to enable and sustain all of the above.

Vision Strategic Goals Levers

Integrated spatial planning
Liveable, safe,

Strategic priorities
Access
resource-efficient Integrated transport and mobility
cities and towns
that are socially Integrated sustainable human settlements

integrated, Growth
Integrated urban infrastructure
economically
inclusive and Effective land governance and management
globally
Governance
Figure 11: Graphic Harvest of Outcome of TOD Summit October 2014 competitive, where Inclusive economic development

residents actively
Empowered active communities
participate in
Spatial
urban life transformation Effective urban governance

Figure 13: Draft Integrated Urban Development Framework (IUDF), 2014

30
 SECTION 2:
Desired End State:
Comprehensive TOD-
Land Use Scenario

31
6. Desired End State:
6.3. Methodology
The model to develop TOD Comprehensive underwent a four stage process illustrated below.

TOD Comprehensive 1. Transport Optimisation

Inputs
Optimise trip productions and TAPs - Transport Accessible Precincts
attractions in a way that facilitates a Zone Structure
sustainable efficient, accessible and IPTN
affordable public transportation network PTOD

6.1. Premise and Purpose 2. Land Use Optimisation

Inputs
On 25 June 2014 Council approved the City of Cape TODC was to assess its impact on the preferred IPTN and Determine extent to which an optimised Optimum set of trips - output of step 1
Town’s Integrated Public Transport Network (IPTN), to quantify the benefits of TOD (i.e. lower operational transport network can be accommodated valuation data, zoning, parking
when taking into account existing requirements, census population
ref C59/06/14, a network plan intended to guide the costs) using a performance based model linked to the zoning rights, parking requirements employment data, future development
development of rail and road-based transport infrastructure TOD principles approved as part of the 2032 IPTN (refer and residual land rights. potential
to accommodate existing and future travel demand within to section 4.2). Furthermore a list of land use assumptions
the city. The year 2032 was chosen as a possible future was developed in the IPTN to guide the direction of TODC Possible Impossible
state for the IPTN in Cape Town. (refer to Annexure A).
The approved IPTN was primarily informed by a Pragmatic It is important to note that the TOD Comprehensive
Transit Oriented Development (PTOD) urban growth land land use scenario is a product of an analytical exercise Further optimisation
use scenario. This scenario did not extensively explore to determine the extent to which TOD benefits might be
the holistic benefits of embracing TOD as a long term realised. Whilst the focus for the TOD comprehensive A combination of transport and land use optimisation
to determine HOW to accommodate the remaining
development strategy to its fullest extent or adequately land use model has been, to a large degree, based on trip productions and attractions (demand) and without
consider the potential of brownfield development. theoretical possibilities, there are many policy implications compromising the sustainability of the optimised
transport network.
To effectively address these limitations, the IPTN Plan which stem from this process, especially if the latter is
recommended the formation of TOD Comprehensive proven. As such TOD Comprehensive is viewed as a Intensify Development: Intensify Employment Density Relocate residual trips
(TODC), a fourth land use scenario which best desired end state or best possible urban form to address Implications Increase the building (no. of people per m²). (unmet demand) to
encompasses the core principles of sustainable the integrated transport land use inefficiencies of our city, floor area by changing land sub-optimal transport zones.
use regulations and/or policy.
development with the potential to influence optimum thus new principles, ideas, implementation tools and land

Sensitivity Testing
3. Reaching Equilibrium
public transport movement in Cape Town more affordably, use interventions that were identified during the study, Assign land use scenario in EMME
accessibly and efficiently. The premise for developing have been included in this strategic framework. to check if actual TOD benefits occur A combination of the above may be required.

6.2. Parameters for the TOD Comprehensive Land Use Scenario Implications

The principles set out in the IPTN represent ideal to the following key transport objectives and associated
characteristics of a sustainable public transportation higher level land use interventions:
network and urban development context, thus giving effect

TOD Comprehensive
Transport Land Use
1. R
 educe travel distances: to reduces the cost of commuter Intensify and diversify urban development in close proximity
travel and improve operational viability of public to public transport stations.
transport. 4. Implementation

2. Optimise bi-directional flows. Promote an appropriate mix and form of residential, social and Figure 14: Schematic Depiction of the TODC Methodology
economic activity between urban nodes along higher-order
public transport corridors. Further detail on the methodology is described in the TOD Comprehensive Scenario Land Use technical report, attached to
3. G
 enerate a greater level of seat renewal (balancing trip Promote an appropriate mix and form of residential, social this framework as Annexure A.
attractions and productions) and economic activity between district and local nodes along
higher-order public transport corridors.

Table 3: Transport Objectives and Associated Land Use Interventions

The land use scenario employs a number of assumptions to generate the scenario and as such do not consider items
(as contained in the approved IPTN) which are contained in such as land value, income-group specific travel behaviour,
the TOD Comprehensive land use scenario Technical Report and exclude more detailed-scale assumptions regarding
(see Annexure A) in order to support the intention of this neighbourhood-level dynamics, locational requirements for
metropolitan-scale scenario. These assumptions were used firms and individual user preferences for amenity.

34
6.4. Transit Accessible Precincts (TAPs) 6.5. Preliminary Findings
A significant consideration in the allocation of development Precincts are confined to a 500m radius from a higher order 6.5.1. Transport Optimisation:
in terms of TOD was the establishment of TAPs. These are public transport station. They were identified based on
spatially defined zones used to measure the performance their level of access to the transit network. Following the transport optimisation process, Figure • A need for more trip producing land uses in TAZs located
of the model outputs of the TOD Comprehensive Model. 17 shows the optimal location of new trips in 2032 per along transport corridors that contain high levels of trip
TAZ based on the six indicators discussed previously in attracting land uses. This requires the development of
this section. The yellow depicts new trip productions more residential opportunities in existing economic
(generated from future residential development) and areas/nodes.
the red, new trip attractions (generated from future non-
• There is also a need, although not as prevalent as above,
residential development such as retail, office, industrial
to locate more trip attracting land uses (economic and
and community facilities). When juxtaposed to the current
social opportunities) in TAZs that are dominated by
spatial distribution of existing trips (refer to Figure 6) the
residential development, most noticeably in the Metro
following key conclusions can be made:
South East (MSE).
• The optimised scenario in Figure 16 illustrates a more
compact distribution of future growth with less growth
towards the edge of the city.

Pie size depicts intensity of use (largest pie = 24000 Ps + As)

Current Situation Pie split depicts diversity of use (Residential vs Non-residential)

Figure 16: Current trips

Figure 15: Transit Accessible Precincts (500m radius around rail and BRT stations)

36
Demand Pie size depicts intensity of use (largest pie = 24000 Ps + As) Theoretically, if the City manages to locate the exact quantity and
ratio of trip producing and attracting land uses per TAZ depicted
in the map above, the following integrated transport and land
use efficiencies may be achieved (refer to Figure 18 below):
Pie split depicts diversity of use (Residential Vs. Non-residential
Following Transport’s Optimisation Process

Figure 17: Spatial Allocation of New Trips Following Transport Optimisation Process

Figure 18: Potential Optimisation Improvements

It must be noted that the figures above represent an 6.5.2. Land Use Optimisation
improvement from the PTOD land use scenario (which was
used as basis for developing the IPTN). The initial output of the land use optimisation process can be
seen in Figure 19 and Figure 20 on page 38, which express
the transport ask (trip productions and attractions) in the form
of dwelling units and GLA. Figure 19 illustrates the future
demand in terms of residential and economic development
and Figure 20 depicts total development (existing and future).

38
Initial TOD Comprehensive Scenario (Growth Only) The following maps (Figure 21 and Figure 22) show the comparison between transport demand (converted into dwelling units
and GLA) and available land use supply (calculated based on the parameters discussed in section 6 and Annexure A).

1 DOT EQUALS(=) 5000 M² Demand And Supply: Non-Residential

Residential Transport demand

Economic Land use supply

Demand: transport optimised

allocation of projected future
growth

Supply: underdeveloped land;

undeveloped land (vacant,
greenfield, infill)

Figure 19: TOD Land Use Scenario Depicting Growth Only

Initial TOD Comprehensive Scenario (Existing development + growth, excluding unmet demand) Figure 21: Non-residential Demand and Supply

1 DOT EQUALS(=) 5000 M²

Residential
Economic

Figure 20: TOD Land Use Scenario Depicting Current and Future Development

40
Demand And Supply: Residential Unmet Demand
Transport demand
Unmet transport
demand for residential
Land use supply
Unmet transport
demand for
Demand: transport optimised non-residential
allocation of projected future
growth

Supply: underdeveloped land;

undeveloped land (vacant,
greenfield, infill)

Figure 22: Residential Demand and Supply Figure 23: Unmet Demand

The figures above illustrate that it is theoretically possible a. Land use mix and intensity of use of building floor space 6.6. Preliminary Review of the Optimisation Processes
to accommodate a significant portion of the transport (persons per m²: household size/employment density)
demand (optimised trip productions and attractions) via 6.6.1. Transport Optimisation Process: 6.6.2. Land Use Optimisation Process:
b. Space recovered through parking zone change (lower
residual floor area from latent development rights and/ parking requirement) • Heuristic optimisation provides an excellent method for • Quantifying the existing land use is a long, complex, manual
or vacant land that will give effect to the integrated
c. [a] and [b] further optimised through rezoning/departures optimising multiple and conflicting parameters. The process process which requires the use of a variety of sources.
efficiencies depicted in Figure 18. However a number
from standard development rules (height, coverage, is in itself heuristic and is being refined along the way
of core economic nodes within the city do not have • Filling the gaps in the data requires inventive, iterative work
floor factor) particularly regarding the data.
sufficient capacity (residual floor area or vacant land) to and a significant amount of time. However, the work done
absorb the demand for new residential development (or d. Relocation to adjacent TAZ with spare floor area capacity • The process is very time and resource-consuming. on establishing the base year (current) land use picture
trip producing land uses), depicted in Figure 23 on page Computational resources are especially problematic, can be incorporated into many different processes and
41. Most noticeable are some of the core urban nodes in because the algorithm used in both the transport and land initiatives e.g. MTIIF.
Cape Town CBD, Century City and Bellville. To address use optimisation modelling relies on proprietary software
• Parking provision plays a significant role in the intensity of
this shortfall in land supply further land use optimisation (EMME), so modelling is restricted to a single instance of
the land use that can actually occur. Where rights for intense
will be employed in the next phase of the methodology to the programme at any one time, limiting the opportunities
land use may currently exist, these may in practice be
best accommodate the optimised transport network where writing the script to accommodate parallel processing.
significantly reduced by parking provision.
sustainably/spatially appropriate. This will be done by
adjusting the following variables: • Not everything has been taken into account e.g. physical
restrictions, title deed restrictions, heritage restrictions etc.
therefore could be overestimating the possible land use
availability.

42
6.7. Way Forward for TOD Comprehensive Priority Corridor Figure 24 below shows the proposed sequence of rollout of the IPTN 2032 Plan with particular focus on the next three financial years.
The figure also indicates the completed portions of the network.
The development of the TOD Comprehensive land 1 Lansdowne Wetton (T11/12) Corridor
use scenario represents a highly complex and nuanced
methodological approach to integrated land use and Blue Downs Rail Corridor (City implementing
2
transport planning. Its potential as a modelling tool to inform feeders)
future urban growth and travel demand is unprecedented 3 Klipfontein – CBD (D12) Corridor
and could add significant value to the City’s development
strategies (i.e. the IHSF, MTIIF, CTSDF etc.). This is reflected 4 Khayelitsha – Century City (T17) Corridor
in Figure 5: Strategic Intent of the TOD Strategic Framework
5 Eersterivier – Blouberg (T16) Corridor
which identifies TOD Comprehensive as a key input into the
citywide process to institutionalise TOD within the City of 6 Symphony Way (T13) Corridor
Cape Town’s administration.
7 Gordon’s Bay – Retreat (T10) Corridor
The product (land use scenario) and model at this phase of
the methodology requires further optimisation, iterations, 8 Strandfontein – CBD (T15) Corridor
testing and peer review to accommodate the unmet demand 9 Westlake – Bellville (T14) Corridor
and improve its reliability and authenticity as a tool to facilitate
sustainable development. The end product must then be 10 Kraaifontein – Century City (T19) Corridor
used as a key strategic input into the City’s development
plans at the metropolitan scale of planning to inform the ideal Table 4: IPTN Corridor Prioritisation (as at July 2015, IPTN Draft
location of new residential and non-residential development. Implementation Plan)
Whilst the land use scenario may not be finalised, it shows
the City’s intent to progress positively from PTOD to CTOD. 6.8.2. Integration Zones (IZs)
Therefore outputs from this process, have been contextualised
To give effect to the spatially targeted and performance-
within the TOD strategy as the desired end state.
related Integrated City Development Grant (ICDG), the City
has identified and endorsed two Integration Zones namely,
6.8. Prioritisation of TOD Intervention the Metro South-East Integration Zone and the Voortrekker
6.8.1. IPTN Implementation Plan Road Corridor Integration Zone. They are identified and
prioritised based on their primary public transport linkages
While the IPTN project has developed the ultimate integrated that connect emerging urban nodes with established ones
public transport network and high level operations plan, the (including the two major metropolitan nodes: the Cape Town
phased implementation plan thereof is still being finalised and and Bellville CBDs).
therefore a preliminary implementation plan is provided here.
The IZs represent a joint commitment (between the City and
The IPTN draft preliminary Implementation Plan provides a
the National Treasury) to plan, fund and implement projects
provisional rollout plan detailing the phased implementation
and approaches that are best able to transform the spatial
of the IPTN towards 2032, as shown in Table 4.
structure of the city. Performance-related funding allocations
It should be noted that the current preliminary sequence of and monitoring of targets is core to the IZ rationale. This
rollout of IPTN corridors provided here is subject to change. rationale is being extended by the further development
However, the planned work on the Lansdowne Wetton of Catalytic Urban Development Projects within the IZs.
Corridor in 2015/2016 is confirmed as the next phase. The The Integration Zone projects underway must identify and
uncertainty with respect to the sequence of rollout only facilitate TOD opportunities along these important corridors.
applies to Corridor 4 onwards. The Implementation Plan will
however be submitted to Council for approval in the last
quarter of 2015. Any changes will only impact on the outer
year of this application (i.e. 2019/20) and such changes will be
incorporated into next year’s application.

Figure 24: Proposed IPTN Overall Network Plan rollout next three years

44
7. TOD Implementation Programmes
determine whether there are obstacles to TOD in approved Change Management
City policies/strategies and ensuring that new policies and
policy reviews prioritise TOD and are consistent with TOD a) TOD Manual
principles and objectives.
The City of Cape Town has adopted policies (such as the
Taking this into account the following amendments to existing Densification Policy, Tall Buildings Policy and the Urban
corporate and development policy directives, spatial designations Design Policy) which set sustainable design parameters
and catalytic projects is required: to guide the form of future development. Whilst these
policies currently support the principles and objectives
Based on the integrated land use and transportation • Lack of funding to pursue long term compact a) IDP (Integrated Development Plan)
of TOD, they often get misinterpreted or disregarded in
challenges facing our city, the understanding of the role sustainable development options. The new IDP must incorporate TOD principles and the planning of infrastructure and assessment of land use
players and their reasons for engaging in development • A public culture of low density development and car- programmes into its sector plans and the following urban applications at the nodal and precinct level. Furthermore
and TOD in the context of Cape Town and lastly the dominated behaviour. development policies and structure plans to the extent that there are some engineering standards in place, such as the
establishment of ultimate desired end state, this section this is not already embedded in said policies and plans: Western Cape Road Access Guidelines, that prohibit TOD
identifies the necessary strategic levers to implement TOD outcomes (or contravene current design principles) and
Therefore to effectively address these integrated inefficiencies i. 2032 IPTN (Integrated Public Transport Network)
and address said challenges. are generically applied without considering site specific
the TOD Strategic Framework attempts to consolidate the
The IPTN Review must test the impact of TOD implications and contextual factors that are historically
As mentioned previously the inability of the City to City’s resources towards changing the behaviour of the key
Comprehensive on its network plan. oriented towards COD (Car Oriented Development). The
restructure its urban form sustainably can be attributed to role players that drive development. It specifically attempts to
optimise the factors that underlie their motives for engaging in use of standards that relate to road layouts, parking and/or
the following key inefficiencies: ii. CTZS (Cape Town Zoning Scheme) Regulations
the development process, and in so doing, shift their current access are often inappropriately applied in a South African
Incorporate the TAPs as an overlay zone (which will context, especially in terms of human settlements planning.
• The sub-optimal relationship between the City and the business as usual approach to one aligned to the principles
effectively absorb the PT1s and PT2s) to accommodate To this end the manual is seen as a design mechanism
private sector. and objectives of TOD. This requires an effective form of urban
relaxed develop rights consistent with the development to integrate sound TOD design principles (currently
• Government’s mandate to address social inequality through growth and travel demand management, which centres on the
parameters (i.e. uses, floor factors, height restrictions, embedded within City policy) and engineering standards
rapid, short term and low-cost means of development. following programmes depicted in Figure 25 below:
setbacks, parking etc.) identified in the TOD to inform an appropriate application of policy guidelines
Comprehensive land use scenario. This will create certainty to the assessment of private and public development by
TOD Programmes and reduce risk to potential private sector investors. giving consideration to TOD outcomes at the nodal and
precinct scale, particularly the interface between land use
iii. IHSF (Integrated Human Settlements Framework)
and transport and how potential development will be used
The TOD Comprehensive land use scenario should inform by people.
the IHSF, to maximise the location-efficiency of new
TOD objectives can only be realised through effective urban growth and travel demand management.
housing and human settlement development in line with b) Transversal Management System (TMS)
This requires strategic intervention in the following key focus areas:
the desired density and composition of residential and non-
residential development. The City has recently adopted a Transversal Management
approach to address the fragmentation of service delivery.
Institutional Alignment Integrated Business Model Private Sector Collaboration Civil Society Participation
iv. MTIIF and Growth Management Plan The primary purpose of the TMS is to ensure that the
to ensure integrated and to finance the cost of to improve the location to efficiate the process of MTIIF must test the impact of TOD Comprehensive on City’s directorates collaborate in the delivery of services.
coordinated delivery of implementing TOD at all efficiency of private-led implementing TOD through
the future rollout of infrastructure and identify the most It is a management device to improve integration and
services at all spheres of spheres of government development effective cooperation
government
financially sustainable alternative to pursue in the City’s coordination of service delivery and planning by creating
Utilities Master Plan and Growth Management Plan. structures in which political leadership, senior managers and
officials can work together and communicate. It is a way
v. CTSDF (Cape Town Spatial Development Framework) to improve citywide strategic alignment through inclusive
Strategic Levers Strategic Levers Strategic Levers Strategic Levers The TOD Comprehensive land use scenario should inform strategic planning processes to improve integration and
- integration of policy and - integrated funding structures - develop better market - effective communications the review of the City’s Spatial Development Framework, coordination of service delivery and planning. It operates
regulation that impact on - operationally and cost intelligence analyses and marketing strategies
to ensure alignment between future development and within the existing hierarchical structure, but complements
urban development and efficient infrastructure design - build effective and efficient - public incentives
travel demand - land value capture private public partnerships
principles and objectives of TOD. this structure with additional platforms for cross-directorate
- change management - improve incentives and
- appropriate enforcement disincentives structures communication and decision-making. The TMS aims to
of policy
b) Legislation ensure that directorates collaborate around identified
To the extent that existing municipal, provincial and themes and through ‘organic’ groupings (issues falling into
Figure 25: TOD Strategic Programmes the mandate of multiple departments).
national legislation present barriers to the implementation
7.1. Institutional Alignment 7.1.1. Strategic Levers or utilisation of TOD levers and tools identified in the TOD
toolkit, it is critical that the City embark on further research 7.2. Integrated Business Model
It is paramount that the Transit Oriented Development Policy and regulatory realignment at all scales to overcome these barriers and if necessary initiate any It is widely viewed that TOD can lower infrastructure costs in
(TOD) Strategic Framework for the City of Cape Town is processes to amend said legislation. The legal mandates of the long run but the initial TOD infrastructure needs can be
approved as the basis to align all City strategic and built All existing corporate strategic policy and development different government spheres and departments need to be
frameworks (IDP, SDF, IHSF, EDS, and CDS etc.) must considerable and can require extensive public investment
environment plans with the principles, objectives and aligned and accountable. (Sustainable Cities Institute, 2013). There is no single source
vision of TOD for Cape Town to ensure integrated and incorporate TOD principles and objectives (to the extent
that they have not already been embedded) in order to of funds for TOD; instead, a number of funding sources are
coordinated delivery of services. The following strategic needed. Furthermore it is important that the City safeguard
levers have been identified to facilitate Institutional institutionalise TOD within all directorates of the City
and ensure that TOD principles and objectives are key against excessive fiscal spend to ensure that it’s financially secure
Alignment: to continue the long term implementation of TOD related
considerations in the assessment of all private sector
development approvals and public sector led development projects. The following strategic levers have been identified to
across Cape Town. This requires further investigation to help the City finance the cost of implementing TOD:

46
7.2.1. Strategic Levers The following high level parameters are proposed to be Enable Cross-subsidisation of Funding Sources to Moderation measures are seen as necessary but short to
considered in the future planning and design of MyCiTi Supplement TOD Initiatives medium solutions to improve travel demand patterns in
Value Capture stations: the period required to achieve an appropriate form of
Public funding structures require a greater degree of flexibility
to cross-subsidise projects that have an impact on the overall TOD (refer to Figure 26 below), which if fully realised will
Value capture levers enable the City to recover some or • Potential and Scale hopefully reduce the need to travel. Moderation measures
all of the value that public infrastructure generates for the sustainability of the city’s urban form. This is necessary to
ensure that the City’s developmental projects are aligned to are required to enhance the long term financial viability of
private sector and ensure that it retains the maximum value The scale of potential retail opportunities should be linked
the same desired end state and that one project does not public transport, such as forced peak capping (smoothing
of its assets when leased or disposed to the private sector. to the station’s projected demand and minimum threshold
create negative or financially-burdensome implications for travel demand between peak and off peak periods) and
The revenue or income generated by these levers can be size. Where there is an opportunity for significantly larger
the other. For example if the capital cost of pursuing more the integration of paratransit services, i.e. hybrid models
used to offset high operational costs linked to the provision stations with substantial transferring pax volumes (i.e.
sustainable forms of housing in transit-adjacent locations is (providing an alternative mode to absorb the unmet demand
of high quality public transport and future TOD projects. Philippi station in the Lansdowne Wetton corridor),
considered too high and not within budget for its applicable as a result of peak capping). Based on the city’s current
a greater level of engagement with the private sector may
a) Land Value Capture line (i.e. Human Settlements), national funding conditions urban form, the cost of operating public transport at a level
be necessary to pursue its potential integration into large-
should permit other departments/directorates to make use attractive enough to induce a modal shift is not always
scale commercial developments (i.e. shopping centres) and
Policy and regulatory mechanisms that allow a public entity of its own capital funding to supplement that cost in order feasible; hence the consideration of moderation measures
identify possible co-funding options to subsidise the cost
to “capture” the increased value (direct or indirect) of land to assist them to implement such TOD measures; as the (rooted in affordability) as a trade-off.
of operation (similar to what has been agreed to regarding
resulting from private and/or public improvements. alternative will likely result in higher lifecycle operational costs
the Table Mountain MyCiTi service). Granted this may impede the efficiency of the service
for public transport, a direct consequence of having to service
b) Revenue Enhancement Mechanisms however is considered essential to sustain an adequate
• Location and Form poorly located human settlements.
level of service in the interim (as opposed to no service).
The following revenue enhancement levers, income- Moderation of Public Transit The diagram below depicts the life cycle of travel
Market
generating opportunities and mechanisms to improve demand measures required to off-set the operational
existing revenue, linked to TOD, inter alia have been A review of operational practices and service characteristics
Ideally a market and LSM (Living Standards Measure) cost associated with operating public transport services.
identified for the City’s perusal: (referred to as a ‘moderation’ exercise) was undertaken
analysis should be undertaken to determine what products As land use patterns improve with the implementation
around mid-2014, six to eight months after the major
are in demand. This will likely inform the type of space of vigorous TOD interventions, the need for moderation
i. Improved Parking Management and Tariff Structures rollouts of the Phase 1A MyCiTi system, starting from
or cost cutting measures (or the degree to which they
required to accommodate that product. However the
the end of 2013, to analyse the passenger take-up of
design of retail/commercial facilities should also be are applied) becomes less significant. In theory, the
Increased parking tariffs can significantly support the City’s existing services, rationalise services and balance supply
sufficiently flexible to allow for different types of retail affordability of the service will be prioritised in the short
TOD and TDM objectives to manage the impact of parking with passenger demand. Through this first round of the
products and enable its intended occupier to adjust to term but will eventually stabilise as TOD becomes realised.
on land use and to incentivise certain travel behaviour thus moderation exercise the service was adjusted to correlate
changing markets. Attention should also be paid to context This will result in an optimum balance between affordability,
increasing use of public or non-motorised transport and demand and supply and more cost-effective approaches
and opportunities for informal commercialisation and civic accessibility and efficiency – features of an integrated
reducing congestion. Furthermore it is considered a pivotal have been adopted where possible.
development (i.e. social facilities). public transport network.
value capture mechanism which can be used to sustain the
City’s transit investment by generating additional income. Short term Medium term Long term
Broader Station Precinct
Establishing commercially competitive parking tariffs
can potentially increase revenue to the City and a more Consideration of the broader station precinct structuring Extent of
effective business design of parking management enables elements must be taken into account (i.e. zoning, land Moderation
use and access) to ensure that the design of the station Applied
a better retention of revenue generated from parking.
complements its current and future commercial and mixed
ii. Retail Opportunities and Appropriate Commercialisation use potential. This will inform the location and structure of
of Transit Stations any future retail opportunity (i.e. inside, above or adjacent
to the station). For instance the position and form of Need to Travel
Incorporating the provision for retail opportunities in the the station layout should seek to maximise exposure to
design of stations and surrounding precincts have been foot traffic and pedestrian flow (which can be achieved
identified by the City as a potential revenue enhancement through active and permeable edges). This is illustrated
and land value capture mechanism to help subsidise the in the design of retail facilities constructed for Gardens Current Sprawling Environment High levels of intensification and densification
cost of operating high quality public transit, promote station, which enables its occupier to trade inwards and TOD Interventions TOD
Improved Land Use
local and large scale economic development, improve outwards to capture foot traffic external to the station. In a realised
the passenger’s overall transit experience and give effect similar vein the design of stations should be cognisant of
to encouraging appropriate forms of Transit Oriented existing pedestrian flows in established (local) commercial
Development (TOD). Commercialisation of stations environments so not as to limit its commercial viability once
improves ridership, passenger convenience and generates Efficiency
implemented.
a greater level of seat renewal. As such it is important Accessibility
that the future design of MyCiTi infrastructure adopt Alignment of Public Grants to give Effect to TOD Affordability
appropriate design principles that can accommodate outcomes
retail and/or social facilities inside and above stations and The City must pursue methods to align grants to give
reinforce commercial opportunities external to the station, effect to integrated Transit Oriented Development. A
within the station precinct (where appropriate). Integrated and
greater degree of accountability is required by all City line
Balanced System
departments to ensure alignment between development
projects and the objectives of TOD. This is currently
being prioritised through the City’s Built Environment Figure 26: Relationship between Public Transport Operational and Financial Efficiencies and TOD
Performance Plan (BEPP). A BEPP is a plan which aligns
grant funding allocated to municipalities for infrastructure
development to national and local policy objectives.

48
Flexible Infrastructural Design – Ramping Up The following graphic serves as an example to illustrate depict, for marketing purposes, the concept of TOD. This • Flexi-time, alternative working and education times and
the potential incorporation of flexibility in the design is important to effectively communicate to decision makers, compressed working hours;
The process of integrated public transport and land use of infrastructure or in this instance the design of a trunk and to members of the public who are often resistant to
planning must align to one another, as there is uncertainty • Ride-share programmes (also referred to as car-pooling);
station: development applications that propose higher densities
associated with the realisation of the TOD Comprehensive and intensity of land uses. It is considered that City of Cape • Freight management (off peak delivery times of goods).
1. The sub-structures of the station are constructed when the
Land Use Scenario. To mitigate this risk and ensure that the Town examples of corridors, precincts and sites identified for
roadway and stop are initially built. Other typical TDM measures being pursued in Cape Town
City can afford to implement development projects in line land use intensification in response to the City’s emerging
with TOD, it is important for the design of actual operations 2. T
 he section where the station is to be located in future through the City’s TDM Strategy, as public transport systems
Integrated Public Transport Network (IPTN) will be the most
and the construction of infrastructure to respond to is initially covered over and utilised as passing lanes, are improved, include the following: public transport subsidies
effective manner to communicate what is meant by TOD at a
appropriate passenger demand volumes as they materialise while the base beneath where the stop is situated can be for companies or developments which actively support public
corridor, precinct and local level.
over time, to ensure (to the extent reasonably possible) that constructed such that, when the stops are removed and transport usage; network TDM capacity improvements by
such operations are affordable to the City from available the station constructed, the area of the stop becomes Public Incentives increasing or decreasing in network capacity to the advantage
resources in every financial year. the passing lane. of public transport specifically; private vehicle restriction
The City’s current development controls do not incentivise zones; taxation policies to discourage private vehicle subsidies
Proposed Construction of Phase 2 MyCiTi Stations or disincentivise appropriate forms of development in and tax rebates where public transport is actively promoted;
strategic locations. It is proposed that all rates based congestion pricing and travel pricing (e.g. fuel levies).
and development contribution frameworks are aligned to
TAPS and the TOD Comprehensive land use scenario, to NMT Improvements
positively reinforce users who make sustainable choices
and optimise the factors that inform location and choice Non-motorised transport (NMT), which includes walking,
of residential development to choice users (discussed cycling and the use of animal-drawn carts, amongst others,
previously in section 4.3.1 of this framework). is a valuable component of the transportation system and
is, ultimately, an element of all journeys. NMT is an essential
Travel Demand Management connectivity mode to public transport. The planning, design
and implementation of development (transit or land use) at a
Travel Demand Management (TDM) promotes the use precinct level must be take into consideration efficient, safe
of modes with a lower environmental and economic and accessible urban design characteristics that maximise
cost over those with higher costs. At the same time it NMT circulation, improve liveability and create a sense of
encourages travel with a lower economic and social value place to surrounding communities.
to occur at times when the financial and environmental
costs of accommodating it are lower. It therefore promotes 7.4. Private Sector Collaboration
smarter travel choice, such as travelling outside the peak,
or against the peak flows, using more efficient modes, This programme centres on levers to influence a change
such as walking, cycling, public transport or rail for freight in behaviour of businesses and developers to move
movement, rather than private cars and road freight progressively towards TOD. It specifically identifies potential
vehicles. This is necessary to induce a behaviour shift of mechanisms (for the City to consider) to optimise the factors
current car-dominated behaviour. The City of Cape Town that drive the location of businesses and motives for engaging
is currently developing a TDM strategy to identify and in the development process by developers and investors
implement the necessary measures and implementation (discussed in section 4.3. of this framework).
mechanisms to encourage efficient and sustainable
7.4.1. Strategic Levers
transport, with an emphasis on the efficient movement
of people and goods, rather than vehicles (Draft TDM Better Engagement (A shift from Control to Collaboration):
Strategy, 2015). A key priority of this strategy is to induce Establish a joint development forum to effectively engage
a modal (and user behavioural) shift from private to public with the private sector before major infrastructure projects.
transport.
Incentives to stimulate development consistent with TOD
A broad spectrum of TDM interventions is available. development guidelines:
TDM measures that have been applied in Cape Town
include the following: Incentives are mechanisms to stimulate private sector
development and leverage public investment. They are
• BMT lanes (dedicated lanes for public transport), consisting designed to change the behaviour of economic factors or
Figure 27: Adaptation of Station from Open to Closed
of separate dedicated busways, and semi-dedicated influence their decisions in order to achieve specific outcomes.
bus lanes in existing roadways for exclusive public Incentives must be restricted to developers who meet given
Figure 27 above illustrates that it is possible for transport user behaviour as it attempts to improve their choice mode of
transport use in peak periods. This approach requires criteria such as locating in a TOD precinct and meeting the
infrastructure to ‘ramp-up’ to demand as it materialises to transport, place of work and place of residence through Travel
minimal infrastructure improvements, but increased law desired form and composition of land use. Standard incentive
ensure the best (sustainable) utilisation of funding. To this Demand Management (TDM), effective communication and
enforcement; packages can involve financial rewards such as discounts,
end flexibility should be built into planning of infrastructure the formation of a public sustainable-rewards programme.
leveraging of City’s property assets, rebates, tax holidays and
in future rollout of public transit, accounting for the full life- • Parking management by adjusting the supply and cost of
7.3.1. Strategic Levers: subsidies or they may involve non-financial inducements in
cycle cost of the system and related infrastructure. parking to encourage the use of public transport; the form of exemptions from certain regulation or reporting
7.3. Civil Society Participation: Marketing • Improved traffic signal settings to optimise the flow of traffic standards (ECAMP, 2013).
and changes to network capacity to the advantage of public
The user is unquestionably the most important role player The need for improved maps and illustrations as part of a transport specifically;
in the development process. As such this TOD programme media campaign has been identified to facilitate a greater
identifies levers to provoke a change in current unsustainable understanding of the scale and impact of TOD and graphically

50
 Disincentives to curb development in undesirable locations: factors (Royal Institution of Chartered Surveyors (RICS)
Report 1994). The location of a property is commonly
Disincentives are mechanisms to discourage private sector pigeonholed as the key determining factor to successful
development in locations that conflict with the principles real estate investment, yet perhaps just as important or
of TOD. They are designed to curb sprawling development if not more, is timing. A well-chosen property is likely to
patterns. These could include increased development generate greater return in the future, not only in the form
contributions, parking levies and planning restrictions. of capital growth but also in the form of rental returns. To
maximise return it is critical to understand the property
Streamlined and Transparent Planning Approvals:
cycle and more precisely what stage of the cycle should
The City needs to work toward streamlining applications in one consider investment into the property market. In
line with strategic planning initiatives and TOD precincts order for the City to identify the most appropriate tool
to provide certainty and transparency to developers and to influence market trends and the appropriate time to
businesses. implement it, it must consider the different stages in the
property cycle to exploit its significance as a forecasting
Use of the Property Cycle as a Forecasting Tool for Planning mechanism.
Intervention:
There may be potential, where the City can leverage
The property cycle is defined as recurrent but irregular its tools in a way that attempts to shift the timing of the
fluctuations in the rate of all-property total return recurring property cycle, however it must be noted that in some
predisposed to a number of exogenous and endogenous markets or geographic locations, this may be improbable.

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Time

Equilibrium Actual price

Figure 28: Stages of the Property Cycle (adapted from Pyhrr et. al, 1999 and real estate View, 2011).

52
8. Implementation Strategy

8.1. TOD Toolkit 8.1.1. Hierarchy: Interventions Categorised in Terms of

their Scale and TOD Programme
This section identifies the mechanisms necessary to The toolkit as depicted in Table 5 to Table 7 below
implement the strategies discussed above. It introduces contains a multitude of mechanisms, interventions and Metropolitan Scale
a TOD ‘toolkit’ of parts as mechanisms categorised in tools within and outside the City’s control, which can be
Tools at this scale are intended to regularise the Furthermore it is necessary to consolidate all public
terms of the TOD ‘scales of intervention’ i.e. metropolitan applied at a corridor, node and precinct level to facilitate
mechanisms necessary to implement TOD at a corridor, investment at this scale toward a common action plan
level, corridor level, nodal and precinct level. This is the outcome of TODC. This ensures the ideal selection of
nodal and precinct scale; ideally through a process for implementation to ensure alignment between land use
important to institute TOD at a high level, highlight the implementation tools to suit the context and appropriate
of policy/legislation amendment and consolidation. and transport planning.
significance of implementation and expedite the selection scale of planning (refer to section 4) in an effective and
of appropriate tools to implement TOD at the different efficient way.
scales of planning.

Category Mechanism/Tool Purpose Example Regularisation of Tool TOD Programme

To institutionalise TOD within all directorates of the City and ensure Integrated Public Transport Network (IPTN) IPTN
that TOD principles are applied to all private sector development
Incorporate TOD principles and objectives into the IDP IDP
approvals and public sector led development across Cape Town. These
Amendment of existing high level strategic may require amendments to specific: Cape Town Spatial Development Framework CTSDF
policy and development frameworks (IDP, SDF, Institutional Alignment
Policy directives Align grant condition through the BEPP BEPP
Densification Policy, IHSF etc.).
Spatial designations
Catalytic projects Integrated Human Settlement Framework IHSF

Institutional and Policy Closer alignment with TOD principles Determine the impact of TOD Comprehensive on the Densification Policy Densification Policy
Alignment:
Considering alternative typologies and locations conducive to higher
Align existing land Enhance the current delivery of public sector housing.
densities and integrated land uses.
use regulations and Amend housing policies, including IHSF. IHSF Institutional Alignment
In particular quantify the impact of current human settlement projects on
City-policy directives Placing greater emphasis on spend and resources around brownfield
the operational cost of providing public transport cost comparison
with TOD principles and development.
objectives.
Amend road classification standards/requirements Amend road classification standards/requirements which impede
Western Cape Road Classification
which impede incremental densification and Enable greater densification and prioritisation of public transport. incremental densification and undermine the use of public transport Institutional Alignment
Guidelines (2002)
undermine the use of public transport services. services.

Streamline land use application process for

Fast track development in desirable locations DAMS SPLUMA, LUPA, CTZS Private Sector Buy-in
development proposals in line with TOD.

Model to identify a possible pipeline of public sector properties offering

Western Cape Government and City of Cape Town key development opportunities to realise spatial transformation – inclusive,
I.e. NUNU, Philippi Node City of Cape Town TOD Strategic Framework Institutional Alignment
Game Changer Model transit oriented development and aims to facilitate reflection on what it will
take to actually realise these opportunities within acceptable timelines

Public incentives • Government housing subsidies aligned to TAPs • City of Cape Town Policy
Sustainable Public Rewards Programme with
to improve behaviour To influence choices aligned to TAPs. • Property rates discounts in TAPs • Development Contribution Policy Civil Society Buy-in
monetary incentives.
change • Lower Development Contributions in TAPs • Rates Policy

Integrate sound TOD design principles (currently embedded within City

• Access requirements
policy) and engineering standards to inform an appropriate application of
TOD Manual • Road layouts City of Cape Town Policy Institutional Alignment
policy guidelines to the assessment of private and public development by
• Parking (trip generation rates) etc.
giving consideration to TOD outcomes at the nodal and precinct scale

• Public transport subsidies for companies or developments which

Change Management actively support public transport usage;
To identify and implement the necessary measures and mechanisms to
• Network TDM capacity improvements by increasing or decreasing in
encourage efficient and sustainable transport, with an emphasis on the
network capacity to the advantage of public transport specifically;
TDM Strategy efficient movement of people and goods, rather than vehicles (Draft TDM City of Cape Town Policy Civil Society Buy-in
• Private vehicle restriction zones; taxation policies to discourage
Strategy, 2015). A key priority of this strategy is to induce a modal (and
private vehicle subsidies and tax rebates where public transport is
user behavioural) shift from private to public transport
actively promoted;
• Congestion pricing and travel pricing (e.g. fuel levies)

Table 5: TOD Toolkit – Metropolitan Scale

54
Corridor, Nodal and Precinct Scale

Category Mechanism/Tool Purpose Example Regularisation of Tool TOD Programme

Strategic Planning Frameworks To establish specific land use and design guidelines • Corridor plans
New development and/or urban design frameworks at applicable scales and
New (and changes to existing) development frameworks to manage and guide the growth and form of • District Spatial Plans
changes to existing frameworks (DSPs, LASDFs, Local Plans etc.). All planning Institutional
aligned to TOD principles and objectives to the extent corridor, nodal and precinct development in line • Local Area Development SPLUMA/LUPA
frameworks must identify mechanisms to mitigate the impacts of gentrification Alignment
that they are not already embedded in said policies/ with TOD principles and strategies (including NMT Frameworks
in TOD precincts and nodes.
frameworks. Strategy). • Urban design frameworks
To ensure that the design and construction of
infrastructure allows for operations to respond to
• Ramping up for demand.
appropriate passenger demand volumes and the
• Adaptability for different Relevant business plans and Integrated
Flexible transit infrastructure external contextual environment as they materialise
operations. business parameters Business Model
over time, to ensure (to the extent reasonably
Appropriate Infrastructure Design possible) that such operations are affordable to the
City from available resources in every financial year.
To promote better utilisation of resources, improve
Integrate social amenities with Public Transport infrastructure at appropriate • Libraries, clinics, post offices
ridership, passenger convenience and improve the Concept plans for IPTN Institutional
transit locations or where opportunities exist based on the context of the node located on top of IRT station
overall quality of life of residents at a nodal and implementation Alignment
of precinct. i.e. stations and public transport facilities or at PTIs.
precinct scale.
UDZ Private Sector
Tax incentives/discounts to property developers Incentivise development in TOD precincts. Urban Development Zones
Income Tax Act 58 of 1962 Buy-In
Subsidise catalytic private sector development.
Development Incentives: No developer or investor will elect to build in an
undesirable location unless it yields a profitable return
Mechanisms to stimulate private sector development and • MFMA( Municipal Asset
on investment or in this case receives a subsidy to Private sector subsidies and Private Sector
leverage public investment. Government funding Transfer Regulations)
compensate for its underperformance. Engagement loans Buy-In
• DORA
with the private sector is required to determine the
appropriate returns warranted and if certain return
thresholds can be met.
• City of Cape Town Policy
Targeted land disposal
on the Management of
To identify, package, aggregate and condition programme including, inter alia,
certain of the City of Private Sector
TOD land disposal/release programme strategically located City-owned land in support of de-proclaimed road widening
Cape Town’s Immovable Buy-In
TOD and release to the market for development. scheme (Canterbury/Maynard) in
Property
key locations
• MFMA
• City of Cape Town Policy
Acquire aggregate parcels of land near or within
on the Management of
TOD precincts where local development is expected
Public land development programmes: certain of the City of Private Sector
Land banking and assembly to dramatically increase the plot’s value, package the Property Acquisition Policy
To leverage and expropriate land in support of transit Cape Town’s Immovable Buy-In
land for appropriate development and sell leasehold
investment. Property
rights to private sector to develop.
• MFMA
Leverage development above public infrastructure • City of Cape Town Policy
and facilities such as mass transit stations and on the Management of
other public facilities to achieve a greater density certain of the City of
Private Sector
Lease and disposal of air rights and intensification of appropriate land uses. The TOD land disposal programme Cape Town’s Immovable
Buy-In
clustering of public facilities and convenience Property
facilities in close proximity to transit will allow trip • Municipal Asset Transfer
chaining which is key to effective TOD. Regulations
Proactive/Blanket rezoning
Predetermine the form, type and mix of (Langa)
Proactive planning: development in support of TOD linked to the TAPs.
Cape Town Zoning Scheme Private Sector
Anticipatory planning mechanisms to fast track Pre-packaging land Change the applicable development rules of erven Overlay zones
Regulations Buy-In
development in TOD precincts. to ensure appropriate development-intensification of
TOD precincts. Amending height restrictions,
etc.
To ensure alignment of proposed development
Private Sector engagement • MOU Private Sector
Public Private Partnerships Establish better forums for engagement with phasing of transit infrastructure. Open lines of
forums • IDP Buy-In
communication. Actively pursue development.

56
Corridor, Nodal and Precinct Scale

Category Mechanism/Tool Purpose Example Regularisation of Tool TOD Programme

Additional levies assigned to parcels of land/property which have been identified as having received a direct and unique benefit from a public project
• The identification of Special
Assessment Districts aligned
to existing and new public • Rates Policy
Retain greater interest in the investment of public Integrated
Higher taxation of land (rates) investment/infrastructure • City’s Development
infrastructure projects and upgrades. Business Model
projects Contribution Policy
• Development contributions
• Land value increment taxes
To disincentivise private vehicle use, whilst • Rates Policy
generating additional income to offset operational • P
arking levies • City’s Development Integrated
Value Capture: Parking levies, congestion tax costs associated with the provision of high quality • Congestion tax Contribution Policy Business Model
Tools to ensure the City recovers some or all of the value public transport. • TDM Strategy
that public infrastructure generates for private landowners,
• Parking Management
to offset high operational costs.
To capture the best value of City-owned parking Tender Integrated
Improved management of parking and setting of parking tariffs • Revised Parking Tariff
(managed, park and rides, and off-street). • City of Cape Town Business Model
Parking Policy
Commercialisation of stations improves ridership,
passenger convenience and generates a greater
Improve commercialisation (formal and informal) in and around public transport level of seat renewal. Furthermore it provides Future City of Cape Town Integrated
stations, precincts, nodes and PTIs in the design of IRT Infrastructure and pre- additional revenue generating opportunities for the Commercialisation Strategy Business Model
packaging of land City, through leasing or disposal (during the boom
phase of the property cycle).
Maximum parking requirements in areas where there is an imbalance between To prevent an additional supply of parking and Integrated
Development Controls: development and parking discourage the use of private vehicles. • CTZS
Business Model
Regulatory tools to manage urban development
Monthly Operational Levy incorporated into the City’s Development To offset the costs of operating public transport • City’s Development integrated
processes in support of transit investment.
Contribution calculation infrastructure in unsustainable locations. Contribution Policy Business Model
To effectively depict what TOD could potentially look
Marketing Tools: • 3D visual aids across scales Civil Society
Media Campaigns like (high density and mixed use development) and • CITP
Improve political and public palatability of TOD of TOD Buy-in
communicate the benefits associated with TOD.

Table 6: TOD Toolkit Corridor, Nodal and Precinct Level

58
 9. Application of TOD Toolkit
Project and Programme Scale

Regularisation TOD
Category Mechanism/Tool Purpose Example
of Tool Programme

Champion projects to:

• Kick-start development interest • BEPP
from private sector in key locations • Western Cape
along higher order public transport Refer to list of projects in the Government and
BEPP Catalytic
infrastructure BEPP and the TOD Game City of Cape Town All 9.1. Public Sector 9.2. Private Sector
Projects
• Facilitate local (formal and informal) Changer Model Game Changer
9.1.1. Selection of Development Projects Publicly Funded 9.2.1. Selection of Tools to Effectively Manage Private
economic development Model to promote
Urban Integration
by Government Sector Led Development
• Improve access to public facilities
and social amenities The mandate for the TOD Game Changer Working Group is The TOD comprehensive process identified a set of Transport
Improve walkability, to and around to develop specifications for a multi-year pipeline of urban Accessible Precincts (TAPs), which should become the primary
NMT Improvement Non-motorised
Projects and
IRT stations and PTIs. To improve the development projects on state land and an action plan anchor for strategic intervention to ensure sustainable forms
(walkability Provide direct pathways Transport Strategy All
Programmes
assessment private and public sector
and design toolkit
associated with this pipeline to ensure that: of development in close proximity to transit. Figure 29 below,
and cycling)
development applications spatially assigns the type of tools to strategic areas in Cape
• resources are being efficiently allocated between the two
• Public space upgrades Town according to their perceived level of market demand,
spheres of government in particular, so that
• Safety and security once determined in the next scale of planning. However the
• projects are being appropriately and adequately
initiatives (i.e., VPUU) needs of businesses (as discussed in section 4.3.1) in relation
prepared and packaged to be made available to the
Urban Regeneration • Involving supporting/ to their sector of the property market should also be taken
To improve the quality of the urban market at the right time.
aligned to the
environment – improve market
streamlining establishment
All into consideration when applying the tools, to effectively
appropriate stage of of CIDs, and giving The Working Group will identify a possible pipeline of public influence their choice of location.
responsiveness
the property cycle these greater scope for
sector properties offering key development opportunities to
intervention (e.g. physical
realise spatial transformation associated with Transit Oriented
security improvements,
CCTV, etc.)
Development objectives within acceptable timelines.

Table 7: TOD Toolkit Project and Programme Scale

proactive planning
value capture mechanisms tax incentives
relaxation of onerous development guidelines leasing publically owned land at a discounted rate
streamline application process private subsidy and loans
urban design and planning parameters TOD land disposal

Demand in TAPs Lack of demand in TAPs

Demand in transition zones Demand in undesirable locations

development controls development controls

land value capture extreme value capture mechanisms

urban design and planning parameters

Figure 29: Spatial Targeting of Implementation Tools

60
9.2.2. Demand in TAPs: years there has been a growing trend to convert existing Demand For Commercial Development
residential properties to commercial uses. This is apparent
These are classified as areas that are both strategic (in terms in the high number of illegal businesses along its length and
of their proximity to public transit) to the City and desirable influx of rezoning, temporary departure and consent use
from a market perspective. Ideally the City should take full applications made to the local district office for commercial/
advantage of value capture tools in these areas but also business uses (refer to Figure 31 on page 57 which depicts
ensure that onerous restrictions which contribute to the some of the current illegal uses and land use applications).
use of private motor vehicles are curbed and encourage The appetite for mixed use development presents a rare
appropriate forms or types of development necessary to opportunity where both the private and public sectors have
support transit. The example below illustrates how tools can similar development interests therefore simplifying the nature
be applied in this instance. of intervention required to implement an appropriate form of
TOD in this location. This is particularly important to improve
Example: Blaauwberg Road (Corridor Scale) the operational viability of the City’s transport investment
Land use along Blaauwberg Road is primarily characterised by along the Table View Corridor, which requires a greater
single residential dwellings with spurts of commercial activity intensity of business, commercial and mixed use development
clustered around Marine Circle, Table View, Wood and Boy to substantially improve bi-directional flows, seat renewal and
de Goede MyCiTi stations (refer to figure 30 below). In recent off-peak ridership.

Figure 31: Illegal Uses and Rezoning Applications

Blockages to Mixed Use Development:

There are two key regulatory barriers impeding the desired Access Guidelines (2002). Blaauwberg Road is currently
form of sustainable urban development: restrictive title classified as a Class II Primary Arterial. As such, the approval
deed conditions attached to residential properties along of applications to rezone to business uses is limited to
the full length of Blaauwberg Road and onerous Access properties located every 90m from an intersection along its
Spacing requirements imposed by the Western Cape Road length (see conceptual depiction on page 60).

Figure 30: Zoning

62
Access Spacing 9.2.4. Example: Strandfontein Road (Nodal Scale)

TDA has prepared a Land Use Strategy for the Lansdowne within the LWC to support public transport. While the Strategy
Wetton Corridor (LWC). This serves as the land use component covers the LWC in its entirety, it focusses on the nodal concept
and next scale in planning and implementation for this phase of Transport Oriented Development (TOD) and identifies major
of the IPTN. The Strategy is intended to “convey the corridor urban nodes of priority for investment”.
vision and objectives based on the need to densify and intensify

Targeted location Long term land use and built form Actions and Key Considerations
9. Strandfontein (M17): Japhta West: residential intensification • Nature of route will prevent the
K Masemola Rd (M9) to New making of an interactive interface
East: mixed use intensification: residential,
Ottery Rd – refer to Figure 33 • Redevelopment of existing single
commercial and industrial
on page 64 residential requires consolidation and
West of Strandfontein: coordinated development by the
• Second dwellings private sector
• 5 -12 storey residential
East of Strandfontein:
• 4-10 storey mixed use developments –
commercial developments with small scale/
light industrial development on ground floor
with offices above

Table 8: Lansdowne Wetton Corridor Land Use Strategy Nodal Identification

A number of the proposals made above assume a positive Solution using TOD Toolkit:
response from the private sector to transit investment.
There is no guarantee that this will materialise or if there In the type of market environment suggested above, the
is in fact appetite from the private sector to take up City will have to employ radical implementation tools to
some of the development proposals such as 15-storey attract private sector investment. In addition to proactive
residential units or 10-storey mixed units. Furthermore it planning measures, it may have to consider interest free
is extensively out of character with the surrounding area. loans, property acquisition (land banking) etc.
This can be seen in Figure 33: Strandfontein Road Current
Figure 32: Access Spacing Built Form, which depicts existing development along
the suggested portion of Strandfontein Road. Toward the
Solution using TOD Toolkit: west development is primarily single dwelling residential
9.2.3. Lack of Demand in TAPs:
in character whereas parcels of land toward the east are
This is considered to be a corridor level planning issue These are defined as areas which are strategic but agricultural and used for industrial activity.
and the most appropriate way forward is to relax access undesirable to the market. The lack of demand must be
requirements through a deviation from policy or downgrade further understood/investigated and mitigated to determine Most of the land parcels are privately owned, which leaves
of the class of road. Reduced access requirements from its potential. Only potential sites should be considered for the City with limited leveraging opportunities. One of the
every 90m to every 45m (allowing every second erf along intervention. To this end a greater degree of incentives most significant factors for developers is their ability to
Blaauwberg Rd to convert to business) is more desirable should be applied to attract development. These range from recover costs. The further west one goes, property prices
from a land use perspective to achieve the optimum intensity catalytic projects such as urban regeneration programmes generally tend to increase and the feasibility of investing
of mixed use development. Whilst there is a concern that which improve the marketability of the area to more in this area becomes constrained. Without leveraging a
more businesses will raise existing congestion levels and radical incentives (i.e. public subsidies, proactive rezoning, significant incentive such as land, particularly for affordable
impact negatively on vehicular/pedestrian safety, it has density bonuses, land subsidies, etc.) to reduce the cost of housing, the prospect of attracting private sector
been suggested that the level of impact would be marginal development to developers. These are only viable if the lack development interest is marginal.
due to the scale of commercial development in demand. of a demand can be remediated by resolution of issues that
Furthermore the City should embark on a blanket removal of are precluding development; however, if the area is poorly
title deed restrictions (proactive planning) to regularise the located, the use of incentives will result in development that
change of land use from a land use planning perspective. distorts the market and will require long term support in
order to remain viable. The example below illustrates how
tools can applied in this instance.

64
Figure 33: Strandfontein Road Current Built Form

9.2.5. Demand in Transition Zones: 9.2.7. Identification of Champion Projects

These are classified as areas between the TAPs and the The criteria for identification and prioritisation of TOD
City’s urban edge. Ideally one would determine the champion projects will be established by the City of Cape
appropriate form of intervention or tools through a local Town TOD Technical Working Group.
planning analysis.

9.2.6. Demand in Undesirable Locations:

These are essentially areas outside Cape Town’s urban edge
and are in direct conflict with the principles and objectives
of TOD. It is proposed that City apply extreme value
capture and development control to disincentivise private
sector led development interests in these locations.

66
10. Implementation Plan
for TOD programmes
TOD Programme Levers Actions Level of Research Timeframe
engagement to be
required undertaken
Incorporate TOD principles and objectives into the IDP B

Align Cape Town Spatial Development Framework to TOD principles, objectives and vision B

Align grant contributions in BEPP with TOD Comprehensive indicators B

Investigate and include alternate housing typologies and locations conducive to higher densities and
Institutional and Policy Alignment: Align existing land use regulations and City-policy directives with TOD B
integrated land uses in the IHSF (Integrated Human Settlement Framework)
principles and objectives
Determine the impact of TOD Comprehensive on the Densification Policy B
Institutional Alignment Incorporate TOD principle, objectives and vision into corporate strategies B

Amend road classification standards/requirements which impede incremental densification and undermine the use B
of the public transport services. B

Finalise the Western Cape Government and City of Cape Town Game Changer Model B
Change Management
Develop a TOD manual B

Corridor plans B

Strategic Planning Frameworks. New (and changes to existing) development frameworks aligned to TOD District Spatial Plans B
principles and Objectives Local Area Development Framework B

Urban design frameworks B

Catalytics Projects and Programmes Identify and implement key catalytic projects and progammes C

Establish Special Assessment Districts align to existing and new public investments/infrastructure projects B

Amend the Development Contributions Policy in line withs TAPs B

Investigate and implement land value increment taxes B

Value Capture:
Integrated Business Model Establish congestion tax B
Tools to ensure the City recovers some or all of the value that public infrastructure generates for private
landowners, to offset high operational costs Establish appropriate parking levies B

Develop a Commercialisation Strategy B

Investigate and consider the implementation of maximum parking requirements in areas where there is an
B
imbalance between development and parking.

Investigate the possibility of incorporating a monthly operational levy into the City’s Development
B
Development Controls: regulatory tools to manage urban development processes in support of transit investment Contributions Policy

Streamline land use application process for development proposals in line with TOD and located in TAPs B

Extend Urban Development Zones B

Development incentives: mechanisms to stimulate private sector development and leverage public investment
Private Sector Collaboration Investigate and consider the implementation of Private Sector Subsidies and Loans C

Establish an appropriate Property Acquisition and Disposal Policy aligned to TOD (including the acquisition,
B
Public land development programmes to leverage and expropriate land in support of transit investment lease and disposal of air rights)

Streamline lease and disposal of land for TOD type development B

Convert TAPs into an incentive Overlay zone using Section 19 of the City of Cape Town Municipal Planning
Proactive planning: anticipatory planning mechanisms to fast track development in TOD precincts B
By-Law. 2015

Investigate and consider the implementation of Government Housing Subsidies aligned to TAPs B
Civil Society Participation Public incentives Investigate and consider the implementation of Lower Development Contributions in TAPs B

Investigate and consider the implementation of potential rates discounts in TAPs B

Marketing Tools: Improve political and public palatability of TOD Establish a Marketing Campaign for TOD management B

Travel Demand Management Develop a Travel Demand Strategy A

Non-Motorised Transport Develop (update) Non-motorised Transport Strategy and design toolkit A

Key

Level of engagement required to regularise implementation tool (assumed that public participation is a fix) Municipal (within the City’s control) Provincial National (and Provincial)

Level of research to be undertaken Research Complete Research Underway Further research required

Timeframe to research and regularise tool A: 1 – 2 years B: 2 – 5 years C: 5 – 15 years

Table 9: TOD Implementation Programme

68
11. Monitoring, Evaluation and Review
This will enable the City to effectively track progress of 2
Transit Accessible Precincts (TAPs) are spatially defined
TOD objectives and improvements annually. Consideration zones used to measure the performance of the model
needs to be given to alignment with existing or future BEPP outputs (or in this context the ‘individual’). Precincts are
indicators and the rationalisation of indicators by National confined to a 500m radius from a higher order public
Treasury which is currently underway. transport station and filtered through DIMs (Development
Intensity Modifiers). They were identified based on their
level of access to the transit network.

The TOD Technical Working Group, The City’s Transport Development Index (TDI) has been
identified as an effective monitoring tool to assist the
established as part of the City of TOD Technical Working Group to track the progress of
Cape Town Transversal Management implementation of TOD Programmes as the City strives to
progressively move toward its desired end state and vision
System, is responsible for the for TOD. The first generation of the TDI was designed and
development and review of the TOD
Strategy as well as the facilitation,
developed (between 2014 and 2015) by TDA to enable
the effective monitoring (progress-tracking) of its service
delivery interventions over time by establishing a data
12. Strategy Review
coordination, and monitoring of the
driven, factual baseline for access priority costs of the
various user groups. This is invaluable as this data can be
implementation of TOD projects as analysed per Transport Analysis Zone, per income group,

defined in Chapter 3 of the approved

per corridor or across the city as a whole.

TOD Technical Working Group Terms The second generation of the TDI is currently under
development which will incorporate refinements and This document is intended to form
of Reference. improvements on the first generation in addition to a Strategic Framework for the
implementation of TOD. However it
providing the design for a data warehouse as a central
repository and control for all transport data. It is proposed
that the development of the second generation of the TDI is acknowledged that further work
and refinement is required in order
includes the measurement of the TOD Comprehensive
Land Use Scenario indicators as defined in section 5 of
Annexure A (TOD Comprehensive Technical Report) and as for it to evolve into a complete
per Table 10 below.
strategy. For this purpose the TOD
Strategic Framework should be
Key Transport Objectives Modelling Objectives Indicator Unit of Measure
updated annually for the first three
years (until 2017) and thereafter
1. Maximise trips (productions
Increase number of trips that
and attractions) in TAPs2 (Transit TAP-weighted trips
every five years as a strategy aligned
originate or are destined for a TAP
Accessible Precincts)
2. Minimise trip lengths Fewer passenger kilometres Passenger km to the term of the IDP.
Reduce travel distances
Increased number of trips aligned
to public transit lines (i.e. where
3. Maximise the number of
both Origin and Destination for trip Trips
people using public transport
occurs in a zone that is traversed by
a trunk line)
4. Minimise the difference
Greater balance in productions Productions and
between productions and
and attractions in TAZs Attractions
Generate a greater level attractions in TAZ
of seat renewal 5. Minimise the difference
Greater balance in productions Productions and
between productions and
and attraction in Macro TAZs Attractions
attractions in macro TAZ
6. Minimise the difference
Balance bi-directional
between people travelling Greater balance of trips Trips
flows
in the opposite directions

Table 10: Transport Modelling Objectives and Indicators

70
SECTION 3:
Annexure A

71
13. Annexure A: TOD Comprehensive 1. Introduction
Land Use Scenario Technical Report
This document provides a brief account of the process adopted by the City’s
Transit Oriented Development (TOD) Working Group to produce a land use
scenario entitled “TOD Comprehensive”.
Contents
1. Introduction
2. Problem Statement
74
74 2. Problem Statement
3. Transit Oriented Development – Definitions, Principles and Objectives 75
4. Background and Purpose of TOD Comprehensive 76
5. Methodology 77 Cape Town’s urban form and structure is characterised by dispersed development
6. Preliminary Findings 83
6.1. Transport Optimisation 83 patterns and inequitable access for many of its citizens. In part, this can be attributed to
6.2. Land Use Optimisation 85 segregated apartheid planning, but more recently has become a trend exacerbated by
6.3. Preliminary review of the optimisation processes 89 socio-economic reality (inequality). Population and residential densities in many of the
7. Way Forward 90
8. Risks 92 formally developed areas of the city remain extremely low by international standards
and access is further constrained by mountain and sea. This has led to the development
List of Figures of poorer residential communities in locations far away from employment and
Figure 1: Schematic Depiction of the TODC Methodology 77 opportunities (i.e. jobs, education and public amenities), making the cost of providing
and using high quality public transport unsustainable (for the City and households).
Figure 2: Genetic Analogy 79
Figure 3: Land Use Optimisation Process 80
Figure 4: Reaching Equilibrium 81
Figure 5: Scales of TOD Planning 82
The Integrated Public Transport Network (IPTN) planning peak. This represents an inefficient and costly travel
Figure 6: Current trips 83 exercise emphasised the need for a more comprehensive pattern, compounded by the need to provide fleet sizes
Figure 7: Spatial allocation of new trips following transport optimisation process 84 approach to TOD and to develop a land use scenario that to accommodate the dominant direction of passenger
Figure 8: Potential Optimisation Improvements 85 incorporated sustainable transport planning principles movements. An optimum mix between residential and
Figure 9: TOD Land Use Scenario depicting growth only 86 into assumptions for future urban growth. Practically, the work opportunities in centralised locations is necessary
Figure 10: TOD Land Use Scenario depicting current and future development 86 transport network must respond to the demand for travel to effectively improve tidal flows by providing
Figure 11: Non-Residential demand and supply 87 and is informed by the spatial patterns of the city that will, bi-directional demand for movement and therefore more
in turn, determine the cost efficiencies of the network. It efficient utilisation of vehicles.
Figure 12: Residential demand and supply 88
was therefore important to generate a land use scenario
Figure 13: Unmet demand 89 c) Limited seat renewal: The travel behaviour along
that supported sustainable patterns for travel. The cost
Figure 14: Citywide process to institutionalise TOD 91 efficiencies of the proposed network are vulnerable to the corridors in Cape Town is primarily line haul where a
following key themes: full bus leaves its origin and reaches its destination with
List of Tables marginal boarding and alighting along that corridor.
a) An extensive feeder network: The City’s public transport This pattern is less efficient when compared to a system
Table 1: Transport Objectives and Associated Land Use Interventions 75 network is being planned to meet internationally- servicing shorter trips where there is significant boarding
Table 2: Transport Modelling Objectives and Indicators 78 accepted standards, which applied to Cape Town’s and alighting evenly spread along a route. Corridors that
current spatial patterns would make them costly and have a number of active and well-intensified nodes and
financially unstainable to operate. For example, one precincts along its length, generate a greater level of
requirement is that 80% of the population are located seat renewal (i.e. the number of times a seat is used by a
within 500m walking distance of a station or stop. As a different passenger along a single vehicle trip).
result, an extensive feeder network is required to serve
communities in sprawling low-density areas, reducing the d) Longer travel distances: South Africa has high levels of
financial sustainability of the network. income inequality, with a significant proportion of low
income households using public transport and located
b) Prevalence of tidal flows: The spatial fragmentation of in distant locations from opportunities. This combined
residential areas from places of work results in single with other factors increasing costs, places large financial
direction commuter demand from point to point. burdens on Cape Town’s vulnerable but also leads to a
Consequently, the majority of public transport vehicles higher subsidy requirement for fares.
are required to service this demand pattern during

74
 4. Background and Purpose
e) High peak-to-base ratios: The city has high peak demand To address the integrated urban development and transport
requirements and low off-peak demand, which makes challenges in the city, TDA and the former EESP directorate
public transport expensive to operate, since much of identified TOD as a practical solution.

of TOD Comprehensive:
the investment (capital and operational) is significantly
underutilised outside of the peak periods. Uniform work
and school times, and the location of homes away from
economic and social activity are the main contributors to
this inefficiency.

On 25 June 2014, Council approved The approved IPTN was primarily informed by a Pragmatic
Transit Oriented Development (PTOD) urban growth land use
the City of Cape Town’s Integrated scenario. This scenario did not explore the holistic benefits
Public Transport Network (IPTN), of embracing TOD as a long term development strategy

3. Transit Oriented Development –

to its fullest extent or adequately consider the potential
a network plan intended to guide of brownfield development. To effectively address these
the development of rail and road- limitations, the IPTN Plan recommended the formation of

Definitions, Principles and Objectives

TOD Comprehensive, a fourth land use scenario which best
based transport infrastructure to encompasses the core principles of sustainable development
accommodate existing and future with the potential to influence optimum public transport
movement in Cape Town more affordably, accessibly and
travel demand within the city. The year efficiently. The purpose for developing TODC is to assess its

2032 was chosen as a possible future

impact on the preferred IPTN and to quantify the benefits of
In line with the 2032 approved 1. Affordability – reduce the cost of public transport to TOD (i.e. lower operational costs) using a performance based

IPTN plan TOD as it applies to the

commuters and the cost of providing public transport to state for the IPTN in Cape Town. model linked to the TOD principles approved as part of the
the City. 2032 IPTN (referred to page 74). Furthermore a list of land use
City of Cape Town is defined as a 2. Accessibility – facilitate equal access to social and
assumptions was developed in the IPTN to guide the direction
of TODC (refer to Annexure A).
long term development strategy to economic activity through strategic urban development
address spatial inequality, improve and the provision of safe public transport. It is important to note that the product of this process is not
meant to be a policy, strategic framework or development
public transport affordability, and 3. Efficiency – provide an environment and level of service plan; it is an analytical exercise to determine the extent to
that reduces trip lengths and dependence on private
arrest sprawl, which is driven by
which TOD benefits might be realised. Whilst the focus for
vehicles. this model has been, to a large degree, based on theoretical
the integration of sustainable 4. Intensification and Densification – manage the desired
possibilities, there are many policy implications which stem

public transport and strategic

from this process, especially if the latter is proven. Therefore
form, composition and location of urban development new principles, ideas, implementation tools and land use
land use intervention and built
conducive to affordable, accessible and efficient public interventions, which flow from this study, should become
transport. the precursor for the TOD Strategy to manage the urban
on the principles of affordability, The principles set out above represent ideal characteristics development process in support of transit.
accessibility, efficiency, intensification of a sustainable public transportation network and urban
and densification. The core TOD development context, thus give effect to the following key
transport objectives and associated higher level land use
principles are defined on your right: interventions:

Transport Land Use

1. Reduce travel distances: to reduce the cost of commuter Intensify and diversify urban development in close
travel and improve operational viability of public transport. proximity to public transport stations.
2. Optimise bi-directional flows. Promote an appropriate mix and form of residential,
social and economic activity between urban nodes along
higher-order public transport corridors.
3. Generate a greater level of seat renewal (balancing trip Promote an appropriate mix and form of residential,
attractions and productions). social and economic activity between district and local
nodes along higher-order public transport corridors.

Table 1: Transport Objectives and Associated Land Use Interventions

76
5. Methodology A description of the key process followed is described below:

1. Transport Optimisation
Transport optimisation employs a heuristic model to intensification and densification – see Table 2 on below).
spatially assign the future travel demand patterns, namely The optimised trip distribution pattern generated using this
trip productions1 and attractions2 across the city, using approach is an improvement over the previously assumed
indicators aligned to the core principles and objectives of land use pattern generated by the PTOD scenario. The
Taking the previous principles into account the TOD Working Group conceived the following methodology to develop TODC: TOD (i.e. improving public transport affordability, efficiency indicators used to optimise the 2032 land use distribution are
and accessibility, and encouraging greater levels land use listed in Table 2:

1. Transport Optimisation
Inputs Integrated Transport and Unit of
Modelling Objectives Indicator
Land Use Objectives Measure
Optimise trip productions and TAPs - Transport Accessible Precincts
attractions in a way that facilitates a Zone Structure 1. Maximise trips
sustainable efficient, accessible and IPTN (productions and Increase number of trips
TAP-weighted
affordable public transportation network PTOD attractions) in that originate or are
trips
TAPs (Transit destined for a TAP
TOD Principles Accessible Precincts)
2. Land Use Optimisation Reduce travel distances: Fewer passenger
Inputs Intensify and diversify urban 2. Minimise trip lengths Passenger km
kilometres
Determine extent to which an optimised Optimum set of trips - output of step 1 development in close proximity Increased number
transport network can be accommodated valuation data, zoning, parking to public transport stations. of trips aligned to
when taking into account existing
zoning rights, parking requirements
requirements, census population Accessibility 3. Minimise the number public transit lines (i.e.
and residual land rights.
employment data, future development
of people using public where both Origin and Trips
potential
transport Destination for trip
occurs in a zone that is
Possible Impossible traversed by a trunk line)
Efficiency
Generate a greater level 4. Minimise the
Greater balance in Productions
of seat renewal: difference between
productions and and
productions and
Promote an appropriate mix attraction in TAZs Attractions
attractions in TAZ
Further optimisation Affordability and form of residential, social
and economic activity between 5. Minimise the
district and local nodes along difference between Greater balance in Productions
A combination of transport and land use optimisation productions and productions and and
to determine HOW to accommodate the remaining higher order public transport attractions in macro attraction in Macro TAZs Attractions
trip productions and attractions (demand) and without corridors.
compromising the sustainability of the optimised Densification TAZ
transport network. Balance bi-directional flows:
Promote an appropriate mix and 6. Minimise the
Intensify Development: Intensify Employment Density Relocate residual trips form of residential, social and difference between
Increase the building (no. of people per m²). (unmet demand) to people travelling Greater balance of trips Trips
Implications Intensification economic activity between urban in the opposite
floor area by changing land sub-optimal transport zones.
nodes along higher-order public directions
use regulations and/or policy.
transport corridors.
Sensitivity Testing

3. Reaching Equilibrium
Assign land use scenario in EMME
to check if actual TOD benefits occur A combination of the above may be required. Table 2: Transport Modelling Objectives and Indicators

Implications

The heuristic method uses a genetic algorithm (based on The indicators are then used to measure each individual’s
NSGA-II3) to produce a series of trip productions and attractions, performance according to their specific modelling objectives
referred to as a generation. The generation contains a population in Table 2. The score of each individual within the population
TOD Comprehensive made up of individuals. An individual is made up of a set of trip is weighted and ranked. The group of individuals is then
productions and attractions (refer to Figure 2 for conceptual assigned into pairings using a semi-random process, and the
depiction). In this context the PTOD scenario is seen as an characteristics from each individual are shared to produce a new
individual, thus the algorithm produces ‘genetically enhanced’ or set of individuals. The model then scores the new individuals
4. Implementation improved variants of it. using the same performance indicators. This is followed by a
process of natural selection or until the best individual, or the
Figure 1: Schematic Depiction of the TODC Methodology most optimum transport network, has been identified.

1
Trip producing residential locations
2
Trip attracting activities e.g. employment, school, shopping etc.

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 POPULATION GENERATIONS

Potential
CHARACTERISTICS

Land Use Optimisation

Land Use Intensity and Mix
Residential
Production P
ns
io
uct
od
Pr Attraction
A
ons
a cti Transport
tr
at Optimisation
Parking

Land Unit
Figure 3: Land Use Optimisation Process

3. Reaching Equilibrium
If the demand (optimised set of trip productions and Taking the above into account, equilibrium in the context
attractions) cannot be contained within the existing of TOD is reached when land use and public transport
INDIVIDUAL regulatory land use environment (referred to as the become mutually beneficial (or where they positively
supply5) - the unmet demand6 will require further reinforce one another). This phase can therefore be seen
transport and land use optimisation to determine the as an iterative and dynamic continuum (see figure on
extent to which it can be accommodated through further page 76) where each optimisation process becomes more
intensification of building floor space (persons per m²: refined and informative to the other. It seeks to find the
household size/employment density) or relocation to optimum balance between sustainable public transport
neighbouring TAZs, and without compromising the and strategic long term development, and identify where
sustainability of the optimised transport network. future development patterns and regulatory parameters can
be modified to accommodate an optimum transport network
Figure 2: Genetic Analogy
(this may require further transport and land use optimisation).
2. Land Use Optimisation
The initial stage of land use optimisation determines if the It is important to note, whilst density does not feature as a key
product of the optimised trip productions and attractions (step input into the model; it is dealt with in the spatial allocation
two), also referred to as the demand4, can be accommodated and concentration of trip attractions and productions. In this
within the current development regulatory environment. This phase of the methodology productions will be converted
is achieved by calculating the supply or the total available to dwelling units and attractions to GLA. Therefore density
building floor area (dwelling units and GLA) for development should be viewed as an output of the optimisation process,
within each transport zone using existing land use regulations ideally to manage the form of optimised productions
such as zoning rights for under-developed/partially developed (residential growth) and attractions (commercial and public
land (greenfield sites) and residual potential of current facility growth), in support of the grade/level of transport
developed sites (brownfield sites), parking requirements and network in the IPTN.
forward planning policy (refer to Figure 3 on page 79). The
full set of land use assumptions used to calculate the supply is
listed in Annexure A.

5
Supply: The total available building floor area for development converted into dwelling units and GLA.
4 6
Demand: Optimised set of trip productions and attractions (product of step 2) converted into dwelling units and GLA. Unmet demand: The demand which cannot be accommodated through the available supply.
80
 4.1. The TOD Toolkit
It is proposed that the TOD strategy is amended to introduce a TOD ‘toolkit’ of parts as mechanisms categorised in terms of the
TOD ‘scales of intervention’ i.e. Metropolitan level, Corridor level, Nodal and Precinct level. This is important to institute TOD at
a high level, highlight the significance of implementation and expedite the selection of appropriate tools to implement TOD at
the different scales of planning.

1. Metropolitan
Planning/Interventions at this scale centre
Transport Land Use around policy and long term visioning to
Optimisation TODC Optimisation establish the broader principles and
objectives of TOD.

2. Corridor
Integrated transport and land use planning at a
Metro
corridor scale is required to give context to local
area and precinct planning initiatives. This will
promote land development along selected
transit corridors, where the combination of
transport investment and development would
optimise the utilisation of transport.

Equilibrium Nodal

Figure 4: Reaching Equilibrium

Once equilibrium between transport and land use has been 4. Implementation 4. Precinct
achieved, further sensitivity testing will be conducted to At the lowest level, the Precinct
improve the authenticity of the model output. These, inter Implementation is a by-product of the optimisation process. Plan must ensure appropriate
alia, may include: Throughout the course of developing TODC, multiple policy urban design and placing
levers and tools were identified to explore the practical and of infrastructure and facilities, in
• Assigning a different weighting to transport indicator policy implications likely to be encountered should TODC be support of both the higher order
• Assigning a different weighting to TOD precincts implemented, particularly in light of current market realities. corridor and local destinations
This process set out to determine the mechanics required within the node or zone.
• Spatially allocating future trips along existing transport
infrastructure to facilitate a radical shift from the current behaviour and
practice associated with business-as-usual development to
• Spatially allocating future trips along existing and
approved transport infrastructure
an approach aligned to the principles of TOD. 3. Nodal/Local Area
Urban nodes are characterised by
• Redistributing existing development (i.e. temporary For example what changes to the existing regulatory the intensity, mix and clustering of 5. Projects and Programmes
human settlements) land use environment are necessary, how does one activity or land use. Nodal planning Projects and Programmes are identified
• Incorporation of ECAMP stimulate the market’s appetite to respond to TOD? The attempts to consolidate and define in the Nodal and Precinct planning stages.
mechanisms resulting from this process will feed into the the role of the node or zone in They are seen as practical mechanisms to
After the TODC scenario has been adequately tested City’s TOD Strategy. the context of the corridors. The improve the quality and attractiveness of
it will be periodically reassigned into the EMME model aim is to determine the desired the urban environment in order to facilitate
density and mix of land use within the contextual objectives of TOD at the
to quantify the exact impact of the proposed land use
the study node or zone. appropriate scale.
scenario on the 2032 IPTN (specifically to determine the
operational savings that can be realised).

Figure 5: Scales of TOD Planning

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6. Preliminary Findings
Demand Pie size depicts intensity of use (largest pie = 24000 Ps + As)
Pie split depicts diversity of use (Residential Vs. Non-residential
Following Transport’s Optimisation Process

6.1. Transport Optimisation:

Following the transport optimisation process, Figure 7 shows trip attracting land uses. This requires the development
the optimal location of new trips in 2032 per TAZ based on of more residential opportunities in existing economic
the six indicators discussed in section 5. The yellow depicts areas/nodes.
new trip productions (generated from future residential • There is also a need, although not as prevalent as above,
development) and the red, new trip attractions (generated to locate more trip attracting land uses (economic
from future non-residential development such as retail, office, and social opportunities) in TAZs that are dominated by
industrial and community facilities). When juxtaposed to the residential development, most noticeably in the Metro
current spatial distribution of existing trips (refer to Figure 6) South East (MSE).
the following key conclusions can be made:
• The optimised scenario in figure 7 illustrates a more
• An increase in trip producing land uses in TAZs located compact distribution of future growth with less growth
along transport corridors that contain high levels of towards the edge of the city.

Pie size depicts intensity of use (largest pie = 24000 Ps + As)

Current Situation Pie split depicts diversity of use (Residential vs Non-residential)

Figure 7: Spatial Allocation of New Trips following Transport Optimisation Process

Theoretically, if the City manages to locate the exact quantity and ratio of trip producing and attracting land uses per TAZ as depicted
in the map above, the following integrated transport and land use efficiencies may be achieved (refer to Figure 8 on page 84):

Figure 6: Current Spatial Distribution of Trips

84
 Initial TOD Comprehensive Scenario (Growth Only)

1 DOT EQUALS(=) 5000 M²

Residential
Economic

Figure 9: TOD Land Use Scenario Depicting Growth Only

Initial TOD Comprehensive Scenario (Existing development + growth, excluding unmet demand)

1 DOT EQUALS(=) 5000 M²

Residential
Economic

Figure 8: Potential Optimisation Improvements

It must be noted that the figures above represent an 6.2. Land Use Optimisation
improvement from the PTOD land use scenario (which was
used as basis for developing the IPTN). The initial output of the land use optimisation process
can be seen in Figure 9 and Figure 10 on page 85,
which expresses the transport ask (trip productions and
attractions) in the form of dwelling units and GLA. Figure
9 illustrates the future demand in terms of residential
and economic development and Figure 10 depicts total
development (existing and future).

Figure 10: TOD Land Use Scenario Depicting Current and Future Development
86
The following maps (Figure 11 and Figure 12) show the comparison between transport demand (converted into dwelling units and Demand And Supply: Residential
GLA) and available land use supply (calculated using the parameters identified in Section 5 and Annexure A). Transport demand
Demand And Supply: Non-Residential
Land use supply
Transport demand

Land use supply

Demand: transport optimised
allocation of projected future
growth
Demand: transport optimised
allocation of projected future
Supply: underdeveloped land;
growth
undeveloped land (vacant,
Supply: underdeveloped land; greenfield, infill)
undeveloped land (vacant,
greenfield, infill)

Figure 12: Residential Demand and Supply

Figure 11: Non-Residential Demand and Supply The figures illustrate that it is theoretically possible to will be employed in the next phase of the methodology to
accommodate a significant portion of the transport best accommodate the optimised transport network where
demand (optimised trip productions and attractions) via sustainably/spatially appropriate. This will be done by
residual floor area from latent development rights and/ adjusting the following variables:
or vacant land that will give effect to the integrated
efficiencies depicted in Figure 8. However a number of a) Land use mix and intensity of use of building floor space
core economic nodes within the city do not have sufficient (persons per m²: household size/employment density)
capacity (residual floor area or vacant land) to absorb b) Space recovered through parking zone change (lower
the demand for new residential development (or trip parking requirement)
producing land uses), depicted in Figure 13 on page 88. c) [a] and [b] further optimised through rezoning/
Most noticeable are some of the core urban nodes in departures from standard development rules (height,
Cape Town CBD, Century City and Bellville. To address coverage, floor factor)
this shortfall in land supply further land use optimisation
d) Relocation to adjacent TAZ with spare floor area capacity

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 7. Way Forward
Unmet Demand

Unmet transport
demand for residential

Unmet transport
demand for
non-residential
The development of TOD The product (land use scenario) and model at this phase of
the methodology requires further optimisation, iterations,
Comprehensive represents a testing and peer review to accommodate the unmet
highly complex and nuanced demand and improve its reliability and authenticity. The
end product must then be used as a key strategic informant
methodological approach to into the City’s development plans at the metropolitan scale
integrated land use and transport of planning to identify the ideal locations of new residential
and non-residential development.
planning. Its potential as a modelling
Although the land use scenario may not be finalised at
tool to inform future urban growth present, it shows the City’s intent to progressively move
and travel demand is unprecedented from PTOD to TODC. Therefore outputs from this process,
particularly the implementation component, must be
and could add significant value to contextualised within the TOD strategy whilst the final
the City’s development strategies scenario undergoes further review.

(i.e. the IHSF, MTIIF, CTSDF etc.). At the date of submission of this report, the TOD working

This is reflected in Figure 14 on

group completed stage two of the methodology to
develop TODC (refer to Figure 1 on page 76) and will
page 90, which identifies TOD effectively move on to Stage 3, Reaching Equilibrium.

Comprehensive as a key input

into the citywide process to
institutionalise TOD within the City
of Cape Town’s administration.
Figure 13: Unmet Demand

6.3. Preliminary Review of the Optimisation Processes

6.3.1. Transport Optimisation Process: 6.3.2. Land Use Optimisation Process:
• Heuristic optimisation provides an excellent method • Quantifying the existing land use is a long, complex,
for optimising multiple and conflicting parameters. The manual process which requires the use of a variety of
process is in itself heuristic and is being refined along the sources.
way particularly regarding the data. • Filling the gaps in the data requires inventive, iterative
• The process is very time and resource-consuming. work and a significant amount of time. However, the
Computational resources are especially problematic, work done on establishing the base year (current) land
because the algorithm used in both the transport and use picture can be incorporated into many different
land use optimisation modelling relies on proprietary processes and initiatives e.g. MTIIF.
software (EMME), so modelling is restricted to a single • Parking provision plays a significant role in the intensity
instance of the programme at any one time, limiting of the land use that can actually occur. Where rights
the opportunities writing the script to accommodate for intense land use may currently exist, these may in
parallel processing. In order to facilitate effective and practice be significantly reduced by parking provision.
speedy completion of the ideal scenario, and conduct
• Not everything has been taken into account e.g. physical
the relevant sensitivity testing identified previously, a list
restrictions, title deed restrictions, heritage restrictions
of the computational resources required to complete this
etc. therefore could be overestimating the possible land
exercise can be found in Annexure B.
use availability (residual development potential).

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 Citywide Process to Institutionalise TOD

New IDP WHAT are the parameters

necessary to achieve
TOD in Cape Town?
8. Risks
Whilst the process to determine TODC is based on a form of scientific logic,
BEPP particularly the quantification of development rules and zoning rights, one must
Cape Town Spatial Development
remember this is still a theoretical exercise where multiple assumptions have
Framework Review been made, in part to compensate for the quality of information/data available
Densification Policy
District Spatial Plans and address details which are unknown at this level of planning, but largely to
Local Area Plans push the boundaries of existing development trends.
Medium-Term Infrastructure In light of the above, we find that the application of the TODC land use scenario in its current stage of the methodology
Investment Framework should be limited to the context described in this report.

Comprehensive Integrated
Annexure A: TODC Land Use Assumptions from the 2032 Approved IPTN Plan
Transport Plan (CITP)
Assumption Intention Modelling Mechanism
Household income and land value To enable development to be located Disregard land value and allow the spatial
will not impact where residential in a way that supports transit distribution of residential units to locate
2032 Integrated Public WHERE is future development is located where strategically required
Transport Network Plan (IPTN) development and travel
Development will be allocated to To focus development in priority transit Investigate current land use patterns/mix
demand located to give
effect to TOD? priority transit areas using existing areas and make use of existing rights, (zoning).
The TOD principles were adopted by Council
theoretical maximum permissible/ but to allow for further development if
through the approval of the 2032 IPTN Make use of overlays to increase
deliverable rights, and then – if the aforementioned is insufficient
additional development is required development potential (e.g. DPZs, PT1/2
– rezoning/amendment of land use zones, Urban Development Zone etc.) or
TOD Strategy and TOD Comprehensive
rights will be applied decrease development potential where
Land Use Scenario
development is encumbered (e.g. road/
railway reserves, biodiversity areas, etc.)

Estimate the available rights using highest

and best-use assumptions
Parking requirements will be adjusted To remove the restrictions placed on Apply reduced parking requirements to
IPTN Rollout Plan WHEN are corridors according to the provisions of Public bulk7 by reducing parking requirements properties that fall within the PT1 and PT2
IHSF Rollout Plan prioritised for
TOD implementation?
Transport (PT) zones. If this reduction zones
City Implementation Plans is not sufficient, further reductions
will be modelled It will be assumed that parking will only be
Growth Management Plan
provided on site (i.e. around the building
footprint and by making use of one
basement parking level)
Land use intensity and land use mix is To use development type and mix in Use existing volume/capacity ratios on
allocated according to best location locations that take up existing, unused transit network to allocate development
for transit capacity utilisation public transport capacity to use
HOW is TOD implemented the public transport network more
and WHO are the
Implementation Tools for efficiently
key role players?
Public and Private Sector Development: Development is geo-fenced to To illustrate the possible implications Demarcate a TOD study area along
existing and planned higher order of concentrating development around existing high-order (BRT trunk and rail)
Metropolitan public transport infrastructure the major public transport network in a public transport infrastructure
Corridor way that supported the public transport
network
Nodal
Precinct
Project and Programme

7
 ulk is a commonly used term that refers to building magnitude in three dimensions. It is determined by applying all the
B
Figure 14: Citywide Process to Institutionalise TOD development rules relating to a particular zoning, namely floor area ratio, coverage and height.

92
Annexure B: Computational Requirements
Transport Modelling:
Desktop Computer (for productivity) with the following specifications:
• 3GHz Intel Xeon or Core i7 processor
• 32GB RAM
• 4GB GPU
• 500GB SSD
• 64bit OS

This kind of workstation is expensive, usually costing around R50 000.

Land Use Modelling:

Computers must be able to store a lot of data and be able to handle 3D software (CityEngine).
Desktop Computer (for productivity) with the following specifications:
• 3.9GHz Intel Core i7-3970 CPU
• 32GB RAM
• 2 x 1TB SSD HDD
• 2 x 4TB HDD (fast access)
• 64bit OS
• Nvidia K2200 (or better) graphics card
• 27” LED monitor with support for 2560 x 1440 pixel (WQHD) resolution
Laptop Computer (for productivity and mobility) with the following specifications:
• Intel Core i7 processor
• 16GB RAM
• 1 x 1TB SSD HDD
• 1 x 4TB HDD
• 64bit OS
• High performance graphics card

94
 Contact Details

[email protected]
12 Hertzog Boulevard, Cape Town, 8001, South Africa
PO Box 298, Cape Town, 8000, South Africa
Twitter: @TDA_CapeTown
Facebook: TDACapeTown
Website: www.tda.gov.za

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