SPATIAL DEVELOPMENT

For spatial development the Gautrain is a very important structuring element fundamentally because it will set in motion a new urban form.  It will also endeavour to create more effective and efficient environments than exist presently.

The Gautrain’s project team explored the role in the spatial development of Gauteng and assessed to what extent the Gautrain meets prevailing planning criteria.  Gautrain can and will facilitate new spatial development which is much needed and desired in the Province.

1. Spatial foundation of the Gautrain

The foundation for the Gautrain and all spatial planning which is part of this project is embedded in two parallel strategies that were initiated by the Gauteng Provincial Government.  On the one hand there is the Gauteng Spatial Development Framework (GSDF) 2000 and on the other hand the Gauteng Spatial Development Initiatives (SDIs).

Both strategies seek sound provincial development. The end results of these two strategies are effectively aligned – both intending to direct the Province towards efficient and effective form.  The GSDF focused on achieving development by implementing spatial planning principles and improving the urban form and the SDIs focussed on achieving development through economic growth, direct investment and in creating the smart Province.

Whereas the Gautrain emerges as one of the SDI projects, the GSDF provides key spatial development guidelines for future development in Gauteng.  Hence, the Gautrain’s alignment with these principles is necessary to meet the spatial criteria of Gauteng.

The GSDF based the Province’s future development on five critical factors, which are resourced-based economic development, contained urban growth, re-direction of urban growth, rural development beyond the urban edge and mobility and accessibility.  It is evident that the Gautrain meets these criteria:

• Resource-based economic development: Urban advancement cannot be achieved without economic growth and economic growth can best be achieved if prevailing resources are used, which is a principle of both the SDIs and the GSDF.  The Gautrain for one aims to achieve economic development as a spin-off, is in itself an economic project which will achieve direct investment and will connect the core economic areas (viz. the resources) of the Province.
• Contained urban growth: Sprawl and unnecessary urban expansion are widely discouraged, owing to direct and indirect costs to government and distortion of the urban form.  To contain unwanted growth, a provincial urban edge has been delineated, which aims to compact the city, improve the utilisation of resources, preserve the rural environment and give structure and form to the city.  However, compact form is not only dependant on an urban edge, but is also dependant on urban intervention elements such as the Gautrain, which fundamentally necessitates increased densities to enhance feasibility.
• Re-direction of urban growth: The current settlement pattern cannot be sustained in the future and in ensuring a new pattern of settlement a catalytic development element, such as the Gautrain, is required.  The proposed Gautrain Rapid Rail Link will be contiguous with existing and future urban areas and will, therefore, impact on the future composition of these areas.  Since the rapid rail system wants to achieve high levels of ridership, urban structure and density will have to be revised.
• Rural development beyond the edge: Rural development is to be protected by the urban edge, thereby creating distinctive urban and rural areas.  The Gautrain will not serve the rural areas and will therefore, on the one hand strengthen the urban area and on the other hand promote rural retention.
• Mobility and accessibility: The GSDF indicates that people in Gauteng will always be reliant on a high level of mobility and accessibility because of the presently dispersed settlement pattern and a culture of private transport.  Mobility must be enhanced to improve the movement of people, goods and services, both for public and private transport.  But owing to ever-increasing road congestion authorities are forced to introduce alternative means of public transport of which a rapid rail system is a most obvious solution.

The above are evidences that the Gautrain is in line with the fundamental spatial planning principles that underpin the GSDF and that such a system will complement the existing and new urban form and in fact, expedite transformation of the old to the new desired urban form.

2. Gautrain:  creating new urban form

There is no doubt that the Gautrain will be highly influential in shaping the future urban form in its proximity, as firstly it centres on the core economic area of the Province, secondly it brings with it many development opportunities which the private market is certain to identify and explore and thirdly density and land use changes are inevitable.  Thus, a medium to long term outcome of the Gautrain will be the creation of a new urban form.

The new urban form will centre around the two key spatial components of the Gautrain, viz. the stations and the railway line, each having different developmental requirements and thus having different spatial impressions.

3. Spatial concept of the Gautrain alignment

Having stated that the Gautrain is certain to affect spatial development it is necessary to briefly reflect on the current urban form in order to comprehend spatial changes to be attained from the Gautrain.  Following is a brief conceptual description illustrating the transformation of the urban form.

4. Principles of spatial development along the railway line

Presently private transport is the major mode of transport and is desired because it grants freedom of movement.  Movement is determined by roads which essentially relate to a grid system and the provincial grid facilitates sprawl at a regional level.  Urban development has seldom been hindered and so typically occurred in a concentric fashion radiating out from the development centre.  Not being confined by an urban edge or development perimeter new nodes developed on the outskirts of existing nodes and so sprawl thrived.

The Gautrain endeavours to change this ‘free’ pattern of development within its proximity, by defining a development edge, in which nodal development will radiate out in an oblong pattern since it will be confined in the linear railway line corridor.  In effect a linear rail way corridor will be established and the nodes will act as “beads-on-string”.  Where nodes meet, opportunities for new nodes and station development are created.

Thus, future spatial development with respect to the Gautrain should be delineated linearly to define a corridor of intensive urban development.

4.1 The concept of spatial development applied in Gauteng

Superimposing the concept on reality, the following urban pattern in linear form could be attained.

The study area comprises two established centres or towns, viz. Greater Johannesburg and Greater Tshwane, which are the cornerstones of economic activity in the Province.  Transforming established areas is more difficult than less developed or undeveloped areas (greenfields).  Accordingly policies must be formulated for densification.  This will be particularly important in proximity to the stations, where both increased densities and a mix of uses are desirable.  The development concept is illustrated in the sketch below.

Greater Johannesburg and Greater Tshwane are connected by the N1 and R21. The latter linking up with the R24 via OR Tambo International Airport.  At the midpoint of this connection is Kempton Park, which, though established has inherent opportunities for intervention.

Along these major connecting roads, development is taking place to establish new, highly accessible nodes.  Mobility, accessibility and visibility are real economic variables that have influenced the location of industries and businesses, hence influencing spatial form.  The latter has resulted in the development of places such as Centurion, Midrand, Linbro Park, Spartan and Isando.  Hence, between the two old towns, to the north and the south, new centres have developed, are developing and will develop to strengthen the connections.  As shown in the accompanying sketch, these areas can be regarded as new towns.  These towns offer the greatest opportunity for intervention and for establishing a new urban form and spatial pattern.

The development pattern described above is underpinned by economic criteria and the present road system, comprising the N1, R21 and R24.  The Gautrain rail system will surely strengthen the development pattern, as it will enhance access, mobility and visibility.  In addition, like the road system, the rail will have a linear alignment and will therefore promote the creation of a linear urban form.  The functioning and sustainability of the rail system will depend on ridership.  Hence, it is important that the urban form be compacted along the central spine to create a high intensity urban environment.  Accordingly, an edge, should be defined to restrict outward expansion.

Within this urban spine, nodal areas should develop like beads-on-a-string, where the ‘bead’ represents the centre of economic activity, around which high-density residential development takes place.  Such a nodal cluster together with the surrounding support area can be regarded as a new town.  New towns include Centurion, Midrand, Modderfontein and future nodes to emerge along the R21.  Guidelines for new town development are:

• Economic and employment opportunities must exist and should be provided.
• General amenities should be located within or near to the node to improve access and reduce private transport.
• The areas should cater for a mix of income groups (not only low or high income residents).
• The target for residential densification should be set at a gross residential density of at least 20 dwelling units per hectare within the new town areas over the next 10 years.
• The residential areas should consist of three to four storey buildings (not town houses or single residential units).  This is a minimum requirement and can be increased to achieve more efficient urban spaces.
• An inward focus for the rail should be encouraged.

Beyond the railway line corridor, lower density development can occur.  There will always be a market for country living or golf estates and these should, therefore, be accommodated.  This type of development will be reliant on private transport because of its dispersed nature.  Hence, it must be situated outside the corridor.

Cognisance should be taken that the rail system will not and cannot replace the extensive road systems that exist, but the two should operate in support of one another.  Hence, an integrated modal system is to be established.

5. Spatial concept of the Gautrain stations

It is reasoned that the stations may have a greater spatial role than the railway line because the stations are the point of contact between the train and the urban environment and between the users and the transportation system.  Thus, the stations are the key intervention area to create a new spatial environment / urban form.  The critical focus is to achieve ridership or patronage with a view of creating long-term sustainability.  Ridership can be created by improving access to the train whether through effective feeder and distribution services and or by developing the right type, mix and density of uses around the station.

5.1 Station development principles

The following essential principles relate to station development and will therefore inform spatial form:

Densities
It is important that a certain density exists or is attainable to ensure that there are or will be enough people within a determined area who will use the train.  The more densely populated an area, the higher its potential ridership.  According to international examples, a gross density of ±25 dwelling units per hectare should be able to attain acceptable ridership levels.  Without sufficient density, proper feeder and distribution systems become critical.

Access to the station
Access determines the ease with which people can reach the station to use the rail as a means of transport.  In areas of dispersed settlement, access is more complex because the time, money and effort incurred to reach the station is higher than in densely populated areas.  To promote access in less dense areas, complex feeder and distribution systems need to be established to facilitate access to the station, whereas, in concentrated areas, people can effectively reach the station by walking, requiring limited expenditure.  However, walking is restricted to a defined area because people are seldom willing to walk for longer than five or ten minutes to reach the station.  Thus the area of high density must be no more than ten minutes walk from the station.

Different types of floor space generate different types of trips
Land use influences ridership and hence appropriate uses should be established to advance ridership and to achieve densities.  Residential development (with the correct density) is the prime land use for trip generation, because people need and want to move around. Therefore, residential development in and around the station area and along the length of the line is important.  Retail sites generate 10 times more trips per unit than office space, indicating that retail facilities can act as anchors to encourage ridership to a specific destination (station).  This type of ridership also occurs during off-peak periods.  Compared to retail space, office space has higher peak period trips, as people travel to and from work on a daily basis.  To achieve office-based travel, good feeder and distribution systems must be provided, as well as ample parking, park-and-ride facilities and safe walking areas.  Manufacturing and warehousing have a limited impact on train trips, possibly because of the reduced density of people in these establishments.  It evidences that a land use mix is desirable to ensure that each station can act as an origin and destination and that two-way travel is achieved which makes the rail system more cost effective.

Thus, where station development is concerned the following should be undertaken:

• Maximise ridership;
• Increase residential densities;
• Strengthen existing land uses; and
• Increase the land use mix.

Applying the above will certainly lead to the creation of a different more intense urban form particularly around the stations.

5.2 Development proposals for the individual Gautrain stations

Each station is unique and therefore requires a unique solution to advance future development.  Thus the new urban form will vary from station to station as future development will also be informed by the present environment in which the station is located.  Greenfields stations offer greater opportunity for intervention, while stations in developed areas (brownfields) will be important in establishing initial ridership and demand.

5.2.1 Johannesburg Park Station

Since Johannesburg Park Station is located in the Johannesburg CBD which is a very formally established area the station’s intervention opportunities are limited.  However, the Gautrain is regarded as an important catalyst in the CBD to achieve urban upliftment and revitalisation.  In terms of land use changes a greater mix of land uses and increased residential use should be attained.  In addition the station should play a role in promoting tourism to the city centre.

5.2.2 Rosebank Station

The core area around Rosebank Station is a well-established node consisting of a mix of mainly retail and office uses.  It is proposed that the retail core be managed to remain a sub-regional node attracting passengers and that the office component be sustained. The area needs to be strengthened through residential densification.  This trend should be extended in the areas opposite Oxford Road and Jellicoe Avenue to give additional support to the core area.  Thus, major intervention caused by the Gautrain is the densification of the existing residential uses on both sides of Oxford Road.

5.2.3 Sandton Station

Sandton node is dominated by road based transport, where even pedestrian movement is limited and is dominated by office and retail uses.  In support of the Gautrain residential land use and densification will have to be increased to achieve a greater level of balance, while existing land uses should be retained and strengthened ensuring that the node remains a business and tourist destination.  Further, Sandton node should include pedestrian pathways facilitating pedestrian flow to and from the station and new development should adopt a more human scale.

5.2.4 Marlboro Station

Marlboro Station is seen as a major catalyst for Alexandra as it is located in a node destined for commercial development.  It is essential that the station be integrated with the existing environment and that appropriate vehicular and pedestrian links be established to ensure optimal benefits for the Gautrain and the local community.  More residential development is inevitable owing to the Alex Urban Renewal Project and general needs in the area, but residential typologies should encourage high densities and new urban form moving away from the present free-standing erven.  Land use mix is essential, since the node is presently dominated by residential use.  It is deemed that commercial uses should suitably complement the node.  Finally linkages to and from the station are critical to ensure the station’s integration in the urban fabric.

5.2.5 Midrand Station

Midrand Station is a greenfields station and it is deemed that the area around the station can accommodate high density mixed use development creating the desired new urban form.  Specific aims for Midrand Station and its surrounds include consolidation of the Midrand business district, infill between the business district and the station, introduction of high density residential uses, promotion of mixed use development of the surrounding station area known as Zonk’Izizwe and creation of pedestrian and vehicular links to ensure integration.

5.2.6 Centurion Station

Centurion Station is situated in a presently developing area which is suited for office and residential development.  Opportunity exists to create the new urban structure by introducing high densities from the start.  It will be necessary to create pedestrian linkages to suitably promote pedestrian movement and car-free environment.

5.2.7 Pretoria Station

Like Johannesburg Park Station Pretoria Station is situated in the city which is already formally established.  As with the former, Pretoria Station is deemed to bring with it urban upliftment and revitalisation encouraging business, residential and tourism trips.  In particular existing land uses must be improved and uplifted and pedestrian links created ensuring safe passage for commuters.

5.2.8 Hatfield Station

Hatfield Station is regarded as an important regional station in collecting commuters from the north and east of Pretoria.  It is deemed that the station can amplify development in Hatfield which could lead to the creation of a new high density urban environment.  While existing land uses must be retained and strengthened these can also be intensified and importantly residential densities and permanent residence need to be improved, so that Hatfield becomes and origin as well as a destination station.

5.2.9 Rhodesfield Station

Rhodesfield Station will function as a terminal station for daily commuters and should act as a base for East Rand commuters.  It may become a catalyst for the planned re-development of Rhodesfield.  Presently it is a low density residential area, but is transforming in response to the high level of visibility from the R21 and the area’s in direct proximity to OR Tambo International Airport.  Crucially new development should be informed by the future Rhodesfield Station.

Accordingly, Rhodesfield Station is to facilitate the development of a multi-storey mixed use mall development across the station precinct which provides for a mixture of modal transfer, retail, office, residential, tourism, exhibition and accommodation uses.  In the surrounding areas the vision is to facilitate the redevelopment of the Rhodesfield area into predominantly corporate office parks with some associated residential development.  Furthermore, Rhodesfield Station is to be functionally linked to the SARCC railway line and its commuters to the west and access to and from the Rhodesfield Station to the broader Ekurhuleni community is to be facilitated via the surrounding freeway network.

5.2.10  OR Tambo International Airport Station

Little can be said for OR Tambo International Airport Station primarily because it is fully integrated into the OR Tambo International Airport site and the airport terminals.  Thus, the station will not be developed as a separate entity but will be linked into the existing terminals and as such will not be an alone standing station but will simply be one terminal within a larger transportation terminal.

It is concluded that the stations are critical city structuring elements.  The present urban environments have insufficient density and mix of uses to achieve desired ridership and hence, intervention in all station areas will be required.  This intervention will lead to the creation of changed urban environments and hence, the Gautrain will have a definite impact on the spatial development of the core economic areas of the Province.

6. Conclusion

Evidently the Gautrain is aligned with prevailing planning principles viz. the GSDF and SDIs, but it takes these principles a step further in transforming principles into action which will result in a changed urban environment.  To comprehend the inevitable and desired changes a spatial concept was formulated, which encourages the creation of a new urban form capable of sustaining the rapid rail system and achieving economic upliftment by producing a more effective and efficient urban environment.

However, it should be realised that the Gautrain and its outcomes will mostly only be realised in the medium to long term, but that such intervention is needed today to ensure a better tomorrow.