Spatial planning: Step 4
Prepare the access and movement framework
The access and movement framework comprises of a network plan and associated strategies and defines how the various PT services related and aligns to provide seamless multi-modal PT services. The development of the access and movement framework is informed by the concept of the interchange zone and grid considerations, must be scaled for pedestrian movement and facilitate optimal transportation flows and servicing.
Additionally, the access and movement framework must:
- Describe the capacity of the PT facilities and services as these affect the scale and nature of the road network that support them;
- Specify how and where pedestrian linkages are achieved and optimised;
- Specify how vulnerable road users (both NMT users and users of public transport) will be accommodated (see targeted categories and other people with functional limitations below);
- How key transport linkages other than PT linkages can be accommodated;
- In the case of brownfield sites, assess the functionality of the existing access network against the interchange zone concept and the need to prioritise pedestrians;
- Describe where and how proposals on the access and movement framework differ from current and proposed local transport policies and indicate what action is required to revise these policies to accommodate the proposals
Table: Targeted categories of passengers and people with functional limitations
| Category | Description | |
|---|---|---|
| Targeted categories of passengers as per the National Land Transport Amendment Act | ||
| People with disabilities | People with a physical, sensory or mental disability which may be permanent or temporary | |
| The elderly | People over the age of 55 usually fall within this category | |
| Pregnant women | Usually taken as women within the last three months of pregnancy | |
| Those limited in their movement by children | Men and women with small children with access needs that public transport systems need to cater for | |
| People with functional limitations | ||
| Lifecycle passengers | People with additional transport needs related to a particular stage of the human lifecycle | |
| Signage passengers | People unable to read or are unable to understand the language used on signage, including tourists | |
| Female passengers | Safety and security is a concern for all passenger groups and both genders, but female passengers, together with people with disabilities, are particularly at risk of crime and abuse | |
| Load carrying passengers | These include people carrying bags, luggage or goods of a size that mean that they benefit from accessibility features – this is particularly people on low incomes. This group also includes people travelling with bicycles | |
Source: NDOT. 28 November 2016. NTR 1: Part 1: National Technical Requirement 1: Pedestrian Crossings. Pgs 29 – 30. Version 6
Designing the components of the access and movement network
The effectiveness and performance of the Hub depends on both the alignment and level of service of the road-based PT as well as on the form and spatial quality of the infrastructure. Infrastructure includes:
The scale and form of roads dictates the type of land uses that locate adjacent to them, however, the road classification should also consider actual and intended land uses of adjoining areas (NDOT, 2016: 23). The form and location of infrastructure in turn dictates what potential they hold to support a range of other land uses. In greenfield developments, consideration must be given as to how new infrastructure can best accommodate the type of land uses and activities necessary to create a comfortable people-friendly network of spaces and places. In brownfield developments, existing infrastructure must be assessed to determine if it responds to the vision of a people and commuter-friendly environment. If not, design revisions should be considered.
Following are key consideration and guidelines for the design or redesign of the components of the access and movement framework.
- Rail infrastructure inclusive of railway lines and rail stations
- Road infrastructure and road-based transportation facilities
- Pedestrian and cycling infrastructure
The scale and form of roads dictates the type of land uses that locate adjacent to them, however, the road classification should also consider actual and intended land uses of adjoining areas (NDOT, 2016: 23). The form and location of infrastructure in turn dictates what potential they hold to support a range of other land uses. In greenfield developments, consideration must be given as to how new infrastructure can best accommodate the type of land uses and activities necessary to create a comfortable people-friendly network of spaces and places. In brownfield developments, existing infrastructure must be assessed to determine if it responds to the vision of a people and commuter-friendly environment. If not, design revisions should be considered.
Following are key consideration and guidelines for the design or redesign of the components of the access and movement framework.
Rail infrastructure
Rail lines
Rail stations
Rail lines
Rail lines
The two key planning and design focus areas are therefore to:
- Bridge the reserves in a way that makes the links spatially meaningful for pedestrians. Air rights over rail reserves need to be assessed for their potential to address the barrier quality of the rail lines.
- Vacant land around the precinct station reserved for rail purposes must be considered for development.
Rail stations
Rail stations
Rail stations provide opportunities to integrate opposing sides of the lines through overhead facilities that improve accessibility and pedestrian safety. The large number of people moving through rail stations provide the opportunity to convert their bland public interfaces that often attract anti-social behaviour into spaces of economic opportunity and convenience.
Guidance for rail stations include:
Guidance for rail stations include:
- The station should be optimised for commercial land use to benefit from the large pedestrian volumes, to ensure a vibrant station and increase pedestrian comfort and access. This requires broad stakeholder participation including the private sector when conceptualising rail station precincts.
- Stations should be designed to connect with the surrounding urban fabric. The movement path over the rail should be considered as a priority pedestrian link at the level of the Hub and must therefore be designed as an integral part of the Interchange Zone and prioritised pedestrian network.
- The station must create forecourts on both sides of the rail.
- Key destinations should be located either side of the rail line to ensure balanced movement dynamics across the rail lines, and that the station contributes to local integration.
Case studies
Application of guidelines for rail station design: Station Plaza, Mitchell’s Plain
Positive attributes:
- The station is maximised for commercial land use with forecourts including open and covered market spaces and a pedestrian mall & linear market on all points of the compass from the rail station, and on both sides of the railway line
- Pedestrian movement over the railway line is enabled by a current pedestrian bridge and a planned second pedestrian bridge – this enables access and integration on both sides of the railway line
- Highly legible, connected pedestrian network
Credit: City of Cape Town Metropolitan Municipality
Road infrastructure
The concept of ‘Complete Streets’ (City of Johannesburg, 2013) provides a sustainable transport hierarchy by recognising the need for multi-modal transport systems that support safe, sustainable, and liveable communities. This approach identifies the significance of appropriate land use management and the development of associated infrastructure to reduce the overall length of journey necessary for public transport users and pedestrians. The National Department of Transport modified the Complete Streets (City of Johannesburg, 2013), indicating road classification and accommodation of all road users, as follows:
Table: RIFSA classification and complete street classifications
| RIFSA classification | Complete streets’ considerations | New typology | Pedestrians | Bicycles | Public transport | Motor vehicles | Goods vehicles | Emergency vehicles |
|---|---|---|---|---|---|---|---|---|
| Class 1 | The primary function is high mobility, hence complete streets’ principles are applicable primarily in ensuring adequate provision of grade separated crossings for pedestrians and cyclists | Motorway/ primary distributor | ||||||
| Class 2 |
This class of road represents major arterials and have historically catered for the needs of motorised travel. In the context of complete streets, the following needs to be considered:
|
Arterial/regional distributor | ||||||
| BRT trunk route | ||||||||
| Class 3 | Special care needs to be taken in separating motorised vehicles and pedestrians. Class II cycling facilities are appropriate | District distributor | ||||||
| Class 4 |
The high number of pedestrians along these roads warrants Class III cycling facilities. In CBD areas:
|
CBD road/ activity street/ local distributor/ boulevard | ||||||
| Industrial roads | ||||||||
| Class 5 | Speed reduction measures should be used to keep speeds within acceptable levels for the safe movement of pedestrians and cyclists. | Residential collector | ||||||
| Residential street | ||||||||
| Class 6 | Motorised vehicles are not permitted except for emergency vehicles in an emergency situation. Class I bicycle facilities to be provided. | NMT route/ greenway/ multi-use pathway |
Legends
| 444444444 | Not required, or poor performance is acceptable (low quality or no facilities, high travel delay) |
|---|---|
| Accommodated with variable standards (average quality facilities, average travel delay) | |
| Accommodated with high standards (high quality facilities, low travel delay) |
Bicycle classes
| Class I cycle way | Bicycle roads that are independently aligned and not typically provided in the road reserves |
|---|---|
| Class II cycle way | Bicycle roads within the road reserve, provided parallel to a street or road |
| Class III cycle way | Bicycle lanes specifically marked on the roadway pavement |
| Class IV cycle way | When the lanes are not specifically marked and a road or street is shared with other traffic |
Source: Complete Streets, City of Johannesburg (2013) in NDOT NTR 1: Part 1 (2016)
Road networks are hierarchical configurations or routes connecting at different scales including those of the primary network, the secondary network and local network surrounding the Hub.
Primary PT Connectors
Secondary PT Connectors
Local PT Connectors
Road-based public transport facilities
Pedestrian infrastructure
Cycling infrastructure
Primary PT Connectors
Primary PT connectors
The primary PT connectors are typically Class 1 and Class 2 roads. These routes tend to be wide and often with restricted access points. Service roads running parallel to the main route normally provide access to larger properties adjacent to the route. This arrangement is dominated by road surface and is generally people unfriendly. Where vehicle flows are disrupted and PT services are intercepted or stopped, the potential exists to capitalise on the thresholds generated by the disruption in high traffic and resulting people flows.
Guidelines:
Guidelines:
- General: Where mobility focussed routes pass through the Hubs they should be pinched to slow traffic and allow increased levels of transfer and interaction. At these points they can be treated as secondary connectors.
- Class 1 roads: provide grade separated crossings for pedestrians and cyclists on
- Class 2 roads: consider providing Class II cycling facilities; special consideration must be given to provide pedestrian crossing facilities and access to PT stops
Secondary PT Connectors
Secondary PT connectors
These are generally Class 3 and Class 4 roads that connect surrounding local areas and carry high frequency PT services. They are stop-start in nature and attract mixed land use and intense levels of pedestrian activity along their length but particularly around the PT service points.
Guidelines for secondary PT connectors:
Guidelines for secondary PT connectors:
- Class 3 roads: special care needs to be taken in separating motorised vehicles and pedestrians. Class II cycling facilities are appropriate.
- Class 4 roads: The high number of pedestrians along these roads warrants Class III cycling facilities.
- In CBD areas: Provide on-street parking and take special care when providing cycling facilities adjacent to on-street parking. Minimum sidewalk width is not appropriate due to the high numbers of pedestrians and presence of other activities on the verge.
Local PT Connectors
Local PT connectors
These are generally Class 5 and Class 6 roads that feed the secondary connectors. They carry lower volumes of PT but generally accommodate levels of intense land use activity. They should accommodate cycling and pedestrian facilities.
Guidelines for both secondary and local PT connectors:
Guidelines for both secondary and local PT connectors:
- These routes must be supported by a mix of land uses that increase thresholds and levels of human interaction and provide sufficient bulk with which to spatially define the route as a people space. The bulk necessary to achieve spatial definition will be related to the width of the road.
- They must accommodate Class 1 cycling facilities.
- Pedestrian facilities must include frequent crossing points and generous sidewalks that provide space for street vending and hospitality trades to spill out.
- Landscaping must add value to the sidewalk spaces as slow, interactive people spaces.
- Landscaping must define special places along the route including forecourts to significant public destinations and public transport stops.
Road-based public transport facilities
Road-based public transport facilities
PT facilities are typically grouped into those of higher order separated from main traffic flows and those that are integrated with the dominant traffic flows as follows:
On-street PT stops
On-street PT stops can be categorised into structured stops (separate lanes in the direction of the main traffic flow) and the smaller stand-alone shelters. The order of stop is dependent on the vehicle, service frequency and volumes of the PT service. The following provides guidelines to ensure that on-street stops contribute to the quality of the overall environment:
Off-street PT facilities
The size of these PT facilities is dependent on the role of each within the network and vehicle volumes/passenger numbers among other things. The two main types of off-street facilities include:
Both types of facilities are mostly busy through the morning and evening peaks, but there is some activity through the day at destination terminals. Guidelines for off-street PT facilities include:
On-street PT stops
On-street PT stops can be categorised into structured stops (separate lanes in the direction of the main traffic flow) and the smaller stand-alone shelters. The order of stop is dependent on the vehicle, service frequency and volumes of the PT service. The following provides guidelines to ensure that on-street stops contribute to the quality of the overall environment:
- On-street PT stops must provide as a minimum, shelter from the elements (sun, wind and rain), seating, lighting, service information, access to convenient shopping, safe and generous prioritised crossing for pedestrians.
- On-street PT shelter structures must contribute to definition of localised spaces.
- On-street PT stops must associate where possible to important public destinations or main retail/public service points.
- On-street PT stops must locate opposite each other to ensure that road crossings can be shared at strategic points.
Off-street PT facilities
The size of these PT facilities is dependent on the role of each within the network and vehicle volumes/passenger numbers among other things. The two main types of off-street facilities include:
- Destination terminals that are normally located within employment nodes, educational or institutional hubs; and
- Transfer facilities that function as transfer points from one mode to another.
Both types of facilities are mostly busy through the morning and evening peaks, but there is some activity through the day at destination terminals. Guidelines for off-street PT facilities include:
- Volumes and frequencies of vehicles at these facilities can change so facilities should be designed to accommodate potential growth and alternative land uses, should volumes decrease.
- Bus and taxi services should be located in close proximity to key public facilities and services given the high levels of access they provide.
- The bus and taxi facilities should be maximised for commercial land uses that need exposure to regular flows of people on foot on a daily basis. This will require a broad group of stakeholders including the private sector to come on board when conceptualising these facilities.
- Bus and taxi facilities should be spatially integrated with their surrounds.
- Where bus and taxi facility activity is internalised (housed within a structure), the edges should be activated and the pedestrian flows in and out maximised for a range of commercial operators.
- Where bus and taxi facilities are designed as open-air facilities, they must be located within a space that offers adequate definition. These spaces in turn should be designed as far as possible as an extension of the Open Space Network with activated edges.
- Holding areas for taxis and buses are space extensive and not conducive to creating a vibrant and safe precinct. They should be located remotely where they do not limit people flows or restrict exposure to these flows for economic operators.
- Regional facilities can be integrated into the centralised interchange zone but not at the expense of the quality of the environment as a mixed use urban hub.
- Due to the large volumes of pedestrians using these facilities wider than minimum sidewalks are typically required, while pedestrian crossings must be provided where needed. Particular attention should also be given to the provision of pedestrian refuge islands.
- The following considerations contribute to enhancing pedestrian safety at public transport termini and stations (Department of Transport, 1990):
- One–way vehicular movements are generally safer. All vehicle movements should be in a forward direction of travel. The only exception will be the holding area where reversing in and out of the standard parking bays may be permitted.
- Passengers should have clearly defined queuing areas. Walkways should preferably be raised by kerbs and clearly separated from vehicle movements.
- Conflicts between pedestrians and vehicles should be minimised through the location of pedestrian islands and paths in accordance with the natural flow of pedestrians, which is normally the shortest path. The best way is to try to design the layout to have the minimum conflict points. All pedestrian islands used inside the terminal should be at least 2 m wide and must be raised by a non-mountable kerb to enforce vehicle movement around it to increase safety. An over-riding factor in layout design, is the provision of adequate sight distance between vehicles and pedestrians. Particular attention must be given to the location of the pedestrian exit and entrance in relation to the bus exit and entrance. As a general rule, it is preferable for pedestrian paths to cross departing vehicles rather than entering vehicles, as the latter are usually travelling faster.
Pedestrian infrastructure
Pedestrian infrastructure
All routes within the Hub should be designed to accommodate safe pedestrian flows, with a prioritised pedestrian network aligned with the dominant desire lines.
Guidelines for pedestrian infrastructure:
Guidelines for pedestrian infrastructure:
- Pedestrian networks should address the needs of the disabled, the young, the elderly and those moving with young children as well as those categories of persons with functional limitations.
- Pedestrian should be prioritised where they cross vehicular flows in large volumes within intense urban environments.
- Road crossing facilities should be ‘announced’. The surrounding built fabric and landscaping should express and reinforce the crossing area as a space.
- Road crossings should be designed as wide pedestrian ‘zones’ as opposed to narrow crossings.
- Spaces at either end of road crossing points should be generously designed.
- Pedestrians should be kept at grade where possible to avoid forcing people onto pedestrian bridges or into subways.
- Improve the attractiveness of pedestrian routes through landscaping.
- Design for clear and unobstructed pedestrian routes and spaces. This includes good wayfinding information, avoidance of clutter of signage that causes confusion, addressing barriers such as slope and other obstructions and where routes are long, providing pedestrian facilities such as sheltered rest areas, benches and water fountains.
- Provide pedestrian amenities at destinations including benches, water fountains and toilets.
- Design for routes that minimise the potential for crime by ensuring constant opportunities for passive surveillance along the route, avoiding negative or dead space, and by providing good lighting.
Cycling infrastructure
Cycling infrastructure
Cycling can drastically reduce travel times and by default extend the distances people are prepared to travel to access basic services, work, school etc. Cyclists will comfortably travel 8-10 kms to access work, school and public transport services. Cycling by residents in the Hub and outside the Hub should as far as possible be facilitated on the proposed road network or at least along a prioritised set of routes between key points as proposed for pedestrians.
Guidelines for cycling infrastructure:
Guidelines for cycling infrastructure:
- Safe and secure bicycle parking is essential at all key destinations.
- If PT vehicles are not at the point of being able to accept bicycles, then bicycle parking is essential at the respective modal facilities.
- Along busy cycling routes minimise driveways that cause conflict.
| Guidance on pedestrian and bicycle infrastructure | |
|---|---|
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