CITY OF CAPE TOWN BICYCLE MASTERPLAN UPDATE

Transcription

1 CITY OF CAPE TOWN BICYCLE MASTERPLAN UPDATE FINAL DRAFT Prepared by: Client: ATTENTION: MR. E. TUKUSHE CITY OF CAPE TOWN DIRECTORATE: TRANSPORT CIVIC CENTRE, HERTZOG BOULEVARD, CAPE TOWN 25 NOVEMBER 2011 Victoria House Corner of Belmont and Elma Roads Rondebosch 7700 PO Box 12916, Mowbray 7705 Tel: Fax:

2 i PROJECT TEAM CONTACT DETAILS Company Contact City of Cape Town Elias Tukushe Teuns Kok Pendulum Consulting Lynne Pretorius Makhotso Mathoma DOCUMENT CONTROL DATE REPORT STATUS AUTHORED BY: APPROVED BY NAME NAME Makhotso Mathoma Lynne Pretorius, Pr. Eng. SIGNATURE SIGNATURE 17 August st Draft 4 October nd Draft NAME Makhotso Mathoma SIGNATURE NAME Lynne Pretorius, Pr. Eng. SIGNATURE 25 November 2011 Final Draft NAME Makhotso Mathoma SIGNATURE NAME Lynne Pretorius, Pr. Eng. SIGNATURE

3 i ACKNOWLEDGEMENTS We would like to thank the following people for their contributions in compiling this report: Elias Tukushe City of Cape Town Teuns Kok City of Cape Town Louis de Waal Bicycle Empowerment Network Bertie Phillips Bicycle Empowerment Network Karin Pohl Pedal Power Association Melanie Venter Stellenbosch Municipality Lance Burger Pedal Power Association Dru Martheze Provincial Government Western Cape Carl October Provincial Government Western Cape Schalk Carstens Provincial Government Western Cape

4 i TABLE OF CONTENTS 1. INTRODUCTION Background Study area Methodology Definition Report layout POLICY AND PLANNING City of Cape Town Draft ITP City of Cape Town NMT Plan City of Cape Town BMP Klipfontein Corridor NMT Plan City - Wide NMT Plan METHODOLOGY Review of the City of Cape Town SDF Engagement with the bicycle stakeholders Engagement with PGWC UPDATE OF THE BICYCLE MASTERPLAN BMP informants Users Revised BMP Outstanding road links RECOMMENDATIONS Data collection on NMT usage Signage along routes frequently used by cyclists Law enforcement Road closures Planning and policies ANNEXURE A: ANNEXURE B: MINUTES OF STAKEHOLDER ENGAGEMENTS REVISED BICYCLE MASTERPLAN

5 LIST OF FIGURES Figure 1: Study area... 2 Figure 2: City of Cape Town NMT Plan Figure 3: City of Cape Town BMP... 6 Figure 4: Klipfontein Corridor NMT Plan Figure 5: Higher-order routes 4 for Cape Town... 8 Figure 6: Routes frequently used by cyclists Figure 7: Alternative cycle routes between Wynberg and Claremont ii FREQUENTLY USED ABBREVIATIONS BEN : Bicycle Empowerment Network BMP : Bicycle Masterplan CBD : Central Business District DM : District Municipality IRT : Integrated Rapid Transit MBT : Mini-bus Taxi MSDF : Metropolitan Spatial Development Framework NMT : Non-Motorised transport PGWC : Provincial government Western Cape SDP : Spatial Development Framework

6 1 1. INTRODUCTION 1.1 Background The City of Cape Town s Bicycle Masterplan (BMP) was developed in the eighties and nineties and the latest update is dated Since then various non-motorised transport (NMT) planning and implementation initiatives were undertaken in the last few years in Cape Town and include the NMT Plan for the City of Cape Town 1, the Klipfontein Corridor Project 2, the Integrated Rapid Transport (IRT) project 3 which included a NMT component, as well as the City-Wide NMT plan 4. In addition Cape Town has experienced significant urban growth and the Spatial Development Framework (SDF) 5, District Plans and the Integrated Transport Plan (ITP) have been adopted, reflecting these spatial shifts. For the BMP to be truly integrated with current transport planning and development initiatives, it has to be updated. The BMP of 2002 was developed to connect potential bicycle trip generators and attractors such as residential communities, places of work and strategic facilities around Cape Town through a metropolitan bicycle network. With the development of the City-wide NMT plan 4 there was a need to review and upgrade the BMP. Pendulum Consulting, as part of the team that developed the City-wide NMT plan 4 for the Southern Region within the City of Cape Town, was appointed to undertake the update of the BMP for the City of Cape Town. 1.2 Study area The study area includes the boundary of the City of Cape Town, as well as the neighbouring district municipalities (DM), namely the West Coast and the Cape Winelands DMs that form part of the functional area of Cape Town as outlined in Figure Methodology The overall methodology followed in updating the BMP for the City of Cape Town was guided by the proposed higher-order NMT routes developed by the various project teams that were responsible for the City-wide NMT planning, workshops with the City of Cape Town and the bicycle stakeholders, as well as a desktop review of the City of Cape Town s SDF 5. The methodology is further discussed in more detail in Chapter Definition According to the Draft Western Cape NMT Strategy 6 Non-motorised transport (NMT) includes all forms of transport that are human- or animal powered. Examples of NMT for personal mobility include walking, cycling, per-ambulating, rollerblading, skateboarding, bicycle taxiing rickshaw riding and horse riding. There are also NMT modes for transport of goods, including wheel barrows and carts drawn by donkeys, horses or humans. Importantly, NMT modes include wheelchairs, and hence must be a consideration when planning and designing transport related facilities for special needs persons. Although the definition of the NMT refers to various modes, the BMP specifically focuses on the higher-order cycling routes and those roads frequently used by cyclists.

7 2 Figure 1: Study area

8 3 1.5 Report layout This report comprises the following Chapters: Chapter 1, Introduction, discusses the background, the methodology undertaken, the study area, as well as the definition of NMT. Chapter 2, Policy and Planning, summarises key legislative and policy documents, as well as planning studies undertaken to date, as they have relevance to NMT. Chapter 3, Methodology, briefly indicates the process followed. Chapter 4, Update of the BMP, describes the informants of the BMP, its intended users, as well as components of the updated BMP. Chapter 5, Improvement Proposal, describes the potential signage and safety improvements on the BMP routes. Chapter 6, Conclusions and Recommendations, outlines the finding and the recommendations for the BMP.

9 4 2. POLICY AND PLANNING The City of Cape Town has developed various policies and strategies to guide NMT planning and implementation in Cape Town. These include the following and it is also briefly discussed hereafter: City of Cape Town Draft Integrated Transport Plan 7 (ITP) The City of Cape Town NMT Plan 1 City of Cape Town BMP City - Wide NMT plan City of Cape Town Draft ITP 7 According to the ITP for the City of Cape Town 7, recent population estimates indicate that Cape Town s population is at least 3.4 million. The ITP for City of Cape Town 7 also indicted that 19% of the population walk and that 0.5% cycle to work or to school. NMT is viewed as an important link to access public transport in Cape Town. The ITP 7 states that more than 70% of the people in Cape Town are within 10 minutes walking radius to public transport modes and 50% are within a 5 minute walking radius to public transport modes. The ITP for City of Cape Town 7 also recognises that there is lack of NMT infrastructure provision, especially in low income areas and for people with special needs. The available infrastructure or facilities are often poorly maintained and unsafe for the users. Therefore it is important that the BMP considers the provision of safe and well maintained cycling infrastructure that is integrated with other modes of transport. 2.2 City of Cape Town NMT Plan 1 The primary objectives of the City of Cape Town NMT Plan 1 are to: Increase cycling and enable walking as modes of travel; Create safe pedestrian and cycling environments; Develop a quality, attractive and dignified environment; and Promote a changed culture that accepts the use of cycling and walking as acceptable means to move around in the city and elicit more responsible NMT behaviour. It also identified that interventions are required that emphasise access for all, the importance of people and communities, the role of economic and social transformation, environmental sustainability, integration and awareness. These themes are intrinsically linked and cannot be viewed in isolation. A NMT plan also developed for Cape Town as a system of nodes and links as shown Figure City of Cape Town BMP The BMP was developed as early as the end-eighties and finalised in On the basis of connecting potential bicycle trip generators and attractors such as residential communities, places of work and strategic facilities around Cape Town through a metropolitan bicycle network. The BMP should be further supported and connected through local area bicycle networks. The BMP was intended as a dynamic plan that would adjust as the local area networks were designed. It intended to complements existing bicycle planning in local areas and should form an important consideration and guide in the development of local area bicycle planning where it did not exist. The BMP is illustrated in Figure 3.

10 5 Figure 2: City of Cape Town NMT Plan 1

11 6 Figure 3: City of Cape Town BMP

12 7 2.4 Klipfontein Corridor NMT Plan 2 The Klipfontein Corridor project 2 concluded that NMT can forms an effective link as part of the transportation system, but it has to address mobility at a regional, sub-metropolitan and local neighbourhood level. A NMT network was developed as part of this project and is illustrated in Figure 4. Figure 4: Klipfontein Corridor NMT Plan City - Wide NMT Plan 4 Owing to the various planning initiatives undertaken, the City of Cape Town identified a need for the consolidation of all the NMT planning and initiated the development of a City-wide NMT network 4. The City-wide NMT network 4 also supported project implementation. The City of Cape Town called for tenders in early 2009 to develop the City-wide NMT network 4 for various areas in Cape Town. This project is currently on-going. The City-Wide NMT Plan 4 comprises a system of higher- order and local area NMT networks. The higher-order routes were developed for the entire Cape Town as outlined in Figure 5. The higher-order routes were developed to respond to long distance commuting, training and recreational cycling. The local order NMT facilities were developed to provide to the local linkages for short distances trips including schools, crèches, libraries, clinics, local shopping and connectivity to public transport interchanges in particular region or a suburb. The localorder NMT facilities included provision of sidewalks and cycling facilities.

13 8 Figure 5: Higher-order routes 4 for Cape Town

14 3. METHODOLOGY The methodology envisaged in updating the BMP was not intended to be a detailed process. It was proposed to follow a desktop review process supported by guiding inputs from various stakeholders and role players. The methodology followed included reviewing City of Cape Town s SDF 5, engagement with cycling bodies and the Provincial Government Western Cape (PGWC). This is further discussed hereafter. 3.1 Review of the City of Cape Town SDF 5 The City of Cape Town s SDF 5 guided the update of the BMP. Land use proposals such as future residential, industrial and commercial developments were used as guidelines for the update of the BMP. The mobility corridors, as well as the economic activity nodes and scenic routes, were also considered as guiding components for the BMP update. The ITP 7 also proposed an updated Road Hierarchical Classification 7 which was considered in the process, especially in the Northern Growth Corridor area. 3.2 Engagement with the bicycle stakeholders A workshop with the City of Cape Town officials and the bicycle stakeholders was held on 20 June The minutes of the meeting is attached as Annexure A. The process of updating the BMP included: Identification of duplication of routes and gaps in the network using the previous BMP and the higher-order NMT routes 4, Identification of the relationship between the previous BMP and public transport routes considering IRT and public transport exchanges, and the Identification of training routes or routes frequently used by cyclists, recreational cycling, commuter routes and metropolitan connectivity was undertaken. In addition to the process followed above, the team also agreed on the following informants for consideration: The BMP should focus only on higher-order cycling routes and routes frequently used by training cyclists. Public transport feeder routes should be on lower-order cycling routes. The BMP should consider all users including training, commuting and recreational cycling, but with a primary focus on training cyclists. Training routes or roads frequently used by cyclists to be identified and included. Scenic routes should be considered. Key origins and destinations were considered. Integration with the existing cycling infrastructure and continuity of the cycle network should be considered. 3.3 Engagement with PGWC A meeting with the PGWC was held on the 23 June The minutes of the meeting is attached as Annexure A. The provincial officials explained the following NMT planning initiatives undertaken by PGWC: A provincial NMT Policy 6 has been developed, and A bill that requires that vehicles should at least be 1.5m away from any cyclists is currently being prepared. 9

15 Wide shoulders are also provided along some provincial roads. These shoulders can be used by cyclists, but are not signed as such. Further consultation with the PGWC on 12 October 2011 indicated that the PGWC considers the installation of the bicycle warning signs if it conforms to the requirements of the Southern African Development Countries Road Traffic Signs Manual (SARTSM) 8. However, further consultation between the PGWC and CoCT is required. Also refer to the minutes attached as Annexure A. 10

16 11 4. UPDATE OF THE BICYCLE MASTERPLAN 4.1 BMP informants The revision of the BMP was informed by the following: The previous BMP was super-imposed over the higher-order NMT routes 4 to identify duplication of routes and gaps in the network. Cyclists training routes or roads frequently used by cyclists were identified by Pedal Power Association (PPA) and formed part of the City-wide NMT Plan 4. Super bike ways for example NMT path built along the IRT busway along the R27 were also included as part of the BMP. These routes are guided by key origins and destinations and key desire lines within Cape Town. Scenic routes were included. The existing cycling infrastructure was integrated with the BMP to promote continuity of the cycle network. Roads identified for upgrading and proposed roads as part of the Road Hierarchical Classification 7 guided the future NMT routes, especially in the northern region of the Cape Town. Alternative routes were also identified for congested sections of key travel routes, for example Main Road through Claremont and Wynberg CBD areas. 4.2 Users Key users that were considered in the developing the BMP include the following: Commuters Recreational cycling Sport cyclists (or training cyclists) As Cape Town and the surrounding area have a strong cycling culture, especially on the rural roads on the periphery of Cape Town and in the Cape Winelands and West Coast DMs, road safety for cyclists is a key focus area in road safety management. Recreational cycling has also undergone a remarkable increase in cyclists in the last few years if the increased registration numbers of the annual Argus Cycle Tours is used as an indicator, but the increased number of cyclists can also be observed on the roads. With the increased number of cyclists on the roads, also on roads and routes that extend beyond the City of Cape Town s boundaries, road safety is increasingly becoming a concern. The identification and subsequent gradual implementation of the BMP cycle routes are the initial steps in addressing the road safety concerns of the training cyclists. Accordingly, the primary user envisaged for the BMP is the training or/and recreational cyclists. 4.3 Revised BMP City - wide cycling routes The BMP as attached in Annexure B comprises routes that are used for training, as well as for commuting, along all the major connector roads. The previous BMP and the City- wide higher-order network 4 formed the basis of this.

17 4.3.2 Roads frequently used by cyclists Roads frequently used by cyclists were identified by the bicycle stakeholders. These routes include the following roads and are also shown in Figure Ou Kaapse Weg Philadelphia Road Boyes Drive Dassenberg Road Kommetjie Main Road Adderley Road Main Road Vissershok Road Victoria Road/ Chapman s Peak Contermanskloof Road Camps Bay Drive Wellington Road Baden Powell Stellenbosch Arterial Rhodes Drive Bottelary Road Constantia Main Old Paarl Road Spaanschemat River Road Faure Marine/ Broadway Road Marine Drive Tygerberg Valley Road The routes mostly fall within the boundaries of Cape Town, but also extend beyond into the neighboring DMs. Most of these routes are higher-order provincial roads on the semi-rural periphery of Cape Town and were not classified as NMT routes in the City-wide network. As part of the planning process they were designated as routes frequently used by cyclists. It is proposed that these routes not have any regulatory signage, but warning signage be installed to raise awareness of the presence of cyclists on these routes. It is noted that the routes frequently used by cyclist are mostly higher-order provincial roads connecting Cape Town to the neighbouring district municipalities such as the Overberg, Cape Winelands and West Coast DMs, and accordingly any road safety intervention for cyclists on these roads should be done in conjunction with Western Cape Dept. of Transport and Public Works, i.e. the road authority.

18 13 Figure 6: Routes frequently used by cyclists

19 Super Bike Ways Super bike ways are envisaged to be express cycling routes within the BMP between significant key origins and destinations along Cape Town s metropolitan routes. These include the following routes: Voortrekker route between Somerset West to Cape Town, along: o Van Riebeeck Road o Voortrekker Road o Albert Road o Strand Road o Somerset West Main Road Lansdowne route between Wynberg and Somerset West via Khayelitsha, along: o Wetton Road o Lansdowne Road o Macassar Road o Broadway Road Klipfontein route between Mitchells Plain and Mowbray, along: o Eisleben Road o New Eisleben Road o Klipfontein Road o Durban Road Old Paarl Road route between Kraaifontein and the Drakenstein municipal area. Symphony Way route between Philippi and Durbanville, along: o Symphony Way o Modderdam Road o Durbanville Main Road Vanguard Drive/ Weltevreden route between Mitchells Plain and Milnerton. Main Road route between Muizenberg and Cape Town, along o Main Road o Victoria Road R27/West Coast route between Bloubergstrand and Cape Town, along: o West Coast Road o Marine Drive o Otto Du Plessis o Milner Street o IRT route along railway reserve in Paardeneiland o Old Marine Drive o Hertzog Boulevard

20 4.3.4 Commuter routes In some areas commuter cycling is also increasing, especially along roads linking poorer communities to stations, for example along the Old Paarl Road linking to Kraaifontein Station. A recent site visit on 22 September 2011 confirmed that 20 bicycles were locked at Kraaifontein station. Also, a recent morning bicycle survey at the intersection of Old Paarl Road and Maroela streets confirmed that 187 cyclists were travelling along Old Paarl Road Scenic routes The City of Cape Town previously developed a network of scenic routes which overlaps with the higher-order NMT network 4 and the previous BMP. Where these scenic routes overlap with the previous BMP and higher-order NMT network 4, they have been included in the updated BMP. The scenic routes are as follow: N1 N2 N7 Prince George Drive Faure Marine Road Sir Lowry's Pass West Coast Road Baden Powell Drive Main /Queens/Plateau Road Red Hill Road Kommetjie Main Road Glencairn Expressway Noordhoek Road Ou Kaapse Weg Chapman's Peak Drive Constantia Main Road Spaanchemat River Road Union Avenue Hout Bay Main Road Princess Drive Victoria Road Kloof Road Camps Bay Drive Tafelberg Road De Waal Drive Kloof Nek Road Buitengracht Road Marine Drive Otto Du Plessis Drive Melkbosstrand Road Vanguard Drive Charel Uys Drive Durbanville Avenue Tygerberg Valley Road Durbanville Main Road Durbanville Road Vissershok Road Contermanskloof Road Wellington Road Philadelphia Road R 312 R Connecting to existing infrastructure Currently the City of Cape Town cycle network comprises 175 km which include classes 1 to 4 cycle routes. Furthermore, approximately 100km of cycle routes are currently being designed and constructed. The updated BMP, as far as possible, was aligned with the existing cycling infrastructure to promote continuity of the cycle network.

21 4.3.7 Future cycling routes on proposed roads The BMP also recognises the future proposed roads as part of the future cycling routes. The BMP routes located along proposed roads are as follows: Vissershok Road Extension Erica Drive Extension R312 Extension Hindle Road Extension Brackenfell Boulevard/Mew Way Extension Modderdam Road Extension Darwin Road Frans Conradie Drive Lucullus Road Extension Sable Road Extension New Langeberg Road Extension Nigeria Way Langeberg Road Extension Giel Basson Extension Maroela Road Extension Sandown Road Extension Baden Powell Extension Wood Drive Extension A Z Berman Extension Parklands Main Extension Okavango Extension Bosmansdam Road Extension Jip De Jager Extension Koeberg/Potsdam Road Extension Abelia Road Extension Langverwacht Road Bloubos Road Extension Montague Road Extension Albertyn Road Extension Blaauwberg Road 16 Macassar Road Extension Cycling routes to avoid congestion The Main Road, from Muizenberg to Cape Town CBD, forms part of a significant origindestination desire line, and is viewed as a significant cycling desire line, as well. However, areas along the Main Road, such as Claremont and Wynberg, are heavily congested and the road s cross-section is limiting, in that very little space is available for cycling lanes or widened sidewalks. In response to this constraint, an alternative cycling route has been identified for the Main Road between Wynberg and Claremont. This alternative route is shown in Figure 7 below and is also included in the updated BMP.

22 17 Alternative routes BMP routes Figure 7: Alternative cycle routes between Wynberg and Claremont 4.4 Outstanding road links In developing the BMP various network links are still not addressed and is subject to further investigation for which the scope falls outside of this project. These include: Highlands Road connection to Philippi Horticultural Area in Mitchells Plain. Extension of the Khayelitsha class 1 cycle route through the Khayelitsha green belt (north of Spine Road). East-west and north-south connections across the Philippi Horticultural Area. Crossing of the Vanguard Drive and N2 interchange. Use of Kommetjie Main Road.

23 18 5. RECOMMENDATIONS As previously mentioned road safety for cyclists is a primary focus area in road safety management. The development of the BMP and the subsequent implementation thereof, are the first steps in addressing this. The following recommendations are made to respond to this. 5.1 Data collection on NMT usage It is proposed that the City of Cape Town undertakes an annual cyclists counting program along major cycle routes and key intersections. This should be undertaken seasonally, but also during training for the Cape Argus Cycle Tour. Parameters to consider include: Number of cyclists Peak periods Gender Priority routes 5.2 Signage along routes frequently used by cyclists Warning signage The SARTSM 8 recommends that the W309 cyclists warning sign be used to warn road users of the possible presence of cyclists ahead. Furthermore SARTSM also states that Sign W309 should preferably be displayed on sections of roadway where a significant volume of cyclists cross or travel along the roadway and no separate provision for such as a cyclist lane or track has been made. When a separate cyclist facility is provided the use of sign W309 should normally that be reserved where such facilities cross roadway. If the section is longer than 2km the sign should be repeated at suitable intervals. It is proposed that the City of Cape Town, in collaboration with the PGWC (on provincial roads), install the required warning signs on routes frequently used by cyclists Information signage It is proposed that high visibility information signboards be placed at the beginning (both sides) of key training routes. These signboards should display information that the road is a preferred training route in Cape Town. 5.3 Law enforcement It is further proposed that law enforcement be increased on routes frequently used by cyclists, especially during training periods prior to the Cape Argus Cycle Tour.

24 Road closures It is also proposed that certain routes be closed for vehicles during specified training periods (i.e. early morning over weekends) and that it be varied across Cape Town and surrounding areas. This would provide a safe training route and PPA could raise the awareness about the routes. 5.5 Planning and policies Transport planning legislation such as the previous National Land Transport Transition Act made provision for NMT to be recognized as real mode of transport that should be considered in transport planning. Although significant effort has been made in this respect, it is further recognized that the inclusion of NMT in more detail planning activities should also occur. More specifically this includes the following: Recognition of recreational cyclists as a user group in NMT planning Inclusion of NMT in Transportation Impact Assessments and Road Management Plans. These plans should also in include NMT observation information and cycle counts on both weekdays and weekends. Inclusion of recreational and commuter cyclists in the City of Cape Town s Road Safety Plan.

25 20 ANNEXURE A: MINUTES OF STAKEHOLDER ENGAGEMENTS

26 21 ANNEXURE B: REVISED BICYCLE MASTERPLAN

27 REFERENCES 1. City of Cape Town, NMT Plan, Volume 1 & 2: prepared by Pendulum Consulting, October Prepared by NM Associates Planners and Designers, HHO Africa Infrastructure Engineers for Provincial Government Western Cape and City of Cape Town, Phase 1: Cape Town CBD-Klipfontein Road-Khayelitsha Corridor: Non-motorised transport Planning and Conceptual Design, April 2004, Cape Town 3. City of Cape Town, Integrated Rapid Transport System NMT Plan, Phase 1 Corridor, Version 2 - Volume 1, Draft 2, June City of Cape Town, City- Wide NMT plan for the City of Cape Town, City of Cape Town, Spatial Development Framework for the City of Cape Town, March Provincial Government Western Cape. Draft Western Cape NMT Strategy, City of Cape Town, Integrated Transport Plan for the City of Cape Town, May Department of Transport, Southern African Development Countries Road Traffic Signs Manual (SARTSM), Volume 1, Chapter 7, 1997