transportation planning and its interface with spatial ...€¦ · professions is to produce...
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Transportation planning and its interface with spatial planning and environmental management: the position within South Africa
C B. Schoeman North West University (NWU), South Africa
Abstract
The interface between transportation planning, spatial planning and environmental management forms the focal point to attain sustainable development. The principle of sustainable development is not a new phenomenon being applied by professional practitioners. Many role-players have realized that there is a delicate balance between transportation, land use, environment, human, economic, institutional, and spatial planning, management and development. This balance is however negatively being impacted upon, due to the collapse of this relationship. This results in impacts such as a non-understanding of the integrated role of transportation, spatial planning and environmental management resulting in ecological degradation and widening of development inequality. The purpose of the paper is to assess and investigate the interface between transportation planning, spatial planning and environmental management from a practice, educational, training and development perspective as it is being experienced in South Africa. The conclusions consist of recommendations to grow and built this interface. It includes improved integration of the policy and legislative frameworks; capacity building amongst the different professions; improved alignment in education, training and professional practice and integrated simulation and modeling techniques, methodologies and the need to formulate of trans-disciplinary plans as to promote the integration of the interface. Keywords: transportation planning, land use planning, spatial planning, environmental management, modeling, simulation and trans-disciplinary planning.
.
www.witpress.com, ISSN 1743-3509 (on-line) WIT Transactions on The Built Environment, Vol 116, © 2011 WIT Press
Urban Transport XVII 155
doi:10.2495/UT110141
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1 Introduction and background overview
Transportation planning, spatial planning (land use planning) and environmental management form a pivotal role in attaining sustainable development within spatial systems. The principle of sustainable development is not a new phenomenon within the built and natural environment. Most practitioners have realized that there is an intricate balance between environment, human, economic, institutional, spatial and transportation planning and development. This balance is however negatively being impacted upon due to the collapse of this relationship mainly due to planning practices being applied by practitioners within these related professional fields. This results in impacts such as ecological degradation and widening of development inequality. It also implies spatial non-sustainability and conflicts in physical planning and development. With democratisation in South Africa in 1994 the New Government inherited a segregated and fragmented policy and legislative framework guiding transportation planning, spatial planning and environmental management. Transformation formally commenced with the Draft Green Paper on Development and Planning prepared by the National Development and Planning Commission in 1999 [1]. However, the need and principles for integration of transportation planning, spatial planning and environmental management was included in the Development Facilitation Act (1995) [2] and the South African Constitution (1996) [3].
2 Policy and legislative framework guiding spatial planning: transport and environmental management
2.1 Transportation planning
Transport planning in South Africa became a statutory planning activity with the enactment of the Urban Transportation Act (Act 78 of 1977) [4]. Transportation planning, development and management were guided by the following core policy and legislative framework: National Land Transport Transition Act (Act 22 of 2000) [5] up to 2009 when the National Land Transport Act and its Regulations (2009) [6] were promulgated. In this context various policy documents underpinned this transformation process: White Paper on National Transport Policy (1996) [7]; Moving South Africa (Vision 2020) (1999) [8]; Rural Transport Strategy for South Africa (2003) [9] and the National Transport Master Plan 2050 (NATMAP 2050) (2011) [10].
2.2 Spatial planning
The development implications of the historical spatial planning and development practices in South Africa have been well documented by various researchers including Dewar et al. [11], Tomlinson et al. [12], Swilling [13], Mabin and Smit [14], Planact [15], Tilman and Wall [16], Dewar and Todeschini [17], CSIR [18],
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White Paper on Spatial Planning and Land Use Management [19], Spatial Development Perspective [20] and the Final Draft of the Land Use Management Bill [21]. Of significance in the transformation process related to spatial planning (land use) and development was the promulgation of the first new set of democratic laws that served as pivotal point to restructure the characteristics of spatial planning in South Africa namely the Development Facilitation Act [2]. Refer also to the Constitution of South Africa [3]. Eventually the spatial planning scene changed significantly with the promulgation of the Municipal Structures Act [22] and the Municipal Systems Act [23]. This development resulted in the formulation of Integrated Development Plans (IDPs) for all institutional entities within the municipal sphere of government.
2.3 Environmental management
South Africa was slow to develop and institute formal procedures for environmental assessment. It was only with the enactment of the Environment Conservation Act [24] that provision was made to determine environmental policy to guide decision-making and to prepare environmental impact reports (Sowman et al. [25]). The publication of a document entitled Integrated Environmental Management (IEM) in South Africa (Council for the Environment [25] marked the introduction of the concept of environmental management in South Africa. The term IEM was chosen to indicate a general approach that integrates environmental considerations across all stages of the planning and development cycle and would be applicable to policies, programmes, plans and projects (Sowman et al. [25]). The publication of the National Environmental Management Act (NEMA) [27] introduced new approach to and role of environment in development. NEMA provides the framework for co-operative environmental governance in South Africa and promotes the application of environmental assessment and management tools to ensure integrated environmental management of activities (DEAT [28]). The intention of NEMA was formalized through publication of the EIA Regulations [29]. On 3 August, 2010 the revised NEMA EIA Regulations [30] were promulgated that includes chances in the listing of activities. Based on the reality as summarized above problems and challenges related to the interface between spatial, environmental and transportation planning processes in South Africa is a well known area of debate. Practitioners in these disciplines within the public and private sectors have interpreted the interface for different reasons in various ways. The evolution over the past decade of policy and legislative frameworks (as indicated above) directing these processes did not necessarily promote a common understanding the interface between the processes involved. From an assessment of the content of the policy and legislative framework the conclusion can be drawn that restricted provision for the integration of the interface between the professions exists. As an example in the case of the National Land Transport Act [6] provision is made in Chapter 4: Transportation
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Planning that in terms of general principles transportation planning and its integration with land use and development planning should be provided for. This provision, although very general and of a pure philosophical nature, should be read with the objectives as identified in the National Framework for Sustainable Development in South Africa [31] that makes provision for enhancing systems for integrated planning and implementation; sustaining ecosystems and using natural resources efficiently; economic development via investing in sustainable infrastructure; creating sustainable human settlements and responding appropriately to emerging human development, economic and environmental challenges. The problem from an interface perspective between the professions relates to the fact that the policy and legislative framework can be classified as complicated; confusing and incomplete. The lack of a comprehensive and overarching guideline document to promote and integrate planning and development processes can clearly be deduced.
3 The domain of transport planning, spatial planning and environmental management from an integration perspective
Universally planning in general entails the consideration of what can and should happen where in spatial systems. It includes the investigation and interaction of different policies and practices across regional space, and sets the role of places and various other practitioners in a wider context. It goes well beyond ‘traditional’ transportation planning, land-use planning and environmental management practices and includes a strategic framework to guide future development and policy interventions. Table 1 shows a classification of the core focuses for planning in general based on the international and national norms applicable.
4 Education and training practices in managing the interface
Global realities, tendencies and developments form an important focus in the education and training practices underpinning transportation planning, spatial planning and environmental management practitioners. The core focus in these professions is to produce critical thinkers and not practitioners who implement existing planning policy and practices without considering moral grounds, ethical issues and other applicable planning related elements and implications. The development of objectivity, creativity, innovative and critical thinking forms the foundation for integration of transportation planning, spatial planning and environmental management practitioners. Preparedness of the integration of the professions in the 21st Century relates to the ability to address global, national, provincial and local challenges within spatial systems. This ever changing environment is the key driver to address
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Tab
le 1
: C
ore
prof
essi
onal
pla
nnin
g fo
cuse
s ba
sed
the
norm
s fo
r th
e do
mai
n in
tern
atio
nally
and
nat
iona
lly.
Cor
e p
rofe
ssio
nal
pla
nn
ing
focu
s D
omai
n a
s in
terp
rete
d in
tern
atio
nal
ly a
nd
nat
ion
ally
S
pat
ial p
lan
nin
g P
lann
ing
syst
ems;
pra
ctic
es in
reg
iona
l spa
ce; r
ole
of p
lace
s; s
trat
egic
fra
mew
orks
; for
war
d pl
anni
ng; s
cale
of
regi
onal
pl
anni
ng; d
evel
opm
ent i
n ph
ysic
al e
nvir
onm
ent;
spa
tial
pla
n fo
rmul
atio
n; im
pact
of
mig
rati
on; r
egio
nal s
pati
al p
lann
ing
need
s; r
egio
nal c
orri
dor
and
noda
l dev
elop
men
t. U
rban
pla
nn
ing
Rol
e of
pla
ces;
ant
icip
atin
g de
velo
pmen
t; s
cale
of
urba
n pl
anni
ng; s
urfa
ce a
nd b
enea
th s
urfa
ce d
evel
opm
ent;
urb
an
deve
lopm
ent;
urb
an r
egen
erat
ion
and
deve
lopm
ent;
urb
an d
esig
n; s
ite
plan
ning
; urb
an s
pati
al p
lann
ing
need
s;
neig
hbor
hood
dev
elop
men
t; u
rban
cor
rido
r an
d ac
tivi
ty n
ode
deve
lopm
ent;
urb
an r
enew
al.
Pol
icy
and
str
ateg
y fo
rmu
lati
on
Inte
ract
ion
of p
olic
ies;
pol
icy
inte
rven
tions
; mul
ti-p
ersp
ecti
ve a
ppro
ache
s; d
isas
ter
prep
ared
ness
pla
ns; i
nput
in d
raft
ing
of p
olic
y an
d le
gisl
atio
n.
Lan
d u
se m
anag
emen
t L
and
use
plan
ning
; lan
d us
e m
anag
emen
t and
con
trol
; reg
ulat
ing
deve
lopm
ent;
con
trol
of
land
use
; man
agem
ent o
f ch
ange
in la
nd u
se; l
egal
issu
es r
elat
ed to
land
use
and
bui
ldin
g co
des;
lega
l iss
ues
rela
ted
to e
nvir
onm
enta
l reg
ulat
ions
. B
uil
t en
viro
nm
ent
Sty
le o
f bu
ildi
ngs;
des
ign
of p
ubli
c sp
aces
; con
serv
atio
n of
his
tori
c bu
ildi
ngs;
dev
elop
men
t of
publ
ic s
pace
s an
d pl
aces
; lo
cati
on, d
esig
n an
d la
yout
of
buil
ding
s.
Lan
d a
vail
abil
ity
Lan
d re
serv
atio
n; id
enti
fica
tion
of
land
for
dev
elop
men
t. T
ran
spor
tati
on p
lan
nin
g In
nova
tive
for
ms
of tr
ansp
ort;
acc
essi
bili
ty b
etw
een
plac
es o
f re
side
nce,
wor
k an
d am
enit
ies;
traf
fic
cong
esti
on
man
agem
ent;
air
pol
luti
on m
anag
emen
t; tr
ansp
ort a
nd la
nd u
se m
odel
s; tr
ansp
orta
tion
fra
mew
orks
. E
nvi
ron
men
tal m
anag
emen
t R
elat
ions
hip
betw
een
buil
t and
env
iron
men
t; n
egat
ive
impa
cts
on n
atur
al e
nvir
onm
ent;
nat
ural
impa
cts
on c
omm
unit
ies;
pr
otec
tion
of
natu
ral e
nvir
onm
ents
; sta
ndar
d of
env
iron
men
tal q
uali
ty; e
nvir
onm
enta
l sus
tain
abil
ity;
land
scap
e de
velo
pmen
t; le
gal i
ssue
s re
late
d to
env
iron
men
tal m
anag
emen
t. S
ocio
-eco
nom
ic a
nd
sp
atia
l d
evel
opm
ent
Soc
ial a
nd e
cono
mic
sta
tus
quo
and
fore
cast
ing;
com
mun
ity
rege
nera
tion
; reg
iona
l and
eco
nom
ic d
evel
opm
ent;
rur
al
ente
rpri
se; s
ecto
ral p
olic
ies;
pla
nnin
g re
sear
ch; t
echn
ical
ana
lysi
s; s
mar
t gro
wth
str
ateg
ies;
eco
nom
ic d
evel
opm
ent p
lans
; de
velo
pmen
t of
reso
urce
s; s
ocio
eco
nom
ic p
rofi
les.
F
acil
itat
ion
an
d c
omm
un
icat
ion
C
ompr
omis
e fo
rmul
atio
n; le
ad p
ublic
con
sult
atio
n pr
oces
ses;
edu
cati
on, t
rain
ing
and
capa
city
bui
ldin
g; id
enti
fica
tion
of
com
mun
ity
need
s; c
omm
unit
y go
als
and
visi
on c
ompi
lati
on; d
evel
opm
ent c
onsu
ltat
ion;
pub
lic
addr
ess,
and
fac
ilit
atio
n.
Hu
man
set
tlem
ent
dev
elop
men
t H
ousi
ng d
evel
opm
ent;
hou
sing
str
ateg
ies.
R
ura
l dev
elop
men
t C
omm
unit
y de
velo
pmen
t; a
rea
base
d pl
anni
ng.
Fea
sib
ilit
y st
ud
ies
App
reci
atio
n of
spa
tial
com
plex
itie
s; d
eepe
r un
derl
ying
cau
ses;
inte
grat
ed a
naly
sis.
Im
ple
men
tati
on
Infr
astr
uctu
re n
eeds
; inf
rast
ruct
ure
prog
ram
min
g; g
ener
al m
anag
emen
t; n
eeds
pri
orit
izat
ion;
impl
emen
tati
on a
nd
enfo
rcem
ent s
trat
egie
s; d
eter
min
atio
n of
infr
astr
uctu
re a
nd a
men
itie
s ca
paci
ty.
Pro
ject
man
agem
ent
Man
agem
ent o
f pr
ogra
mm
es f
or p
lann
ing
and
impl
emen
tati
on; q
uali
ty m
anag
emen
t. M
anag
emen
t an
d a
nal
ysis
su
pp
ort
GIS
app
lica
tion
s an
d te
chni
ques
; mod
elin
g; s
yste
ms
anal
ysis
.
So
urce
: O
wn
cons
truc
tion
(201
1).
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planning and development challenges in a sustainable fashion. This dynamic environment requires ongoing analysis to ensure that these challenges are being addressed in a timely and optimal fashion. In essence it requires that the management of transportation planning, spatial planning and environmental management incorporates elements of visionary but inclusive approaches to depict needs, to re-act to such needs and the application of integrated management and approaches between such disciplines. It includes optimization of disciplinary (discipline), multi-disciplinary, inter-disciplinary to trans-disciplinary approaches based on inter-disciplinarily and stakeholder participation processes (refer to Fry et al. [32]) for further background). This process is also fundamental to the formulation of Integrated Development Plans (IDP’s) in applied in South Africa. However, the integration of the professions in terms of the preparation of sectoral plans is still disjointed and shows limited levels of real integration and trans-disciplinary involvement. Figure 1 shows the scope of inter-active disciplinary approaches to promote the interface between transportation planning, urban and regional planning, and environmental management with stakeholder involvement in an endeavor to promote sustainable development.
Source: Fry et al. [32].
Figure 1: Application of disciplinary approaches in promoting the interface between disciplines.
The ultimate goal is to guide the approach, thinking and insight capabilities of professionals and researchers based on the complexity of functional involvement and strategic level as being illustrated in Figure 1. Within the context of integration it involves the promotion of the process of insight and thinking development ability between the professions (Figure 2).
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Trans-disciplinary
Inter-disciplinary
Disciplinary
Innovative/Creative Integrative
Constructive Traditional
Multi-disciplinary
Level of complexity
Level of functional expertise
Lev
el o
f str
ateg
ic in
volv
emen
t
(rep
etiti
ve) L
evel
of i
nsig
ht a
nd th
inki
ng (
late
ral)
Source: Own construction, 2011.
Figure 2: Process of development of insight and thinking by practitioners in transportation planning, spatial planning and environmental management.
Urban Planning Theory
TransportationPlanning
Regional Planning Theory
InformationSystems
/modeling
Urban Ecology
GovernmentalAdministrationManagement
Botany
Statutory planning
Strategic Spatial
DevelopmentFrameworks
Zoology
Locationtheory
Geology Biodiversityplanning
EnvironmentalManagement and
Geography
Architecture/Urban Design
Urban Planning
Frameworks
Operationsresearch
BIOLOGICAL SCIENCES
POLITICALSCIENCE
ECONOMICS
HISTORY
MATHEMATICS,COMPUTER SCIENCE
RESEARCH AND DEVELOPMENT
NATURAL SCIENCES
PHSYCOLOGY,SOCIOLOGY
Fields fundamental to spatial planning
Fields related to spatial planning (non-core)
Core spatial planning focuses
EnvironmentalPlanning
Planning Law
Secondary fields supporting spatial planning
CAD/GISCartography
LAW AND LEGISLATION
EngineeringPlanning
UrbanRegeneration
Place, spaceidentitiy andexperience
ENGINEERING
Source: Own construction, 2011.
Figure 3: Macro and micro subject areas within the education sector illustrating the interface relationships.
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Figure 3 illustrates the macro context of the educational and research relationships influencing the nature of the interface between transportation planning, spatial planning (inclusive of urban and regional planning) and environmental management. Table 2 shows the level of management and functional involvement between transportation planning, spatial planning and environmental management based on the deductions of this paper and line of arguments presented thus far. From the table the activity category together with an assessment of the level of involvement are indicated. This process is based on the focus of the domain as discussed above, policy and the legislative framework applicable to each of the professions. This assessment is indicative if the interface between them. A distinction is made in classification between direct, indirect, application and no involvement categories.
Table 2: Assessment of the interface based on activity characterization.
Sust
aina
ble
deve
lopm
ent
Impl
emen
tatio
n Intervention Direct None Indirect Monitoring Indirect Indirect Indirect Operation None None Indirect
Implementation None Indirect Direct Project management None Indirect Direct
Design None Direct Direct
Spat
ial p
lann
ing
Feasibility Indirect Direct Direct Accessibility None Direct Direct
Statutory planning None Direct Indirect Need and desirability Direct Direct Direct
Services Indirect Direct Direct Movement patterns Indirect Direct Direct Settlement patterns None Direct Direct
Socio-economic Direct Direct Direct Planning Indirect Direct Direct
Integration Indirect Direct Direct Systems approach Indirect Direct Direct
Strategy formulation Direct Direct Direct
Man
agem
ent
Leading Direct Indirect Indirect Coordinating Direct Indirect Indirect Organizing Direct Indirect Application Life cycle Direct Indirect Indirect
Quality management Direct None Indirect Resource management Direct Indirect Direct
Risk management Direct Indirect Application Controlling Direct Indirect Application Mitigation Direct Indirect Application
Impact determination Direct Indirect Indirect
Level of involvement Environmental Management
Urban and Regional Planning
Transportation planning
Source: Own construction (2010).
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5 Planning process considerations between transportation planning, spatial planning and environmental management
Table 3 shows the collaborative practice, management instruments and functional involvement between transportation planning, spatial planning and environmental management based on the content of the paper including the line of arguments generated thus far. From the Table 2 above the activity category together with an assessment of the level of involvement per disciplinary field area are indicated. This process is based on the focus of the domain as discussed above, policy and legislative framework applicable to each of the professions. The assessment as contained in Table 2 and Table 3 is thus indicative of the level of interface between them.
Table 3: Instruments in collaborative practice.
ITP SDF Environmental Man. Integrated transport plans
(ITP) Traffic impact assessments
(TIA) Accessibility studies (AS) Traffic engineering plans
(TEP) Route alignment
assessments (RAA) Public transport plans (PTP) Transportation infrastructure
plans (TIP) High speed rail planning
(HSRP) Transportation economic
analysis (TEA) Transportation master plans
(TMP) Transportation modeling
(TM) Traffic demand management
(TDM) Traffic access management
(TAM)
Integrated development plans (IDP)
Housing sector plans (HSP) Sectoral Plans (SP) Precinct plans (PP)
Urban regeneration plans. Urban design plans (UD)
Spatial master plans (SMP) Transportation planning/plans
(TP) Site development plans
(SDP) Urban formalization plans
(UFP) Land use management plans
(LUMP) Spatial development frameworks (SDF)
Statutory planning (SP) Potential development
analysis (PDA)
Environmental management frameworks (EMF)
Strategic environmental assessments (SEA)
Environmental impact assessment (EIA)
Cumulative environmental assessments (CEA)
Economic environmental assessments (EEA)
Environmental mitigation plans (EM)
Environmental management programmes (EMP) Heritage plans (HP)
Bioregional plans (BP) Ecology plans (EP)
Integrated environmental management (IEM)
Biodiversity plans (BDP) Environmental impact
mitigation plans (EIMP)
Source: Own construction. From Table 3 and Figure 4 the planning instruments in terms of plan classification used in ITP, SDF and Environmental Management practice is evident. The need to formalize integration and collaboration practices is thus a necessity in the light of the underlying complexities contained in each of the instruments. The result if not implemented is duplication, confusion and disjointedness in the planning processes.
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IDP/IEM
EMF SDF ITP
Environmental Spatial Transport
EIA and EMP Projects ITP
Delivery
Strategic Management Frameworks
Strategic Spatial Assessment
EM Plans
CEA
NSDP (2006)
PSDF
MSDF; DMSDF
LMSDF
PLTF
MITP
DITP
LITP
Public Transport Arrangements
Co
mm
un
icat
ion
/
Par
tici
pa
tio
n
Policy and Legislative Framework
PRECINCT PLANS
NLTSF
SEALUMS
Source: Own construction (2010).
Figure 4: Process relationships between processes within professions.
6 Conclusions and recommendations
From the contents above the following conclusions can be drawn:
The application of practices that serves the objectives of transportation planning, spatial planning and environmental management serves as the main reason for the disjointedness in attaining sustainable development within spatial systems.
The disjuncture is due to focuses that serves the interest of a particular profession only. In the ‘battle for turf’ each of the professions functions primarily within its own guiding policy and legislative framework.
Professional integration becomes then the role and function of the government sector as adjudicator that impacts negatively on delivery and sustainable development.
Capacity building amongst professions will promote integration in plan formulation and project implementation.
Improved alignment of the applicable policy and legislative frameworks will promote sustainable planning and development.
The alignment of education, training and professional practices is required if the impediments in terms of the professional domain as illustrated in this paper is to be addressed.
The application of integrated simulation, modelling techniques and methodologies to be informed by transportation planning, spatial
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planning and environmental management practitioners will improve alignment and sustainable planning and development.
Formulation of trans-disciplinary plans to integrate and align plan formulation amongst the professions supported by integrated policy and legislative frameworks.
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