Understanding Bulk

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Understanding Bulk

• An overview

Presented by Sydney Holden and Gregory
September Date 23 November 2007 Compiled by
Sydney Holden Directorate Strategy and Planning
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Understanding Bulk
Content

• Introduction
• Definitions Of Bulk and related informants
• Measurement / Calculation of Bulk / Floor
  Space
• Key Considerations in striving for Bulk
• Application of Bulk in the City Some
  Examples
• International Practice / Trends towards Bulk
• Broader challenges relating to Bulk.
• Conclusion

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Introduction

• Bulk and massing are used in many cities
  internationally to control the amount of
  construction in a particular area. This is
  usually done by using a certain formula for
  floor-to-area ratios termed differently in
  different cities. In Cape Town, for instance,
  this is called the Permissible Floor Area Ratio,
  in New York the Floor Area Ratio or Floor Space
  Index, and in London Plot Ratios. The purpose of
  this paper is to provide some understanding on
  the concept of bulk.
• In Cape Town with increasing urbanization, land
  scarcity and land price escalation, the use of
  air rights in the form of increased bulk is a
  reality in our Central City Environs and adjacent
  areas of higher amenity and economic value.

4
Introduction (cont.)

• However, a key driver of the concept of bulk is
  economic development and tourism. In this
  respect just a few pointers as it relates to Cape
  Town.
• Between 2003 and 2006 there has been a 4 growth
  Building Plans processed (48 000 plans in 2006).
• The growth in plan value has escalated by 85
  over the same period from R6,5 billion to R12
  billion.
• Between 1995 and 2006 the City contributed 16
  of National Growth and 82 of new Provincial
  Economic Growth.
• 22 of all economic activity takes place in the
  Central Business District whilst Cape Town,
  Bellville and Claremont support 46 of total
  Business Turnover and contain 42 of formal
  businesses in the City.
• The current population in the City stands at 3,27
  million people.
• In the next 3 5 years there are already over
  R30 billion worth of private and public sector
  development projects in the Central Cape Town
  area that will impact on our economy.

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Mapping impact of key development projects in the
Cape Town Central City worth approximately
R28,5bn over the next 3-5 years

• Private sector

• Private sector

• VA Waterfront expansion (multiple projects)
• Jarvis House, Green Point (R300m)
• De Waterkant Centre, Green Point (R100m)
• Somerset Square, Green Point (R100m)
• Cape Royal Hotel, Green Point
• Strand on Adderley (R2,2bn)
• Golden Acre upgrade (R475m)
• 11 Adderley upgrade
• Oscar Pearse Hotel (new - R220m)
• Taj Hotel (new - R500m)
• 106 Adderley commercial/ retail (R300m)
• Cape Sun upgrade (R56m)
• Townhouse Hotel/ Plein Park upgrade
• Citroen Building (R90m)
• Oval Institute (R12m)
• Malgas/ Brian Porter site
• Amway House site
• Liebenberg and Stander Building

• Harbour Bridge, Roggebaai (R180m)
• Canal Quay, Roggebaai (R220m)
• Cnr Riebeeck/ Bree two sites
• The Pulse (R600m)
• T1, Strand/ Buitengracht
• New Hotel, Buitengracht/ Wale
• Wembley Square extension, Lower Gardens
• Orangerie, lower Gardens (R180m)
• 15 on Orange Hotel, Lower Gardens (R500m)
• Creative House, Church Square
• 4 Church Square (R20m)
• Piazza on the Square (R70m)
• Four Seasons, Buitenkant (R100m)
• Temple House, Buitenkant
• Ogilvy Building, Woodstock
• The District, Woodstock
• Boulevard, Woodstock
• D6 Homecoming/ Sacks Futeran (R30m)
• Desmond Tutu Peace Centre (R140m)

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Mapping impact of key development projects in the
Cape Town Central City worth approximately
R28,5bn over the next 3-5 years

• Public sector / JVs

• Public sector / JVs

• Green Point Stadium (R3,2bn)
• Green Point Sport and Urban Park (R160m)
• Granger Bay Boulevard
• Somerset Hospital site
• Parliamentary extension (R750m)
• (Proposed) Parliamentary residential complex
  (R1,2bn)
• City Hall (R81m)
• Good Hope Centre (R50-75m)
• Granary Building (R35m)
• CT Station, phase one (R265m), phase two
• CT Harbour expansion (R4,5bn)
• Foreshore Blocks A (City) B (Media 24) and C
  (PGWC)
• CTICC Expansion and hotel and office site
  (R680m)
• Site B, Old Power Station Site

• Grand Parade (R23,5m)
• Greenmarket Square (R4m)
• St Andrews Square (R8m)
• Pier Place (R2m)
• Harrington Square (proposed)
• Electricity network upgrade (R300m)
• Inner City Transport Projects (R50m)
• District Six
• Salt River Market (R1m)
• Social Housing projects Woodstock, Bo Kaap
• Fibre Optic Network rollout (phase one R50)
• Iziko Social History Centre (R50m)
• Drill Hall/ CT Library
• Companys Gardens upgrade (R1m)

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Definitions of bulk and related informants

• Bulk in the City of Cape Town is governed by the
  following definitions
• Actual Floor Area, in relation to a building,
  means the total floor area of such building,
  inclusive of areas covered by walls of such
  building.
• Permissible Floor Area, in relation to a site
  means the floor area which may not be exceeded by
  the actual floor area of buildings on such site.
  The permissible floor area shall be equal to the
  area of the site multiplied by a factor
  quantified for the use zone.
• In the Citys proposed Integrated Zoning Scheme,
  the following term is used
• Floor Factor means the factor (expressed as a
  proportion of 1) which is prescribed for the
  calculation of maximum floor space of a building
  or buildings permissible in a land unit. If the
  floor factor is known, the maximum permissible
  floor space can be calculated by multiplying the
  floor factor by the area of the land unit.

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The definitions of bulk in some major South
African cities are

• City of Johannesburg (Sandton)
• Floor area ratio  means the sum of the area
  covered by the buildings at the floor level of
  each storey in relation to site area, provided
  that in calculating the floor area certain areas
  could be excluded. Exclusions roofs,
  staircases, parking areas etc.
•  City of Mangaung (Bloemfontein)
•  Bulk means the floor areas of all storeys of a
  building(s) on a site except that certain areas
  are excluded from this by the scheme. The
  maximum permissible floor area is expressed as a
  factor which is to be multiplied by the area of
  the site in each case, to obtain the said
  maximum. Exclusions floor area used for
  parking, lift wells, staircases etc.

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The definitions of bulk in some major South
African cities are (cont.)

• Buffalo City (East London)
• "Maximum floor space" means the greatest total
  floor space which is allowed for a building or
  buildings with all of its floors on a site such
  floor space is calculated by multiplying the
  floor factor with the net erf area of a site or
  that portion of the site which is situated within
  the particular zone provided that where a site
  has more than one zoning to which different floor
  factors apply, the maximum floor space for the
  whole site shall be the total of the maximum
  floor space for each portion of the site.
  Exclusions include parking areas, external fire
  escape areas, stairs, balconies etc.
• Floor factor means the factor that is
  prescribed for the calculation of the maximum
  floor space of a building or buildings
  permissible on a land unit it is the maximum
  floor space as a proportion of the net erf area.

10
The definitions of bulk in some major South
African cities are cont.

• Generally speaking, a floor-to-area ratio is the
  ratio of the total floor area of buildings on a
  certain location to the size of the land of that
  location, or the limit imposed on such a ratio.
  The Permissible Floor Area Ratio is the total
  building square metres (building area) divided by
  the erf size square meterage (erf area). Thus,
  as a formula, floor-to-area ratio is the total
  covered area on all floors of all buildings on a
  certain erf. A floor-to-area ratio of 2.0 would
  indicate that the total floor area of a building
  is two times the gross area of the erf on which
  it is constructed. Certain exclusions usually
  apply. In Cape Town, for instance, this excludes
  non habitable space like corridors, lifts and
  stairs.

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Development Rules

• Floor Space (Bulk)
• Height
• Coverage
• Building Lines
• Setback

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Floor Space (Bulk)

• Quantification of development rights
• Traffic Service implications
• Bulk service levy
• Urban form implications

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Measurement / Calculation of bulk / floor space

• Different Zones and Sub Zones have different
  Bulk Factors
• General Residential Sub Zones (R1 R12) Bulk
  Factor 0,4 5,6
• Special Business Bulk Factor 1,0
• General Business / Commercial (B1/ C1 B4 /
  C4) Bulk Factor 1,2 5,6
• General / Noxious Industrial Unlimited
• General Commercial / Business (C6 /
  B6) Unlimited
• The width of abutting streets can reduce your
  bulk factor for certain buildings, e.g.
• Places of assembly
• B4 / C4 / B5 / C5 General Business / Commercial

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Measurement / Calculation of bulk / floor space
(cont.)

• Certain components of buildings are INCLUDED
  in the calculation of Floor Space
• Portions covered by walls
• Floors / paved areas covered by portion of
  building
• Galleries and passages
• Floors of verandahs, porches, balconies
• Floors of terraces, flat roofs to which
  occupants have access
• Internal courtyards, light wells, uncovered
  shafts which do not exceed 10m²
• Lift shaft, stair shaft, pipe duct or other
  internal floor opening
• Area covered by roof, slab or projection
• Floor space measured from outer face of exterior
  walls
• Total floor space sum of all floors and
  basements
• Stairs, atriums and common passages covered by
  roof

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Measurement / Calculation of bulk / floor space
(cont.)

• Certain components of buildings are EXCLUDED
  in the calculation of Floor Space
• Stoeps
• Entrance steps / landings
• Garages (parking and loading)
• Covered paved area outside / adjoining building
  at or below ground floor level
• Uncovered flat roof (recreation area) for
  occupants only and uncovered balcony which
  exceeds 10 m²
• Eaves, sun screen, architectural features
• Public arcade connecting public places

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Measurement / Calculation of bulk / floor space
(cont.)

• Different uses can have different floor space
  calculations
• Hotels EXCLUDE the following in the calculation
  of floor space
• Dining Rooms, Banqueting Rooms.
• Public Foyers.
• Shops in Hotel for exclusive use of guests.
• Administration Offices.
• Kitchens.
• Store Rooms.
• Staff quarters.

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Measurement / Calculation of bulk / floor space
(cont.)

• The calculation of floor space for blocks of
  flats is governed by
• A habitable room factor
• Calculation
• Other critical informants relating to bulk are
  coverage, height, building lines, and street
  centre line set backs.

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Integrated Zoning Scheme (IZS)

• In order to achieve consistency of measurement of
  floor space in arriving at bulk the proposed IZS
  is suggesting the following definition of floor
  space depicting certain exclusions
• Floor space in relation to any building means
  the area of a floor which is covered by a slab,
  roof or projection provided that
• any area, including a basement, which is
  reserved solely for parking or loading or
  vehicles, shall be excluded
•  external entrance steps and landings, any
  canopy, any stoep and any area required for
  external fire escapes shall be excluded
• a projection including a projection of eaves,
  and a projection which acts as a sunscreen or an
  architectural feature, which projection does not
  exceed 1,0 m beyond the exterior wall or similar
  support, shall be excluded

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Integrated Zoning Scheme (IZS) (cont.)

• any uncovered internal courtyard, lightwell or
  other uncovered shaft which has an area in excess
  of 10 m² shall be excluded
• any common pedestrian thoroughfare which
  provides access through the building concerned
  from parking, public street or open space, to
  some other parking, public street or open space,
  and which is accessible to the general public
  during normal business hours, shall be excluded
• any covered paved area outside and immediately
  adjoining a building at or below the ground floor
  level, where such paved area is part of a
  forecourt, yard, external courtyard, pedestrian
  walkway, parking area or vehicular access, and
  which is permanently open to the elements on at
  least the front or long side, shall be excluded

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Integrated Zoning Scheme (IZS) (cont.)

• any covered balcony, verandah or terrace which,
  apart from protective railings, is permanently
  open to the elements on at least the front or
  long side, and which does not exceed 2,5 m in
  width, shall be excluded
• subject to clause (ix), any stairs, stairwells
  and atriums that are covered by a roof shall be
  included
• in the case of multi-level buildings, any
  stairwells, liftwells, lightwells or other wells,
  and any atrium, shall only be counted once and
  provided further that
• floor space shall be measured from the outer face
  of the exterior walls or similar supports of such
  building, and where the building consists of more
  than one level, the total floor space shall be
  the sum of the floor space of all the levels,
  including the basements

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Integrated Zoning Scheme (IZS) (cont.)

• It is essential to distinguish permissible floor
  area / floor space from gross leasable area
  hence the IZS states
•  Gross leasable area means the area of a
  building designed for, or capable of, occupancy
  and control by tenants, measured from the centre
  line of the joint partitions to the inside
  finished surface of the outside walls, and shall
  exclude the following
• all exclusions from the definition of floor
  space
• toilets,
• lift shafts, service ducts, vertical penetrations
  of floors,
• lift motor rooms and rooms for other mechanical
  equipment required for the proper functioning of
  the building
• areas reasonably used in connection with the
  cleaning, maintenance and care of the building
  excluding dwelling units for caretakers,
  supervisors, cleaners or maintenance staff
• interior parking and loading bays

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Floor Space

• Floor space vs gross leasable area
• Floor space area covered by a slab, roof or
  projection
• - Measured from the outer face of exterior
  walls
• - Total floor space sum of all floors
  basements
• - Stairs, atriums common passages covered by
  a roof
• are included
• Parking balconies are excluded

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Floor Space Exclusions

• Balconies
• Eaves, sunscreen, architectural features
• Uncovered internal courtyard, light well
• Public arcade connecting public places
• Areas for parking loading

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Key considerations in striving for bulk

• Site Area
• Zoning
• Development Parameters (Height / Coverage /
  Building Lines / Parking)
• Title Deeds
• Servitudes (Services / Height)
• Geotechnics
• Road Widening Schemes
• Development Conditions (Sec. 42 (Lupo)
• Development Costs / Feasibility Analysis /
  Cost-Benefit / Value
• Policies (Overlays / Scenic Drives / Special
  Regulations)

• Impacts
• Environmental / Heritage
• Visual / Daylight / Shadow
• Urban Design
• Aesthetics
• Public Realm Interface
• Scale / Context
• Wind Tunneling
• Services Infrastructure
• Traffic
• Finance (Development Contributions)
• Time / Development Horizon / Risk

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Application of Bulk in the City Examples

• TAJ PALACE HOTEL
• Hotels are regarded as Bulk Friendly in view of
  the significant areas of exclusion from Bulk
  Calculation / Measurement.
• Bulk Area permissible 18 275m²
• Bulk used 12 786m²
• Full bulk cannot be achieved in view of Building
  Line / Envelope setbacks.
• Note the retention of historic facades.

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Application of Bulk in the City Examples

• Waterfront
• Package of plans approach.
• Development Framework / Precinct Plans / Site
  Development Plans / Building Plans.
• Bulk Register
• Infra-structure Development at key stages.
• Approximately 40 of bulk still available.
• Biggest challenge (Traffic / Parking)

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Application of Bulk in the City Examples

• Century City
• Approved as Sub-divisional Area in terms of LUPO.
• Package of plans approach.
• Sub-divisional Area / Site Development Plan /
  Building Plan.
• Bulk Register.
• Bulk permitted is limited by the conditions
  approved by Council and conditions in Title Deed.
• Additional bulk can be purchased Assessment.

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Application of Bulk in the City Examples

• Nedbank Foreshore
• Buildings that achieved prescribed bulk.
• Parking is bulk free.
• Offices require parking / office bulk being
  sacrificed for on-site, secure parking.

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Application of Bulk in the City Examples

• Shell House
• Buildings that achieved prescribed bulk.
• Parking is bulk free.
• Offices require parking / office bulk being
  sacrificed for on-site, secure parking.

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Application of Bulk in the City Examples

• 2 Long Street
• Buildings that achieved prescribed bulk.
• Parking is bulk free.
• Offices require parking / office bulk being
  sacrificed for on-site, secure parking.

35
Application of Bulk in the City Examples

• Pier Place
• 2 Floors extra parking built.
• Indicative of parking demand to satisfy modern
  office requirements.

36
New York City

• Zoning system
• Incentive zoning / reward based system to meet
  urban development goals.
• Base level of limitations on development.
• Incentive criteria e.g.
• far bonuses for housing
• height bonuses for public amenities.
• Incentive zoning is complex to administer - can
  become discretionary.
• Revision of balance between incentive and value
  given.

37
New York City (cont.)

• Definition of Bulk
• Bulk Regulations
• Combination of controls that determine the
  maximum size and placement of a building on a
  zoning lot.
• Unused Development Rights (Air Rights)
• Difference between permissible and actual floor
  area.
• Transfer of Development Rights
• Preservation of historic buildings
• Open space
• Cultural resources
• Usually across streets.

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New York City (cont.)

• Definition of Floor Area Ratio (FAR)
• Principal Bulk Regulation controlling the size of
  buildings.
• It is total building floor area to area of zoning
  lot.
• Flexibility in building design (combination of
  vertical and horizontal limits into single
  figure.
• The impact of floor area (parking / services)
  tends to be constant regardless of how that area
  is distributed horizontally and vertically.

39
London

• Planning system uses Performance Zoning (effects
  based planning)
• Use is made of goal-oriented criteria to achieve
  credits
• public amenities
• building affordable housing
• Advantages
• High level of flexibility, rationality,
  transparency and accountability.
• Performance zoning accommodates market principles
  / property rights with environmental protection.
• Disadvantages
• Difficult to implement.
• Requires high level of discretion.

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London (cont.)

• Definition of Bulk
• Bulk is the combined effect of the arrangement,
  volume and shape of a building. Also called
  massing combined effect of
• Height
• bulk and silhouette of a building (or)
• 3-dimensional expression of the amount of
  development on a given piece of land.

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London (cont.)

• Method of Control
• Bulk controlled by Plot Ratios.
• Measurement on the overall dimensions of
  building or part of building below and above
  ground and includes internal and external walls.
• It includes stairs / lift shafts, corridors,
  halls, basements but excludes car / cycle parking
  accommodation.
• Inner urban areas Max. Plot Ratio 1,0 1
• Outer urban areas Max Plot Ratio 0,6 1
• Exceptions
• Townscape reasons.
• Contribute sustainable development
• Travel patterns

42
London (cont.)

• Key Considerations
• Massing should contribute to distinctive
  skylines.
• Overshadowing
• Local climatic conditions
• Views / vistas / landmarks
• Relationship with street
• Re-use of retained buildings / character of area.

43
London (cont.)

• Future of London Tall Buildings
• High buildings are part of regeneration.
• Relevant to master planning of areas with good
  public transport and capacity.
• Long distance orientation points.
• Criteria-based approach to the assessment of
  planning applications for the buildings.

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Broader Challenges Relating to Bulk

• Spatial Planning / Ordering
• Urbanization Strategy / Growth Management /
  Regional Cooperation
• Densification Policy
• Urban Edge Policy
• Urban Design Policy Guidelines
• Creating Certainty and Consistency
• Legislative Uniformity (Integrated Zoning
  Scheme)
• Political Endorsement / Public Participation

• Incentivization
• Community Facilities
• Housing
• Public Places Upgrade
• Historic Precinct Upgrade 
• Bulk Transfer (from Historical Precincts to
  Central City / Foreshore)
• Spatial Market Analysis (Market trends / tenant
  mix / nodes)
• Services Infrastructure
• Public Transportation

45
Conclusion

• It is quite evident that maximum bulk is seldom
  achieved in the CBD environs of major South
  African cities this largely being because of
  the lack of effective and efficient public
  transport systems and our reliance on private
  vehicle space at or close to places of employ.
  How many people can you effectively bring into
  the city without extending the peak flow of
  traffic beyond all reason. Currently 120 000
  people converge on the city daily. (50 rail /
  50 road)
• Previously bulk rates could be achieved as
  parking was not in such demand. Now 3,2 6,0
  parking bays / 100 m² is required in order to
  tenant buildings in the CBD. What is however,
  encouraging is seeing the numerous buildings
  being re-developed with a significant emphasis on
  residential accommodation.

46
Conclusion (cont.)

• Furthermore, heritage buildings form an important
  aspect of our rich culture in Cape Town and
  preservation of conservation-worthy buildings and
  facades must be factored into the future bulking
  of our city.
• Development is generally constrained by the
  Mountain Chain and Sea, this together with
  relatively small building blocks available for
  achieving big / tall buildings all adds to the
  challenge.
• The Central City Development Strategy involving
  both private and public sector and which
  encompasses, inter alia, infra-structure, urban
  design, public transport, city management of the
  public realm and planning requires rapid
  finalization and implementation in order to
  sustain the future economic growth of the City.

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Conclusion (cont.)

• Given the impetus of 2010 in the development and
  investment in the City R30 billion over the
  next 3 5 years it is essential that
  strategies be finalised and related guidelines /
  projects implemented.
• The compilation of an integrated zoning scheme
  incorporating the philosophies contained in
  policy / strategy will rationalise and
  standardize development zones and parameters and
  enable bulk regulations to be set which
  facilitate better urban form whilst encouraging
  the re-development and/or protection of areas
  through overlay zones.
• Whereas the achievement of existing or increased
  bulk rights is certainly feasible and supported
  this should not be at the expense of our heritage
  resources, good urban design or sound spatial /
  locational criteria. An integrated and pragmatic
  approach is needed to integrate and balance the
  sustainable development of our City in achieving
  its strategic objectives key in all of this
  with respect to bulk is PUBLIC TRANSPORTATION
  SYSTEMS.

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For more information

• Sydney Holden
• Cell 084 629 3328
• E-mail sholden_at_telkomsa.net
• Gregory September
• Cell 084 499 4923
• Gregory.september_at_capetown.gov.za

49
Transportation Initiatives

• With respect to Public Transportation
  initiatives, the following is evident
• Challenges
• Improving public transport for the FIFA 2010
  World Cup is the Citys main priority in this
  five year plan.
• To improve and promote public transport the City
  plans large-scale investment in public transport
  infrastructure and an implementation action plan
  for the City is in the final stages of
  production.
• Existing public transport priority lanes will be
  enforced and new ones introduced.

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Transportation Initiatives

• Achievements
• The following statutory plans have been approved
  
• Public Transport Plan (PTP) 2006 2011,
  Integrated Transport Plan (ITP) 2006 2011
  strategic transport plans aligned to the Citys
  5-year Integrated Development Plan.
• Public Transport Implementation Action Plan has
  been developed.
• Plan outlines a list of projects, timeframes,
  budgets and responsibilities in 3 phases
  catalytic projects for 2007 2010, 2010 2014
  and 2014 2020.
• External Funding the City has allocated R766 m
  from Public Transport Infrastructure Systems
  Fund (PTISF) for the next 3 years.
• Priority on improvements in public transport,
  non-motorized transport and 2010 Event transport
  supporting infrastructure, systems and services.

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Transportation Initiatives

• Achievements (cont.)
• A Transport Capital Investment Management System
  has been developed to co-ordinate and manage all
  transport projects being implemented by key
  stakeholders airports, rail, road upgrades,
  etc.
• Projects under construction include
  Metropolitan Transport Information Centre
  (MTI)Upgrade Symphony Way Corridor Airport
  City Link projects which include N2 freeway
  upgrade, Klipfontein Corridor, Stadium and CBD
  link projects.
• Current Secured funding for all transport
  infrastructure including rail, airport, strategic
  road upgrades is approximately at R5,5 bn.

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Transportation Initiatives

• Public Sector Collaboration
• An obstacle is the current fragmentation of roles
  and functions between the different spheres of
  government and other agencies.
• An Intergovernmental Transport Committee has been
  established to address current fragmentation of
  roles and functions and to facilitate integrated
  collaborative approach to service deliver.
• Single Point of Authority for transport is in
  progress with the main focus on public transport
  operations and the establishment of a public
  transport entity.