ANNEXURE 1
Parks Development Policy
Draft Policy #2
CITY OF CAPE TOWN
Parks Development Policy
DRAFT
15 January 2014
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ANNEXURE 1
Parks Development Policy
Draft Policy #2
CONTENTS
DEFINITIONS .................................................................................................................................. 3
ABBREVIATIONS ............................................................................................................................. 3
1.
PROBLEM STATEMENT ....................................................................................................... 4
2.
DESIRED OUTCOMES .......................................................................................................... 4
3.
STRATEGIC INTENT ............................................................................................................. 5
5.
POLICY PARAMETERS ........................................................................................................ 6
6.
ROLE PLAYERS AND STAKEHOLDERS .............................................................................. 7
7.
REGULATORY CONTEXT..................................................................................................... 8
8.
POLICY DIRECTIVE DETAILS .............................................................................................. 9
9.
IMPLEMENTATION PROGRAMME ..................................................................................... 11
10.
MONITORING, EVALUATION AND REVIEW ...................................................................... 11
DOCUMENT CONTROL
Reference code: to be allocated by SPU
File name
Original author(s)
Current revision author
Next review date
Version
Date
Draft 1
5 November 2013
Draft 2
15 January 2014
Parks Development Policy
City Parks Department
John Bennett
July 2019
Status
Discussed with Mayco Member, SPU, Executive Director
and Director City Parks
Requesting permission from Portfolio Committee to
commence public participation
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DEFINITIONS
”Capital investment framework”: means the City Parks Framework for identifying and prioritising
capital projects for implementation in the following financial year and medium-term period which
aligns with the City‟s Integrated Development Plan (IDP) and the objectives and strategies of the
City Parks department.
“City” means the City of Cape Town
“Community Park”: means land zoned „public open space‟ of a smaller scale which serves the
informal recreational needs of the immediate local community or neighbourhood
“Council” means the Council of the City of Cape Town, established by Provincial Notice 479 of
2000 issued in terms of section 12 of the Municipal Structures Act, Act No. 1998;
“District parks”: means land zoned „public open space‟; usually of a large scale which provides a
variety of recreational facilities, which serve the needs of several surrounding local communities or
suburbs and to which people may be prepared to travel some distance.
“Integrated recreational facilities”: can be likened to a district park but also incorporating formal
sporting fields and facilities, and integrating with other public facilities such as a library or a health
clinic in a cluster for the convenience of users.
“Park”: means an area of open space provided for recreational use
“Parks management plan”: a plan for a single or a number of similar parks which is focussed on
achieving the desired level of management and maintenance while planning for the best use of
resources throughout the asset lifecycle and replacement schedule.
“Recreational facility”: means a facility that caters for specific types of play. Examples could be
skateboarding ramps, climbing walls, spray parks, specialised surfaces for ball games.
“Smart parks”; relates to a programme for the development of a number of selected medium sized
parks which are specifically chosen for their location and ability to integrate with other public
facilities and can be identified by a selection of high quality facilities and for their safety.
ABBREVIATIONS
CTSDF:
Cape Town Spatial Development Framework
IDP:
Integrated Development Plan
IMEP:
Integrated Metropolitan Environmental Policy
POS:
Land zoned Public Open Space and falling under the jurisdiction of City Parks
SDS:
Social Development Strategy
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1. PROBLEM STATEMENT
1.1. Parks provide people with access to open space and nature, which is known to confer
certain health benefits and enhance well-being and provide opportunities for physical
activity. Parks also have an impact on the environment and help to mitigate climate, air, and
water pollution impacts on public health. Research has also indicated the social benefits of
parks which provide recreational activities for children and adults, promote social interaction
and reduce crime. The economic benefits are also well documented and range from
increased property values to tourism and attracting and retaining businesses and residents.
1.2. With a limited resource allocation, it is not possible for City Parks to meet all the demands
for the development of parks and playgrounds that are required of integrated human
settlements. It is essential that resources are allocated to where there is greatest need and
used in the most effective manner to deliver quality parks.
1.3. There is a need for a policy to ensure consistency in decision-making relating to the
development of new and upgraded parks and the provision of facilities which will meet the
needs of community and safeguard the long term sustainability of these amenities, while
ensuring a satisfied user.
1.4. Hence the 2005 City Parks Development Policy requires review as it does not satisfactorily
address the needs of community.
2. DESIRED OUTCOMES
2.1. This policy seeks to provide a high-level, cohesive and robust framework to guide decisionmaking when requests are received for a new park development, upgrading of an existing
park or the provision of specific recreational facilities in a park. Such requests may come
from the community leaders, members of the public or organisations.
2.2. The overarching aims of this policy is to
2.2.1. develop parks that satisfactorily address the needs of community.
2.2.2. ensure the long term sustainability of park developments, particularly in situations
where capital and operating resources are limited.
2.3. The City of Cape Town recognises the important role that parks and recreational facilities
can play in the lives of its residents and visitors and is committed to providing facilities in its
parks that are:
2.3.1. high quality;
2.3.2. safe and accessible;
2.3.3. attractive and challenging to users, especially children; and
2.3.4. meet the varying needs of community and special interest groups, for example, the
physically challenged.
2.4. Parks may also contribute to other outcomes including:
2.4.1. Community pride and ownership;
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2.4.2. Environments that are appreciated, protected and sustained for future generations;
2.4.3. Healthy individuals and communities by providing opportunities for informal sport and
recreation and spaces that re-create the human psyche ;
2.4.4. Income streams via advertising, events and sponsorships; and
2.4.5. providing economic opportunities via tourism, leased facilities or concessions.
3. STRATEGIC INTENT
4. This policy aligns with a number of overarching strategy documents that inform the City‟s
priorities:
4.1. Integrated Development Plan
4.2. This policy is aligned with the following strategic focus area objectives of the IDP:
4.2.1. The Caring City: As a caring city, the City of Cape Town strives to provide access to
community services for those who need them. This programme of the IDP suggests
that the City will explore the potential for innovative collaborations with corporates and
civil society to develop and maintain parks.
4.2.2. The Inclusive City: An inclusive city is one where everyone has a stake in the future
and enjoys a sense of belonging. The provision of parks and community facilities
contributes towards providing the spaces and opportunities to build more integrated
communities. The IDP notes „City will strive to plan, implement and manage new
community facilities in a joint, integrated, clustered, multifunctional manner with internal
and external partners. In this way, it will minimise capital development and operational
costs, and maximise community use, ownership and pride.‟ It also notes that „City
Parks will aim is to provide parks that are “custom-made for the surrounding
communities and that are safe, of high quality and, where possible, integrated with
other community facilities.‟
4.3. ONECAPE2040 and the City Development Strategy
4.3.1. Policy-making in the City is informed by the „six transitions‟ identified in the
OneCape2040 strategy developed by the Western Cape Economic Development
Partnership. The OneCape2040 is interpreted specifically for the City‟s needs by the
City Development Strategy.
4.3.2. In this instance, the Settlement Transition is relevant. It aims to ensure the
development of neighbourhoods and communities where there is a good quality of life
for all and which are accessible, provided with good public services and which are rich
in opportunity.
4.4. Social Development Strategy
4.4.1. The SDS sets out the medium term strategy of the City for maximising and promoting
social development. The SDS describes the important role that parks can provide in
creating inclusive communities. This is articulated in Lever 5.2 „Promote and foster
social interaction through recreational and active citizenship opportunities’.
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4.4.2. Furthermore, social programmes in City Parks are seen as interventions which aid in
crime prevention, youth development and addressing substance abuse. In this way,
parks are viewed as assets that can be used for a variety of purposes in order to
promote social development.
4.5. Cape Town Spatial Development Framework
4.5.1. The CTSDF views parks as both natural assets and destination places. Strategy 3:
“Build an inclusive, integrated, vibrant city” has implications for this policy. The relevant
sub-strategies and policies may be summarised as:
4.5.1.1.
Encourage integrated settlement patterns by ensuring that development
proposals provide an adequate and equitable distribution of social facilities,
recreational space and public institutions.
4.5.1.2.
Promote accessible, citywide destination places by developing high-quality,
accessible destinations and public spaces in newly developed and neglected
areas.
4.6. Integrated Metropolitan Environmental Policy
4.6.1. The IMEP outlines the way in which the City intends to implement its commitment to
the principles of sustainable development.
4.6.2. Its 20 year vision includes that : “[t]here will be adequate and well-distributed open
spaces for recreation and sustaining biodiversity.” The general policy principles of the
IMEP will inform the review and development of the Parks Development Policy.
4.7. Urban Design Policy, 2013
4.7.1. The Urban Design Policy guides and directs design considerations in respect of
individual proposals so that the public environment is improved.
4.7.2. The following objectives are of relevance to the Parks Development Policy:
4.7.2.1.
Objective 2: Ensure that development contributes to improved quality of the
public realm and public spaces
4.7.2.2.
Objective 3: Ensure that developments contribute to the creation of safe and
secure communities
4.7.2.3.
Objective 5: Promote development intensity, diversity and adaptability
4.7.2.4.
Objective 8: Development should protect, value and enhance the natural
environment through sustainable design
4.7.2.5.
Objective 9: Development should respect and enhance the heritage,
character and unique identity of the city and its neighbourhoods
5. POLICY PARAMETERS
5.1. The asset lifecycle of a park includes:
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5.1.1. Planning which is described in the Capital Investment Framework.
5.1.2. Design and development which is set out in this policy.
5.1.3. Management and maintenance which is set out in individual Parks Management
Plans and guided by City norms and standards.
5.2. This policy deals specifically with the phase of work where designers and landscape
architects, in consultation with stakeholders, design and develop new or upgrade older
parks in terms of an asset replacement programme.
5.3. This central phase of work bridges the gap between a planning phase and a maintenance
and management phase of work.
5.4. The policy excludes:
5.4.1. the planning for provision of POS and final site selections;
5.4.2. the maintenance and management of developed POS;
5.4.3. programming and events on POS;
5.4.4. matters relating to the provision of facilities for formal sport;
5.4.5. all matters relating to cemeteries and crematoria;
5.4.6. other related functions and services for which alternative policies exist or can be
formulated for example the Tree Policy.
6. ROLE PLAYERS AND STAKEHOLDERS
6.1. City Parks in Community Services is the principal role-player responsible for implementing
the policy as well as administering its review and evaluation.
6.2. Key internal stakeholders will include the Mayco member, Portfolio Committee and
Executive Director responsible for Community Services.
6.3. The policy has some transversal implications. The internal role-players are shown below:
6.3.1.
6.3.2.
6.3.3.
6.3.4.
6.3.5.
6.3.6.
6.3.7.
Community Services Directorate
Human Settlements Directorate;
Tourism, Events and Marketing Directorate;
Economic, Environmental and Spatial Planning Directorate;
Transport for Cape Town;
Social Development & Early Childhood Development Directorate;
Safety and Security Directorate.
6.4. When necessary, the following external stakeholders will be consulted in the
implementation of this policy:
6.4.1.
6.4.2.
6.4.3.
6.4.4.
6.4.5.
6.4.6.
National Department of Public Works;
National Department of Sport and Recreation;
Western Cape Provincial Government Department of Education;
Western Cape Provincial Government Department of Cultural Affairs and Sport;
“Friends of the Park” organisations;
National Parks Board;
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6.4.7. Housing Development Agents;
6.4.8. Park users;
6.4.9. Sub-councils and Civil Society;
6.4.10. Businesses.
7. REGULATORY CONTEXT
7.1. This section lists the relevant legislation and policies that provide context to this Parks
Development Policy:
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The Constitution of the Republic of South Africa, Act No 108 of 1996
Water Services Act, Act No 108 of 1997
Environmental Conservation Act, Act No. 73 of 1989
Forest Act, Act No. 84 of 1998
Conservation of Agricultural Resources Act, Act No. 43 of 1983
National Environmental Management Act, Act No. 107 of 1998
Land Use Planning Ordinance, No. 15 of 1985
National Environmental Management Biodiversity Act, Act No. 10 of 2004
The Municipal Systems Act, Act 32 of 2000
City of Cape Town: Graffiti By-Law, 2010
City of Cape Town: Outdoor Advertising and Signage By-law, 2013
City of Cape Town: Public Parks By-law, 2010
City of Cape Town: Informal Trading by-law, 2009
Integrated Development Plan
City Development Strategy & ONECAPE2040
Social Development Strategy, 2013
Economic Development Policy, 2013
Cape Town Spatial Development Framework, 2012
Integrated Metropolitan Environmental Policy, 2001
City of Cape Town Biodiversity Strategy, 2003
Floodplain and River Corridor Management Policy, 2009
Tree Policy, 2002
Cellular Telecommunication Infrastructure proposed in Public Open Spaces, 2011
Verge mowing policy: Maintenance of grass verges within residential areas, 2003
Film Policy and Protocol, 2004
Urban Design Policy, 2013
Events policy, 2013
City Parks Maintenance Standards, 2010
Cape Town Zoning Scheme, 2012
Greening Strategy, 2010
Summary guidelines and standards for the planning of City of Cape Town social facilities
and recreational spaces, CSIR, 2010
Evaluation of community social facilities and open space in City of Cape Town: current
provision and optimal location of new facilities for 2016, CSIR, 2010.
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8. POLICY DIRECTIVE DETAILS
8.1. City Parks uses typologies to distinguish different categories of parks and the services that
are provided in each. In the context of this policy, these include integrated recreational
facilities, district parks, smart parks and community parks.
8.2. The Parks Development Policy provide high level direction rather than detailed prescriptions
and are based on the following basic principles:
8.2.1. Design for sustainability: Parks must be developed and upgraded to a high
standard and in an appropriate manner to ensure that scarce natural and financial
resources are used most effectively to prolong the asset lifecycle.
8.2.2. Design for community: The City provides a service to its community. It is essential
that communities are properly and adequately consulted to ensure that their needs are
understood so that the City provides an enabling environment where partnerships can
be formed and mutual benefits derived.
8.2.3. Design for use: Parks should provide opportunities for community to improve their
quality of life. The success of a park can be measured by the number and degree of
satisfaction of its users. As a minimum, facilities should reflect the needs of community
and, where applicable, the special needs of sectors of community should also be
addressed. Parks should be provided in a safe environment.
8.2.4. Design to generate revenue: Facilities, advertising and sponsorships should be
designed and conceived in such a manner that they provide opportunities for
generating income.
8.3. The upgrade or development of a park shall be guided by the City Parks Capital Investment
Framework.
8.4. Each new development or upgrade shall be governed by a plan which shall be guided by
the provisions set out below.
8.5. Design for sustainability
8.5.1. City Parks shall use knowledge gained from previous experience, sound design and
suitable specifications and shall choose good quality materials as a means of limiting
the maintenance implications of any development by reducing the impact on operating
costs and thereby extending the asset lifecycle.
8.5.2. City Parks shall counter vandalism by promoting the supply and installation of well
designed, robust equipment and facilities and by promoting community ownership of
facilities.
8.5.3. In line with its Greening Strategy, City Parks shall carefully select plant species that
are well adapted to local climatic conditions to ensure the long term sustainability of the
landscape. Well adapted indigenous species are the preferred choice.
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8.5.4. City Parks shall design parks carefully so that scarce water resources are not wasted
but used efficiently and effectively to establish and maintain plant material.
8.5.5. City Parks shall be the final decision maker regarding the approval or rejection of
development plans for parks projects proposed on public open space falling under its
jurisdiction.
8.5.6. Planning and Building Development Management Department shall circulate all
landscape plans for park development on City land to City Parks for its approval,
comment or rejection.
8.5.7. Capital costs will not be allocated for the development of parks if adequate operating
budget has not been provided to maintain and ensure the sustainability of the project.
8.6. Design for community
8.6.1. City Parks shall consult with the community to properly understand their needs.
8.6.2. City Parks shall promote and facilitate collaborations in the development and
maintenance of parks with “Friends” groups, businesses, communities and donors,
provided that there are mutual benefits and that adequate consultation has occurred
with the broader community.
8.6.3. City Parks shall ensure that suitable formal agreements are prepared and signed by
all parties to mitigate risk and promote collaboration.
8.7. Design for use
8.7.1. City Parks shall provide user friendly and safe access wherever possible to all POS
to ensure maximum utilisation of facilities.
8.7.2. City Parks shall, at strategically planned locations, provide easy access and specially
designed equipment for the physically challenged.
8.7.3. City Parks shall NOT provide formal sporting facilities on its parks, where club
practices and league matches can be expected to be held.
8.7.4. City Parks shall provide suitable fencing or other barriers in appropriate locations to
meet specific needs of community and users to define boundaries or ownership and
issues such as safety and security.
8.7.5. City Parks shall provide suitable infrastructure on parks which shall be determined by
need, age profile of a community, safety and sustainability factors.
8.7.6. City Parks shall provide specialised equipment or infrastructure (for example
equipment for physically challenged children) in a limited number of carefully planned
and selected parks, which are easily accessible to the identified special users.
8.7.7. City Parks shall only provide toilets at district parks, provided that operating funding
is available for their upkeep and long term maintenance requirements. In exceptional
circumstances, City Parks will provide toilets at smart parks with the written permission
of the Executive Director: Community Services.
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8.7.8. City Parks shall, subject to available resources, provide lighting in parks as a safety
measure but not to extend the hours of use of playgrounds, informal fields or other play
facilities.
8.7.9. City Parks shall permit the use of bicycles by young children in appropriate zones
within parks, which shall be indicated by suitable signage.
8.7.10. City Parks shall support the use of bicycles as a means of transport and the
development of a network of cycle paths in parks across the City provided that
Transport for Cape Town finances such development and its future maintenance The
safety of other parks users shall be considered paramount in the decision making on
the use of these modes of transport
8.7.11. City Parks shall not provide lighting in parks to prolong the hours of use of its
facilities. City Parks will only provide lighting where safety of park users is considered
an important factor. Lighting of non-motorised transport access routes will be provided
should the Transport for Cape Town consider it necessary and be prepared to finance
the developmental and operating costs thereof.
8.8. Design to generate income
8.8.1. City Parks aims to generate income by making available suitable concessionary
areas and trading and other economic opportunities for short term and long term
ventures which promote the enjoyment and improve the experience of the user and
which are in line with the Informal Trading Policy.
8.8.2. With the authority of the Director, City Parks will permit short term concessions on an
experimental basis to test the market place and the response from community.
8.8.3. In applying the Outdoor Advertising By-law 2013, City Parks will seek to generate
income by establishing creative and sustainable agreements with the private sector that
benefit the park and the community.
8.8.4. City Parks will seek to generate income by encouraging and developing opportunities
for destination tourism in parks with cultural, heritage or environmental significance.
8.9. Exemptions
8.9.1. Exemptions to these broad policies could be considered and approved on the
signature of the Executive Director: Community Services.
9. IMPLEMENTATION PROGRAMME
9.1. The stipulations contained in this policy shall apply with immediate effect.
9.2. Implementation of plans and proposals for new parks or the upgrading of existing facilities
may need to be implemented in a phased approach depending on demand and resources.
10. MONITORING, EVALUATION AND REVIEW
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10.1.
The effectiveness of the Policy in facilitating the design and upgrade of parks will be
measured, amongst others, against…..
10.2.
Customer/client satisfaction surveys will be undertaken every 5 years to assess the
impact of a newly developed park on the well-being and enjoyment of the local communities
in comparison with the benchmark set for older parks.
10.3.
The Parks Development Policy will be reviewed after the results of the
abovementioned satisfaction surveys have been received to ensure that the department is
satisfactorily addressing the needs of community.
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