Heritage Cases

The purpose of the memorandum is to seek approval from KwaZulu-Natal Amafa and Research Institute to demolish Buildings and Structures namely, D/E, L, M, N Sheds, MHA, OTB, Durmarine Building, Schoeman's bridge, and spiral ramp, at the Point Precinct at the Port of Durban, for port operational purposes. Transnet’s core mandate is to manage the cost of doing business and enable economic growth, security of supply through the provision of infrastructure that is fit for purpose. BACKGROUND 2. The role of the Commercial Port as outlined in the National Ports Act no.12 of 2005 (the Act), is to promote the development of an effective and productive South Africa that is able to contribute positively to the economic growth and development of the country. 3. To achieve the mandate and the Act, Transnet and Transnet National Ports Authority (TNPA) have developed a segment strategy which positions the Port of Durban as an International Container Hub. 4. The Segment Strategy triggers the development of KwaZulu Natal Master Plans and these plans have been approved by the TNPA Board. 5. Transnet National Ports Authority is proposing various developments at the Port of Durban to ensure that the strategy of positioning the Port as a Container Hub for South Africa and the Southern African Developing Countries (SADC) is realised. 6. The Port of Durban has 5 precincts, namely, Point Precinct, Maydon Wharf Precinct, Bayhead Precinct, Container Precinct and Island View Precinct. 7. At the Point Precinct, there is an Automotive Terminal, a Multi-Purpose Terminal (MPT) that handles containers and a Fresh Produce Terminal (FPT). The developments at the Point Precinct, to support the Durban Hub Strategy, include the expansion of the Point Automotive Terminal and the development of the Point Container Terminal. 8. The design capacity of the Point Automotive Terminal will be increased from 520 000 units/annum to 1 000 000 units/annum. Portion of the area occupied by the Automotive Terminal will be used to develop the Point Container Terminal with the design capacity of 1 800 000 TEUs/annum, TEUs being Twenty-Foot Equivalent Units. 9. The development plans for the Automotive Terminal at the Point Precinct will require vacant land and unfortunately the Port is a City Port and does not have additional land to accommodate these expansions. 10. The area zoned for Automotive Terminal has the following existing buildings, structures, and sheds. i. Ocean Terminal Building (OTB) ii. Durmarine Building iii. L Shed iv. M Shed v. N Shed vi. South Service Stair Structure vii. Schoeman’s Bridge viii. Small Buildings ix. D/E, F and G Sheds x. Fresh Produce Terminal (FPT) DISCUSSION 11. The Ocean Terminal Building (OTB) located at M Berth was built to provide a large multi-storey marine terminal complex with terminal hall for cruise liners, cargo areas, precooling stores, storage sheds, restaurants. In 1958, the South African Railways and Harbours (SAR&H) awarded the contract for a new Ocean Terminal Complex to Zakrzewski & Partners Consulting Engineers. 12. From 1958 to 1962 design and construction began on the buildings and Janusc Warunkiewicz was appointed in 1959 as the project architect by Zakrzewski & Partners. It was a multilevel complex approximately 800m long x 100m, accessible to vehicles with bridge access, ramps, stairways, and roof level parking. The massive concrete structure stretched from H-bridge to the decorative staircase on the corner of T- Jetty and accommodated general cargo and pre-cooling facilities for export of fruit. 13. The Ocean Terminal Complex comprises M shed (ground floor and first floor), L shed, Ocean Terminal Building (OTB), Durmarine Building, OTB south stairway and OTB roof parking area. 14. By the early 1970’s the complex and OTB was underutilised due to the air travel. In 1987, the then Portnet’s Port Engineers decided that OTB should either be demolished, and the space be used for cargo handling; or converted to offices for the Portnet staff. 15. In 1988, the decision was taken to convert the underutilized OTB into offices for 300 Portnet staff. The passenger terminal operation was relocated to N-Shed and the passenger terminal hall was converted into offices. 16. From the 1990’s to the present day, there have been numerous additions and alterations to the OTB and surrounds. The complex of buildings has responded to port management changes, dynamics of terminal operational and technological advances. 17. TNPA in the Port of Durban have been investigating options to increase cargo-handling space. The planning strategy is to keep operational activity along the quayside and omit non-operational activities like administration areas to other non-operational areas that cannot be used for cargo handling. 18. In 2021, the Durban Hub Strategy proposed the conversion of the Point area behind the D to G Berths into a Container Terminal. This strategy supports the market demand for increase in container handling operations in the Port of Durban. 19. The proposed Container Terminal at the Point Precinct impacts the footprint of the current Automotive Terminal. The Point Automotive Terminal is to expand the number of parking bays from 13 000 to 15 000. 20. The Fresh Produce Terminal (FPT) will be required to be relocated from the T-jetty to Maydon Wharf to ensure that the Automotive Terminal is expanded in this footprint. 21. As part of the Durban Hub Strategy, by 2022, TNPA operations including the TNPA administration offices, helicopter helipad and port security will vacate T-jetty to provide space for car terminal operations to expand into T-jetty which is a prime terminal operational area. 22. All structures and buildings on the T-Jetty will be demolished to provide parking on the ground level. This will ensure that the operational efficiency of the Automotive Terminal is improved to provide the increased capacity that is required. 23. Following the recommendation of Amafa, TNPA appointed a Heritage Practitioner, Lindsay Napier, in May 2021 to undertake a Grading assessment of the Ocean Terminal Complex which is now 60 years old and protected under the Heritage Act. 24. The KwaZulu-Natal Heritage Act provides the following protection: Section 33 General Protection: Structures, - (1)(a) No Structure which is or can reasonably be expected to be older than 60 years, may be demolished, altered or added to without the prior written approval of the [Amafa] Council. 25. At the Amafa HOC meeting on the 14th of June 2021, Lindsay Napier presented the grading report. The OTB complex was graded of Grade IIIA, which refers to a building of local significance listed in the municipal Town Planning Scheme. The complex of buildings was rated as follows: • L and M-Sheds are rated significant in their structural and material condition, L-shed holds the history of the Cooling system within its structure. Architectural detail is limited to the North façade of L-Shed only. • The Ocean Terminal and Durmarine Buildings are rated with high significance across all criteria, but low on environmental, historical, and cultural significance. • The South Service Stair Structure rates high on architectural detail due to its sculptural screen, but its remote location from the Terminal building means that its value could be viewed as an independent feature. 26. In 2022, a heritage practitioner, Mike Scurr, was appointed to provide a heritage assessment of all the effected buildings in the Point Precinct. The results of this assessment are as follows: • D/E Shed - Grade IIIC • MHA Building - Grade IIIB • L Shed - Grade IIIA • M Shed - Grade IIIA • Durmarine Building - Grade II • Ocean Terminal Building (OTB) - Grade II • Spiral Ramp - Grade IIIA • N Shed - Grade IIIA • Toilet Building - Not Conservation Worthy (NCW) • Fresh Produce Terminal (FPT) - Not Conservation Worthy (NCW) • Schoeman’s Bridge - Not Conservation Worthy (NCW) 27. The work carried out by the Heritage Practitioners included all buildings affected by the construction of the Automotive Terminal. 28. Following the grading report on OTB and the work to be carried out on the other buildings and structures, TNPA will consider options for the relocation of artefacts that are significant that can be relocated. 29. For safety and security reasons, the area of T-jetty and OTB will not be accessible to the public as it is within an operational area and visitors, or non-operational staff is not allowed in operational areas due to the sensitive nature of the automotives and the compliance to the ISPS code (International Ship and Port Facility Security Code). 30. The ISPS Code was adopted in 2004 by the International Maritime Organisation following the US, 11 September 2001, terrorists' attacks in the USA. Its primary purpose is to identify and counter any terrorist threat to the Maritime Industry particularly against ships, terminals, and ports. This provides a basis for a comprehensive mandatory security regime for the control of movement of people in the port. 31. South Africa ratified this code into domestic legislation, the Merchant Shipping Act 57 of 1951 (Maritime Security) Regulations, 2004. All Commercial Ports in South Africa operate under level 1, ISPS, this limits entry in operational areas to only personnel operating the vessel. OTB and Durmarine Building will be right in the middle of the Automotive Terminal. The Director General of the Department of Transport is empowered to ensure that all Commercial Ports and Port Facilities comply to this ISPS Code. 32. In line with the ISPS Code, the risk that maritime transport and ports could be used to facilitate unlawful activities is be reduced. The primary purpose of the ISPS Code is to identify and counter any terrorist threat to the maritime industry, particularly against ships and ports. Furthermore, the vulnerability to unlawful interference of South African ships, ports, and other ships within the Republic is reduced without undue disruption of trade. 33. The proposed Automotive Terminal will be an operational area, and with the buildings being in the operational areas this may compromise the safety of the visitors and make the Terminal to be non-compliant to the ISPS Code. Furthermore, cargo that will be handled in this precinct is very high value and sensitive and should not be stored in an area that this generally accessed by the public. 34. Due to the sensitive nature of the automotives and the fact that this is high value cargo, employees working in the Automotive Terminals globally and in South Africa have clothing standards that they must adhere to in terms of the personal protective equipment (PPE). This must not have buttons, zips or anything sharp that might scratch and damage the car. Operational employees always wear gloves and safety shoes without shoelaces. 35. The landside capacity is 520 000 units per annum. The actual number of units handled during the 2021/22 financial year was 521 876 units per annum, which exceeds the landside capacity. This substantiates the urgent need for the Automotive Terminal to be expanded to handle the future automotive volumes. 36. The corporate plan forecasts for the auto sector indicates that volumes through the Port of Durban would reach 684 761 by 2032/33, which is the 10-year forecast. The graph below indicates the actual automotive volumes handled for the past 10 years and the demand forecast for the next 10 years. Graph: Automotive Volumes 37. If additional landside capacity is not created, the Original Equipment Manufacturers (OEMs) may be forced to move their automotives from the Port of Durban to other Ports such as East London, Port Elizabeth or even the Port of Maputo. This may also result in the loss of future models being moved through the Port of Durban but through other International Ports. 38. This will result in dire consequences for the economy of KZN and the country. The Port of Durban may also lose automotives cargo dues revenue which is in the order of R277m per annum at full capacity. The Port of Durban may also lose container cargo dues revenue which is in the order of R1.2b per annum at full capacity. 39. As stated above, space can be freed up to allow for cargo handling and storage. This will create the required additional capacity for future demand. 40. To achieve this, TNPA proposes that the buildings and structures be demolished, and the existing footprint to be converted into a terminal area/automotive storage. 41. The Point Automotive Terminal development is projected to cost R287 million. The projected employment by skills which would be derived from this project is as follows: Direct Jobs Indirect Jobs Induced Jobs Total Skilled Semi-Skilled Unskilled Skilled Semi-Skilled Unskilled Skilled Semi-Skilled Unskilled 92 103 34 245 275 91 96 108 36 1 080 42. The Point Container Terminal development is projected to cost R14 billion. The projected employment skills which would be derived from this project is as follows: Direct Jobs Indirect Jobs Induced Jobs Total Skilled Semi-Skilled Unskilled Skilled Semi-Skilled Unskilled Skilled Semi-Skilled Unskilled 4 645 5 213 1 726 1 2428 1 3947 4 618 4 863 5 458 1 807 54 705 43. For the past 20 years, the Ocean Terminal Complex has been used primarily as offices for supporting staff because it was not in a cargo handling area. 44. The need for additional space is further necessitated by the relocation of the auto terminal to create additional footprint for containerised cargo as proposed in the port master plan. 45. The plan will enhance the attractiveness of the Port of Durban to shipping lines and establish the port as a hub port that will not only serve South Africa, but to also service SADC and the entire continent. 46. The multiplier effect of this plan is its contribution to the socio-economic transformation imperatives through local supplier development, job creation and community upliftment to areas surrounding the port. 47. With guidance from Amafa, TNPA shall restore the artwork and sculpture, and relocate these to a site or sites identified by Amafa. TNPA has proposed the new Passenger Terminal in the Point AB Berth for the relocation of artworks and the Maritime Museum for any other artefacts. 48. A video capturing the architectural significance of the OTB Complex has been undertaken by TNPA. This video can be shared with the Maritime Museum to be viewed by all visitors. 49. The Conclusions, as quoted from the Heritage Practitioner’s Report, by Mike Scurr are as follows: i. An isolated, single building demolition can be approached though a Section 34 application if older than 60 years, but serial demolitions and/or the development of the jetty area into a Ro-Ro/ cargo area constitutes a change in character and a Section 38 Impact Assessment process is required. ii. A Section 38 Application in the Not Conservation Worthy (NCW) area may well be deemed not to affect heritage resources and it is possible that a Notification of Intent to Develop submitted potentially may not recommend further heritage studies in this area, i.e., no Impact Assessment. However, this can only be determined when submitting the Section 38 application. iii. Any action within the Grade IIIA area/ precinct is very likely to cause a change in character and Section 38 will be triggered. It is highly likely that an Impact Assessment will be recommended and required by the authorities. This in turn involves a wider study as well as a full public consultation process. iv. The highly significant Ocean Terminal Complex and Durmarine Building, along with the N Shed, all form an intact and highly significant precinct and complex of buildings. Demolition of these buildings cannot be supported in totality and should not be considered further. Despite this, some careful and isolated demolition and opening up, especially of the L shed portion to open up the area, can potentially be considered if (1) done in a way that does not detract from significance and (2) if it leads to the usage and survival of the building overall. Any alteration or further consideration of this portion of the site needs extensive public engagement and the formal involvement of docomomo SA and the Institute of Architects in particular is required at the very least. v. The flow diagram below reflects likely paths forward. vi. Any further work beyond this initial grading report/ scoping study, would need to reflect on the following key issues: • Involvement of and commenting by Interested and Affected Parties such as docomomo SA, the KZN Institute of Architects, local maritime interest groups etc. • Balancing of any socio-economic benefits • Potentially negative impacts arising from environmental, architectural, artistic, visual and cultural considerations • In the case of considerations around the Durmarine and Ocean Terminal Building, this report finds that demolition cannot be supported and should not be considered further, at least not without further and much more detailed cultural, scientific and spatial studies. As one example a current international study process being undertaken for the removal of the Soviet era VIP airport terminal in Almaty, Kazakhstan, may be insightful. Here the building is in the way of planned airport expansion but has deemed high significance despite its difficult history. A similar detailed and consultative process would be required here. vii. Overall, the potential for adaptive reuse and selective demolitions to create a balance between strategic development and retention of key heritage aspects while satisfying current needs and future possibilities, is certainly possible. 50. With reference to the Conclusions in item 45, the pros and cons for these options considered are indicated in the table below. OPTIONS PROS CONS Do Nothing • No capital costs required. • Architectural significance will be preserved. • The Point Automotive Terminal will not be expanded. • The Point Container Terminal will not be able to be developed. • There will be loss of revenue. • Inefficiencies of the Point Automotive Terminal. Re-Adaptation • Lower capital costs will be required. • Architectural significance will be preserved. • The Point Automotive Terminal will not be expanded to maximum capacity. • There will be loss of revenue. • Inefficiencies of the Point Automotive Terminal. Partial Demolition • Lower capital costs will be required. • Architectural significance will be preserved. • The Point Automotive Terminal will not be expanded to maximum capacity. • There will be loss of revenue. • Inefficiencies of the Point Automotive Terminal. Full Demolition • The Point Automotive Terminal will be expanded to maximum capacity. The Point Container Terminal will be able to be developed. There will be increase in revenue. Efficiency will be increased at the Point Automotive Terminal. • Positive Socio-economic impact in the form of job creation. • Higher capital costs will be required. 51. To mitigate the risk of the negative impact to the Port heritage, the following projects will be implemented: 51.1 Project 1 Given the fact that the Ocean Terminal Building and the Dumarine Building are in the operational areas and cannot be easily accessed by the general public, a digital footage and filming of the two buildings, and other sheds to be considered for demolishing as recommended by the Heritage Practitioner should be considered. TNPA believes that with the rise on digitalization, use of social media platforms it is easy to reach a wider audience and this initiative will outlive any other disturbance that will arise out of the interventions in the Port. The intention is for this video to be shared with the Maritime Museum and another copy with Heritage Council, and as TNPA, we will also be using the video in our visitor’s center with the aim of immortalizing the building where it will forever remain. 51.2 Project 2 The Port will invest in a virtual reality platform. This is a computer technology to create a simulated environment which can be explored in 360 degrees. The Port in build a Port heritage center where visitors can come to learn about the Port of Durban History (especially users that do not have internet access). The Port will launch a Virtual Tour Website. This is a virtual tour is a sequence of panoramic images that are ‘stitched’ together to create a ‘virtual’ experience of any location. The Port will build a virtual 3D website that will be accessible via mobile devices or computer via the internet to users locally, nationally and globally. The Port will integrate the Port of Durban Heritage Museum to Google Arts and Culture and other world known virtual museums platforms to attract more visitors. Benefits of these digital initiatives will include the following: • Visitors can "go to the museum" without having to leave their couches. • Attract more visitors, especially youth. • Enhances the tour experience. • Access the museum from anywhere, anytime. • Easily integrated to other virtual museums worldwide. 51.3 Project 3 The Port of Durban is in the prefeasibility design stage for the new Administration Building at B Berth. The new Administration Building will be adjacent to the New Cruise Terminal at the Point Precinct. A maritime museum or heritage exhibition center will be included in the specifications of the Administration Building. The intension is to display these artifacts and showcase the T-Jetty and OTB video to a wider audience of tourists visiting Ushaka Marine, passengers embarking and disembarking at the cruise terminal. It should be noted that these heritage buildings have artifacts of high heritage importance. These artifacts will be used within the interior design of the new Administration Building. In this manner, we will be revealing and celebrating the old building within the new building. RECOMMENDATION 52. It is recommended that KwaZulu-Natal AMAFA and Research Institute: 52.1 Grants approval for TNPA, Port of Durban, to demolish Buildings and Structures namely, D/E, L, M, N Sheds, MHA, OTB, Durmarine Building, Schoeman's bridge, and the spiral ramp, at the Point Precinct at the Port of Durban, for the purpose of the expansion of the Terminals at the Point Precinct. 52.2 Notes that TNPA acknowledges that the demolition of the buildings and structures has potential negative impacts from the environmental, architectural, artistic, visual and cultural considerations. 52.3 Notes that the Port of Durban is aware that they should find a balance between preserving heritage whilst putting the country on an economic growth trajectory. 52.4 Notes the Projects, listed in 51 above, to be undertaken by the Port to promote Heritage. Submitted by: ___________________ Mpumi Dweba-Kwetana Port Manager: Port of Durban Transnet National Ports Authority Date:11/11/2022