Draft Strategy To Accelerate Public Transport Implementation 2007-2014

DEPARTMENT OF TRANSPORT
Draft Strategy to Accelerate Public Transport Implementation via a WINWIN-WIN partnership between Government, Existing Operators & Labour
Phase 1: Accelerated Recovery & Catalytic Projects - (2007 2010) Phase 2: Promote and Deliver Basic Networks (2010 2014) Phase 3: Advance and Sustain Accessible Networks - (2014 2020)
Strategic Vision:
To transform public transport service delivery away from:
Operator-controlled, commuter-based, uni-modal routes, to
User-oriented, publicly controlled, fully integrated, mass rapid public transport networks
INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!
CONTENTS
EXECUTIVE SUMMARY
A. B.
PAGES 3-25
C. D.
Public Transport is at a Crossroads In 2006 Transforming mode-based Vehicle Recapitalisation into Integrated Mass Rapid Public Transport Networks Developing country lessons for South Africa! Critical building blocks to achieve Integrated Mass Rapid Public Transport Networks in South Africa Phased Strategy 2007-2010-2014-2020
PART A: SETTING THE SCENE

1. 2. 3. 4. 5. 6. 7.
PAGES 26-56
Introduction Acknowledging the current crisis in Public Transport service delivery Current public transport supply status quo Current responses to the Public Transport service delivery crisis Implementation blockages hampering the transformation of Public Transport A strategic context to guide Public Transport transformation High quality Public Transport networks are critical to achieving shared growth
PART B: A REVISED STRATEGY FOR 2007 2020

8. 9. 10. 11. Where do we want to be in 2020 Vision Strategic Building Blocks Action Agenda 2010, 2014, 2020
PAGES 57-65
PART C: TAKING ACTION

12. 13. 14. 15. Land Passenger Transport Scenarios 2014-2020 Metropolitan cities as an initial Priority Focus Implementing the strategy Conclusion
PAGES 66-72
2 Draft Public Transport Strategy - October 2006
EXECUTIVE SUMMARY
A. Public Transport is at a Crossroads in 2006 I. The public transport sector in South Africa in 2006 is at a strategic crossroads. Over the next decade it either: Remains a third class service for captive users and thus loses ridership to private cars an unsustainable future, or It undergoes a phased overhaul (between 2007 and 2020) to form an integrated mass rapid transit network that is a viable, car competitive mobility option for ALL citizens in a city or district. II. Looking 10 years ahead, the public transport market is likely to experience a continuous decline as households with more than R3000 in monthly income (see Figure 1) switch to cars (mostly second hand). Currently, one-third of all work trips are made by cars, and households with access to a car increased 33% (or an additional 808 000) between 1995 and 2003. Figure 1 shows these households per province and also shows the growth in work trips by car compared to public transport between 1996-2003.
T h e re fo re P u b lic tra n s p o rt s e c to r in S A in 2 0 0 6 is a t a s tra te g ic c ro s s ro a d s .

O v e r th e n e x t d e c a d e it e ith e r:
R e m a in s a d e c lin in g , th ird c la s s s e rv ic e - th u s lo s in g rid e rs h ip to p riv a te c a rs , o r U n d e rg o e s a p h a s e d o v e rh a u l (fro m 2 0 0 7 -2 0 2 0 ), b e c o m in g a n In te g ra te d M a s s R a p id T ra n s it N e tw o rk o p tio n fo r A L L (in c lu d in g c a r u s e rs ).
E x tra R a n d m o s t lik e ly to b u y c a r in m id d le in c o m e g ro u p s (R 2 0 0 0 R 6 0 0 0 p .m .)
T r e n d s i n t r ip s t o w o r k b y C a r a n d P u b li c T r a n s p o r t
4 .5
P u b li c T r a n s p o r t
4 .0
C ar
P u b lic T r a n s p o r t a s a p e r c e n ta g e o f a l l tr ip s to w o rk
59
Percentage
Millions of trips
3 .5
3 .0
58 57 56 55 54 O H S 1996 O H S 1 9 97 N H T S 20 0 3
2 .5
2 .0
O H S 19 96
O H S 1997
N H T S 200 3
S o u r c e o f in f o r m a t io n
S o u r c e o f in f o r m a t i o n
Marginal vehicle ownership

Increase in veh ownership per R1000 income growth
0.20 0.15 0.10 0.05 0.00
In c re a s e in a b s o lu te c a r o w n e rs h ip a g a in s t p o p u la tio n g ro w th 1 9 9 5 -2 0 0 3
In c re a s e in h o u s e h o ld s w ith ca rs
Number of additional households with cars
% p o p u la tio n g ro w th
25 20 15 10 5 0 -5
200 000 180 000 140 000 120 000 100 000 80 000 60 000 40 000 20 000
Kwazulu Natal Northern Free State Western Cape Gauteng Mpuma langa North-West Limpopo Eastern Cape Cape
III.
Despite the growth in car use, public transport and walking are still the predominant lifeline forms of mobility for the vast majority of South Africans in order to access work, schools and services. According to the National Household Travel Survey (NHTS 2003):
38 million citizens live in households with NO access to a car, 40 million citizens do not have a drivers licence, 14 million learners walk to school, 7 million workers and learners use public transport, 13.7 million used public transport at least once a week and 7 million used a car (see Table 1).
R2 R 00-5 50 0- 00 R R 10 10 00 00 -R R 1 5 15 00 00 R2 - R 00 20 0 00 R 30 R30 00 00 -R R 4 45 00 5 00 R 6 0 R60 00 00 R 80 - R8 00 00 R1 0 00 R10 00 00 R 0 16 R1 00 60 R3 0 -R 00 00 30 00 00 or 0 m or e
Monthly household income
Figure 1
Draft Public Transport Strategy - October 2006
% population growth
160 000
Number of people that used mode at least once in the past 7 days MinibusTrain Bus Car taxi Number of users 1 083 000 2 566 000 Table 1 10 080 000 7 088 000
IV.
Table 2 shows that 19m (or 60% of) adults over 15 years old used a taxi, 5m used a bus and 1.85m used a train - at least once a month. Almost as many people in rural areas used a taxi at least once in the past month as in metropolitan cities.
Adults over 15 who use Public Transport at least once in past month Area type % RSA Metropolitan Urban Rural 5.8 13.2 2.9 0.7 Train Number 1 854 114 1 517 000 251 000 86 000 % 16.6 13.7 9.1 24.9 Table 2 Bus Number 5 261 101 1 574 000 774 000 2 913 000 % 59.8 61.0 60.6 58.1 Taxi Number 18 939 457 7 002 000 5 149 000 6 789 000
V.
Table 3 below shows public transport and walking are used by over 70 to 90% of all households to access most services and facilities:
64% of households take public transport to a shop, 39% use it to get to a medical service, 41% use it to get to a post office, 56% use it to get to a welfare office, 48% use it to get to a police station, and 47% use it to get to a municipal office.
P e rc e nta g e o f ho us e ho ld s F a c ility F o o d sh o p O th e r sh o p T ra d itio n a l h e a le r M e d ica l se rvice P o st o ffice W e lfa re o ffice P o lice sta tio n M u n icip a l o ffice T rib a l a u th o rity T ra in 0 .1 0 .8 0 .5 0 .3 0 .2 0 .3 0 .2 0 .3 0 .1 B us 0 .4 5 .4 2 .5 3 .5 3 .3 4 .8 4 .1 3 .5 3 .2 T axi 5 .9 5 8 .0 2 6 .3 3 5 .4 3 7 .3 5 0 .5 4 3 .9 4 3 .8 1 9 .7 T a b le 3 Car 1 1 .8 1 9 .0 4 .6 1 8 .8 1 8 .5 1 4 .7 1 8 .8 2 0 .2 2 .0 W a lk 8 1 .0 1 5 .2 4 3 .0 4 0 .7 3 8 .4 2 4 .9 3 0 .9 2 7 .5 4 9 .9 O the r 0 .6 1 .3 0 .7 0 .9 1 .0 1 .0 1 .1 0 .9 0 .6 C a nno t g e t the re 0 .1 0 .3 2 2 .4 0 .4 1 .4 3 .8 1 .0 3 .8 2 4 .5
VI.
Current users are very unhappy with public transport service quality. For example, the National Household Travel Survey (2003) shows that: 71% of train users, 55% of taxi users and 54% of user users are dissatisfied with the level of crowding on vehicles. In addition, 74% of bus users, 64% of taxi users and 53% of train users are unhappy with facilities at stops, ranks and stations.
VII.
To put it bluntly, over half the users on all modes feel they are packed in like sardines while travelling! Furthermore, when they get off the vehicle, the lack of quality facilities reinforces this undignified treatment. This user experience in 2003-2006 contradicts the 1998 Vision in Figure 2 below.
Moving SA Vision 1998

From commuter-based modal transport to customer [user]-based public transport
Rapid Transit Network approach Maximum Network coverage
By 2020, urban customers will be able to participate

fully in the various activities of city life by using a public transport network that provides as much city-wide coverage as possible and which is affordable, safe, secure, fast and frequent. The core of the public transport system will be a network of high volume, high frequency corridors in which public transport will be the priority. Customers needs for improved access and short trip times will be met by having regular feeder services to the high volume corridors, userfriendly transfer facilities, short wait times due to high corridor frequencies and the possibility of differentiated services for customers with specific needs
Figure 2
Frequent
Rapid
Integrated
B. Transforming mode-based vehicle recapitalisation into Integrated Mass Rapid Transit Networks Developing country lessons for South Africa! VIII. During the current term of Government, the Minister of Transport has, in Budget Vote and other speeches, and during Transport Month, etc., called for the following actions with regard to passenger transport:
Fast track taxi recapitalisation and facilitate taxi industry participation in the current subsidised bus contract system; Convert interim bus contracts to tendered contracts; Consolidate passenger railway entities, establish a Railway Economic Regulator and develop and implement a passenger rail revitalisation plan; Manage car use in metropolitan areas; Implement priority infrastructure (e.g. dedicated lanes) for public transport, walking and cycling and multiple occupant cars; Ensure a sustainable public transport and non motorised transport legacy from the 2010 FIFA World Cup projects; and Maximise opportunities to promote public transport and non motorised transport infrastructure through the creative use of Municipal Infrastructure Grant, and Expanded Public Works Programme funding.
Twin Responses: Modal Upgrading and Integrated Mass Public Transport Networks In response to the Ministers calls, the Department of Transports (DoT) interim strategic approach (as endorsed by the Transport Lekgotla in April 2005) rests on two pillars. Modal Upgrading The first pillar involves effecting significant and urgent improvements in current public transport services. This Modal Upgrading entails stabilising the operating environment through short-term interventions such as: Consolidating the passenger rail sector; Rolling out the National Passenger Rail Plan; Implementing Taxi Recapitalisation including improved regulation and law enforcement; and Transforming and optimising current subsidised bus services.
Integrated Mass Rapid Public Transport Networks The second pillar of the current interim public transport strategy entails the promotion of a growing public transport sector that is able to meet the needs of current and new users. Key goals include the delivery of functioning intermodal systems, high quality corridor-based services, adequate investment and reinvestment and equitable basic access for a range of urban and rural users,
including the poor, scholars, job seekers and special needs users. The second pillar above covers what this document refers to as implementing high quality, integrated mass rapid public transport networks. In support of both strategic pillars the DoT has also developed draft strategies with regard to Rural Transport, Special Needs Users, Black Economic Empowerment, etc. Additional work is currently being undertaken on Public Transport Subsidy Reform, Travel Demand Management and Electronic Fare Collection and further work will be undertaken to develop strategies for effective devolution to the most appropriate sphere of Government and to achieve corridorbased networks at city-wide scale. Selected provinces are finalising strategies to restructure subsidised Bus networks. Municipalities have developed Integrated Transport Plans and selected municipalities have developed plans for Strategic Public Transport Networks in their areas. An interim Rail Plan has been submitted to Cabinet and detailed Regional Rail Plans are being developed. A World Cup 2010 Action Agenda has been developed and the World Cup Public Transport Infrastructure and Systems Fund has allocated a first round of funding to municipalities. IX. The current challenges facing the existing modal-based public transport system, as well as the current responses by Government are listed below for each mode under headings dealing with Status and with Response. Passenger Rail Status Passenger rail operations are currently on a knife edge primarily as a result of the ageing train fleet (rolling stock) and rail infrastructure due to a prolonged under-investment in this sector over the past 30 years. This has seen rising levels of customer dissatisfaction, which has contributed to recent acts of arson against key rail assets as well as decreasing ridership levels. The backlog in General Overhauls is currently running at 852 coaches out of service and an additional 485 coaches coming out of service during 2006/07. Although there has been a substantial increase in the capital grant, it does not match to the current need for investment in terms of being able to supply an operational fleet to meet current demand. Of the 4600 coaches only about 3200 are operational. In order to begin addressing this situation, Cabinet approved, in December 2004, that urgent action should be taken to improve the efficiency of the passenger rail services in the country by authorising a consolidation of the South African Rail Commuter Corporation (SARCC), its commuter services operator, Metrorail and the long distance rail operator, Shosholoza Meyl. As a first step in implementing this decision Metrorail is being consolidated within SARCC in order to streamline decision-making and ensure that the current dysfunctional institutional arrangements do not undermine the realisation of urgent improvements in commuter rail.
Passenger Rail Response The National Passenger Rail Plan is being undertaken in two Phases: Phase 1, now complete, is the Interim National Passenger Rail Plan which has developed an overall strategy for the passenger rail sector and Phase 2 will be the National Passenger Rail Plan, which will develop regional, and route specific business and operational plans. This phase will also consider the development of a strategy for the devolution of commuter rail functions to local transport authorities/departments, over time.
The National Passenger Rail Plan will provide the consolidated passenger rail business with a clear basis for delivering improved passenger rail operations and ensuring that standards are maintained throughout the transitional period. The main finding of Phase 1 of the National Passenger Rail Plan process indicates that a future for sustainable passenger rail services will require that Government concentrates the majority of available resources on high intensity Priority Rail Corridors. The determination of these corridors is based on where rail is able to perform to its strength as a high capacity people mover. Other routes will be retained but given lower priority until such time as the business prospects of the industry improve. The Priority Rail Corridors strategy has been developed taking into account strategies set out in the metropolitan authorities Integrated Transport Plans and will be implemented in a manner that gives full expression to these plans. A preliminary business plan has been prepared that outlines the costs involved and the actions needed from an operational point of view to enable the business to implement the Priority Rail Corridors strategy. Even with the proposed focus on high-density corridors, Government investment will have to increase significantly from the present R3.1bn to some R5.4bn per year in order to underpin future growth in patronage. Much of the increase will be to accelerate rolling stock overhauls. A top priority in Phase 2 of the National Passenger Rail Plan will be to explore ways of increasing the role of private sector financing and equity investment in the rolling stock overhaul and supply process. In December 2005, the Cabinet approved the implementation of the overall strategy for the national passenger rail industry and also authorised the DoT to prepare the necessary regional business and operating plans that will be needed to give expression to the proposed new strategic direction. Taxi Industry Status Since the conception of the Taxi Recapitalisation Project (TRP) in 1998, the focus has been on to the actual rollout and implementation of the project. The TRP on its own should not be regarded as the solution to the many problems besetting the taxi industry. The current operating environment The National Household Travel Survey confirms the taxi industry as the dominant
public transport mode on a national basis. Despite this large market share, an analysis of the operating environment reveals the following: An industry dominated by severe harassment, intimidation and violence, especially over lucrative routes, An industry that has been effectively de-regulated for nearly two decades, and any form of regulation is viewed with suspicion and resentment, An industry where profit margins are narrow and break-even points are precarious for some operators, which results in activities to raise additional income, An industry where reckless and negligent driving is the order of the day because drivers are expected to reach a specified daily revenue target. Salaries and wages are then determined by what the driver brings home. The driver is therefore incentivised to chase as many passenger trips as possible in order to make sufficient income. An industry which, because of its daily cash-based system, provides fertile ground for money laundering, An industry where working conditions and training requirements are not given priority by the employers. Taxi Industry Response The TRP is one intervention to start addressing challenges prevalent in the taxi industry. The TRP aims to achieve the following: Set acceptable vehicle standards that are aimed at addressing road safety, Ensure only legal operators ply their trade, Ensure that Operating Licenses are issued in accordance with integrated transport plans that support integrated transport and spatial development, Promotion of regulatory instruments and frameworks including tax compliance, working conditions and other applicable legislation, Effective law enforcement, Modal integration, Promotion of accessibility for people with special needs. Whilst the above is necessary, other essential issues need to be addressed in order to move towards having a coherent, integrated public transport system that responds to the needs of users and of the country as a whole. These include: Regulation of routes and facilities in the public interest Taxi associations (not Government) control the right to operate. In spite of being in possession of valid and legal documents to operate, some operators are expected to pay large fees to be allowed on routes. The most significant transformation lever Government possesses, is to assert public ownership and control of routes and facilities and to remove these from taxi association control. Joining fee and monthly operator contributions to associations Operators are required to pay exorbitant fees to join an association (which then basically gives the applicant the right to operate) and monthly contributions for
the upkeep and maintenance of the associations. These monies are not accounted for and because of the cash system and money laundering may be prevalent. It is important that Government should regulate these cash transactions and that associations be transformed into Section 21 Companies so that money is declared and dividends are utilised in accordance with the law. Co-operative governance Government institutions are working in silos and fail to co-ordinate efforts and resources to make meaningful interventions to correct some of the malpractices prevailing in the taxi industry. Government institutions like DoT, Financial Intelligence Centre and the Money Laundering Advisory Council, SAPS, NIA, Crime Intelligence and SARS should be working together to close the loopholes that are being exploited by the industry. Recent moves by the DoT and SARS to co-operate on the tax compliance issues of the industry is a start, however that on its own, without the involvement of other institutions, leaves a vacuum that needs to be filled. Training and Education The initiatives carried out through the Transport Education and Training Authority (TETA) and Provinces regarding capacity development need to be supported to fill the education and training vacuum prevalent in the industry. Contributions towards the Skills Levy should be promoted and employees should be protected from dismissal when they attend training and education programmes. Infrastructure There is an urgent need for investment in public transport supportive infrastructure such as roads, dedicated lanes, ranks and public transport facilities and interchanges. Economic assistance Whilst it is generally accepted that the provision of economic assistance to the industry is necessary, there is also a need for support to be sustainable and to promote the objectives of Government with regard to providing integrated public transport networks. The TRP, with its provision of a capital vehicle subsidy of R50,000 starts to address this challenge but a long term sustainable mechanism needs to be developed. User-based assistance seems to be an option preferred by the industry for the obvious reason that the industry is the current dominant public transport mode. However, municipal Integrated Transport Plans have not sufficiently addressed the challenge of fully incorporating existing taxi operators into re-designed integrated public transport networks. BEE in the taxi industry The Taxi Industry, Government, Organised Labour and the Transport Education and Training Authority (TETA) have committed to making significant strides in addressing the issue of Broad-Based Black Economic Empowerment through the development of the Transport BEE Charter. The Taxi Recapitalisation Project as well as using the taxi industrys purchasing power for inputs such as insurance, communications, fuel, spares, etc., have been identified as primary areas of
benefit. Bus Industry Status The analysis of the operational bus profile in the country shows the following: There are approximately 10 100 commuter buses (excluding the municipal and long distance fleet). The total number of subisidised buses is approximately 7500. Thus making the unsubsidised number of buses approximately 2600. Subsidised Bus Services The current subsidised services are provided through the following contract types: Interim Contracts: There are currently 31 Interim Contracts (26 operators), which were entered into in 1997 and were due to expire in 2001. Since 2003 all Interim Contracts have been extended on a month to month basis. Based on the 2005/2006 budget, 66% of the total budget (R1,563bn) was allocated to Interim Contracts. Tendered Contracts / Negotiated Contracts: There are currently 79 tendered contracts (38 operators) and 9 Negotiated contracts (5 operators) with a budget of R820m (34% of total annual subsidy allocation). The number of expired contracts is 73 and the balance is due to expire before the 2006/7 financial year end. Since 2003 all expired contracts are extended on a monthly basis. Municipal Bus Services Municipal operators are in most cases either solely owned by the respective municipalities and function as departments within municipal structures or have been corporatised (i.e. operated at an arms-length away from the municipality as a financially ring-fenced entity). Many if not all municipal bus operators receive a deficit subsidy, where the short-fall between operational expenses and fare income is bridged by the municipality. Learner Transport Services Provincial Departments of Education are providing some financial assistance for the transportation of scholars. Where support is provided, scholar transport subsidies are mainly targeted at children attending farm schools or who live in settlements that do not have a school within a distance of 8 kilometers. These subsidies are allocated by means of contracts between operators, parent bodies and Provincial Departments of Education, based on a set formula (e.g. 12 cents per kilometer per scholar per trip of the Gauteng Department of Education in 2003) and are fare based. Subsidised Service Inefficiencies Interim Contracts Services are based on the legacy of apartheid spatial patterns and are focused on servicing mainly worker travel in peak hours and little service is offered to other categories of users (aged, scholars). Management and monitoring of Interim Contracts is non-existent. This has led to fraudulent activities by operators, e.g. an amount of R60m was recovered from Golden Arrow Bus Services in 2003 and
there is a pending forensic investigation of another operator. The average fleet age profile for these contracts is no longer contract compliant and may not be used in the tender system due to the age specifications for tendered contracts that are set at 15 years. Most of these vehicles are obsolete and lack modern technology. This also impacts on the safety credibility of the service. The routes are old and have not been expanded to address current demand. The month-to-month extension restricts transformation and entrenches current subsidised operators. It also creates instability in the industry due to the inability of operators to invest in the fleet in the absence of a long term contract. Subsidy payment is almost exclusively mode specific and focused on large established operators. Little support is given to rural areas. Tendered Contracts Designs of new tendered contracts are largely based on the types of service provided under the current interim contract and the prior funding available to that contract. This does not incorporate a full re-design and rationalisation of all services in an area in order to from an integrated network. In some areas there is a duplication of subsidy by subsidising parallel services on routes served by both rail and bus. There is also a lack of standardised monitoring processes by the different provinces who have awarded tendered contracts.
General Services Inefficiencies Infrastructure There is a lack of proper facilities at termini, stops and on routes. There is also a lack of priority infrastructure such as dedicated public transport lanes as well as poor pedestrian and public space facilities in the vicinity of routes. Meeting user needs Only those that were provided for in the previous regime are still being provided for and other users such as physically impaired people, the aged and scholars are not adequately catered for. Rural areas are not fully covered due to previous allocations and the current funding constraints. Modal Integration Integration of services provided by the different spheres of Government is problematic due to the lack of co-ordination e.g. municipal bus services and provincial bus services providing services in the same areas thus running in paralell. Funding The current budget is inadequate to implement regulated competition which will address renewal of fleet, safety, accessibility for special needs passengers, increased service provision and targeting. Regulation There is a need for more effective inspection and monitoring to ensure
compliance with bus specifications as set out in the Model Tender Document.
Bus industry response The following steps are currently proposed in order to transform the operation of subsidised bus services: Services currently operating in terms of Interim Contracts need to be converted to either Negotiated or Tendered Contracts and all expired Tendered Contracts need to be put out to tender as soon as possible to address issues of targeting, modal integration and improved service provision. This was introduced in 1997 and is currently being implemented, For targeting purposes it is proposed that there should be a gradual move in subsidies towards the unemployed, poor, pensioners, learners and people with physical impairment. Attention should also be given to rural areas and isolated communities, Broad Based Black Economic Empowerment (BBBEE) should be implemented as included in the BBBEE Transport Charter and the Model Tender Contract Document, The appropriate mode of transport in areas to be subsidised is to be determined or confirmed in accordance with rationalisation plans, that would include the incorporation of taxis and small bus operators, Establish dedicated public transport lanes and high quality infrastructure and facilities that give priority to public transport over mixed traffic. Secure enforcement on these lanes to ensure that travel time by public transport users is optimised, Identify and address parallel subsidies between or within modes by giving preference to the mode that suits the route - focusing on a corridor approach that provides an inter-modal operation, Institutional arrangements address planning and funding for land transport with the ultimate aim of devolution to local level, Include all public transport operators into a regulated environment in terms of service provision and vehicle safety, Integration of service designs should encompass services provided by Provinces and Municipalities to address inefficiencies and eradicate duplications, Form partnerships with the Department of Education to optimise subsidies paid for scholar transport and to ensure that these services are provided with in terms of the Model Tender Document,
Development of a National monitoring model that will guide provinces on standardised monitoring principles, Implement a public transport passenger charter to promote the rights and responsibilities of the stakeholders of public transport i.e. drivers, operators, Government and passengers, The current contract system is based on Net Cost contracts. Evaluate the benefits of Gross Cost and Net Cost Contracts with regard to achieving operational efficiencies, increasing competition and risk allocation.
Assessment of Current Modal Responses IX. While the above initiatives are a positive start they are unlikely to halt the ongoing switch to cars from low quality public transport. As this document shows, these amounts barely cope with the backlog of infrastructure and services across all modes let alone targets any meaningful system expansion and enhancement. On the other hand, in order to justify expanded investment levels, there is a need to develop a robust municipal network vision and plan which facilitates speedy implementation. The quality of this integrated network vision and plan is inadequate at present and there is thus no clear sense of direction that breaks with the status quo. In short, these plans are not adopting an integrated network restructuring approach and are not dealing with incorporating existing minibus operations into a publicly managed integrated network. In the absence of a serious and scalable municipal plan for an integrated Rapid Transit network, the stop-gap measure is fleet renewal of existing modes and basic infrastructure improvement in pockets. While these are necessary, they are NOT sufficient, unless accompanied by the total reform of the operating environment - designed around the non-negotiable needs of the user for rapid, safe, secure, dignified and comfortable mobility. Currently, there is a serious gap in all spheres of Government with regard to high quality strategic network planning and the related implementation of quick operational improvements to address the damning levels of dissatisfaction of current public transport users. Nevertheless, it is possible for a co-ordinated, high quality effort to build on the existing work and to generate strategic network visions and plans for the major cities within 3-6 months after the approval of this strategy. With fleet renewal being the main thrust of existing efforts, it must be noted that from the users perspective, it is not good enough to simply replace an old taxi or train coach for a newer one - without restructuring the operating environment to meet the essential needs of the user. This means, for example, that: drivers of new recapitalised taxis and buses should no longer be incentivised to drive as recklessly as possible in order to compete for passenger fares, and even for refurbished rail coaches, unless total journey time is improved, the
X.
XI.
XII.
XIII.
service will NOT be rapid nor car competitive. Currently, the average rail users journey time to work is 87 minutes while it is 34 minutes for car users. In short, it is not really good customer service if a taxi (whether old or new) is driven in reckless manner - as the 78% of metropolitan taxis users are saying. Furthermore, customer retention is not likely to be achieved if a rail coach (whether old or new) is overcrowded - as 75% of metropolitan train users claim. XIV. In this environment, and even with fleet renewal in the next 5 years, the longer term prognosis for the public transport sector (including the minibus taxi industry) and its employees, is one of slow decline. Captive public transport users will be graduating to private motorised vehicles as soon as their economic conditions permit. As car usage accelerates, the economic losses associated with the ensuing congestion, accidents, environmental costs, and productivity impacts will become significant. Furthermore, from a social equity standpoint, the division between mobility for the wealthy minority and mobility for the poor majority will become worse. Therefore, the transformation of public transport service delivery requires more than simple vehicle recapitalisation. What is needed is the implementation of sustainable operating and infrastructure systems that function as an integrated network. These networks do NOT exist - even in part - in ANY South African municipality at present. In fact, municipal transport planning is still car infrastructure biased and has simply not implemented ANY significant, high quality public transport, or walking and cycling networks in the past 3 decades. There is thus a need to learn HOW to implement high quality rapid transit systems given the lack of local experience. This means engaging in partnerships with especially Latin American and East Asian cities, whose recent implementation experience in developing Bus Rapid Transit networks is relevant and challenging. International Rapid Transit lessons of the past decade XVII. A Rapid Transit revolution has occurred among cities in developing and developed countries in the past 5 years. Led by Bogota in Colombia from 2001 and Seoul in South Korea from 2004, dozens of cities all over the world are now applying localised versions of the mass rapid transit network model. This international shift from standalone modal services to a Rapid Transit paradigm, views public transport as something MORE than just a bus or a rail service and insists that public transport networks can be high quality and car competitive, even in developing countries. Furthermore, the initial phase can be operational within 3 years, given sufficient political will. Seoul took just two years for Phase 1 of their restructured network to commence operations and Bogota took 3 years to get their TransMilenio system running. These Rapid Transit networks are NOT about particular modes or technology but are rather about a total service quality package over the entire user journey experience. They therefore combine both operations and infrastructure into a single tailored system setting it apart from conventional modal public transport services. This network system applies the SAME level of high quality to BOTH road and rail-based components. This strategy will argue that it is possible to implement a Rapid Transit system in 3 Phases with 2010,
XV.
XVI.
XVIII.
2014 and 2020 serving as key milestones and with a focus on priority Road and Rail corridors. The aim is to initiate a 3 year-3 sphere catalytic implementation partnership that develops a city/district-wide Rapid Transit network vision and then plans and implements Phase 1 of the system - comprising at least 2 intersecting high volume corridors linking major township nodes as well as 2010 related destinations and which is run by existing operators and employees according to strict public quality control over the network. XIX. The following is a list of features found on some of the most successful Bus Rapid Transit systems implemented to date (See
Figures 3-8 below): Physical infrastructure
Segregated busways or bus-only roadways (Figure 3), predominantly in the median of the roadway Existence of publicly managed integrated network of routes and corridors High quality publicly owned and managed stops, stations, terminals and depots; Enhanced stations that are convenient, comfortable, secure, and weather-protected Stations provide level access between the platform and vehicle floor Special stations and terminals to facilitate easy physical integration between trunk routes, feeder services, and other mass transit systems (if applicable) Improvements to nearby public space
The pictures on the left and right show the space taken by the same number of people using cars in comparison to a bus. It highlights the degree of inefficient road-space consumption by Figure 3. Segregatedcar median busway in Quito. users.
Operations
Frequent and rapid service between major origins and destinations Ample capacity for passenger demand along corridors Rapid boarding and alighting (Figure 5) Pre-board fare collection and fare verification Fare-integration and free transfers between routes, corridors, and feeder services
Business and institutional structure

Quality control oversight from a specialised public entity/authority Entry to system restricted to prescribed operators Figure 4. under a reformed business and administrative structure (i.e. closed system) Fare revenue controlled by public network authority not by operators. Operators revenues are de-linked from fares and based on vehicle kilometers supplied and on quality of service - not on number of Modern rubber-tyred vehicles that are buses but look like passengers carried. Therefore, no incentive to speed trains and drive recklessly. Competitively-bid and wholly-transparent processes for awarding all contracts and concessions include informal operators fully Efficient management resulting in the elimination or minimisation of public-sector subsidies towards system operations 16 Draft Public Transport Strategy - October 2006
Independently operated and managed fare collection system Explicit participation in new network by existing informal/formal operators and drivers, including job, wage and income guarantees to remove the perceived risks of change;
Road Rapid Transit (RRT) characteristics

Figure 5.
Full RRT
Segregated, median busways with median stations Pre-boarding fare collection and verification Restricted operator access (closed system) Free transfers between corridors and modes Competitively bid concessions
High frequency
Technology
Low-emission vehicle technologies Low-noise vehicle technologies Automatic fare collection and fare verification technology System management through centralised control centre, utilising applications of Intelligent Transportation Systems (ITS) such as automatic vehicle location Signal priority or grade separation at intersections
High frequency service and low station dwell times

Clean bus technologies Modal integration
Minimum time at stop station (dwell time)
No passing or waiting to load, delays Bus or Minibus (Road) transit is fast (RAPID) relative to general traffic because it is congestion free. Because it is cheap & RAPID, it becomes attractive to car users
Figure 6 shows how rapid transit networks can be prioritised over private cars and can thus serve as an attractive alternative.
R o a d a n d R a il R a p id T r a n s it in te g r a tio n
Marketing and customer service

Distinctive marketing identity for system Courteous and safe driving style, and well trained drivers working short shifts Excellence in customer service and provision of key customer amenities Ease of access between system and other urban mobility options (such as walking, bicycles, taxis, paratransit, private motorised vehicles, etc.) Special provisions to ease access for physicallydisadvantaged groups, such as children, the elderly, and the physically disabled (Figure 8) Clear route maps, signage, and/or real-time information displays that are visibly placed within stations and/or vehicles Private car use and parking restrictions
In t e g r a t e d R a p id T r a n s it s y s t e m s a m e q u a lit y to u s e r e v e n th o u g h d if f e r e n t m o d e s F re e tra n s fe rs b e tw e e n c o r r id o r s a n d m o d e s t h r o u g h f a r e in t e g r a t io n a n d /o r p h y s ic a l in t e g r a t io n a t p la t f o r m s
F re e T ra n s fe r
Subw ay
F r e e t r a n s fe r w ith in 3 0 m in u t e s
Bus
In te r m o d a l T r a n s fe r s c o n v e n ie n t a c r o s s th e p la tfo r m
Figure 7 shows Road and Rail based Rapid Transit networks can be integrated into a single system (e.g. Seoul) through ensuring similar high quality operating standards on both rail and road.
Raised platforms at median stations and multi-door buses allow for rapid boarding and wheelchair access without the need for low-floor buses
i.
alighting
XX.
Rapid Transit in the South With platforms at stops and stations, African urban context would conventional buses can be used apply to all existing services (cheaper & less maintenance) including commuter rail, and Wheel-chairs can be pushed up road-based modes. The goal is ramps to station platforms & be pushed on board to define both a road and rail No pneumatic chair-lifts required based network that are integrated to form a single system based on a common level of service quality. In this regard the service quality on
all existing modes needs to be radically enhanced.
C. Critical building blocks Figure 8 shows level platform boarding at stops/stations. This allows for faster boarding, faster journey times and easy wheelchair access. to achieve Integrated Mass Rapid Public Transport Networks in South Africa XXI. Cities need to transform the low quality services of their semi-formal operators (like SAs minibus industry) into an integrated system that is planned and managed by the public sector while being operated by existing private operators. This shoud be done in a manner that gives existing operators, drivers and workers a guaranteed stake in a new mass rapid transit network and leads to a win-winwin breakthrough that guarantees and improves wages for drivers, revenues for operators and service quality for users and Government. This provides a valuable lesson for South Africas current recapitalisation initiatives, for example. There is a need to reform ALL aspects of the operating system (beyond just the vehicle) and there is also a need to do this in a manner which does not place the risks of change on relatively more vulnerable operators and drivers. In this regard there is absolutely no reason why existing minibus drivers and operators cannot be making more money with better working conditions, by participating in a publicly planned and managed integrated mass rapid transit network, and given the international experience, there is no reason why the initial phase of this network cannot be operational within 3 years.
XXII.
Strategic Roadmap 2007-2020:

Summary of Way Forward: Building Blocks
Critical building blocks for an integrated solution (2007-2014)
Integrated multi-modal rapid transit network implementation
Phase 1 Rapid Transit Network Implementation Plan (Jan-July 2007) that COMBINES: Metrorail Priority Corridors, 2010 Legacy projects, BRT/SPTN projects, Bus tendering, Inclusion of taxi industry, NMT and Public Space upgrades, and Car Use Management. Focus on up to 9 largest cities & 2010 venue cities. Rapid detailed design and implementation from July 2007 Jan 2010 Rural District Integrated Transport Network Concept Plan (Jan-July 2007) Focus on up to 4 Districts & combine New Periodic PT services, NMT networks & Inclusion of existing operators. Implementation from July 2007 onwards. 2010 Legacy and Operations based on maximum overlap with mainstream Phase 1 BRT and Metrorail Rapid Transit network. Maximise role of existing operators.
Strong local public sector network control & management (Metro & District/Province)
Set up specialist full-time Rapid Transit Local Project Team reporting to MMC-Mayor-MEC. Supplement local officials & experts with Latin American and other international experts to fasttrack implementation. International support needed as no SA implementation of high quality PT-NMTCar Use Management projects in modern era past 4 decades. Project team to form core of Rapid Transit Network public institution that is highly skilled and plans, manages & monitors operations in both Metro & District networks. Gross cost contracts with quality regime, Electronic Fare Payment & Vehicle tracking linked to Control Centre to oversee operations.
Transform bus/ minibus operators & labour into Rapid Transit network trunk/feeder operators
Invest expert/high level resources in business planning and negotiation with local taxi and bus operators with regard to facilitating maximum participation in local BRT network. Guarantee jobs, wages and profits to ensure local acceptance. Local flexibility in integrating Recap and BRT depending on local network plan and taxi industry agreement to participate in BRT Integrate bus tendering into new BRT network contracts
Table 4
XXIII. XXIV.
Table 4 above describes the critical building blocks to achieve upgraded rapid pubic transport networks in South African cities and districts. The strategic breakthrough of the international experience is to work with the
existing operators and existing road and rail infrastructure, in order to re-organise and upgrade operations into a high quality integrated network. Currently South African cities are falling behind these best practice Latin American and East Asian initiatives. We are also falling behind the leaders in Africa as well -, Dar es Salaam is commencing implementation of the initial phase of a mass rapid transit system that will be run by existing operators and Kenya has managed to tighten up regulation and enforcement of matatu (taxi) and bus operations. In fact, the South African transport profession, both within and outside of Government still has a hangover from an ingrained car-oriented design bias of the past 40 years. For example, there have been almost NO high quality public transport, walking and cycling network implementation in the past 40 years in SA. XXV. This lack of experience of actually implementing ANY high quality public transport systems even applies to previous international special events in South Africa in the past 12 years (e.g. Rugby and Cricket World Cups, WSSD, etc.). These ran in the main WITHOUT even limited incorporation of public transport. These previous special events were of such a scale that they managed to succeed with hired cars, hotel shuttles, and coaches and NOT through making use of existing mainstream public transport services. The 2010 World Cup in South Africa will be qualitatively different in scale and therefore will necessitate the use of high quality mass public transport systems to cater for high demand. This is completely NEW territory for the transport profession in South Africa - hence there is a need for vigilance and quality control to ensure that cities actually DO implement mass rapid public transport networks for 2010 and beyond. Figures 9-11 below describes 3 possible scenarios by 2014 based on the ability of the South African transport sector to implement the critical building blocks highlighted above.
XXVI.
XXVII.
2014 Land Passenger Scenario 1 - Business as usual

Band-aid implementation for the top 30% w hile the rest stagnate!
PT and NMT are still third class options! Car users in suburbs push for and get road supply solutions! Ad hoc and stumbling progress on fleet recap but no ability to implement core of upgraded PT services that are Networkbased and not operatorbased!
Snail paced modal stabilisation continues till 2010.

(e.g. Taxi Recap from 1999 to 2006?, Tendered bus contracts from 1998 to 2006?, Passenger rail reinvestment from 2001 to 2006?)
Regulation, management & enforcement still W EAK! Current poor safety record on PT continues Road-building pressures in the Metros increase Continued car-oriented land use w hich excludes the majority no dense PT corridors! 2010 W orld Cup will run in the main like Cricket and Rugby W orld Cups and W SSD big parking lots for car users w ith limited new PT services, increased road capacity for cars and tokenistic NMT facilities Very little/no quality NMT facilities, poor NMT safety Car using richest 30% of passengers are only ones catered for in terms of basic access & mobility
Figure 9
2014 Land Passenger S cenario 2 - A ccelerated but m odest

Focus on rolling out basics. Partial im provem ents in som e services !
PT and N M T are second class options! B asic TD M m easures for ride sharing in som e areas. 50 % of all m odes recapitalised. Som e corridor projects but no publicly controlled core netw ork! G autrain at under 40 000 pax. trips per day & new w idened m etro tolled freew ays
Som e progress on fleet recapitalisation across all m odes still only 50% of fleet though ! Partial success w ith m etropolitan regulatory and m anagem ent capabilities som e progress on Phase 1 im plem entation of R apid Transit N etw orks R TM C , etc. run a m odest PT enforcem ent program m e M ost routes still operator-driven especially for m inibus operators but som e redesign w ith regard to subsidised contract routes. Aim ed at rationalisation though and not universal netw ork coverage Prom otion of key flagship corridor projects though scale is not enough to alter the passenger transport and land use d ynam ics across th e city Partial prom otion of lim ited pedestrian and cycle netw orks in som e areas depends on local cham pions 2010 W orld C up sees som e use of TD M m easures such as H O V lanes, a tem porary dedicated-lane PT system , visible enforcem ent and scho ol holiday tim ing Figure 10
20 14 L an d P assen g er S cen a rio 3 - S trateg ic S h ift

R o llo u t o f In teg rated M ass R ap id P u b lic T ran sp o rt N etw o rks for AL L !
P T an d N M T n etw o rks are p rio rity o p tio n s in p ractice! T D M m easu res an d P T system s o n m o st freew ays an d arterials. 95 % o f all m o d es recap italised . P u b licly co n tro lled R ap id T ran sit n etw o rks in m etro s w hich lin k to M etro rail/ G au train R o ad exp an sio n fo r P T /T D M /N M T n o t cars
M o s t o f fle e t a c ro ss a ll m o de s is re p la ce d S tro n g p u b lic re g u la tio n , m a na g em e n t a n d n e tw o rk c o n tro l S tra te g ic R a p id T ra n s it N e tw o rk is s u b s ta n tia lly im p le m e n te d a n d c o m p rise s m a jo r m o ve m e n t c o rrid o rs w ith B R T -typ e s ys te m s , u p g ra d e d c o m m u te r ra il lin e s , g o o d N M T a n d p u b lic s p a ce fa c ilities a n d na tio n w ide inte g ra te d e lec tro n ic fa re s ys te m A g g re s s ive T D M m ea s u re s inc lud in g ro a d s p ac e re a lloc a tio n a n d a sc a le d u p s ys te m o f p a rk n rid e s , H O V la n es , P T la n es a n d p e ak -h o u r ro a d p ric in g A s ys te m o f P T la n es /H O V la n es o n fre e w a ys a n d a rte ria ls in J H B , T s hw a ne , C T a n d eT h ekw in i S A N R A L a n d M e tro s jo in tly p ro m o tin g n o n -c a r b a s e d o p tio n s th ro u g h m a rk e tin g c a m p a ig ns a n d roa d p ric in g 2 0 10 W o rld C u p is m o ve d th ro u g h P T a n d N M T s ys te m u s in g u p g ra d e d P T ne tw o rk s a s w e ll as a d d itio n a l W o rld C u p P T o p e ra tio n s . S u bs ta n tia l ta x i o pe ra to r in vo lve m e n t in 2 0 1 0 th ro u g h R a p id T ra ns it p a rtic ip a tio n M e d iu m d e n s ity la n d u s e is c ha nn e le d in to P T c o rrid o rs S u b s ta n tia l in ve s tm e n t in ro llo u t o f N M T a n d p e rio d ic P T s e rvic es in ru ra l a rea s a n d s m a ll to w n s
Figure 11
D. Phased Strategy 2007-2010-2014-2020 XXXI. To assist in translating the vision into an Action Plan the strategy proposes 3 action agendas: Accelerated Recovery and Catalytic Projects Promote and Deliver Basic Networks Advance and Sustain Accessible Networks (2007-2010) (2010-2014) (2014-2020)
Strategic Roadmap 2007-2020:

Summary of Way Forward: Phasing
Phase
Accelerated Recovery & Catalytic Projects 2007-2010
Metro/District Catalytic Rapid Transit Project that integrates:
Metrorail Priority Corridors, Bus Rapid Transit Corridors, 2010 Legacy, New Rural Subsidised PT services, NMT Facilities, Car Use Management, Bus Contracting, Sustainable Taxi Participation & Recap.
Phase
Promote & Deliver Basic Networks 2010-2014
Expand initial Rail/BRT/NMT Priority Corridors into a Basic Service Network in Metros/DIstricts & phase in car use disincentives.
Phase
Advance & Sustain Accessible Networks 2014-2020
Metro/District-wide network coverage. Fund PT/NMT through local charging of car users for road use & parking.
Critical building blocks for an integrated solution

Integrated multi-modal rapid Strong local public Transform existing bus/minibus transit network sector network operators & labour into Rapid implementation control & Transit network trunk/feeder management operators WIN-WIN-WIN Figure 12
Figure 12 above summarises the phasing of the 3 action agendas.
S t r a t e g ic R o a d m a p 2 0 0 7 -2 0 2 0 :
S u m m a r y o f W a y F o r w a r d : B u ild in g B lo c k s
P o s s ib le r is k m it ig a t io n o p t io n s t o t r a n s f o r m m in ib u s in d u s t r y t o p a r t ic ip a t e in B R T /R a il P r io r it y C o r r id o r s
D e ta ile d o p tio n s to b e b a s e d o n b u s in e s s p la n n in g a n d n e g o tia tio n a t lo c a l n e tw o r k le v e l
O p e ra to r
Labour
V o lu n ta r y p a r tic ip a tio n F o r m a l e m p lo y m e n t E q u a l o r b e tte r w a g e s B e tte r n o n -w a g e b e n e fits R e d u c tio n in d r iv in g h o u r s to 6 -8 p e r d a y O n g o in g tr a in in g w h ile g e ttin g p a id fu ll w a g e s R a n g e o f a lte r n a tiv e jo b o p tio n s b e s id e s d r iv in g S a fe r a n d m o r e s e c u re e n v ir o n m e n t P e r fo r m a n c e in c e n tiv e s /p e n a ltie s
R is k m it ig a t io n o p t io n s
V o lu n ta r y p a r tic ip a tio n G u a r a n te e d b a s ic s ta k e if c o m p lia n t A d d i tio n a l s ta k e d e p e n d in g o n c lo s e d te n d e r b id e x c e e d in g m in im u m c o m p lia n t q u a lit y le v e l H ig h q u a lit y b u s in e s s p la n a s s is ta n c e w ith c o -o p fo r m a tio n a n d b id p r e p a r a tio n E q u a l o r b e tte r p r o fits th a n c u r r e n t o p e r a tio n s S h ie ld e d fr o m d e m a n d r is k /flu c tu a tio n s P r o te c tio n fr o m ille g a l c o m p e titio n /v io le n c e H ig h e r q u a lity s e r v ic e e n s u r e s e x p a n d in g m a r k e t P e r fo r m a n c e in c e n tiv e s in c o n tr a c t 1 0 Y e a r c o n tr a c t lin k e d to v e h ic le life w ith a u to m a tic r e n e w a l s u b je c t to p e r fo r m a n c e O n g o in g b u s in e s s tr a in in g & s u p p o r t C o o lin g o ff tr ia l p e r io d if r e q u ir e d
Figure 13
Figure 13 above describes the incentives and risk mitigation options that will need to be considered in facilitating a move to higher quality networks by existing operators and labour. Accelerated Recovery and Catalytic Projects (2007-2010) The strategic thrust of this action agenda is to stabilise the current passenger transport service delivery environment as well as to recover from the accumulated neglect of decades of under-investment in infrastructure and operations. It is an agenda for action for the short term and includes an Accelerated Recovery Plan to enhance the institutional building blocks and to fast track service improvements to end users. The DoT and the transport sector has been working on aspects of this agenda since 1996. However, the present public transport system continues to fail its customers and the nation. Without radical action, the public transport system performance will worsen. Urgent and systematic implementation is required (especially for achieving the critical public sector building blocks) in order to accelerate the current modal stabilisation initiatives. The Accelerated Recovery Plan needs to be developed in detail by end 2006. It should then be fast tracked in order to achieve physical implementation as soon as possible. The critical components of the Plan are to ensure: Investment in building local transport capacity for planning, monitoring, regulation and network management; Enhanced capacity for Operating Licence processing and alignment with transport planning; Enhanced enforcement, inspection, investigation and prosecution capacity and campaigns across all road-based modes (detailed action plan tied to the R2.2bn allocated for minibus recapitalisation regulation and enforcement); Capacity deployed to support municipalities to develop strategic integrated network plans, related 2010 operational plans, high quality public transport corridor plans, Travel Demand Management plans, and electronic fare collection plans; Local engagement with key stakeholders on the passenger transport vision and strategy and Phase 1 implementation projects- including incentives and guarantees to existing minibus/small bus operators and divers; Accelerated initial rollout of fleet upgrading on all modes - Taxi, Bus, Rail recap and refurbishment; Detailed design and commencement of Phase 1 implementation of road-based integrated mass rapid public transport corridors.1 Includes non-motorised network, facilities and service rollout (including small cities and rural districts); Planning completed for implementation of High Occupancy car lanes and ridesharing promotion;
. Mass Public Transport Corridor Programmes User quality specific reform packages, service enhancements, modal interchange upgrades, newer/refurbished PT vehicles dedicated, segregated median lanes with enclosed, clean and secure stations and stops, real-time information passenger and operators, pre-board payment and free transfers, high frequency service and low waiting times at stations/stops, modal integration, priority traffic signals -intersections, pedestrian and bicycle access and facilities and low- cost accessible and class 1-type features, etc.
1
Pilot electronic fare collection and information system that is controlled by public sector in partnership with operators; and Completion of network design that includes all current subsidised bus services in an area and commence initial implementation of gross cost contracts2 with public control over fare income - in both metropolitan and district contexts. A Stabilise and Recover Plan is the second component of the Accelerated Recovery Agenda and runs over the next 3 - 5 years. The key objective is to ensure the achievement of an effective public transport implementation platform. The key components of the plan are to: Devolve funding to capable municipalities; Refine quality local Integrated Transport Plans that demonstrates improved service delivery on immediate priorities and which include priority integrated mass rapid public transport network projects; Develop Public Transport Intelligent Transport Systems (ITS) tools and phase these in, in order to support planning, regulation and enforcement (e.g Electronic Fare Collection, vehicle tracking and control, etc.); Taxi, Bus, Rail recapitalisation and refurbishment continue; Phased implementation of revised gross cost contracts for subsidised services, in line with network vision; Improved service information, maps, timetables, marketing; Non motorised and public space network planning and phased implementation; Aggressive roll out of the Shova Kalula initiative: 1 million bicycles in partnership with Non Governmental Organisations (NGOs) and Community Based Organisations (CBOs) by 2010; Roll out rural public transport interventions, including piloting of subsidisation options; Engage with the Department of Education, provinces and municipalities to ensure maximum accessibility of learners through the public transport network; Implement improved safety and security inspection, enforcement and prosecution on all public transport modes; Enforce safer cycling and walking routes, particularly around schools, and through more human-friendly infrastructure design; Manage car use in the peak period in major urban congested corridors; Engage with Department of Provincial and Local Government, Department of Housing, Department of Land Affairs and Provinces and Municipalities to: o improve interdepartmental coordination with regard to housing, land use and transport integration; o fast track the identification of priority local transport corridors and the related location of medium density land use in support of these; Promote land use planning aligned to public transport network, non motorised transport and travel demand management planning;
. Gross cost contracting means that the public sector plans and manages the network and the fare revenue not the operators.
2
Promote low-cost accessible and class 1 type features - painting designated areas with high contrast colours, providing sufficient grab rails and push bells at certain accessible points, use of visible sign language, etc. - and improve operational service for special needs users; and Pilot full accessibility for users with special needs in all newly implemented mass rapid public transport corridors. Promote & Deliver Basic Networks (2010-2014) The strategic thrust of this action agenda is to incrementally enhance and expand the passenger transport system. It is an agenda for action for the medium term. The main components of the plan are to: Fully upgrade key integrated mass rapid public transport corridors in all six metropolitan cities as well as in other cities and districts. To cover at least the top 20 mass corridors (rail/road) in the country; Finalise network planning and roll out revised gross cost contracts which include small bus and taxi operators; Roll out Passenger Transport Intelligent Transport Systems nationally; Implement Travel Demand Management and car use reduction measures in all metropolitan areas including roadspace reallocation measures to prioritise public transport; Consolidate operators into capable entities that are able to provide high quality services in the formal, integrated mass rapid public transport networks; Implement supportive land use system on public transport corridors; Mainstream pedestrian and cycling implementation and promotion, including high quality facilities, infrastructure, public space and bicycle transport promotion; Ensure safer and secure operations through regulatory and enforcement regime; Roll out targeted public transport subsidies - user based and/or capital that are linked in the main to integrated mass rapid public transport systems; Increase the scale of roll out of rural/small town public transport services; and Expand roll out of mass rapid public transport networks that are fully accessible to users with special needs. Advance & Sustain Accessible Networks (2014-2020) The strategic thrust of this action agenda is to significantly expand and transform public transport through large scale or critical mass implementation. It is an agenda for action for the long-term. The key components of the plan are to: Roll out fully interconnected integrated mass rapid public transport networks; Ensure that most public transport facilities, vehicles and infrastructure are of a high quality; Improve maintenance of public transport infrastructure and facilities; Promote high quality public space and non motorised linkages and networks; Implement aggressive car use restriction measures aimed at promoting switching to public transport and non motorised transport including pricing measures; Promote and coordinate employer-based car trip reduction programmes, park and ride facilities, ride sharing, public sector employee ridesharing, etc.; Implement land use measures thatsupport public transport corridor networks; Ensure ongoing investment in innovative local passenger transport public sector capabilities to plan, manage, promote, regulate, enforce, and monitor contracts, etc.
Promote free minimum basic mobility for all citizens regardless of ability to pay a lifeline mobility allowance; Expand rural passenger transport services and combined rural passenger and freight transport services; and Expand universally accessible vehicles and infrastructure for users with special needs. CONCLUSION The vision that has been articulated comprises a strong municipal controlled mass rapid public transport network that utilises the strengths of the public and private sectors appropriately. This network should ultimately comprise the priority rail and road-based mobility system for a local area. It is an integrated system where modes are deployed in accordance with their optimal role and is based on public control over fare income, operator contracts based on contracted kilometers, and median lane rapid transit corridors with pre-board fare payment, that link to rail, feeder, nonmotorised and public space systems. The DoT firmly recommends that this substantive vision in line with the positive experiences of Latin American and East Asian cities is one of the few solutions that addresses both current public transport users as well as current car users. As such it overcomes the dualistic nature of land passenger transport in South Africa and provides a bridge to create sustainable and equitable mass transport networks for ALL. The DoT intends to refine this strategy based on public comment as well as based on the currently commissioned research into detailed aspects of this vision. It is envisaged that by the end of 2006, this strategy will be ready for formal adoption by Cabinet and the DoT will be committed to aligning itself and the entire transport sector behind the key vision and concepts.
Draft Strategy to Accelerate Public Transport Implementation

PART A: SETTING THE SCENE
1. Introduction This draft strategy document aims to a develop a national framework for accelerating the transformation of public transport service delivery from 2007 to 2014 and beyond. At the outset it must be noted that there are numerous past and current policy and strategy initiatives in relation to public transport in general or to particular aspects of it, (e.g. in the national sphere there has been the 1996 White Paper, 1998 Moving SA Action Agenda, National Land Transport Transition Act No. 22 of 2000, Interim National Passenger Rail Plan of 2005, Draft Rural Transport Strategy of 2005, Draft DoT Transport Plan for 2010 Fifa World Cup, Recapitalisation and Transformation Programme for the Minibus Taxi Industry, Subsidised Bus Optimisation Programme, etc.). There are also several policies, strategies and plans at the provincial and local spheres as well. This document does not intend to repeat the detail of this existing work which should be viewed as complementary. Rather, the aim here is to review progress and to synthesise an overarching strategic framework within which to contextualise and champion current and future initiatives in public transport. Thus, the focus of this document is on a strategic framing of the way forward as opposed to a fine-grained detailing of specific actions. The latter is the domain of tactics, which should be flexible and context-dependent - as long as there is alignment with the strategic vision. Public and stakeholder input is encouraged and will be seriously considered in refining this strategy, before submission to the Cabinet for final approval in the
course of 2006.
2. Acknowledging the Current Crisis in Public Transport service delivery It has been 10 years since the White Paper on National Transport Policy (1996) committed Government to a thorough-going transformation of the land passenger transport sector. The White Paper, and the related Moving South Africa strategy of 1998-9 and the National Land Transport Transition Act of 2000, promised the introduction of a transformed and upgraded land passenger transport service environment that focused on the needs of the user. Government thus made a firm commitment to promote the progressive realisation of equitable accessibility for all citizens (regardless of income class, race, gender, etc.) so that they could lead dignified and productive social and economic lives. This was to be achieved by: Developing high quality local Integrated Transport Plans that redesigned the apartheid-based route structures into an integrated multi-modal network and also targeted subsidies at the optimal mode on a corridor within this network, Devolving planning and funding for land transport (road and rail infrastructure and operations) to the local level through the establishment of Transport Authorities, Implementing regulated competition through a system of operating licences and tendering for subsidised and commercial service contracts and concessions, Improving transport and traffic law enforcement, Promoting the recapitalisation of the entire aging public transport fleet, Promoting public transport, walking and cycling over private transport and beginning to control car use in metropolitan areas, and Channeling housing and commercial development into high density public transport-based corridors. For a variety of reasons, explained in detail later on in this document, the promise to transform and upgrade public transport, walking and cycling and to manage and control car use has not been adequately implemented over the past 10 years especially when viewed from the perspective of users and citizens. At best, existing users of public transport have seen services stagnate - though it is very likely that most users have experienced a deterioration in service quality. The National Household Travel Survey of 2003 (NHTS), the public feedback during the 2005 October Transport Month, as well as regularly occurring negative incidents (such as late trains and the related arson, all too common and avoidable bus and taxi
crashes, overcrowding due to a lack of reliable vehicles and an aging fleet, and the lack of available and affordable public transport services and facilities in both metropolitan and rural areas) all point to a widespread crisis in service delivery. This crisis affects all passenger transport modes including municipal, parastatal and private sector bus operators, Metrorail and the SA Rail Commuter Corporation, the minibus taxi industry, and pedestrian and cycling safety and facilities. Critical NHTS findings In short, public transport services have deteriorated (from an already low base) and are providing a second and third class service to the nearly 7 million workers and learners who use public transport modes on a daily basis. Another 14 million workers and learners walk every weekday. In comparison, 4.5 million workers and learners use a car to work and school. Essentially, the current service delivery crisis is failing the 21 million learners and workers who walk or use public transport each weekday while the 4.5 million who use a car are relatively well catered for. Public transport and walking are the lifeline forms of mobility for over 80% of households and for over 40 million people who are non-drivers The NHTS shows that a total of just over 8 million people live in households with access to at least one car. In no city or province are there more than 20% of households with access to 2 or more cars. Therefore, over 38 million South Africans lack access to a car in the household. Another 1.8 million households containing over 6 million people have to share one car between all members of the household. Under 10% of SAs households have access to two or more cars at home. Around 80% of SA adults do not have a drivers licence. This means that over 40 million South Africans are non-drivers and require some form of independent mobility. Even in the six metropolitan areas 2.3 million workers (49% of workers) use public transport compared to the 1.85 million workers (39.5%) who use a car. Another 415 000 workers (9%) walk in metro cities. Therefore in the 6 metro cities, 57% of workers use public transport or walk compared to 40% who use a car to work. Currently nearly 50% of ALL South African households use public transport to access police stations and municipal offices. 40% of households use public transport to access medical services and post offices. 55% of households use public transport to access welfare offices and 64% use public transport to access non-food shops. An additional 31% walk to police stations, 28% walk to municipal offices, 41% walk to medical services, 38% to post offices, 25% walk to welfare offices and 15% to nonfood shops. Taken together 81% of households use public transport or walk to police stations, 76% use these modes to municipal offices, 81% to medical services, 78% to post offices, 80% to welfare offices and 79% to non-food shops. Public Transport satisfaction levels Long commuting distances result in increased burdens on poorer households in terms of travel times and costs. 46% of train users, 35% of bus users and 25% of taxi
users are dissatisfied with travel times. 30% of South African households (over 3.5 million households) spend more than 10% of their monthly household income on public transport. The costs are also borne by the State, with the subsidy requirement of over R5.5 billion proving inadequate to ensure universal basic access in both rural and urban areas.
Key NHTS findings in relation to public transport usage and satisfaction levels include: 3.85 million workers use public transport. 3.15 million workers use cars 64% of workers who use public transport use a taxi, 22% use a bus and 15% use a train 67% of taxi users are dissatisfied with safety (including 78% of metropolitan taxi users). 64% are unhappy with facilities at ranks and 60% are unhappy with the roadworthiness of taxis 71% of train users are unhappy about the level of crowding, 63% are unhappy about security on trains and 60% are unhappy about the distance between home and the station 74% of bus users are unhappy with the facilities at stops (e.g. shelters). This rises to 82% of rural bus users. 54% are unhappy with the level of crowding on buses and 51% are unhappy with off-peak frequencies A large percentage on all modes are unhappy with frequencies in both the peak and off peak. For trains, 40% are unhappy with peak frequency and 52% with off peak. For bus it is 41% unhappy with peak frequency and 51% with off peak and for taxi it is 36% unhappy with peak frequency and 44% unhappy with off peak frequency 76% of South African households do not feel they have access to a train station, 38% perceive no access to a bus stop and 8% cannot access a taxi stop. There is an urgent need to address the quality of public transport facilities at stops and stations 53% of rail users, 74% of bus users and 64% of taxi users are dissatisfied in this regard.
The NHTS highlights that users are dissatisfied, that public transport costs comprise a large proportion of household income, that travel times are long and that access to public transport is uneven. Just as the Moving South Africa strategy found that in 1997 it was only car users in South Africa who were relatively satisfied with cost and journey time, likewise in 2003 - according to the NHTS car users average travel time to work is 34 minutes compared to almost double this for public transport users. Unredeemed promise of the 1996-2000 policy and legislation
The 2006 reality on the ground means that the 1996-2000 policy, strategy and legislation is still not fully implemented. For example, the system is still characterised by: operator-driven routes as opposed to a publicly-planned and managed integrated network; poor safety and security is common; rising car use and suburban road building is promoted; township and rural road infrastructure is still poor; very little road infrastructure allocates priority space to public transport, walking and cycling; and lack of or poor public transport facilities. While the current modal upgrading initiatives to replace taxi, bus and rail fleets are a start, they are not necessarily going to address the full range of dissatisfaction of existing users unless there is a radical overhaul of the system and a move to high quality, integrated mass public transport networks. In summary, the past ten years since the White Paper have not been maximally utilised to alter the unsustainable land passenger transport trajectories of the 1980s and 1990s. It is granted that the first important steps were taken in the late 1990s, but from a user perspective, these have either proved to be complicated and slow: as in taxi recapitalisation from 1999-2006, the establishment of only one, (relatively underfunded and hence ineffective) Transport Authority from 2001 to 2006, and the only half-completed bus tendering system from 1998 to 2006 - or have been ineffective and negligible for example public transport law enforcement, or have been contrary to the spirit of policy - the roads authorities politely ignoring the 1998 call to manage car use and to promote public over private transport. In short, the transport policy and strategy of 1996-2000 has so far not been effectively translated into practice.
3. Current public transport status quo and current Government responses, by mode In order to develop a strategic framework and vision to guide implementation until 2014, it is necessary to understand the current challenges facing the existing modalbased public transport system, as well as the current responses by Government. These are listed below for each mode under headings dealing with Status and with Response. Passenger Rail Status Passenger rail operations are currently on a knife edge primarily as a result of the ageing train fleet (rolling stock) and rail infrastructure due to a prolonged underinvestment in this sector over the past 30 years. This has seen rising levels of customer dissatisfaction, which has contributed to recent acts of arson against key rail assets as well as decreasing ridership levels. This under investment in rolling stock overhaul has led to the position where the rolling stock condition is deteriorating faster than the rate of overhauls. Unless the rate of overhaul can be greatly accelerated the situation will continue to worsen. The average age of the rail fleet is well beyond 30 years with some coaches already well beyond 40 years. Since 1988 no investment has been made in new coaches. The refurbishment programme has been discontinued during 2005/06 due to financial constraints and the current priority is to accelerate the overhaul of coaches as opposed to doing the more costly refurbishment. The backlog in General Overhauls is currently running at 852 coaches out of service and an additional 485 coaches coming out of service during 2006/07. Although there has been a substantial increase in the capital grant, it does not match to the current need for investment in terms of being able to supply an operational fleet to meet current demand. Of the 4600 coaches only about 3200 are operational. The impact of this will eventually mean a demise of passenger rail, which currently carries 2.2 million passenger trips daily and has the potential to be the most efficient, affordable and safe mode while more than trebling its ridership figures. In order to begin addressing this situation, Cabinet approved, in December 2004, that urgent action should be taken to improve the efficiency of the passenger rail services in the country by authorising a consolidation of the South African Rail Commuter Corporation (SARCC), its commuter services operator, Metrorail and the long distance
rail operator, Shosholoza Meyl. As a first step in implementing this decision Metrorail is being consolidated within SARCC in order to streamline decision-making and ensure that the current dysfunctional institutional arrangements do not undermine the realisation of urgent improvements in commuter rail.
Passenger Rail Response The National Passenger Rail Plan is being undertaken in two Phases: Phase 1, now complete, is the Interim National Passenger Rail Plan which has developed an overall strategy for the passenger rail sector and Phase 2 will be the National Passenger Rail Plan, which will develop regional, and route specific business and operational plans. This phase will also consider the development of a strategy for the devolution of commuter rail functions to local transport authorities/departments, over time.
The National Passenger Rail Plan will provide the consolidated passenger rail business with a clear basis for delivering improved passenger rail operations and ensuring that standards are maintained throughout the transitional period. The main finding of Phase 1 of the National Passenger Rail Plan process indicates that a future for sustainable passenger rail services will require that Government concentrates the majority of available resources on high intensity Priority Rail Corridors. The determination of these corridors is based on where rail is able to perform to its strength as a high capacity people mover. Other routes will be retained but given lower priority until such time as the business prospects of the industry improve. A number of alternative strategies were considered but it was concluded that only the refocusing of the business onto corridors where rail can operate to its strengths, will enable rail services to recover its rightful place within the public transport environment. However, the application of this approach will present challenges and problems for long distance passenger services. It will require creativity and innovation on the part of Government and passenger rail operator/s to ensure that rail continues to play a major role in facilitating greater mobility and improved access for all South Africans, especially the ability of rural communities to access economic opportunities. The Priority Rail Corridors strategy has been developed taking into account strategies set out in the metropolitan authorities Integrated Transport Plans and will be implemented in a manner that gives full expression to these plans. A preliminary business plan has been prepared that outlines the costs involved and the actions needed from an operational point of view to enable the business to implement the Priority Rail Corridors strategy. Even with the proposed focus on high-density corridors, Government investment will have to increase significantly from the present R3.1bn to some R5.4bn per year in order to underpin future growth in patronage. Much of the increase will be to accelerate rolling stock overhauls. A top priority in Phase 2 of the National Passenger Rail Plan will be to explore ways of increasing the role of
private sector financing and equity investment in the rolling stock overhaul and supply process. The main benefit of the Priority Corridors Strategy is that it offers a way to restore value for money for Governments investment in passenger rail transport. In the medium to long term the National Passenger Rail Plan holds out the prospect of increased use of the rail network on the priority corridors - with more effective, regionally based monitoring of finances and operational performance. In December 2005, the Cabinet approved the implementation of the overall strategy for the national passenger rail industry and also authorised the DoT to prepare the necessary regional business and operating plans that will be needed to give expression to the proposed new strategic direction. Taxi Industry Status Since the conception of the Taxi Recapitalisation Project (TRP) in 1998, the focus has been on to the actual rollout and implementation of the project. The TRP on its own should not be regarded as the solution to the many problems besetting the taxi industry. With eight years having elapsed since the start of the TRP process, the operational challenges besetting the taxi industry remain pressing. Whilst the TRP is an important intervention, there is a risk that fundamental issues that are significant to the ordinary operator remain marginalised and this perpetuates the hooliganism exercised by some in powerful positions within the taxi industry. Until such challenges are brought to the fore and dealt with decisively, the economic opportunities prevalent in the industry will continue to be enjoyed by a powerful and sometimes ruthless minority. Certain sectors of the taxi industry remain vocal that for as long as the taxi industry continues to be excluded from any form of economic assistance from Government (while both rail and the bus industry are assisted), the industry will not be able to assert itself and compete effectively. The current operating environment The National Household Travel Survey confirms the taxi industry as the dominant public transport mode on a national basis. Despite this large market share, an analysis of the operating environment reveals the following: An industry dominated by severe harassment, intimidation and violence, especially over lucrative routes, An industry that has been effectively de-regulated for nearly two decades, and any form of regulation is viewed with suspicion and resentment, An industry where profit margins are narrow and break-even points are precarious for some operators, which results in activities to raise additional income, An industry where reckless and negligent driving is the order of the day because drivers are expected to reach a specified daily revenue target. Salaries and wages are then determined by what the driver brings home. The
driver is therefore incentivised to chase as many passenger trips as possible in order to make sufficient income. An industry which, because of its daily cash-based system, provides fertile ground for money laundering, An industry where working conitions and training requirements are not given priority by the employers. Taxi Industry Response The TRP is one intervention to start addressing challenges prevalent in the taxi industry. The TRP aims to achieve the following: Set acceptable vehicle standards that are aimed at addressing road safety, Ensure only legal operators ply their trade, Ensure that Operating Licenses are issued in accordance with integrated transport plans that support integrated transport and spatial development, Promotion of regulatory instruments and frameworks including tax compliance, working conditions and other applicable legislation, Effective law enforcement, Modal integration, Promotion of accessibility for people with special needs. Whilst the above is necessary, other essential issues need to be addressed in order to move towards having a coherent, integrated public transport system that responds to the needs of users and of the country as a whole. These include: Regulation of routes and facilities in the public interest Taxi associations (not Government) control the right to operate. In spite of being in possession of valid and legal documents to operate, some operators are expected to pay large fees to be allowed on routes. Government needs to assert public ownership and control of routes and facilities and to remove these from taxi association control. This is the ONLY way to ensure that all legitimate operators have equal access. Currently, municipalities are not geared up to assert the publics right to control routes and facilities. Joining fee and monthly operator contributions to associations Operators are required to pay exorbitant fees to join an association (which then basically gives the applicant the right to operate) and monthly contributions for the upkeep and maintenance of the associations. These monies are not accounted for and because of the cash system and money laundering may be prevalent. It is important that Government should regulate these transactions and associations be transformed into Section 21 Companies so that the cash is declared and dividends are utilised in accordance with the law. Co-operative governance Government institutions are working in silos and fail to co-ordinate efforts and resources to make meaningful interventions to correct some of the malpractices prevailing in the taxi industry. Government institutions like DoT, Financial Intelligence Centre and the Money Laundering Advisory Council, SAPS, NIA, Crime Intelligence and SARS should be working together to close the loopholes that are being exploited by the industry. Recent moves by the DoT and SARS to co-operate on the tax compliance issues of the industry is a start, however that on its own, without the
involvement of other institutions, leaves a vacuum that needs to be filled. Training and Education The initiatives carried out through the Transport Education and Training Authority (TETA) and Provinces regarding capacity development need to be supported to fill the education and training vacuum prevalent in the industry. Contributions towards the Skills Levy should be promoted and employees should be protected from dismissal when they attend training and education programmes. Infrastructure There is an urgent need for investment in public transport supportive infrastructure such as roads, dedicated lanes, ranks and public transport facilities and interchanges. Economic assistance Whilst it is generally accepted that the provision of economic assistance to the industry is necessary, there is also a need for support to be sustainable and to promote the objectives of Government with regard to providing integrated public transport networks. The TRP, with its provision of a capital vehicle subsidy of R50,000 starts to address this challenge but a long term sustainable mechanism needs to be developed. User-based assistance seems to be an option preferred by the industry for the obvious reason that the industry is the current dominant public transport mode. However, municipal Integrated Transport Plans have not sufficiently addressed the challenge of fully incorporating existing taxi operators into re-designed integrated public transport networks. BEE in the taxi industry The Taxi Industry, Government, Organised Labour and the Transport Education and Training Authority (TETA) have committed to making significant strides in addressing the issue of Broad-Based Black Economic Empowerment through the development of the Transport BEE Charter. The Taxi Recapitalisation Project as well as using the taxi industrys purchasing power for inputs such as insurance, communications, fuel, spares, etc., have been identified as primary areas of benefit. The following table illustrates additional areas that have been identified:
TAXI RECAPITALISATION PROJECT POTENTIAL BEE OPPORTUNITIES

Taxi Recapitalisation Project Element NTV Operator Sector where activity is generated

Opportunities for BEE

Equity
NTV Manufacturer
Bank (Financing)
Tourism Current business operation Improved business operation Vehicle warehousing Deliveries Automotive manufacturing NTV manufacture Component supply Raw material supply Vehicle distribution Vehicle warehousing Vehicle sales Vehicle maintenance Commercial (financing institutes) Administration - License issue Information technology
Pre-booked tours Curio sales Catering Deliveries JV with NTV manufacturers
JV with NTV manufactu rers
Supplier development (especially SMME) Logistics management Vehicle maintenance
New business in the form of franchises Printing JV with EMS provider Hardware/software supply Sub component supply Installation businesses fitment/retrofitment New business in the form of franchises Maintenance and support structures Consultants Taxi industry planning JV with scrapping agent Scrap metal sales New business in the form of franchises Logistics support Infrastructure development Construction services Materials supply Consultancy Printing Photography Communications
DOT (Licencing / registration) EMS
Consulting Agents (verify payment) Scrapping Administration Agents
Consultancy services
Recycling
Facilities
Building and roads construction
Communication
Advertising and marketing
Refurbishment
Engine remanufacturing
Draft Public Transport Strategy Sept 2006
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In conclusion, the self-regulation of the taxi industry should not be allowed to continue. It is important the Government asserts control over routes and facilities in the public interest. In order to achieve this, municipality transport planning and control capacity needs to be significantly strengthened. At the same time, municipality transport planning needs to seriously incorporate existing minibus operators and drivers into a formalized, publicly controlled, integrated public transport network. Bus Industry Status The analysis of the operational bus profile in the country shows the following: There are approximately 10 100 commuter buses (excluding municipal and long distance fleet). The total number of subisidised buses is approximately 7500. Thus making the unsubsidised number of buses approximately 2600. Subsidised Bus Services The current subsidised services are provided through the following contract types: Interim Contracts: There are currently 31 Interim Contracts (26 operators), which were entered into in 1997 and were due to expire in 2001. Since 2003 all Interim Contracts have been extended on a month to month basis. Based on the 2005/2006 budget, 66% of the total budget (R1,563bn) was allocated to Interim Contracts. Tendered Contracts / Negotiated Contracts: There are currently 79 tendered contracts (38 operators) and 9 Negotiated contracts (5 operators) with a budget of R820m (34% of total annual subsidy allocation). The number of expired contracts is 73 and the balance is due to expire before the 2006/7 financial year end. Since 2003 all expired contracts are extended on a monthly basis.
Municipal Bus Services Municipal operators are in most cases either solely owned by the respective municipalities and function as departments within municipal structures or have been corporatised (i.e. operated at an arms-length away from the municipality as a financially ring-fenced entity). Many if not all municipal bus operators receive a deficit subsidy, where the short-fall between operational expenses and fare income is bridged by the municipality. Learner Transport Services Provincial Departments of Education are providing some financial assistance for the transportation of scholars. Where support is provided, scholar transport subsidies are mainly targeted at children attending farm schools or who live in settlements that do not have a school within a distance of 8 kilometers. These subsidies are allocated by means of contracts between operators, parent bodies and Provincial Departments of Education, based on a set formula (e.g. 12 cents per kilometer per scholar per trip of the
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Gauteng Department of Education in 2003) and are fare based. Subsidised Service Inefficiencies Interim Contracts Services are based on the legacy of apartheid spatial patterns and are focused on servicing mainly worker travel in peak hours and little service is offered to other categories of users (aged, scholars). Management and monitoring of Interim Contracts is non-existent. This has led to fraudulent activities by operators, e.g. an amount of R60m was recovered from Golden Arrow Bus Services in 2003 and there is a pending forensic investigation of another operator. The average fleet age profile for these contracts is no longer contract compliant and may not be used in the tender system due to the age specifications for tendered contracts that are set at 15 years. Most of these vehicles are obsolete and lack modern technology. This also impacts on the safety credibility of the service. The routes are old and have not been expanded to address current demand. The month-to-month extension restricts transformation and entrenches current subsidised operators. It also creates instability in the industry due to the inability of operators to invest in the fleet in the absence of a long term contract. Subsidy payment is almost exclusively mode specific and focused on large established operators. Little support is given to rural areas. Tendered Contracts Designs of new tendered contracts are largely based on the types of service provided under the current interim contract and the prior funding available to that contract. This does not incorporate a full re-design and rationalisation of all services in an area in order to from an integrated network. In some areas there is a duplication of subsidy by subsidising parallel services on routes served by both rail and bus. There is also a lack of standardised monitoring processes by the different provinces who have awarded tendered contracts. General Services Inefficiencies Infrastructure There is a lack of proper facilities at termini, stops and on routes. There is also a lack of priority infrastructure such as dedicated public transport lanes as well as poor pedestrian and public space facilities in the vicinity of routes. Meeting user needs Only those that were provided for in the previous regime are still being provided for and other users such as physically impaired people, the aged and scholars are not adequately catered for. Rural areas are not fully covered due to previous allocations and the current funding
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constraints. Modal Integration Integration of services provided by the different spheres of Government is problematic due to the lack of co-ordination e.g. municipal bus services and provincial bus services providing services in the same areas thus running in paralell. Funding The current budget is inadequate to implement regulated competition which will address renewal of fleet, safety, accessibility for special needs passengers, increased service provision and targeting. Regulation There is a need for more effective inspection and monitoring to ensure compliance with bus specifications as set out in the Model Tender Document. Bus industry response The following steps are currently proposed in order to transform the operation of subsidised bus services:
Services currently operating in terms of Interim Contracts need to be converted to either Negotiated or Tendered Contracts and all expired Tendered Contracts need to be put out to tender as soon as possible to address issues of targeting, modal integration and improved service provision, For targeting purposes it is proposed that there should be a gradual move in subsidies towards the unemployed, poor, pensioners, learners and people with physical impairment. Attention should also be given to rural areas and isolated communities, Broad Based Black Economic Empowerment (BBBEE) should be implemented as included in the BBBEE Transport Charter and the Model Tender Contract Document, The appropriate mode of transport in areas to be subsidised is to be determined or confirmed in accordance with rationalisation plans, that would include the incorporation of taxis and small bus operators, Establish dedicated public transport lanes and high quality infrastructure and facilities that give priority to public transport over mixed traffic. Secure enforcement on these lanes to ensure that travel time by public transport users is optimised, Identify and address parallel subsidies between or within modes by giving preference to the mode that suits the route - focusing on a corridor approach that provides an inter-modal operation, Institutional arrangements address planning and funding for land transport with the ultimate aim of devolution to local level, Include all public transport operators into a regulated environment in terms of service provision and vehicle safety, Integration of service designs should encompass services provided by Provinces and Municipalities to address inefficiencies and eradicate duplications, Form partnerships with the Department of Education to optimise subsidies paid for scholar transport and to ensure that these services are provided with in terms of the Model Tender Document, Development of a National monitoring model that will guide provinces on standardised monitoring principles, Implement a public transport passenger charter to promote the rights and responsibilities of the stakeholders of public transport i.e. drivers, operators, Government and passengers, The current contract system is based on Net Cost contracts. Evaluate the benefits of Gross Cost and Net Cost Contracts with regard to achieving operational efficiencies, increasing competition
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and risk allocation.
FUNDING PROPOSAL MTEF PERIOD 2007/8 2009/10 The conversion of all Interim Contracts and the replacement of expired Tender Contracts will require an additional allocation to the annual bus subsidy budget for the coming MTEF period (2007/8-2009/10). Considering the calculated estimated average of a 30% increase due to the need for an overall fleet renewal programme, the estimated 2% increase caused by the need to provide accessible compliant vehicles and the estimated 3% passenger growth demand for public transport services; an estimated total increase of 35% on the 2006/7 MTEF allocation is required (excluding annual escalation). This amount spread over the next three financial years is indicated in the table below:
Projected total increase of % Increase 35% on 2006/7 budget spread over 3 years for against baseline allocation implementation of competitive tendering
MTEF
MTEF ALLOCATION
2006/2007 2007/2008 2008/2009 2009/2010
2,415,235,000.00 2,535,997,000.00 2,789,956,000.00 2,957,353,360.00
295,087,899.81 440,417,401.21 110,944,121.52
11.6% 15.8% 4%
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4. Current response to the Public Transport service delivery crisis During the current term of Government, the Minister of Transport has, in Budget vote and other speeches, and during Transport Month, etc., called for the following actions with regard to passenger transport: Fast track taxi recapitalisation and facilitate taxi industry participation in the current subsidised bus contract system; Convert interim bus contracts to tendered contracts; Consolidate passenger railway entities, establish a Railway Economic Regulator and develop and implement a passenger rail revitalisation plan; Manage car use in metropolitan areas; Implement priority infrastructure (e.g. dedicated lanes) for public transport, walking and cycling and multiple occupant cars; Ensure a sustainable public transport and non motorised transport legacy from the 2010 FIFA World Cup projects; and Maximise opportunities to promote public transport and non motorised transport infrastructure through the creative use of Municipal Infrastructure Grant, and Expanded Public Works Programme funding.
Twin Responses: Modal Upgrading and Integrated Mass Public Transport Networks In response to the Ministers calls, the Department of Transports (DoT) interim strategic approach (as endorsed by the Transport Lekgotla in April 2005) rests on two pillars. Modal Upgrading The first pillar involves effecting significant and urgent improvements in current public transport services. This Modal Upgrading entails stabilising the operating environment through short-term interventions such as: Consolidating the passenger rail sector; Rolling out the National Passenger Rail Plan; Implementing Taxi enforcement; and Recapitalisation including improved regulation and law
Transforming and optimising current subsidised bus services.
The first pillar above, is what this strategy has termed Modal Upgrading - with accelerated vehicle upgrading as its centrepiece. Modal upgrading, is necessary but not sufficient in order to achieve the vision of a sustainable mass rapid public transport network. While there has been some progress in the preparatory work for implementing Taxi Recapitalisation, consolidating Passenger Rail entities and developing an Interim National Passenger Rail Plan, as well as the development of a Model Tender Contract
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document for subsidised road-based public transport services more strategic work is required with regard to: Providing a stable operating and empowerment environment for existing minibus and small bus operators and drivers, which will overcome their fear of the sustainability of a once-off recapitalisation subsidy, and will ensure their participation in a formalised public transport network without fears of job and income/profit losses, and Ensuring the rationalisation, re-design and transformation of existing subsidised road-based public transport services into an integrated network of high quality mass rapid public transport. Integrated Mass Rapid Public Transport Networks The second pillar of the current interim public transport strategy entails the promotion of a growing public transport sector that is able to meet the needs of current and new users. Key goals include the delivery of functioning intermodal systems, high quality corridor-based services, adequate investment and re-investment and equitable basic access for a range of urban and rural users, including the poor, scholars, job seekers and special needs users. The second pillar above covers what this document refers to as implementing high quality, integrated mass rapid public transport networks. In support of both strategic pillars the DoT has also developed draft strategies with regard to Rural Transport, Special Needs Users, Black Economic Empowerment, etc. Additional work is currently being undertaken on Public Transport Subsidy Reform, Travel Demand Management and Electronic Fare Collection and further work will be undertaken to develop strategies for effective devolution to the most appropriate sphere of Government and to achieve corridor-based networks at city-wide scale. Selected provinces are finalising strategies to restructure subsidised Bus networks. Municipalities have developed Integrated Transport Plans and selected municipalities have developed plans for Strategic Public Transport Networks in their areas. An interim Rail Plan has been submitted to Cabinet and detailed Regional Rail Plans are being developed. A World Cup 2010 Action Agenda has been developed and the World Cup Public Transport Infrastructure and Systems Fund has allocated a first round of funding to municipalities. Evaluating Progress In order to assess the current priorities and strategies listed above, it is necessary to locate them within the 1996/8 Vision. The 1998 DoT MSA vision of moving From commuter-based modal transport to customer-based public transport systems is still relevant 8 years later and is therefore reconfirmed. The key MSA strategic actions to achieve a customer-based public transport system viz. Densification of Corridors, Optimal deployment of Modes and Improving Firm level Performance (through well planned contracts, effective regulation and enforcement, encouraging capital investment and the establishment of a stable funding framework) remain pertinent in 2006 as stated in 1998.
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M o v in g S o u th A fric a s u rb a n tra n s p o rt s tra te g y fo c u s e s o n th re e k e y s tra te g ic a c tio n s
D e n s ify to a c h ie v e e c o n o m ie s o f s c o p e a n d s c a le
D De en ns sify ify T Tra ran ns sp po ort rt C Co orrid rrido ors rs
A g g re s s iv e u s e o f c o n tro ls a n d in c e n tiv e s A p p ro p ria te c o - o rd in a tio n o f in s titu tio n s
O Op ptim timis ise eM Mo od da all E Ec co on no om mic ics sa an nd d S Se erv rvic ice eM Mix ix
In fra s tru c tu re in v e s tm e n t to s u p p o rt c o rrid o rs S e le c t o p tim a l m o d e b a s e d o n c o s t / s e rv ic e tra d e - o ff F a c ilita te d iffe re n tia te d s e rv ic e / c h o ic e w h e re a p p ro p ria te T o u g h ro a d s p a c e m a n a g e m e n t to p rio ritis e p u b lic tra n s p o rt T a rg e t s u b s id ie s a t a ffo rd a b le a c c e s s / o p tim u m m o d e
Im Imp pro rov ve eF Firm irm --le lev ve ell P Pe erfo rform rma an nc ce e
C o m p e titiv e te n d e rin g to p riv a te s e c to r, w ith in c e n tiv e s fo r p ro d u c tiv ity a n d in n o v a tio n E ffe c tiv e re g u la tio n o f a ll m o d e s Im p ro v e d s u s ta in a b ility th ro u g h c a p ita l in v e s tm e n t
In 1998 the MSA Strategy made the following forecast with regard to Urban Passenger Transport: Unless radical action is taken, the performance of the urban transport system is likely to worsen over the next 20-25 years Decentralised land use patterns will increase public transport journey time and cost, and increase car dependence The number of people without affordable access to public transport will grow The number of car users will double; road congestion will worsen and have a significant effect on economic productivity and the viability of the public transport system Although some action is being taken on bus and taxi regulation, there is considerable doubt that it will provide the improvement required. From the vantage point of 2006, it can be concluded that the 8 years since the MSA strategy have witnessed a lack of radical action to address a radical situation. The priorities and strategies from 1996-2006 are undermined by the lack of the establishment of the building blocks of an: effective government planning, regulatory and management regime at the local sphere in order to integrate route services into a publicly controlled network.
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Though, little substantial progress has been achieved in this regard in the past 8 years, the current emphasis on accelerating modal stabilisation and upgrading, and implementing the basic planning and regulatory building blocks, can be used as a basis to accelerate the achievement of broader strategic goals such as: more effective deployment of subsidies including the inclusion of small bus and minibus services, creating a public transport-based 2010 World Cup, integrating road and rail modes into a single municipal network that creates a basis for targeted corridor investment and upgrading, management of car use through locally planned incentives and penalties, introducing new services to address the needs of citizens in rural areas, mainstreaming the accessibility of special needs users onto the strategic public transport network, and targeting the improvement of public transport, walking and cycling infrastructure and facilities through labour intensive methods, etc. It must be emphasised, though, that achieving the above delivery objectives will require the full implementation of a capable and effective local transport department or authority that is well resourced, with access to devolved funding streams, and is able to plan, manage, regulate and control a public transport network in the interest of ALL users and operators.
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5. Implementation blockages hampering the transformation of Public Transport The passenger transport function is still fragmented across the three spheres of Government and planning, regulation, management and enforcement are all ineffectual, unfocused and of minimal scale in comparison to the need on the ground. The slow pace over the past 8 years in transforming passenger transport service delivery is mainly accounted for by the fact that Government in the land passenger transport sector has underestimated its role and capacity and has therefore not been able to quickly follow through on the core implementation building blocks of: local institutional capacity, publicly planned networks, regulation of competition, public control over routes and facilities, and strong enforcement of safety and security. Each of these building blocks are discussed below. Institutional capacity and devolution of funding streams A major institutional barrier to passenger transport system improvement has been the failure to devolve the appropriate range of functions and associated funding streams to the local sphere of government. This is due to various reasons such as lack of capacity at the local level for planning the transport system and co-ordinating it with land use. There has been an absence of an effective public sector platform of well resourced and effective municipal transport departments/Transport Authorities that are closely integrated with the land use development, traffic, roads, licence boards and commuter rail departments or entities. This, coupled to the further absence of strategic municipal integrated transport plans that prioritise public over private transport and which define core public transport networks for rapid upgrading, has made it difficult to fully achieve the goals of the strategies and priorities from 1996-2006. Furthermore, an ineffective governance and planning platform has also been coupled with a planning regime at the local level that is not in control of the funding of operations in its jurisdiction. This has resulted in nationally conceptualised and driven programmes that are not fully responding to local needs. It must be emphasised that the establishment of Transport Authorities at the local sphere is optional in terms of the NLTTA. Whether there exists a separate Transport Authority or an internal city transport department, the key objective is to have alignment behind a local public transport strategy across all relevant transport, roads, land use and other municipal functions as well as close integration with the provincial sphere as well as neighbouring municipalities. Publicly planned networks South African metropolitan, urban and rural municipalities have not made adequate progress in implementing corridor-based public transport networks that can serve as a structuring element of municipal spatial form and enable high quality, high volume public
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transport services. It has already been 9 years since the first corridor projects in the major cities and there is little to show for the effort. In the mid to late 1990s, some SA cities embarked on development corridor projects (e.g. Wetton-Lansdowne in Cape Town, MabopaneCenturion in Tshwane, etc.) which have not produced the results that were expected. One of the shortcomings of these projects is that they focused on the more ambitious and challenging task of re-directing economic development in a city as opposed to focusing on upgrading transport services along existing, well defined and high volume movement flows (e.g. key township to CBD corridors). Land Use integration The integration and alignment of land use and transport planning processes is currently inadequate. Despite the rhetoric about integrating transport and land use and despite the existence of Metropolitan Spatial Development Frameworks etc., there has been a lack of initiative in developing public transport supportive land use controls and incentives. Perhaps, could this is due to the fact that the land use managers and private developers as well as public sector land owners do not see well defined public transport network plans and implementation projects that can serve as the structuring element around which to facilitate more dense and compact land development? Contrary to policy and strategy intentions, most of the land development has either decentralised further around private car-based corridors and nodes (N1 in Cape Town, Ben Schoeman Freeway in Gauteng, M4 in Durban etc.) or has focused on low value land on the periphery for sprawling, lower density, low cost housing projects that are mainly served by mini-bus taxis. Public transport as an ALTERNATIVE to the private car Another aspect of the current network plans and practices is the lack of an overall conception of public transport networks as alternatives to the ongoing expansion of private car road infrastructure and parking networks. This lack of taking public transport and passenger car demand management measures seriously, leads cities to reinforce the inherited dual and separate systems of car-based road networks and informal public transport networks - operating independently - and hence fails to maximise the integrative potential of a genuine city-wide passenger transport system. The danger is that public transport in a city is seen as a township-problem versus the car congestion problem in the suburbs and separate solutions are attempted for both challenges - as opposed to transforming the problem through developing a single, strategic city-wide public transport network solution for all city residents, both in the townships and in the suburbs. Dominance of car oriented infrastructure design South African cities have also failed in the main to make major improvements to pedestrian, bicycle and public space networks in terms of both improving coverage and quality as well as creating proper linkages to and from public transport. This applies in particular in townships which are still pedestrian-dominant environments but which
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generally lack any decent non motorised transport facilities. Even where roads are built or upgraded, there is a lack of attention to designing these road spaces for all road users as opposed to the minority who use motor vehicles. Communities in townships across all metropolitan cities have resorted to protests and informal traffic calming measures as a result of pedestrian-unfriendly infrastructure design. Given the National Household Travel Survey findings that 9% or over 400 000 metropolitan workers walk to work (slightly more than those who use a bus to work in metropolitan areas) as well as the fact that 57% or over 2.5 million metropolitan city learners walk to school the lack of attention to proper facilities and protection for these 3 million daily pedestrians in the 6 metropolitan cities is a reflection of the car-oriented biases of the passenger transport planning profession in South Africa. Absence of a transition plan to fully incorporate minibus/small bus sector In the run-up to and immediately after the passing of the NLTTA in December 2000, cities engaged in detailed technocratic project planning processes that have fallen short of producing implementable network solutions (Durbans North-South Rail corridor for example) due to the realities of current mini-bus dominated public transport service provision and relatively weak local public sector capabilities to actually manage and regulate the envisaged system, let alone manage a difficult transition period from the present. There is an urgent need to learn from the examples of Bogot and Seoul with regard to guarantees to operators and drivers to minimise the perceived risks of the restructuring of their operations. Successful developing country examples in recent years promote tactics such as engaging the transport operators about their role in developing and implementing a local vision and transformed network for passenger transport. Transport planners have been unable to grapple with the reality of the present-day (operator-driven) network being mostly controlled and serviced by minibus taxis. This poses a challenge to transport planners - as taxi operators are threatened by network integration plans that turn them into feeder services, which they view as being less profitable than their current operations. No city or province has managed to develop a feasible transition plan that will take the mini-bus taxi industry (operators and drivers) on board. Much more creativity and innovation is required in this regard to providing guarantees that non jobs will be lost and that no legitimate income will be lost. A case can be made that Government has not shielded risk-averse small bus and minibus operators from the risks and uncertainties linked to the transition to a publicly planned network. In addition, the public transport restructuring plans and the taxi recapitalisation project, to an extent, have fallen short of minimising the change management risks to existing minibus operators and drivers in terms of providing an explicit guarantee of revenue and jobs which has characterised successful mass public transport restructuring projects in Latin America and Seoul for example. The onus should be on the public sector to design a high quality public transport network - with significant exclusive lanes and infrastructure - which will generate the efficiencies
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and increased ridership that will allow for ALL existing operators and drivers to play a role in the transformed service and which does not threaten their existing jobs or legitimate income. Absence of a city-controlled gross cost contracting system Gross cost contracting involves the public sector controlling fare income and with private operators being deployed by the public sector in terms of an integrated network plan and are paid in terms of a contract for a certain number of vehicle kilometers. This gross cost contracting system places the onus upon the public sector to plan a network that is attractive to users. It removes the need for drivers to compete for passengers on the road as they are now paid for a set amount of vehicle kilometers offered, and it allows for city-wide network access planning as opposed to operatordriven route-based profit maximisation. In addition, this change to a gross cost contracting system is coupled with guarantees to operators and drivers in terms of income and job security. Therefore, a rethink of the current plans is required. These current municipal plans have a limited focus on upgrading bus and taxi services throughby renewing the fleet and making minor infrastructure improvements such as curb-side priority lanes, etc. This does not alter the operating system nor does it provide enhanced benefits such as a car-competitive travel time. On the other hand, the lessons of Latin American cities highlight the fact that there is a difference between merely improving a bus/minibus service but essentially leaving its speeds, quality and operations the same as in the past versus implementing a full scale bus/minibus-based mass public transport network. The latter involves a strong city authority which plans and controls a network and fare income and pay operators per contracted vehicle kilometre. In addition significant public transport exclusive median lane infrastructure is constructed, with level platform boarding at stops and these combine to achieve car-competitive speeds and quality. Regulation of competition An example of the public sector not having the regulation building block in place is the fact that, from 1996 to 2006, Provincial Permit Boards and now Operating Licence Boards have been unable to effectively process, manage and regulate the applications for permits and the later conversion of these to route-based operating licences let alone conduct effective route capacity planning. This has essentially allowed routes to be self regulated by operators. Boards are now almost able to perform their functions administratively but whether they are exercising any strategic control over the supply on routes based on an accurate estimation of the demand is doubtful. Public control over routes and facilities Municipal control over public transport facilities and routes is weak. There is an urgent need for support to the local sphere to begin to control and regulate ALL infrastructure and facilities on its core mass rapid public transport networks. This would also apply to
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monitoring the service levels of rail stations and facilities as well. Currently there is a realisation among certain provinces and municipalities that Government needs to invest resources into fast tracking the planning of restructured subsidised road and rail networks as opposed to the simple administrative conversion of interim contracts to tendered contracts with the same apartheid-inherited, operatordriven routes. While this development is positive, it could be argued that it is a building block that should have been in place five years ago and needs to be accelerated. Strong enforcement of safety and security Despite irregular and random campaigns promoting zero-tolerance for traffic and transport offences, public transport operators and drivers are still risking the lives of millions through unsafe vehicles and dangerous driving practices. For example, 78% of metropolitan taxi users are dissatisfied with safety. Even the more upmarket intercity coach services have experienced serious lapses e.g. there have been several incidents involving Translux buses and drivers in recent years. In the main, the safety violation on all public transport modes are due to weak inspection, enforcement and management systems as well as perverse economic incentives that lead to minibus drivers chasing passenger volumes on the road as opposed to competing on service quality. Conclusion the need for devolution to well resourced and capable municipal transport departments or authorities The service delivery improvement goals of Government and users requires the establishment of an effective local transport governance structure that is able to conduct high quality planning and is able to integrate, fund and regulate a network of operations in its area. The current fragmentation of passenger transport functions and funding sources across the three spheres of Government, the limited planning and regulatory capacity at the local sphere and the lack of a focus on developing strategic public transport and walking and cycling networks - all serve to undermine the laudable priorities and strategies articulated above. A committed drive to ensure strong municipal transport department or authorities, with the requisite devolved funding, is needed in order to ensure the development of publicly controlled networks of infrastructure and services.
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6. A strategic context to guide public transport transformation in the Second Decade of Freedom The review above concludes that the overarching strategic challenge is to ensure significant public transport service delivery improvement, on an accelerating basis, from the present to 2014 and beyond. Meeting this challenge will necessitate a strong, Government-led, multi-sphere intervention to stabilise, invest in, and transform public transport - which is a critical social AND economic service. Therefore, the objective for the next 3-5 years is to implement the key building blocks that will enable a shift, away from the current operator-controlled, uni-modal, routebased services - that cater mostly for the peak-period worker trip. From modal upgrading to integrated mass rapid public transport networks In other words, any significant and sustained public transport service delivery improvement from 2007 to 2014, and into the future, will mean accelerating the current programme of upgrading the vehicles and infrastructure of existing public transport modes (e.g. taxi vehicle recapitalisation, refurbishment and replacement of commuter rail rolling stock and reducing the average age of the subsidised bus fleet), but it will also require a transformation of the current service regime to go beyond the commuterbased, uni-modal route services and to phase in an integrated, mass rapid public transport network that is publicly planned and controlled. In this regard, the public transport sector in 2006 (both within and outside of Government) is at a strategic crossroads, where a clear choice in favour of a high quality, integrated, city-wide mass rapid public transport network is required especially in the metropolitan city context. The key strategic choice over the next decade is between either: Implicitly allowing the suburban, car-dependent leg of our passenger transport system to dominate and expand, and to increasingly congest city infrastructure networks in an unsustainable manner, both in terms of public finances, social equity, basic accessibility for non drivers, and environmental and energy efficiency, or to Explicitly implement a strategic shift towards sustainable and equitable mobility which prioritises high quality, car competitive, integrated mass rapid public transport networks on a city-wide basis and which forms the PRIORITY mobility option in BOTH the suburbs and the townships.
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An unsustainable car dominated future in metropolitan cities even with modal public transport upgrading! In metropolitan cities in particular, even upgrading public transport vehicles within the current operating regime is NOT going to retain those current captive users who will be able to afford a used car in the near future, as their incomes grow. Currently, access to a car in South Africa increases rapidly above the R3000 per month household income level. Benchmarked internationally, South Africa is thus in the phase of potential takeoff in car ownership and use - if nothing drastic is done to improve public transport as an attractive alternative. In addition to the above, there is also a high degree of car dependency by even the non-drivers in households with access to a car. According to the National Household Travel Survey of 2003 (NHTS), of the South African population of 46 million in 2003, just over 8 million people lived in households with access to a car. 70 percent or 5.7 million people in these car owning households ONLY use private cars exclusively and can hence be termed car dependent. Due to this high degree of exclusive car dependency and its geographic concentration in the metropolitan suburbs - where over 90% of households use cars - even the current, relatively low, city-wide car usage figures are overwhelming significant sections of the road infrastructure network. The current set of proposals by Road infrastructure authorities seems to amount to schemes to justify providing additional road and parking space to suburban car users who are the most inefficient consumers of road infrastructure and transport fuels. There is a lack of serious consideration of demand management measures to promote more efficient car use as a short term alternative. In addition, there is a lack of co-operation between road infrastructure and public transport authorities with regard to developing Public Transport services as an alternative to road building. In conclusion, increasing metropolitan city car use in the next decade is unsustainable for existing public transport suppliers in the long term (even those who have upgraded to newer vehicles will be unable to compete). They will be continuously losing market share to used cars and their revenues and profits will contract. In addition, growing car use will also be unsustainable in terms of supplying road and parking infrastructure in already well served areas as well as further undermining the city-wide densities required for efficient public transport operations. Hence, unless a car competitive, integrated mass rapid public transport network is implemented within the next decade, metropolitan city car use is set for a significant
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increase. Therefore, both road infrastructure AND public transport authorities need to align their implementation efforts behind the goal of promoting high quality public transport networks and deprioritising road supply increases for cars in already well served suburban areas. Vision: Sustainabilty through Quality Therefore, the vision of where public transport should be heading involves making a choice for SUSTAINABILITY through: A phased implementation of a SINGLE, user-responsive, publicly planned and controlled system, that integrates routes into a multi-modal mass rapid public transport network, and which provides maximum accessibility and coverage in a city or district for ALL citizens, both in the townships and suburbs. This vision is in stark contrast to the current situation where services across all the public transport modes are still operator-based, with weak oversight, and are designed to ensure maximum operator profitability on each route, in isolation from the users need for a diverse and integrated network of origins and destinations. Simply upgrading the vehicles without transforming the operating system will not prove to be sustainable in the medium term. Most, if not all successful, high quality, mass public transport systems internationally, are based on a publicly planned and integrated network as opposed to operatorcontrolled routes. In fact, recent examples from Latin America to East Asia have seen the public sector at city level successfully reclaim control over routes and networks, while partnering with existing private operators in a quality-oriented operating system that removes the incentive for public transport drivers to chase for passenger numbers at all costs.
The Vision of Integrated Mass Rapid Public Transport Networks poses challenges for: existing Modal Upgrading Initiatives; Road infrastructure strategy; and for Local sphere capacity This vision above, poses challenges for current implementation initiatives in both the public transport as well as road infrastructure arenas: Modal Upgrading challenge The current public transport modal upgrading initiatives of taxi recapitalisation, passenger rail consolidation and subsidised bus service optimisation while going some way to improving and stabilising the modal environment in the short term - will have to be translated, in the medium term, into high quality, integrated networks of car competitive infrastructure and operations at the local sphere. Options here will
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necessarily involve significant priority road space and facilities for public transport, as well as public sector planning and control over the quality and quantity of operations in well designed mass public transport corridors and networks. In short, while there is a need to accelerate the necessary vehicular upgrading, there is also the challenge of going beyond this in order to restructure operations into a high quality integrated network. Local sphere capacity challenge The local sphere thus needs to be supported to ensure that it is able to plan, manage and control a high quality, integrated mass rapid public transport network in which operators are contracted by the public authority to provide a certain quantity of service according to strict performance quality criteria. Currently metropolitan transport departments are not geared up to play an effective planning and oversight role. Road infrastructure strategy alignment challenge For the road infrastructure authorities, the challenge will be to partner with the local sphere to implement car use demand management incentives and penalties as an ALTERNATIVE to supplying increasing road and parking infrastructure in already well served areas - such as the metropolitan suburbs. Therefore, there is a need to radically rethink the current approach to dealing with metropolitan freeway and suburban private car congestion. This vision - which de-emphasises increasing road and parking infrastructure for private cars in already well served suburban areas, in favour of prioritising high quality, integrated public transport services in ALL parts of the city or district will be impossible to attain if Governments road infrastructure authorities simply continue to try to build our way out of congestion. Conclusion The challenge is thus to transcend and transform the dualistic, apartheidinherited systems of car dependent suburban users and uni-modal, public transport captive township users. This must be replaced by a vision which commits to high quality, cost effective, mass rapid public transport networks for ALL citizens. At the outset, this strategy recognises the need to break with the business as usual implementation culture of the past 10 years and it proposes an accelerated implementation vision that will provide clear direction to all spheres of Government, operators and users. The three spheres of Government need to not only work harder and faster but also need to work a lot smarter with regard to improving public transport service delivery. South Africa - given its current level of resources as well as the challenge posed by increasing metropolitan car use cannot afford to NOT implement an initial phase of sustainable mass rapid public transport networks, in especially the metropolitan and
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other large cities, within a 3-5 year horizon, followed by a further expansion of these networks over the next 5-15 years.
7. High Quality Public Transport Networks are critical to achieving shared growth Several Government policy and strategy documents identify transport as a key element in achieving desired economic, social and environmental outcomes. These include the Accelerated and Shared Growth Initiative for SA, Millennium Development Goals, National Climate Change Strategy, National Energy Efficiency and Conservation Strategy, National Vehicle Emissions Strategy, National Spatial Development Perspective, etc. While there has been some progress in focusing on lowering the costs of freight transport to the first economy, there is a relative under-appreciation of the importance (to both the first and second economies) of an intensified Government-led drive towards more sustainable and balanced land passenger transport options. South Africas ability to generate the desired shared economic growth will require excellent public transport systems that are more than just peak hour commuter services. The 2003 National Household Travel Survey (NHTS) shows that 74% of all households lack access to a car and are hence dependent on public transport and walking. If these 9 million households (or more than 38 million citizens) are to have a meaningful stake in South African society and its economy, then public transport is going to have to move them efficiently to and from opportunities and activities, both day and night in both metropolitan, urban and rural areas. Public transport systems are therefore, the connection between the two economies (or at least between opposite poles of a single economy), and as such, they are vitally important to the economic empowerment of the majority (and of the poor in particular) and remain the only way to promote sustainable mobility for all citizens (rich and poor) in both cities and districts. For public transport to be seen as an attractive and credible service it requires a range of measures designed to address service quality such as accessibility, affordability, journey time, safety, security, reliability, frequency and image. Current modal upgrading initiatives are an important start but are not sufficient to address the full service package demanded by both existing captive users as well as car users. The current crisis in public transport service delivery will make it harder to attain the goals of the Accelerated and Shared Growth Initiative for South Africa. For example, the lack of public transport services at night hampers the introduction of adding extra shifts, and is a barrier for workers who work irregular hours (e.g. security, retail, call centres, airports etc.). Unavailable and unaffordable public transport services prevent the unemployed from seeking and accessing jobs and prevents learners from accessing
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schools, libraries and places of adult and further education (especially after working hours). The lack of good passenger transport networks and the related dependence on cars and ever-wider arterial roads and intersections undermines the attractiveness of SAs cities to tourists and visitors. This is currently being brought into sharp focus by the need to have attractive public transport options for South Africans as well as for visitors to the 2010 World Cup. A simple comparison of the time it will take to clear a 50 000 seat stadium by bus versus cars with four passengers, shows that the car based option would take 6 times as long (3 hours versus 30 minutes) and will require a five fold increase in space for parking.
Table 1 Clearing 50,000 People From a Stadium Bus Automobile Vehicles 1,000 (50/bus) 12,500 (4/car) Parking (Acres) 20 (50/acre) 100 (125/acre) Veh./Lane-Hour 500 1,000 Four Exit Lanes 0.5 Hours 3.1 Hours
Growing car use and the related inefficient use of fuel and land (for roads and parking), increasing emissions, and urban dispersion all serve to undermine the efficiency, inclusivity and livability of sustainable cities. Demand management as opposed to supplying additional road infrastructure can therefore provide large cost savings. Table 2 below, shows Todd Litmans work at the Victoria Transport Policy Institute in Canada which compares the costs of an automobile-centred city versus one in which public transport is dominant versus one with universal non-motorised accessibility. An automobile dependent transport system requires about R50 000 annually per capita for road and parking facilities and vehicles, not including indirect costs such as congestion delays, accidents and pollution damages. A high quality public transport system costs about a tenth as much, and high quality non-motorised facilities cost about a hundredth as much.
Table 2 Per Capita Annual Costs Of Different Transport Systems Automobile Public Transport Non-motorized Roads R5,000 Parking R15,000 Fares R4,000 Sidewalks & Paths: R500 Vehicle R30,000 Vehicles R1,000 R50,000 R5,000 R500
Costs Totals
This table summarizes typical annualised costs per capita of various types of transport systems. This does not include indirect costs, such as congestion, accidents and pollution damages.
Therefore, the strategic vision of high quality, integrated mass public transport networks is critical to achieving accelerated and shared growth and development. A high-volume,
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high frequency public transport network - that operates 7 days a week and 16-24 hours a day and coupled with demand control measures over private cars, will enable: maximal equitable mobility for all in an area in order to further social and economic opportunities (e.g. greater use of night-schools, after hours educational and recreational facilities, and increased ability to add shifts, etc.). It will also save citizens time. 23% of metropolitan workers take longer than 1 hour to get to work. With public transport priority measures, the majority will be able to travel faster and at less cost. For example, Bogota managed to improve public transport travel time by up to 30 percent through implementing a mass rapid public transport network. Restoring dignity and pride to the users of public transport and public space Public and non motorised transport services and facilities form a crucial component of shared public space and successful examples from Latin American cities show that high quality public space, services and facilities - which treat people with dignity and improve quality of life - are probably as important as increasing the income of poorer households. The social, community and neighborhood multiplier effects of public investment in high quality public space and services are as important as the economic multiplier effects of higher incomes. In this regard, public sector investment in improving public space and public transport, walking and cycling services - in lower income communities in particular leads to benefits such as improved quality of life for non drivers, community security, cohesion and accessibility.
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PART B: A REVISED STRATEGY FOR 2007 2014 8. Where do we want to be in 2014

Looking ahead to 2014 we need to be in a position where the full implementation of this strategy would result in a broad range of transport improvements, including the following key achievements:
Increased overall capacity of municipalities in planning, regulating and managing locally-driven mass rapid public transport networks; A network across a city/district that prioritises quality public transport and non motorised transport, and a quality public space system that is planned, regulated and managed by a municipality or its agents, in line with the national vision; Phased but effective implementation of an integrated mass rapid public transport system; Successful efforts to overcome the backlogs in investment; Private car use demand management penalties and incentives; Use of electronic fare collection and information tools to plan and manage the public transport network in a demand responsive manner; Effective integration of transport planning and land use management; Significantly increased safe and secure walking and cycling infrastructure and high quality public space facilities; Enhanced personal safety and security - especially for women, children and the elderly; and, Effect regulation and enforcement capacity and tools in pIace.
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9. Vision The DoTs 2007 2014 Public Transport Strategy is firmly based on the White Paper on National Transport Policy and the Moving South Africa Action Agenda and it calls for the need to redeem the promises made in the 1996 White Paper, 1998/9 Moving SA Strategy and 2000 National Land Transport Transition Act. The various policy and strategic visions are all quoted below in order to highlight their applicability for the next decade of implementation in 2007 - 2014 The vision of the White Paper for South African transport is a system which will provide safe, reliable, effective, efficient, and fully integrated transport operations and infrastructure which will best meet the needs of passenger customers at improving levels of service and cost in a fashion which support government strategies for economic and social development whilst being environmentally and economically sustainable The mission of the DoT in respect of land passenger transport is to provide leadership in: the promotion of a safe, reliable, effective, efficient, coordinated, integrated, and environmentally friendly land passenger transport system in South African urban and rural areas, and the southern African region, managed in an accountable manner to ensure that people experience improving levels of mobility and accessibility The Moving South Africa (MSA) Urban Passenger Transport Vision for 2020 by 2020, urban customers will be able to participate fully in the various activities of city life by using a public transport network that provides as much city-wide coverage as possible and which is affordable, safe, secure, fast and frequent. The core of the public transport system will be a network of high volume, high frequency corridors in which public transport will be the priority. Customers needs for improved access and short trip times will be met by having regular feeder services to the high volume corridors, user-friendly transfer facilities, short wait times due to high corridor frequencies and the possibility of differentiated services for customers with specific needs The MSA Rural Passenger Transport Vision for 2020 by 2020 transport infrastructure and services in rural areas will provide the basic means of access and mobility to support the integration of sustainable rural communities into the social and economic life of South Africa. Through transport, rural South Africans will be enabled to affordably and conveniently access markets, employment, economic activity, health care, welfare services, communication systems, retail services, and social activity
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The above visions for land passenger transport are still relevant in 2006. The MSA Strategy aimed to unpack the vision through the five dimensions of strategic actions below. These are in the main still appropriate and should guide the acceleration of implementation in the period 2007 - 2014.
Urban Transport Strategic Actions: Five Dimensions

The strategy comprises five key dimensions
Land LandUse Use Create Creategreater greaterdensities densitiesaround aroundtransport transport corridors corridorsthrough through Pricing measures and incentives Pricing measures and incentives to to encourage encouragedevelopment developmentin incorridors corridors Controls over development (e.g. zoning) Controls over development (e.g. zoning) Provision Provisionof oftransport transport infrastructure infrastructurethat that supports supportsdensification densification Effective institutions that are appropriately Effective institutions that are appropriately co-ordinated co-ordinatedbetween betweendifferent differentspheres spheres and anddepartments departmentswithin withingovernment government
Road RoadSpace SpaceManagement Management Manage Manageroad roadspace spacemore moreaggressively aggressively through througha acombination combinationof ofmeasures measuresto tomanage manage car caruse use(not (notownership) ownership)specifically specificallyin inthe thepeak peak in major urban congested corridors in major urban congested corridors Provision Provisionof ofacceptable acceptablealternatives alternativesto tothe the private privatecar car Pricing Pricing(e.g. (e.g.parking parkingcharges, charges,and andlicense, license, later laterelectronic electronicroad roadpricing) pricing) Controls, which give priority to more Controls, which give priority to more efficient efficientusers usersof ofroad roadspace space
Public PublicTransport TransportPlanning Planningand andRegulation Regulation Regulate Regulatemodes modesin ina aconsistent consistentmanner manner Formalize Formalizetaxi taxiindustry industrythrough throughincentives incentives and andenforcement enforcementin inorder orderto toensure ensureall all providers appropriately regulated providers appropriately regulated Promote integration of modes through regulated Promote integration of modes through regulated competition competition Facilitate Facilitatedifferentiated differentiatedservices servicesto tomeet meethigher higher level levelcustomer customerneeds needs Plan city-wide basic network providing higher Plan city-wide basic network providing higher level levelof ofbasic basicpublic publictransport transportservices services Integrated Integratednetwork networkof ofservices servicesbased basedon on appropriate appropriatemodes modes Corridors Corridorsand androutes routesinter-linked inter-linkedto topromote promote accessibility accessibility
Subsidies Subsidies Provider Providerbased basedsubsidies subsidiescombined combinedwith withthe the provision provisionof ofappropriate appropriateinfrastructure infrastructureto: to: Provide basic access for stranded and Provide basic access for stranded and survival survival Sustain Sustainand andencourage encourageuse useof ofthe theoptimal optimal mode modeon online linehaul haul Incentivise modal integration focussing Incentivise modal integration focussingon on feeders feedersand anddistributors distributors
Investment Investment Road-based Road-based Implement Implementdedicated dedicatedinfrastructure infrastructurein in congested congestedroad roadbased basedcorridors corridors Improve public transport Improve public transportinfrastructure infrastructure Rail-based Rail-based Focus Focusinvestment investmenton onexisting existinginfrastructure infrastructureon on high highdensity densityvolume volume//ridership ridershipcorridors corridors Consider Considerclosures closureswhere whereroad-based road-basedmodes modes more moreappropriate appropriate Invest Investin ininfrastructure infrastructureto toencourage encourage integration integrationof ofroad roadwith withrail rail Non-motorized Non-motorized Improve Improveaccess accessto tostations, stations,bus busterminals terminalsand and taxi taxiranks ranks
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10. Strategic Building Blocks To overhaul the land passenger transport sector, the strategy proposes that the transport sector in Government needs to fast track these 8 strategic building blocks: Strong local planning, regulation and management of public transport networks; Devolved funding that is targeted in terms of the strategy/plan; Rapid and innovative action plans and projects based on local Integrated Transport Plans (ITPs) that optimise network efficiencies across all modes from walking to bus/rail/taxi to private car; Strong local enforcement capacity to deal with safety and security issues in the public transport system; Fast track national initiatives to stabilise modal sectors (Taxi Recap, Commuter rail restructuring, Bus subsidy transformation). These initiatives should be aligned to local plans that consciously promote modal upgrading or Mass Rapid Public Transport Network Restructuring; Manage and control private car use and land use to ensure viable and efficient transport; Expand transport access to rural and urban poor through expanding the availability of affordable services. This will involve expanded subsidy that is implemented in line with high quality local plans; and Additional funding to be allocated to implement the vision through high quality network plans that begin to transform operator-based modal commuter, peak-period services, into user-oriented networks that promote 16-24 hour a day, 7-day-a-week mobility to a variety of destinations and activities for all citizens.
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11.
Action Agenda
To assist in translating the vision into an Action Plan the strategy proposes 3 action agendas: Accelerated Recovery and Catalytic Projects Promote and Deliver Basic Networks Advance and Sustain Accessible Networks (2007-2010) (2010-2014) (2014-2020)
Accelerate Recovery and Catalytic Projects Agenda (2007-2010) The strategic thrust of this action agenda is to stabilise the current passenger transport service delivery environment as well as to recover from the accumulated neglect of decades of under-investment in infrastructure and operations. It is an agenda for action for the short term and includes an Accelerated Recovery Plan to enhance the institutional building blocks and to fast track service improvements to end users. The DoT and the transport sector has been working on aspects of this agenda since 1996. However, the present public transport system continues to fail its customers and the nation. Without radical action, the public transport system performance will worsen. Urgent and systematic implementation is required (especially for achieving the critical public sector building blocks) in order to accelerate the current modal stabilisation initiatives. The Accelerated Recovery Plan needs to be developed in detail by end 2006. It should then be fast tracked in order to achieve physical implementation as soon as possible. The critical components of the Plan are to ensure: Investment in building local transport capacity for planning, monitoring, regulation and network management; Enhanced capacity for Operating Licence processing and alignment with transport planning; Enhanced enforcement, inspection, investigation and prosecution capacity and campaigns across all road-based modes (detailed action plan tied to the R2.2bn allocated for minibus recapitalisation regulation and enforcement); Capacity deployed to support municipalities to develop strategic integrated network plans, related 2010 operational plans, high quality public transport corridor plans, Travel Demand Management plans, and electronic fare collection plans; Local engagement with key stakeholders on the passenger transport vision and strategy and Phase 1 implementation projects- including incentives and guarantees to existing minibus/small bus operators and divers; Accelerated initial rollout of fleet upgrading on all modes - Taxi, Bus, Rail recap and refurbishment;
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Detailed design and commencement of Phase 1 implementation of road-based integrated mass rapid public transport corridors.3 Includes non-motorised network, facilities and service rollout (including small cities and rural districts); Planning completed for implementation of High Occupancy car lanes and ridesharing promotion; Pilot electronic fare collection and information system that is controlled by public sector in partnership with operators; and Completion of network design that includes all current subsidised bus services in an area and commence initial implementation of gross cost contracts4 with public control over fare income - in both metropolitan and district contexts.
A Stabilise and Recover Plan is the second component of the Accelerated Recovery Agenda and runs over the next 3 - 5 years. The key objective is to ensure the achievement of an effective public transport implementation platform. The key components of the plan are to: Devolve funding to capable municipalities; Refine quality local Integrated Transport Plans that demonstrates improved service delivery on immediate priorities and which include priority integrated mass rapid public transport network projects; Develop Public Transport Intelligent Transport Systems (ITS) tools and phase these in, in order to support planning, regulation and enforcement (e.g Electronic Fare Collection, vehicle tracking and control, etc.); Taxi, Bus, Rail recapitalisation and refurbishment continue; Phased implementation of revised gross cost contracts for subsidised services, in line with network vision; Improved service information, maps, timetables, marketing; Non motorised and public space network planning and phased implementation; Aggressive roll out of the Shova Kalula initiative: 1 million bicycles in partnership with Non Governmental Organisations (NGOs) and Community Based Organisations (CBOs) by 2010; Roll out rural public transport interventions, including piloting of subsidisation options; Engage with the Department of Education, provinces and municipalities to ensure maximum accessibility of learners through the public transport network; Implement improved safety and security inspection, enforcement and prosecution on all public transport modes;
. Mass Public Transport Corridor Programmes Mode specific reform packages, service enhacements, modal interchange upgrades, newer/refurbished PT vehicles dedicated, segregated median lanes with enclosed, clean and secure stations and stops, real-time information passenger and operators, preboard payment and free transfers, high frequency service and low waiting times at stations/stops, modal integration, priority traffic signals -intersections, pedestrian and bicycle access and facilities and low- cost accessible and class 1-type features, etc. 4 . Gross cost contracting means that the public sector plans and manages the network and the fare revenue not the operators.
3
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Enforce safer cycling and walking routes, particularly around schools, and through more human-friendly infrastructure design; Manage car use in the peak period in major urban congested corridors; Engage with Department of Provincial and Local Government, Department of Housing, Department of Land Affairs and Provinces and Municipalities to: o improve interdepartmental coordination with regard to housing, land use and transport integration; o fast track the identification of priority local transport corridors and the related location of medium density land use in support of these; Promote land use planning aligned to public transport network, non motorised transport and travel demand management planning; Promote low-cost accessible and class 1 type features - painting designated areas with high contrast colours, providing sufficient grab rails and push bells at certain accessible points, use of visible sign language, etc. - and improve operational service for special needs users; and Pilot full accessibility for users with special needs in all newly implemented mass rapid public transport corridors.
Promote & Deliver Basic Networks Agenda (2010-2014) The strategic thrust of this action agenda is to incrementally enhance and expand the passenger transport system. It is an agenda for action for the medium term. The main components of the plan are to: Fully upgrade key integrated mass rapid public transport corridors in all six metropolitan cities as well as in other cities and districts. To cover at least the top 20 mass corridors (rail/road) in the country; Finalise network planning and roll out revised gross cost contracts which include small bus and taxi operators; Roll out Passenger Transport Intelligent Transport Systems nationally; Implement Travel Demand Management and car use reduction measures in all metropolitan areas including roadspace reallocation measures to prioritise public transport; Consolidate operators into capable entities that are able to provide high quality services in the formal, integrated mass rapid public transport networks; Implement supportive land use system on public transport corridors; Mainstream pedestrian and cycling implementation and promotion, including high quality facilities, infrastructure, public space and bicycle transport support and promotion; Ensure safer and more secure operations through efficient regulatory and enforcement regime; Roll out targeted public transport subsidies - user based and/or capital that are linked in the main to integrated mass rapid public transport systems; Increase the scale of roll out of rural/small town public transport services; and Expand roll out of mass rapid public networks that are fully accessible to users with special needs.
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Advance & Sustain Accessible Networks Agenda (2014-2020) The strategic thrust of this action agenda is to significantly expand and transform public transport through large scale or critical mass implementation. It is an agenda for action for the long-term. The key components of the plan are to: Roll out fully interconnected integrated mass rapid public transport networks; Ensure that most public transport facilities, vehicles and infrastructure are of a high quality; Improve maintenance of public transport infrastructure and facilities; Promote high quality public space and non motorised linkages and networks; Implement aggressive car use restriction measures aimed at promoting switching to public transport and non motorised transport including pricing measures; Promote and coordinate employer-based car trip reduction programmes, park and ride facilities, ride sharing, public sector employee ridesharing, etc.; Implement land use measures thatsupport public transport corridor networks; Ensure ongoing investment in innovative local passenger transport public sector capabilities to plan, manage, promote, regulate, enforce, and monitor contracts, etc. Promote free minimum basic mobility for all citizens regardless of ability to pay a lifeline mobility allowance; Expand rural passenger transport services and combined rural passenger and freight transport services; and Expand universally accessible vehicles and infrastructure for users with special needs.
Delivering on the Action Agenda In facilitating the above three action agendas, the DoT to developing an Implementation Plan by end 2006. To this effect the DoT will embark on a research programme to develop detailed actions in the following initial focus areas: Implementation plan to determine regulatory and resource needs to allow for devolution to local level Implementation plan to achieve integrated mass rapid public transport corridorbased networks at city-wide scale Subsidy profiling and options a Public Transport Subsidy Action Plan based on accurate data Travel Demand Management Implementation Strategy to set clear actions that will be required from Metros, Provinces and Infrastructure Authorities in particular Feasibility of a nationwide electronic fare collection and information system for public transport Strategic assessment of current plans and projects at the local level in order to develop a fast track approach to implementation at sufficient scale
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Before the end of 2007 additional strategies should be developed in the following areas: Implementation strategy to achieve Public transport-supportive land use measures Implementation plan to promote Rural Passenger Transport Implementation plan to promote public transport accessibility to Special Needs users Continuous monitoring and auditing of the existing user-reality of passenger transport service provision (e.g. facilities at stops, terminals, pedestrian space, user information, etc.) and suggest a short term upgrade strategy that can be implemented within 2 years Investment strategy to promote sustainable funding in the passenger transport sector.
In refining the implementation strategy over time, the DoT needs to constantly promote high quality implementation of the Vision and Action Agenda. In this regard the current and future set of Integrated Transport Plans, etc. will need to be evaluated in terms of whether their proposals are: Of the right scale? Linked to a city-wide integrated mass rapid public transport network vision that deprioritises car use? Able to serve as a structuring element for more denser land uses? Sustainable in choosing optimal modal solutions and technologies as opposed to overly capital intensive systems, etc? Attentive to the needs of pedestrians and cyclists and about the need to link these networks to public transport networks? Able to incentivise mini-bus taxi operators and drivers to form part of the planned network? Able to maximise use of existing resources and infrastructure through space reallocation and re-prioritisation? Able to implement solutions within a 4 year horizon? Able to focus on quick solutions to improve the image and quality of services such as improved user information, network maps, improved safety and security, improved people-friendly facilities, etc?
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PART C: TAKING ACTION

12. 2014 Land Passenger Transport Scenarios
As a way of illustrating the potential impact of strategic choices we make now, three scenarios to 2014 painting possible passenger transport futures are described in order to stimulate reflection on the implicit and unintended consequences of current implementation trends. The ability to overcome the lack of the basic planning and regulatory building blocks at the local level as well as the ability to fast track the planning and implementation of strategic mass public transport networks will determine which of the following three scenarios (or a mixture of them) are likely to materialise over the next decade. The scenarios are: Business as usual (Band-aid implementation) Accelerated but modest (Focus on the basics) Strategic shift (Publicly run Networks for ALL) 2014 Land Passenger Scenario Business as usual Band-aid implementation for the top 30% while the rest stagnate
Snail paced modal stabilisation continues till 2010. (for example Taxi Recap from 1999 to 2006, Tendered bus contracts from 1998 to 2006, Passenger rail reinvestment from 2001 to 2006)
PT and NMT are still third class options! Car users in Regulation, management & enforcement still weak/ ineffective suburbs push for and get road Current poor safety record on Public Transport continues supply solutions! Ad hoc and Road-building pressures in the Metros increase stumbling Continued car-oriented land use which excludes the majority no dense progress on fleet Public Transport corridors recap but no ability to 2010 World Cup will run in the main like Cricket and Rugby World Cups and implement core WSSD big parking lots for car users with limited new PT services, of upgraded PT increased road capacity for cars and limited NMT facilities services that are Network-based Very little/no quality NMT facilities, poor NMT safety and not operatorbased Car using richest 30% of passengers are only ones catered for in terms of
basic access & mobility
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2014 Land Passenger Scenario - Accelerated but modest Focus on rolling out basics. Partial improvements in some services
Some progress on fleet recapitalisation across all modes only 50% of fleet Partial success with metropolitan regulatory and management capabilities some progress on Strategic PT Networks Road Traffic Management Corporation in a modest PT enforcement programme Routes still operator-driven especially for minibus operators but some redesign with regard to subsidised contract routes - aimed at rationalisation though and not universal network coverage Promotion of key flagship corridor projects though scale is not enough alter the passenger transport and land use dynamics across the cities Partial promotion of limited pedestrian and cycle networks in some areas depends on local champions 2010 World Cup sees some use of TDM measures such as HOV lanes, a temporary PT dedicated-lane system, visible enforcement and school holiday timing 2014 Land Passenger Scenario Strategic shift Roll out of publicly controlled Networks for ALL Most of fleet across all modes is replaced Strong public regulation, management and network control Strategic PT Network is substantially implemented and comprises major movement corridors with BRT-type systems, upgraded commuter rail lines, good NMT and public space facilities and nationwide integrated electronic fare system Aggressive TDM measures including road space reallocation and a scaled up system of park n rides, HOV lanes, PT lanes and initial peak-hour road pricing pilots A system of PT lanes/HOV lanes on freeways and arterials in JHB, Tshwane, CT and eThekwini SANRAL and Metros jointly promoting non-car based options through marketing campaigns 2010 World Cup is moved through PT and NMT system using upgraded PT networks as well as additional World Cup PT operations. Substantial taxi operator involvement in 2010 Medium density land use is channeled into PT corridors Substantial investment in rollout of periodic PT services in rural areas and small towns
PT and NMT are second class options! Basic TDM measures for ride sharing in some areas. 50% of all modes recapitalised. Some corridor projects but no publicly controlled core network! to Gautrain at under 40 000 pax. trips per day & new widened metro tolled freeways
PT and NMT are priority options in practice! TDM measures on most freeways and arterials. 95% of all modes recapitalised. Publicly controlled SPTNs in metros which link to Gautrain & improves its viability Road expansion for PT/TDM/NMT not cars
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In order to get the DoT-led passenger transport sector to move towards the partial realisation of the Strategic shift scenario by 2014 - or at least to solidly achieve the outputs of the Accelerated but modest scenario, the strategy would have to be actively championed and aggressively implemented across all three spheres of Government. 13. Metropolitan cities as an initial priority focus area
South African public transport users have not seen tangible improvements in services in the ten years since the White Paper on National Transport Policy was adopted. There is a need for a set of high quality, catalytic, large scale, Phase 1 projects that implement ALL aspects of the vision in an integrated fashion in a localised project context. In this regard, strategic projects in the metropolitan cities can serve as a visible example of effective delivery as well as a practical showcase for other cities. Why a Metropolitan City Catalytic Showcase Programme? According to the NHTS, the 6 metropolitan areas of SA account for 15.44 million people (66% of whom are African) and 10.4% of these have a post matric qualification. 12.4 million metropolitan people made a weekday trip and 4.65 million made a trip to work. 45% of metro trip makers used some form of public transport in the past week compared to 25% who used a car. 49% of metro workers use public transport to work compared to 41% who use a car. Metro areas account for 4 million of SAs 8 million formal sector jobs and 1 million of SAs 3 million informal sector jobs. In total metro areas account for 5 million of SAs 11 million jobs. 2.3 million of the 4 million public transport trips to work in SA, take place in metro areas. Of the 4.5 million metropolitan students, 750 000 use a car to get to school and 700 000 use a taxi. 800 000 metro learners take longer than 45 minutes to get to school. 53% of metro household do not perceive that they can access a train and 24% cannot access a bus. 30% of metropolitan households spend more than R200 per month on public transport. In terms of the costs of worker transport, 45% of the 2.3 million metropolitan workers who use public transport to work, spend more than R200 per month. Of this 45%, 500 000 workers spend more than R300 a month on public transport to work. 24% of metropolitan public transport commuters spend more than 20% of their income on public transport to work. 30% of metropolitan households perceive taxi safety to be a problem and 19% perceive a bus service to be not available or too far. 75% of metro train users are unhappy with the level of crowding on trains, 65% of metro bus users are unhappy about facilities at stops and 78% of metropolitan taxi users are unhappy with safety from accidents. Elements of a Catalytic Showcase Programme
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Therefore, there is a need for a fast track implementation programme that targets the development of high quality, integrated, mass rapid public transport networks in the six metropolitan cities. This could involve large scale Phase 1 projects that upgrade 2 intersecting high volume corridors for a combined length of between 30-60km. International road-based examples of high quality corridors range in cost from R10 to 30m per km. The National Passenger Rail Plan priority corridors should also be linked to this programme. Therefore, a Phase 1 programme in all six metros could target up to a total of R5bn in investment (combined for all 6 metropolitan cities) over a 5 year period. This would be sufficient to implement high quality, Phase 1 corridor systems within 5 years. It is proposed that this approach the allocation of the remaining funds in the 2010 Public Transport Infrastructure and Systems Fund. Some of the elements of these catalytic projects would include: Investment in public transport priority infrastructure (high speed busway corridors and upgraded rail corridors with high quality stops and stations), that link to form an integrated network that is well located, Investment in priority rail corridors that are integrated with the road-based network, Demand control measures in place over private cars, especially in peak hours according to the NHTS, of the 1.5 million drivers who drive a car to work in metro areas, nearly 50% say they do not actually need to use their car while at work, Investment in high-volume, high frequency public transport corridor-based services and operations - that operate 7 days a week and 16-24 hours a day in the metropolitan areas, Strict control over metropolitan land use to ensure support for sustainable public transport corridor operations, Upgraded regulation and enforcement of public transport safety and security and operating licences.
The above interventions will serve to create more efficient cities and in so doing, reduce direct and external costs associated with private car use and congestion and thus saving on fuel, roadspace, parking space, and accident and time costs. Moving to 16-24 hour quality public transport operations will enable extra mobility for millions and will allow employers to move to increasing shift operations beyond the 8am to 5pm period, thus increasing competitiveness. Conclusion From the above, it is clear the metropolitan sustainable transport networks with public transport priority at its core, are key to unlocking urban efficiencies and economic growth that is equitable.
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This strategy commits the DoT to championing a fast track process of facilitating the implementation of Phase 1 high quality, integrated mass rapid public transport networks in each of the 6 metropolitan cities in the period 2007 2014.
14. Implementing the Public Transport strategy Delivering these improvements proposed in the Public Transport Strategy requires a new approach. The success of the Public Transport Strategy will require all stakeholders - ranging from government to users and transport operators - to work together towards achieving a shared vision. Quality Partnerships Within government, better coordination and closer working relationships should be forged among national, provincial and local government. The Minister of Transport and his provincial and municipal colleagues will aggressively champion the delivery of the proposed improvement measures for the land passenger transport sector. The Minister of Transport will request Provincial and Municipal colleagues to translate the strategy into Action Plans that set out how they will contribute to the implementation of the Public Transport Strategy over the next decade of change. Stronger partnerships with existing transport operators and employees are critical. This partnership is central to the new approach of this strategy. Turning the proposals in this strategy into reality will depend on the willingness of transport operators to buy in into the strategy and to commit and invest alongside Government. Transport drivers are often the first, and last person, you meet when using public transport. The transport drivers and the operators who employ them, are key people in the success of the public transport system and will play the most important role in achieving a successful outcome. Funding In order to deliver on the action agendas outlined above, a significant increase in funding is required. The DoT will need to make a strong evidence-based case for sustained Government funding in time for the 2008/9 MTEF cycle.
More needs to be done to package the vision and strategy clearly and to ensure that municipal integrated transport plans are aligned and translate into strategic projects that can attract Treasury support. In addition, the transport sector in Government has been slow to implement the planning and regulatory building blocks that will ensure the effective use of expanded funding and investment. These include institutional devolution to the local sphere, effective regulation, and network redesign. A clear implementation plan to achieve these building blocks will be developed by the end of 2006 and will be used to motivate for additional
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funding that can be more effectively deployed than past spending. Public sector transport spending (04/05) in context of other key budget figures In the context of a gross domestic product of R1,5 trillion, and national budget revenue in order of R370 billion, current spending on passenger transport in the region of R16 billion per annum (R10,6 billion on roads and R5,6 billion on public transport subsidies) might be described as less than adequate. Financial resources should therefore not be a limiting factor in passenger transport improvement. Hence, the commitment to ensuring all the service delivery building blocks are in place in order to ensure the effectiveness of increased investment. While careful estimates of required passenger transport expenditure are still to be made and will depend on the costing of municipal transport plans and networks, it would seem that an additional recurrent R5 billion expenditure per annum is required in order to arrest current decline in service levels and to fully implement high quality, integrated mass rapid public transport systems across the country in the next 10 15 years.
This estimate will be interrogated and fully detailed in the upcoming set of studies and implementation plans that all three spheres of Government in the transport sector will need to complete, in terms of the requirements of this strategy. Monitoring and review To ensure that progress is being made on the Public Transport Strategy, the Department will monitor delivery as part of the implementation process and will ensure that progress reports are a regular agenda item of the inter-sphere Government transport structures.
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15. Conclusion This document aimed to review the past decade of implementation experience and to establish a framework for thinking about the next decade. Its aim was to focus on key building blocks and key strategic areas and not to cover every aspect of land passenger transport in detail. The vision that has been articulated comprises a strong municipal controlled mass rapid public transport network that utilises the strengths of the public and private sectors appropriately. This network should ultimately comprise the priority rail and road-based mobility system for a local area. It is an integrated system where modes are deployed in accordance with their optimal role and is based on public control over fare income, operator contracts based on contracted kilometers, and median lane rapid transit corridors with pre-board fare payment, that link to rail, feeder, non-motorised and public space systems. The DoT firmly recommends that this substantive vision in line with the positive experiences of Latin American and East Asian cities is one of the few solutions that addresses both current public transport users as well as current car users. As such it overcomes the dualistic nature of land passenger transport in South Africa and provides a bridge to create sustainable and equitable mass transport networks for ALL. The DoT intends to refine this strategy based on public comment as well as based on the currently commissioned research into detailed aspects of this vision. It is envisaged that by the end of 2006, this strategy will be ready for formal adoption by Cabinet and the DoT will be committed to aligning itself and the entire transport sector behind the key vision and concepts.
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Draft Strategy To Accelerate Public Transport Implementation 2007-2014

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DEPARTMENT OF TRANSPORT

Operator-controlled, commuter-based, uni-modal routes, to

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

PART A: SETTING THE SCENE

PART B: A REVISED STRATEGY FOR 2007 2020

PART C: TAKING ACTION

2 Draft Public Transport Strategy - October 2006

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

T h e re fo re P u b lic tra n s p o rt s e c to r in S A in 2 0 0 6 is a t a s tra te g ic c ro s s ro a d s .

Marginal vehicle ownership

R2 R 00-5 50 0- 00 R R 10 10 00 00 -R R 1 5 15 00 00 R2 - R 00 20 0 00 R 30 R30 00 00 -R R 4 45 00 5 00 R 6 0 R60 00 00 R 80 - R8 00 00 R1 0 00 R10 00 00 R 0 16 R1 00 60 R3 0 -R 00 00 30 00 00 or 0 m or e

Monthly household income

Draft Public Transport Strategy - October 2006

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Moving SA Vision 1998

By 2020, urban customers will be able to participate

5 Draft Public Transport Strategy - October 2006

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7 Draft Public Transport Strategy - October 2006

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INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

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Business and institutional structure

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

Road Rapid Transit (RRT) characteristics

High frequency service and low station dwell times

Minimum time at stop station (dwell time)

Marketing and customer service

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

all existing modes needs to be radically enhanced.

Strategic Roadmap 2007-2020:

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

2014 Land Passenger Scenario 1 - Business as usual

Snail paced modal stabilisation continues till 2010.

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2014 Land Passenger S cenario 2 - A ccelerated but m odest

20 14 L an d P assen g er S cen a rio 3 - S trateg ic S h ift

20 Draft Public Transport Strategy - October 2006

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!

Strategic Roadmap 2007-2020:

Critical building blocks for an integrated solution

Figure 12 above summarises the phasing of the 3 action agendas.

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22 Draft Public Transport Strategy - October 2006

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25 Draft Public Transport Strategy - October 2006

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Draft Strategy to Accelerate Public Transport Implementation

INTEGRATED MASS RAPID PUBLIC TRANSPORT NETWORKS FOR ALL!