JRA

Strategic
Framework
for Roads

Johannesburg Roads Agency SOC (LTD)

Mobility made easy

www.jra.org.za
 Our
Vision
The best city roads
authority that enables
economic growth and
sustainability.

Mobility made easy

www.jra.org.za
 Table of Contents

1. INTRODUCTION................................................................................. 2

2. BACKGROUND................................................................................... 2

3. SUMMARY AND OVERVIEW............................................................. 2

4. POLICY CONTEXT............................................................................... 3

5. ROAD QUALITY................................................................................. 7

6. ROAD NETWORK MANAGEMENT.................................................... 11

7. ROADS FUNDING.............................................................................. 15
INSTITUTIONAL STRUCTURE, COORDINATION AND SERVICE
8.
DELIVERY MODELS............................................................................ 18
9. RESEARCH, TECHNOLOGY AND MATERIALS................................... 23
JOB CREATION, LABOUR INTENSIVE METHODS AND SMME
10.
DEVELOPMENT IN ROADS................................................................. 23
11. HUMAN CAPITAL DEVELOPMENT..................................................... 24

12. INFRASTRUCTURE INVESTMENT....................................................... 24

13. CONCLUDING REMARKS................................................................... 25

14. ACKNOWLEDGMENT......................................................................... 26

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 1. INTRODUCTION
The framework identifies principles that underpin the
formulation of the roads development plan for the City of
Johannesburg, specifies benchmarks and targets that the JRA
will aspire to in relation to road network management. It also
provides clarity on what investment is needed to improve the
quality of the road network. In addition, it confirms critical
enablers to sustainable road network management and
confirms the necessary road research agenda for the next
decade.
2. BACKGROUND
The City of Johannesburg is competing favourably with other
major cities on the African continent in 2001. The City of
Johannesburg had a population of approximately 3, 2 million
made up primarily of a young population aged between 30
and 39 years. This total population translates into roughly
1million households. City of Johannesburg is increasingly
under pressure due to population growth. In 2011, the total
population in Johannesburg was approximately 4.4 million.
Population grew by 20.5% between 2001 and 2007 and
by 14% between 2007 and 2011. Over the ten year period
from 2001 to 2011, the City’s population increased by 37%
Our roads provide mobility and accessibility. The road
network plays a meaningful role in the movement of goods
and people. The importance of roads in our society and
economy can never be over emphasised.
A sound road network is essential for the city and country’s
economic and social well-being. For efficient mobility
there should be a synergy between the functional and
the administrative components of the network. However,
irrespective of how efficient the network is, unless it is
properly operated, its full potential will not be realised.
The City has realised the important role that the road
network system can play in reshaping the landscape and
in transforming its spatial patterns. The Transit Oriented
Development focus will be rolled out at the back of key
public transport corridors to encourage densification and
mixed use of City spaces. Freight logistics will be promoted
through the provision of adequate road space and associated
facilities.
The condition of road network infrastructure and the
efficiency of road based operations in Johannesburg are
below world-class standards; a substantial effort needs to be
made to address operational inefficiencies through higher
annual investment in the road network system.
The framework identifies some of the road network
challenges faced:
• Human Capital shortages
• (Not so) SMART systems for Data Manipulation and
Decision Support
• Service Delivery Performance
• Limited Innovation, Technology Application and Research
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• Poor Coordination, Collaboration and Integration with
other role-players
• Funding Flexibility or Inflexibility
The need for a road infrastructure strategic framework stems
from the recognised deteriorating road quality index over the
past few years.
The City of Johannesburg’s transport infrastructure has
suffered from underinvestment, particularly in the areas
of road maintenance including routine maintenance,
resurfacing, street markings, street names and signage
maintenance. The number and duration of traffic signal
outages in Johannesburg is also a serious challenge.
Furthermore, the design of the roads system in general has
prioritised the movement of people in vehicles.
In responding to the City of Johannesburg’s mandate
to transform the urban space and stitch communities
together, the JRA has decided to develop a 10-Year Roads
Development Plan for the City. The strategic framework for
roads will provide the principles on which the plan will be
developed and implemented.
The strategies and plans listed below will form the basis for
the 10-Year Roads Development Plan:
• The Road Infrastructure Strategic Framework for South
Africa (RISFSA)
• The Strategic Integrated Transport Plan (ITP) Framework.
• The Red-book manual, particularly on environmental
aspects and public transport guiding principles.
• CoJ IDP and GDS 2040.
3. SUMMARY AND OVERVIEW
The strategic framework gives guidelines on principles that
underpin the delivery of services for all JRA activities. The
document gives:
• A brief summary of the strategic policies and guidelines
that guide the provision of the JRA services;
• Based on the VCI and international standards, it sets out
the kind of road quality index the City should pursue in
the next 10 years;
• The type of road asset management systems the JRA
should manage;
• The different types of funding options that are available
for roads authorities;
• The CoJ institutional arrangements, activity planning
and coordination and the current and preferred service
delivery models that should be considered;
• The approach to research and application of technology
and new materials;
• How the organisation will contribute to Job creation
through various methods including use of labour
intensive methods.
• The JRA’s proposed approach to SMME development; an
• We look at the human capital, its development through
partnerships, the attraction and retention of critical
technical skill;
4. POLICY CONTEXT
The JRA is part of the transportation sector (comprising the
CoJ Transport Department, Metrobus and the JRA). The
sector’s vision, mission and goals are aligned to the City’s
GDS 2040, and Integrated Development Plan (IDP) objectives
and envisaged outcomes. The sector’s vision, mission and
goals are:
collaboration and pooling resources
• Honesty - Ethics, transparency, doing the right thing.
• Ubuntu - Compassion for communities and road users,
empathy, humility
• Respect - Caring for the customer, prioritising
communities, ensuring equity

Vision

A people centred transport system that is transformed

Mission

To implement in a co-responsible and innovative way

transport infrastructure and systems to improve the quality Accountability Cooperation
of life for present and future generations of residents of
Johannesburg and which will contribute to the City’s goals
of:
• Nation building and social cohesion;
• Poverty alleviation, job creation, local manufacture and
economic growth; and
• Human development and environmental sustainability.

Goals and Objectives Honesty Ubuntu

These include:
• Building a leading, responsive and activist transportation
sector in the City which works in partnership with
stakeholders and residents;
• Planning, policies and co-ordination for integrated and
sustainable transport;
• Promoting public transport, walking and cycling as
modes of choice in Johannesburg; Respect
• Building co-responsibility and a value based culture to
enable behavioural change towards transport issues;
• Providing high quality, safe, accessible, affordable and
4.1 Linkage with the IDP
environmentally friendly public transport services;
In support of the objectives of the IDP, the JRA will
• Building, maintaining and managing our road
implement the following projects:
infrastructure and systems to ensure safety, accessibility
and mobility for all road users including pedestrians;
• Transforming the construction, maintenance and Sustainable Human Settlements
management of storm water drainage to respond to
climate change and water scarcity and ensure the safety • Construction of bridges to link communities
of residents and infrastructure; • Upgrade of gravel roads to surfaced roads
• Building, maintaining and managing public transport • Installation of stormwater systems
and non-motorised transport infrastructure to support • Construction and retrofitting of complete streets
walking, cycling and the use of public transport.
Urban Water Management
The transport sector adopted 5 values that define the culture
and ethos of the sector. These values are communicated in • Updating of floodline studies
symbols and are used in various platforms to ensure that • Development of stormwater masterplans both
they are “lived” on a day to day basis by members of the regional and local.
sector. They are shown in the Figure below. • Conversion of open drains to underground
• Accountability - The man in the mirror, responsible drainage systems.
actions • Upgrading of dams and impoundments
• Cooperation - Working together, integration,

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 Greenways & Mobility
• Development and implementation of complete
street standards.
• Retrofitting of complete street interventions in
existing roads
• Incorporation of the majority of traffic signals in the
remote management system
• Implementation of ITS interventions to improve
traffic management
Low Carbon Infrastructure
• Installation of solar powered traffic signals
• Installation of LED’s and UPS on traffic lights
Integrated Waste Management
• Implement environmentally friendly disposal of
asphalt by-products/waste.
• Implement material recycling where possible.
4.2 Alignment to the GDS 2040
The GDS 2040 envisions a city that in the next three decades
will be resilient, sustainable and liveable while being the
front line of a developmental state within the Gauteng City
Region (GCR). The GDS 2040 outreach process required the
City to ‘change its course’. This means that the City needed
to redirect and reorient its collective energy to a new course
by setting short-to-medium-term goals in order to pave the
way for the long-term realisation of the Joburg 2040 vision.
To support the City in changing its course, the GDS 2040
implementation roadmap was approved to facilitate:
• Reprioritising the City’s expenditure (budget) to address
revenue challenges;
• Developing infrastructure and systems and addressing
the basics;
• Improving stakeholder relations and enhancing the
quality of interaction,
• Interacting with residents and clients in the spirit of
Batho Pele.
The City’s GDS 2040 is implemented through five master
programmes driven by organisational clusters in the City. The
links between the master programmes, cluster programmes
and the Transport Department’s strategic objective are set
out below.
The JRA has defined its role in supporting the City’s priorities
and its programmes and priorities are geared to ensuring
that the City’s objectives listed below are achieved:
Financial Sustainability and Resilience
The key objective of this priority is to ensure that the City’s
financial capacity is secured and preserved in both the
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short and long term so that the City is able to fund the
investments required to achieve the GDS 2040 vision, while
being able to withstand unforeseen external and internal
occurrences.
Since financial sustainability and resilience is a precondition
for achieving the City’s other priorities it is imperative that it
is achieved in the first decade of the period to 2040. For this
reason a call has been made across the City to give urgent
attention to this priority. It is also for this reason that the
majority of work plans identified for this priority need to be
completed within the current term of office.
The JRA will contribute to this priority through:
• Exercising disciplined expenditure management;
• Effective management oversight and monitoring of
people and processes;
• Obtaining value for money through smart and efficient
supply chain management (SCM) of procurement
processes;
• Ensuring a financially stable entity with healthy financial
reserves.
• Pursuing innovative opportunities for revenue
generation
Agriculture and Food Security
The key objective for this programme is to address poverty
and income inequality as well as ensure that citizens
of Johannesburg don’t starve. The City recognises the
immediate need for poverty alleviation measures (focusing
on the poor and vulnerable) and poverty eradication in the
long term to ensure self-reliant communities.
Food security exists when all people, at all times, have
physical and economic access to sufficient safe and nutritious
food to meet their dietary needs and food preferences for an
active and healthy life.
The JRA will contribute to this priority by:
Providing freight-logistics-supportive road network system
that enables the rapid movement of goods enables
intermodal transfers and provides access to facilities such
as food markets and other agricultural facilities. Through
the use of urban storm water systems, the JRA will also
contribute to the conservation and diversion of surface
runoff water into irrigation schemes in support of food
production.
Sustainable Human Settlements
The key objective for this programme is to address spatial
inequality and create the material conditions for economic
growth with an emphasis on strengthening the inclusive
nature of entrepreneurial, middle, working class and
marginalised economic activities. It seeks to transform the
human settlement patterns of the past, ensuring inclusive
and mixed housing solutions while also promoting economic
activities within communities.
The JRA will contribute to this priority through:
Providing the core road networks that is necessary for
mobility and connectivity in communities. This will also serve
to attract investment to local economic nodes and thus
grow the City’s economic base. Some of the interventions
will include the improvement of arterial roads and main
roads going into communities, the development of complete
streets to manage road space demand while ensuring safety
and the updating of storm water master plans to manage
the impacts of development.
SMME and Entrepreneurial Support
The key objective for this programme is to address poverty
and, in particular, income inequality and create an inclusive
economy that supports small business and the informal
sector. The focus will be on promoting entrepreneurial
activity through the following:
• Identifying the key enablers and success factors for
entrepreneurial growth in particular, small medium
and micro enterprise (SMME) development, and
implementing targeted programmes to achieve this.
• Identifying both governance frameworks and
interventions which will improve and accelerate the
development of entrepreneurs. Specific measures will
be implemented to address the supply of services and
commodities through SMME’s and to formalise and
support informal economy activities that contribute to
the City’s economy.
The JRA will contribute to this priority through:
• The utilisation and support of emerging contractors in
the capital works programme;
• The implementation of Expanded Public Works
Programmes (EPWPs) and the application of EPWP
principles in normal JRA projects.
• The establishment of an SMME Desk within the JRA
Engaged Active Citizenry
The strategic intent of the programme is to ensure that
citizens of Johannesburg take an active role in their
communities and that they participate in the planning and
implementation of Government programmes and in service
delivery. The key elements include the following:
• Rolling out community based planning;
• Promoting active community participation in the
execution of key service delivery areas (such as crime
prevention, traffic management, by-law development
and enforcement), infrastructure protection and
community safety programmes;
• Community education and awareness programmes;
• Human development and social cohesion
The JRA will contribute to this priority through:
The rollout of programmes such as ‘adopt a street’ and
‘adopt a pavement’ Communities will also be mobilised
to participate in infrastructure protection and road safety
programmes. This will also enable the JRA to promote
the values of responsible citizenship and solidarity thus
enhancing the City’s vision of a caring municipality.
Interventions in this area will also seek to strengthen the
City’s Developmental Service Delivery Model.
Resource Resilience
Water is central to economic production and the well-being
of the City’s residents, yet thousands of litres of water are
lost every year through water leaks. Most of the city’s water
is imported from elsewhere and thus the challenge for
Johannesburg is to make the most efficient use of water.
• With regard to the safe supply of water, Johannesburg
has the dual challenge of water scarcity and the
increasing cost of water provision and network
maintenance.
• With regard to the protection of essential water
resources such as the management of water catchments
and ground water, Johannesburg faces the challenges of
increasing flood risks and the pollution of water courses
and underground water, which limit the potential use of
these resources to supplement current water supply.
The City is exploring opportunities for complementing
current water supply with alternative sources in order to
guarantee future supply. In addition the City wants to ensure
that the downstream quality of rivers is not affected by poor
quality effluent from wastewater treatment works, polluted
storm water runoff and overflowing sewage systems.
The large volumes of waste generated and disposed by
landfill are causing a serious threat to local communities
living adjacent to landfills; to underground water systems
through the seepage of chemicals; and to air quality through
the discharge of gas by-products. Most of the existing
landfills will soon reach the end of their design lives. The
City is embarking on an ambitious programme that seeks to
reduce the amount of recyclable waste that goes to landfill
sites to zero and to promote the principle of reducing,
reusing and recycling waste before landfill disposal.
The JRA will contribute to this priority by:
• Supporting an ecosystem of complete street-linked
storm water systems that promote sustainable urban
water drainage;
• Minimising flood events to improve the safety of our
residents;
• Reducing the amount of road related waste that is sent
to landfill sites;
• Preventing illegal dumping.
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 Smart City
The success of the Joburg Smart City initiative is largely
dependent on the success of two key elements, namely the:
• Broadband network and connectivity
• Information and communication technology (ICT)
upgrade
The key outcomes of the smart city initiative include:
• The City using technology as a base for innovation and
service delivery efficiency;
• The City becoming a smart institution with high levels of
productivity;
• Smart service delivery as the norm;
• Access to quality CoJ information and ICT services;
• Municipal services provided to households utilising the
broadband infrastructure.
The JRA will support this priority through the rollout
of:
• Intelligent transport systems (ITS) that include traffic
flow management systems; infrastructure security
systems; etc.
• Road asset management systems such as the pavement
management system and bridge management system;
and the geographical information system (GIS).
• Remote monitoring systems for traffic signals
Investment Attraction, Retention and Expansion
The City realises the importance of investing in logistics
infrastructure to facilitate trade and tourism. Seamless
mobility on the City’s road and rail network will ensure quick
turnaround times for goods and passengers between points
of origin and destinations, and thus will attract business
and tourists. The City Deep and Lanseria precincts will
play a critical role in unlocking trade investment potential
in the City and will result in large quantities of freight
transportation to and from Johannesburg.
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The JRA will improve mobility for freight moving into and
out of the City Deep precinct by providing an efficient
road network system. Attention will also be given to the
improvement of the freeway system in the City in order to
unblock known bottlenecks and improve riding quality.
Green Economy
The green economy concept is relatively new. It refers to the
way in which natural resources are used to produce goods
and create economic activities and employment for the
population. Even though this concept is still being developed
and has not been applied to its full potential, it reflects
significant concerns such as sustainable growth, production,
use of natural resources, and protection of the environment.
Ultimately, it involves a new form of production and a new
way of relating to our environment.
The green economy refers to a low-carbon economy that
seeks to ensure efficient use of natural resources, as well
as traditional inputs such as labour, capital and fossil fuels.
A green economy values natural capital and invests in it,
offering better conditions to ensure sustainable growth
and seeking to conserve and preserve the environment,
with the understanding that it is essential to guarantee the
sustainability of production for future generations.
The JRA will support this priority by
• Contributing towards energy saving through
implementation of solar power, light emitting diode
(LED) and uninterruptible power supply (UPS) traffic
signals;
• Waste minimisation.
• The use of recycled and innovative alternative products.
5. ROAD QUALITY
The JRA recognises that for its infrastructure to be deemed to be of good quality, user experience it’s critical. To this end, a
data driven, timely and proper maintenance program is important.

The 2008 VCI indicated that the City’s roads were in a relatively good state. This picture has unfortunately changed for the
worse over the past years. The 2013 VCI indicates a significant deterioration of road quality due to underfunding and lack of
data driven maintenance. Below is the 2008 VCI baseline:

2008 Condition of JRA Paved Road Network as a Percentage of network length (based onVCI calculations)
Road
Very Good Good Fair Poor Very Poor
Function
JRA Total
9% 48% 23% 11% 9%
Network

The 2013 VCI preliminary findings as at 80% of assessment completed indicates that:

2008 Condition of JRA Paved Road Network as a Percentage of network length (based onVCI calculations)
Road
Very Good Good Fair Poor Very Poor
Function
JRA Total
9% 48% 23% 11% 9%
Network

2013 Condition of JRA Paved Road Network as a Percentage of network length (based on VCI calculations)
Road Very Good Good Fair Poor Very Poor
Function
JRA Total 8% 38% 24% 14% 16%
Network

In order to improve this situation presented by the 2013 VCI and thus enhance user experience, the JRA has set itself a
10 year target on the kind of a road VCI status it would like to attain. This is known as the “JRA VCI 2023”. This vision is
underpinned by the following principles:
• We will conduct a VCA on all our roads annually
• We will conduct a data driven road maintenance programme
• Our budgeting will be informed by the above factors

Below is the JRA 2023 envisioned VCI

JRA VCI VISION 2023

Road Very Good Good Fair Poor Very Poor
Function
JRA Total 30% 40% 20% 5% 5%
Network

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 5.1 Maintenance and Capex targets for the next 10 years
The JRA’s funding, both capital and maintenance has been declining over the past five years. This has not only resulted in the
deterioration of the infrastructure but the increase of both capital and operational requirements.

The graph below illustrates the systematic decline in the funding over the past five years:

OPEX & CAPEX OVER THE PAST FIVE YEARS

R 800 000 000.00

R 700 000 000.00

R 600 000 000.00

R 500 000 000.00 OPEX Allocation

R 400 000 000.00

CAPEX Allocation
R 300 000 000.00

R 200 000 000.00

R 100 000 000.00

R 0.00
9

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/2

/2

/2

/2
08

09

10

11

12

13
20

20

20

20

20

20

Through data driven and engineering supported submissions, the JRA intends to grow its Capex
funding level considerably over the next ten years.

OPEX % CAPEX PROJECTIONS FOR THE NEXT 10 YEARS

R 800 000 000.00

R 700 000 000.00

R 600 000 000.00

R 500 000 000.00 OPEX Allocation

R 400 000 000.00

CAPEX Allocation
R 300 000 000.00

R 200 000 000.00

R 100 000 000.00

R 0.00
4

0
5

3
01

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02
/2

/2

/2
/2

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13

18

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14

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20

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20

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20

With new infrastructure come additional maintenance requirements. To this end, the JRA intends to grow its opex budget
over the next 5 to 10 years considerably to meet this demand.

8
5.2 International trends on road
network management and
user experience
The JRA aims to be the best and thus benchmarks itself
against the best in the world. It is estimated that in addition
to repair costs, the condition of a road surface has economic
effects for road users. Rolling resistance increases on rough
pavements, as does wear and tear of vehicle components. It
has been estimated that poor road surfaces cost the average
US driver $324 per year in vehicle repairs, or a total of $67
billion. Also, it has been estimated that small improvements
in road surface conditions can decrease fuel consumption
between 1.8 and 4.7%.
In assessing user experience, some roads authorities go to
the extent of measuring acoustic implications of the road
surface. Roadway surfacing choices are known to affect
the intensity and spectrum of sound emanating from
the tire/surface interaction.[25] Initial applications of this
knowledge occurred in the early 1970s. Roadway surface
types contribute differential noise effects of up to four dB,
with chip seal type and grooved roads being the loudest
and concrete surfaces without spacers being the quietest.
Asphaltic surfaces perform intermediately relative to concrete
and chip seal. These phenomena are, of course, highly
influenced by vehicle speed. Rubberized asphalt has been
shown to give a marginal 3-5 dB reduction in tire-pavement
noise emissions, and a marginally-discernible 1-3 decibel
reduction in total road noise emissions when compared to
conventional asphalt applications.
Some Countries use even more advanced methods
to enhance user experience on their roads. In Austria,
an Advanced Nonintrusive Road Surface Condition
Measurement System to Predict Friction Coefficient for
Winter Maintenance Decision Making was developed in
2007. The technology includes the Vaisala remote optical
non-intrusive road surface state sensor DSC 111 “Spectro”
(providing among other measurements an estimate of the
friction coefficient) , the Vaisala optical non-intrusive sensor
to measure road surface temperature DST 111 “Cyclo”, a
video camera, Vaisala display software to plot all measured
road surface and other meteorological data along with
a time stamped video picture of the road surface on a
PC screen. All data and pictures are transmitted by GPRS
(General Package Radio Services) every 5 minutes to a central
Vaisala server and are stored for future access and analyses.
Using this new measurement technology which provides
among other measurements independent high resolution
water-, ice- and snow- layer thicknesses on the road surface
a real world example is given using these thickness values
to explain why ice slipperiness can exist even after the
application of de-icing chemicals. Preliminary user experience
indicates a much enhanced and easy to use information
data base for winter maintenance decision makers, high user
acceptance by decision makers, an excellent training tool
(road surface pictures), the potential of greatly reduced use
of de-icing chemicals and road cleaning and de-icing trips
due to better and more informed decision making (friction
coefficient, high resolution measurement values, PC display
of measurement values and video pictures of the road
surface).
Over the medium to long term, the JRA intends to measure
its performance against the user experience. To this end,
a KPI that is user experience driven will be developed,
implemented and monitored.

5.3 Roadwork Catergories

WORK WORK CLASSES WORK TYPES EXPLANATION ACTIVITIES
CATEGORIES
Maintenance Routine ad-hoc Non pavement all activities that are line marking, road sign repairs, guardrail
(reactive) carried out outside repairs, vegetation control, cleaning KI,
of road surfacing skoffelling, removal of silt, kerb repairs,
sidewalk repairs, traffic signal repairs,
replacing broken/stolen KI slabs/storm water
manholes etc.
Pavement Repair of minor crack sealing, pothole patching, trench
(asphalt)pavement reinstatements, regarding gravel roads etc.
defects
Routine Motorways Not limited to VCI, inspect sign gantries, grass cutting,
operations pavement bridge inspections, road markings, cleaning
(scheduled - of storm water, structures guard rail
periodic / inspections/repairs etc.
annual) Major arterials Not limited to Cleaning of storm water structures, road
pavement marking, VCI,
Other surfaced Not limited to Cleaning of storm water structures, road
pavement marking,VCI,
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 WORK WORK CLASSES WORK TYPES EXPLANATION ACTIVITIES
CATEGORIES
Bridges Not limited to VCI, joint inspections, guardrail/barrier/
pavement handrail inspections
Gravel Not limited to Grading/shaping of existing gravel roads
pavement
Sidewalks Not limited to VCI, weed spraying
pavement
Periodic Preventive Thin film to improve slurry seals,
Maintenance Maintenance surface integrity
(treatments and waterproofing
applied to without increasing
pavements strength - max
ideally before aggregate 6.7mm
signs of distress)
Resurfacing Thin surfacing to asphalt overlays
improve surface
integrity,
waterproofing and/
or skid resistance
Special Non pavement Clearing road that Clearing of debris, repairing washout, repair
Maintenance (emergency) has been cut or sinkholes, repair damage caused by traffic
blocked accident/chemical spillage
Pavement Repair of selected Base/deep patching
pavement areas
that fail (Latent
defects)
Bridge
Development Strengthening Rehabilitation Reworking top (up Recycle existing base and asphalt - would
to 150mm) then be
pavement layers followed by new asphalt surface
Reconstruction Removal of part Remove asphalt surfacing, base and/or
or all of existing sub-base, add/improve drainage/sub soil
pavement layers and where required, construct new pavement.
the construction of Re-gravelling of existing
new pavement gravel roads
Bridges
Improvement Capacity Retain existing Construction of partial widening, additional
pavement but lanes
increase
width
Alignment Changes road Construction of local geometric
geometry whilst improvements and
retaining some of intersection improvements
existing pavement
Bridges
New facilities Upgrading Changing pavement Upgrading gravel roads to surfaced roads
surface class and
improving geometric
characteristics of
existing pavement
New Creating new road Construction of new carriageway in existing
construction pavement in new road
location reserve, construction of road in new road
reserve

10
Roads Hierarchy pedestrian crossings
• Freight – access provided by road to freight terminals
The JRA network has been classified in line with the national
Road Infrastructure Strategic Framework of South Africa
(RISFSA). Prior to this, the road network was last classified in
6. ROAD NETWORK
2004. MANAGEMENT
The RISFSA road classes are:
Class 1: Primary distributor
Class 2: Regional distributor The JRA aims to manage its network efficiently through the
Class 3: District distributor use of state of the art RAMS. In this regard, the JRA has
Class 4: District collector short to medium term goals and long term goals on the
Class 5: Access roads RAMS that will be utilised in the management of its Roads.
Class 6: Non-motorised access ways
The RISFSA methodology required each road to be assessed To this end, the following systems will be, developed,
against the following criteria: upgraded and maintained in the short to medium
• Function of the road (the broad land uses and term. These systems will enable the JRA to improve the
movement between the land uses) services that it is delivering to the citizens of the City Of
• Traffic volume/day/direction (from traffic model Johannesburg.
• Access spacing (km between interchanges)
• Geometric (no. of lanes, physical separation of lanes,
shoulders, width)
• Public transport (SPTN and Rea Vaya Phase 1 roads were
used)
• Pedestrian access and type of provision made for

Bridge
Management
• Updated BMS

System (BMS)
• BMS based maintenance budgeting and planning

Pavement • Conduct VCA annually

Management • Conduct a data driven maintenence regime
System (PMS) • Implement outcomes in line with the JRA 2023 VCI vision

Accident
• Development and implement an AMS

Management
• Adequate and timely response resources

System (AMS)
• Partnerships with interested and affected stakeholders
• Roads designs that alleviate and eliminate accidents

• Availability of accurate and up to date data

Geographic
• Capture where asset is (road, manhole, traffic lights etc.)

Information
• Analysis of assets & data

System (GIS)
• Mapping of assets.
• Supply of data to J.R.A appointed contractors & way-leave applicants
• As built drawings

Storm water
• Extent and condition of the infrastructure

Management
• Location of asset (Manhole, Culvert, retention pond)

Systems (SWMS)
• Specifications of asset (L x B x H) etc.
• Construction of asset

11
 6.2 Intelligent Transport Systems
ITS is a new and rapidly developing field, where information
processing, communication systems and sensing devices
are combined and integrated in creative ways to make the
transportation system work more effectively. Centralized
traffic management, transit smart cards and electronic tolling
are examples of ITS in action.
The JRA has adopted key objectives designed to promote
the deployment of ITS technologies to advance the safety,
efficiency and security of our transportation system.
The following are examples of the added value that ITS can
provide for the management and preservation of the road
infrastructure:
1. “Increase” Road capacity
Active Traffic Management
Efficient operation and maintenance of traffic signals
Remote monitoring
Traffic control Centre
- Integrating all traffic management operations
Effective response & repair of faults
Enable more reliable travel times
Collect & disseminate information via electronic means
(signs, Twitter, sms etc.)
Monitor and react to traffic conditions
Disseminate traffic related information
- Provide real time traffic information
- Location of faulty signals
- Traffic congestion
- Traffic incidents
Parking management
Information on parking availability
Electronic fee payment
Demand Management
Congestion charging
Freeway tolling
Freeway Management
Incident management (detection & emergency response)
Visual monitoring / surveillance of the network
CCTV surveillance camera feeds
Ramp metering
Shoulder lane management
Enforce variable speed limits
Traffic safety
Reduce and respond timeously to traffic incidents /
accidents
CCTV surveillance
Electronic road signage
- advise motorists of hazard ahead
- motorists can adapt to traffic conditions
Improve image of Public Transport
Encourage more PT passengers / reduce vehicles on road
More efficient operation of Public Transport
Bus fleet management
- satellite tracking to monitor schedule adherence
- Vehicle management system (on-board)
Advanced Traveler Information Systems (ATIS) & trip
planning
- More reliable schedules & travel times
Electronic fare payment
- Reduce boarding delays
- Reduce cash handling & theft
2. Measurement
Freight
Overload control
Automatic tracking of cargo load
Identify transport of hazardous materials &
abnormal loads
Automatic electronic enforcement (speed &
other violations)
Environmental management
Monitor CO² emissions
Measure vehicle noise pollution
3. Electronic Communications Network
Wireless & broadband
Reduce need for digging roads to lay cables
Safety & security
Surveillance and enforcement of remote areas
Monitoring of vandalism in remote areas
Data collection & management
4. In-vehicle telematics (safety)
Collision avoidance systems
Display of traffic safety information
Automated driving in vehicle convoys
Trip navigation systems
6.3 Potential New Road-Building
Projects
The focus of the City has not been on building new roads
but rather on preserving existing assets, eradicating gravel
road backlogs in communities, completing existing streets to
accommodate all road users and shifting private car users to
use public transport. However, there is a need for some new
roads to be constructed to improve mobility and accessibility
in the City.
The priority road-building projects that are proposed for
completion by 2015 and 2020. The last study that was done
to identify new road sections that were required within
the City was the Transport Department’s Road Hierarchy
Project of 2009, which re-classified the road network of
Johannesburg roads according to the characteristics of traffic
service and the function that they are intended to provide.
The project evaluated all the proposed road projects in the
City’s Consolidated Infrastructure Management System
(CIMS) and then developed an appropriate road network
that would serve the needs of the City for the next five and
ten years (2015 and 2020).
These proposed roads projects will be reviewed by the JRA
as part of the development of a 10 Year roads development
plan.

12
6.4 Supports for Economic
Growth, Social Development
and Public Transport Promotion
6.4.1 Support Economic Growth through
Improving Freight Mobility
One of the outcomes of a proper transport system should
be the seamless mobility of freight. The end-result or impact
of this mobility should be improved economic growth. To
achieve this JRA will ensure that the rollout of infrastructure
helps achieve the objective of safe, reliable and efficient
freight movement within the CoJ to support the city’s
economy. It is also important to ensure adequate balance
of road user needs and ensuring environmentally friendly
freight transportation.
The movement of goods in the supply chain involves costs.
Nationally, freight logistics costs are equal to 12.7% of
GDP. The National Freight Logistics strategy identified the
bottlenecks that impact negatively on freight logistics
and road infrastructure and road operational dynamics
were found to contribute to cost increases. Issues such as
congestion in urban areas, poor roads, truck breakdowns,
road accidents and the lack of dedicated freight routes all
contribute to delays, poor logistics turnaround times, high
maintenance costs and also create a burden on the economy.
Freight movement plays a positive role in servicing and
retaining industrial and trading activities which are essential
for economic growth and make a positive contribution to the
competitiveness of the industries in the city. Urban freight
movement is fundamental to sustaining existing urban
economies and it is also a major employer in its own right.
It is estimated that the transport sector contributes about
7.4 per cent towards the GDP of South Africa. In the case of
the CoJ the transport sector generated approximately R 24
billion in 2012. Approximately 40 per cent of this amount
is generated by the movement of freight, in other words R
9.5 billion. In the year 2011, approximately 1 446 million
tonnes of freight was moved by road in South Africa of
which 798 million tonnes moved in the metropolitan areas.
Based on CoJ’s GDP as a percentage of the national GDP it
is estimated that approximately 150 million tonnes of freight
was moved in Johannesburg during 2011.
There are different kinds of freight movement that the City is
concerned about. These include:
• Inter-city freight movement: Normally over a direct route
and usually with a single destination.
• Urban freight movement: Distribution of goods at
the end of the freight logistics chain. These loads
are relatively small and are distributed over a range
of routes and involve interaction of variables such as
vehicle type, mix of commodities, destination type and
logistics.
Goods from Durban to City Deep are an example of inter-city
freight movement, whereas distribution of these goods from
City Deep is regarded as urban freight movement.
Cities need freight, but they tend to neglect the planning
of urban freight movements. This planning “anomaly” has
resulted in road networks which are designed primarily
for the movement of cars moving people and not for
the movement of goods. As a consequence, poor freight
planning leads to:
• Residential areas being used as freight movement
routes;
• Congestion;
• Damage to roads and bridges; and
• Network restrictions
Pollutant emissions including greenhouse gas (CO2), the
use of non-renewable fossil-fuel and waste products such
as tyres and oil are all negative impacts on the environment.
It is estimated that transportation is the second highest
contaminator in the world at 23 per cent. In cities freight
vehicles are responsible for 40 per cent of greenhouse gases.
The JRA will establish and grow capacity of a freight logistics
department that will begin to embrace and integrate
freight infrastructure planning into the mainstream road
infrastructure planning processes. This will feed into the
nariola and provincial freight logistics processes including the
City Deep precinct improvement plans, planning for future
freight hubs within the Gauteng province, the identification
of possible dedicated freight routes and the use of ITS
to manage freight movements. This will help the City
improve freight mobility while also reducing the negative
environmental impacts of freight transportation.
6.4.2 Law Enforcement
Freight movement law enforcement will be required for
purposes of the Road Traffic Quality System (RTQS) and
Overloading.
Law enforcement in the freight movement industry is not
negotiable. Many accidents, often fatal, are attributed to
break failure, burst tyres and other vehicle defects which are
a sure indication that operators are not fulfilling their duties
in respect of ensuring the roadworthiness of vehicles. Some
vehicle testing stations have also been accused of issuing
Certificates of Roadworthiness to un-roadworthy vehicles.
In the highly competitive environment in which the transport
operators have to function, their prime concern is to
minimize the cost per ton-km of haulage. Thus, there is a
trend towards the use of vehicles that do not comply with
South African axle load limits. In addition operators have
been found to generally place excessive loads, way over
regulated load limits in an effort to achieve more payloads
per trip. Current overload control statistics from 15 provincial
and municipal weighbridges in Gauteng indicated that
13
 up to 38 per cent of the heavy vehicles weighed at these
weighbridges were overloaded. It is therefore of paramount
importance that an effective overload control strategy and
plan should be developed for the CoJ’s road network. The
objectives of such a plan are:
• Cost-effective protection of the road infrastructure;
• Successful apprehension and prosecution of
transgressors; and
• Improved road safety.
The City will investigate various overload control
interventions in line with the National Overload Control
strategy including weighbridges where appropriate, weigh in
motion systems, self- regulation initiatives, the use of ITS and
on-board load management technologies.
6.4.3 Strategies
The following strategies and initiatives will be pursued in the
short term for freight movement.
• Increased capacity for freight planning and logistics
know-how will be developed within the City Transport
and Economic Development Departments and the JRA.
• A database on urban freight transport in CoJ will be
established. The data will be used to review and finalise
the road freight network which was proposed in the
CoJ Freight Network Study in 2007. The condition of
the reviewed network will then also be determined from
road condition surveys which were done by the JRA. At
the same time roads on which dangerous goods will be
allowed will be identified.
• Formal co-operation among all the stakeholders
involved in urban freight movement in CoJ will be
created through a Freight Quality Partnership (FQP).
This will enable the city to work with businesses, freight
operators, environmental groups, the local community
and other stakeholders to address specific freight
transport problems and to develop freight movement
strategies and initiatives that enjoy broad support.
• Based on data from the proposed CoJ freight database,
the possibility of introducing computerised time
regulations on freight vehicle access and loading,
particularly on roads or areas that are very sensitive to
road traffic such as the inner city, will be investigated.
Access time regulations are an instrument that can be
used to prevent vehicles from entering a road or area
at particular times of day, or restrict the times at which
vehicles can load or off-load at kerbsides. They can be
imposed on all road freight vehicles or only on freight
goods vehicles of a certain size or weight.
• Urban freight movements in the CoJ area will be
monitored by means of technology (ITS and cameras)
and on-the-ground policing. In this respect, the
Transport Department will enter into discussions
with the JMPD to determine how enforcement and
monitoring activities to support urban freight transport
can be enhanced (particularly enforcement of the
time regulations regarding access and loading). The
14
establishment of a special freight control unit within the
JMPD should be investigated. The way forward on the
control of overloaded freight vehicles will be determined
in collaboration with the JRA.
• The development of the Durban-Gauteng Freight
Corridor is a national Strategic Investment Project (SIP)
and the CoJ will therefore, in collaboration with the
other stakeholders involved at City Deep, apply sound
access management on existing arterials to enhance the
efficiency of freight distribution to and from City Deep.
The following strategies will be pursued in respect of freight
movement and its environmental impact in the longer-term:
• Low Emission Zones (LEZs);
• Environmental-friendly vehicles (EFVs);
• Road pricing systems;
• Real-time freight information and maps;
• Night deliveries; and
• Urban traffic management and control systems.
6.4.4 Congestion and Travel Demand
Management
A 2011 survey estimated that 78% of 3.8 million drivers on
Joburg roads are stuck in severe traffic jams daily. An IBM
survey in 2010 (the Commuter Pain Survey) of global traffic
congestion interviewed at least 400 drivers in each of 20
major cities and Johannesburg ranked worst out of the 20
cities in commuters’ experience of long travel times. 67%
said roadway traffic had become worse or a lot worse in
the last three years. Indicative of the growing congestion is
that since 1980 there has been an increase in travel times in
Johannesburg of nearly 60% for private car users.
By 2040 Johannesburg will have an extra 2.5 million
inhabitants. Based on current patterns, more people mean
more vehicles and more congestion, coming with negative
effects including:
• Poor urban air quality;
• Increasing road injuries and fatalities which add to the
public health bill of the nation.
• Increased greenhouse gas emissions which impact
negatively on climate change; and
• Increases in travel time having an impact on the
competitiveness and attractiveness of the City and
quality of life of residents.
In this regard the JRA intends to introduce Travel Demand
Management (TDM) strategies. These will assist in changing
travel behaviour to increase transport system efficiency. TDM
measures and strategies do this by reducing the demand for
transport in peak periods, and by reducing reliance on cars,
especially the use of single-occupant-vehicles (SOVs).
The tolling of urban roads, high parking charges and
congestion charges are some of the available mechanisms
for increasing the costs for private car use and pushing car
users towards public transport. However, public transport and/or at certain times; and
alternatives need to be in place (the positive side) to make • Various forms of parking management.
this fair and practical as an incentive. Good public transport
is in fact a key pre-requisite for all successful TDM. 6.4.5 Streets Alive Programme

The key proposed TDM strategies are:
• Prioritising public transport on the road network system
• Promoting ridesharing to increase the number of
individuals per private car;
• Promotion of flexi time, variable working hours and
other employer policies to reduce private car use in
work to home trips;
• Implementing VMS (variable message signs)
• Restricting entry of certain vehicles into certain areas
The City of Johannesburg has resolved to adopt the street
alive programme as part of its safety and liveable city delivery
program. The City’s roads have traditionally been designed
to cater more for motorists than they do for other road
users. This program seeks to reverse this by prioritising the
reallocation of roadspace to accommodate all users and by
promoting road safety. It elevates the profile of pedestrian,
cycling and other non-motorised modes of transport.
Henceforth, as per the City’s CompleteStreets Policy, all roads
will be designed to meet these requirements.

The streets alive programme includes:

Programme Projects
component
Complete Streets The Transport Department and JRA has developed a set of standards and guidelines on
what Complete Streets in Joburg should look like and
which will be applied on all new roads or when roads are upgraded.
Values and The Transport Department will continue to carry out ongoing education
awareness and behavioural change programmes using pedestrian angel and industrial theatre.
Ward-based action plans The Transport Department, JRA and JMPD will continue to work with communities to
develop ward-based action plans – inter alia arising from
petitions and other community initiatives.
Training and This new approach will require training and capacitation of officials, councillors and
capacitation community activists, requiring action from the transport and safety sector and the
legislature.
Open Streets Community-based as well as regional events will be arranged in partnership with
communities to close streets on identified days for recreational activities. The objective is
to eventually have regular open
streets events.
Johannesburg Road The Department will establish a forum to support and monitor road
Safety Council safety in general and the implementation of the Streets Alive programme.

7. ROADS FUNDING data. Under such approaches, there is no way of telling

whether funding levels are adequate.
The issue of funding for infrastructure in general and roads
Many developed countries have raised concerns regarding
in particular is very topical all over the world.
the state of existing road infrastructure and its impacts
on the competitiveness of the economy and well-being
In Crist, Kauppila, Vassallo, Wlaschin Discussion Paper
in general. This general concern about underfunding and
2013-13 © OECD/ITF 2013 11 on ASSET MANAGEMENT
especially the poor condition of existing infrastructure is
FOR SUSTAINABLE ROAD FUNDING” the authors wrote:
difficult to verify due to lack of data on the condition of road
assets. Data on the condition of some parts of the road asset
Meeting maintenance, refurbishment and ultimately
system may be available (road pavements, bridges, tunnels)
replacement needs across the host of asset subclasses is a
but for many other critical asset classes (culverts, drainage,
complex process that requires pluri-annual budget streams.
embankments, geotechnical substrata) it is either missing or
Countries have adopted sometimes different approaches to
difficult to assess due to a lack of centralised data collection
addressing these funding needs but generally, budgets and
and storage.
programmes for the road sector have been prepared on a
historical basis in which each year’s budget is based upon
Even if data on asset condition were broadly and consistently
previous years’ budgets rather than on objective needs-based
collected, the task of converting inventory data into

15
 monetary terms remains challenging on both a material and
methodological basis. In order to value asset inventories
one would, in theory, need prices from markets in which
the assets are regularly, actively and freely traded. This
may be the case for some asset classes (vehicles, buildings)
but is certainly not the case for many critical road system
assets (pavements, drainage, bridge pilings, culverts, road
cuts, etc). In the absence of market prices two alternatives
are available: net present value or perpetual inventory
methodology (PIM). The former sets the value of the asset to
the present (discounted) value of future economic benefits
from a given value. The challenge here is that as noted
earlier, many assets continue to provide (residual) value
long past their design life and/or their book value has been
discounted to zero. PIM approximates capital stock value by
accumulating and revaluing acquisitions minus disposals of
assets over their lifetime and adjusting for factors such as
depreciation and destruction due to natural disasters, etc.
PIM captures the service value of (near) permanent assets
as the assets‟ “current replacement cost” or “depreciated
replacement cost” – e.g. what would need to be spent to
replace the asset in its current condition (see OECD, 2009).
Few countries or road authorities approach asset valuation in
this manner.
When budgets are tight, funding for road maintenance
is often postponed on the expectation (and hope) that a
lack of maintenance will not necessarily lead to immediate
asset failure and network disruption. The cumulative impact
of deferred maintenance, however, increases asset and
network vulnerability, for instance to unexpected or extreme
meteorological events which may occur more frequently
under a changing climate regime. At the same time, there
is pressure to improve network performance due to the
combined effect of increased traffic and greater expectations
regarding service levels. In some cases, a failure to answer
these challenges has led to a number of negative impacts,
among them notably congestion and traffic disruptions
which have exacerbated system unreliability. Robinson
and Roberts (1982) have estimated the relative discounted
life-cycle costs of construction, maintenance and vehicle
operation under different maintenance spending scenarios.
Under normal conditions, a road in a good condition requires
maintenance spending of about 2% of the total discounted
costs, including vehicle operation. However, halving
maintenance is likely to increase users’ vehicle operating
costs by 15% while completely neglecting maintenance will
increase annual vehicle operating costs for users by 50%.
In this context, the main question for road decision makers
then becomes: What is the mix and timing of strategies,
including maintenance, operation and new construction,
needed to guarantee optimal service levels on the network
over the life-span of its individual component assets?
Introducing an asset management approach to road network
management and specifying explicit links to strategic
budgets are essential for transport authorities to arbitrate
among needs, vulnerabilities and trade-offs. Putting in place
a comprehensive asset management program is therefore a
first step.
Current Funding models and alternative funding
vision
The JRA is currently funded by the City Of Johannesburg.
Whereas this is the constitutional imperative, the City has
competing priorities and thus is unable to meet all the
financial demands adequately. To this end, alternative
additional funding should be considered by the organisation.
In its 2017 strategy, the JRA aims to explore additional
revenue through various methods. Some of these include:
ALTERNATIVE FUNDING OPTIONS
Sale of Asphalt
maximise outdoor advertsing;
Funding flexibility to ensure adequate funding
models are applied to specific funding areas.
Maximise the JRA’s contribution to the city’s financial
resilience and sustainability priority focus.
Savings from internal efficiency and improved
productivity. Savings from reduced vandalism and
infrastructure theft.
PARTNERSHIPS
Public-public, public-private and public-public-private
partnerships that respond directly to the City’s
priorities, the GCR and the National Development
Plan.
Strong links with communities, NGOs and other civil
society structures to promote active citizenry and
empower the unemployed, the youth and women.
Proper SLAs and contract management to ensure
delivery against the objectives of partnerships.
Improved collaboration with other CoJ departments
and municipal entities (MEs) in the rollout of service
delivery to communities.
Roads are expensive to develop and maintain. According
to the Council for Scientific and Industrial Research (CSIR),
the total asset value of South African roads in 2010 has
been estimated at R1 trillion, with the value of the paved
road network probably making up about 80 per cent of this
(about R800 billion). New roads and major repairs of existing
roads typically cost about R3.5 million per kilometre for a
secondary road, while constructing and maintaining heavy
freeway structures can cost much more.

16
Our confirmed allocation (capex) and projected allocation (opex) over the next three years is as follows:

CAPEX Allocation

R 3 000 000 000.00

R 2 500 000 000.00

R 2 000 000 000.00

R 1 500 000 000.00

R 1 000 000 000.00

R 500 000 000.00

R 0.00

3
06

20 009

20 016

7
01

01
00

00

01

01

01

01

01
20

/2

/2
/2

/2

/2

/2

/2

/2

/2

/2

/2
/

11

12
05

06

07

08

09

10

13

14

15

16
20

20
20

20

20

20

20

20

20

20
7.1 Projection of the funding levels required for roads between now
and 2023.

OPEX % CAPEX PROJECTIONS FOR THE NEXT 10 YEARS

R 800 000 000.00

R 700 000 000.00

R 600 000 000.00

R 500 000 000.00 OPEX Allocation

R 400 000 000.00

CAPEX Allocation
R 300 000 000.00

R 200 000 000.00

R 100 000 000.00

R 0.00
9

0
5

3
4

01

02
01

01

01

01

02

02

02
01

/2

/2
/2

/2

/2

/2

/2

/2

/2
/2

18

19
14

15

16

17

20

21

22
13

20

20
20

20

20

20

20

20

20
20

17
 7.2 Revenue Generation Opportunities
REVENUE GENERATION
• Outdoor Advertising R105 000 000.00

• Asphalt
R100 000 000.00
• Jobbing’s
R 95 000 000.00
• Parking Meters

• JRA College R 90 000 000.00

Other Sources:
R 85 000 000.00
• National Treasury
R 80 000 000.00
• Gauteng Province

• Private Sector (PPP’s) R 75 000 000.00

2
20 007

20 008

01
00

01

01

/2
/2

/2

/2

/2

/2

11
06

07

08

09

10

20
20

20

20
8. INSTITUTIONAL STRUCTURE, COORDINATION AND SERVICE
DELIVERY MODELS

JRA Business Model

Core Business
City of Joburg Roads
Network
Traffic
Operations
•Board Storm water
•Management
Development Implementation Refurbishment Maintenance

Corporate Support
Corporate Services Finances Management

The JRA is Municipal Owned Entity established by the City
of Johannesburg. The City of Johannesburg (COJ) is the sole
shareholder of the Company. The entity has a unitary board,
which consist of executives and non-executives directors.
The Board remains accountable to City of Johannesburg
Metropolitan Municipality, the sole member and its
stakeholders, the citizens of Johannesburg. A Service
Delivery Agreement (SDA) concluded in accordance with the
provisions of the MSA governs the entity’ relationship with
the City of Johannesburg.
The Managing Director reports to the board and is
responsible for the day-to-day business of the company and
implementation of policies and strategies approved by the
board.
JRA is responsible for the planning, construction,
maintenance, and management of the Roads, Stormwater
and Traffic Regulatory Infrastructure. Planning, Corporate
Services and Finance provide support to the JRA business.
8.1 Service Delivery Models for
Capex
The Johannesburg Roads Agency is committed to the
efficient and effective delivery of services to the community
and to obtaining best value from new and existing built
assets by ensuring its construction projects are designed
and constructed to the relevant standards and functional
requirements.
The JRA’s uses an outsource model for the delivery of capital
infrastructure. The services of external consultants and
contractors are used for the design and construction of road,
bridge, stormwater and regulatory infrastructure. The
planning happens within the JRA and as of 2013/14

18
basic designs will be done within the JRA after a decision was taken to re-introduce a design office. The JRA also has in-
house project management capacity to oversee construction projects in liaison with engineering consultants that conduct
construction supervision. This model has been reconfirmed as appropriate for the JRA and there are currently no intentions of
re-establishing internal road construction capability within the organisation.

• Planning is conducted internal

Capex
• EIA’s designs and construction are outsourced
• Project management is both internal and external
• Procurement is conducted internally

• Maintenence is conducted through internal teams

Maintenence • External resources are brought in as and when needed
• Planning is conducted internally

• The JRA has an internal Resurfacing Depot

Resurfacing • Resurfacing is carried out through internal resources
• Where necessary the JRA uses the services of external contractors

8.2 Key Features of the Project Implementation Process

The Project Implementation Process details the process for the development and delivery of the project. The key features are:
- Ensuring that projects meet service delivery needs consistent with the city of Johannesburg’s strategic directions,
Johannesburg roads agency’s mandate
- Objectives and the business case agreed under the strategic infrastructure plan for city of Johannesburg process;
- Requiring every construction project to have strong leadership from the head of department and operations
manager by taking responsibility for its progress from inception to handover and final completion;
- Ensuring every project has construction procurement managed by an infrastructure department official and a
finance person assigned;
- Selecting and assigning appropriate professional or consultant to develop the approved concept, undertake design,
manage risk, calculate cost and program times during the procurement process and to manage construction.
- Establishing good project governance and clear lines of accountability for all phases of the project with
documentation to provide an audit trail;
- Adhering to the required procurement approvals process and the relevant legislative and policy framework;
- Providing a holistic approach that rigorously considers ‘whole of life’ costs, ecologically sustainable development
initiatives and design options consistent with the triple bottom line of economic, environmental and social
outcomes.

19
 8.3 Proposed Service Delivery Models for Road Maintenance

ROUTINE MAINTENANCE
1. Repair / replace manhole covers
2. Clean / unblock drains Implementation Plan – plan monthly routine
3. Remove posters / graffiti on road assets maintenance on each activity with targets
4. Scuffling and vegetation control
5. Pothole repairs and patches work
6. Repairs / replacement of safety barriers

Issue list of roads due for maintenance this month:

• Depot
• Work type
Execute / inspect work activities
• Activity code / number
Complete maintenance Report
Report Non Routine items
Record maintenance completed and
resources used by location on road

SIGN OFF – Routine Maintenance

Date: Supervisor Name Compare maintenance
done with target rates
Management action /
adjust cycles as required

WORK REPORTS / FINANCIAL

Special Inspection Initiated

INPUT TO BUDGET
Depot / Region Fund Allocated
Collected resources used by road maintenance activity for Routine Maintenance

8.4 Resurfacing Model

The JRA uses a hybrid model for road resurfacing, which involves the primary use of the internal Road Resurfacing Division
(RSD) supported by external contractors. The decision to use external contractors for resurfacing is informed by two things
i.e. the budget allocation and resultant scope of work to be executed, and the complexity and level of speciality required
for the resurfacing work to be conducted. The JRA Strategy 2017 has prioritised the capacitation of the RSD unit in order to
ensure that a significant amount of resurfacing is done internally within the JRA, however due to the resurfacing backlog in
the City’s road network there is still a significant amount of resurfacing work that will be let to external contractors.

20
8.5 Integrated Stormwater Management (ISM)
ISM Model

Watershed
Starting Point Objective Output

Community Integrated
Expectations Strategies to achieve Stormwater
& Legislative watershed objective Management
Initiatives Plan

Site Design
Solutions

ISM DELIVERABLES SCOPE OF DELIVERABLES

An Inventory of the physical and biological
systems
Component Plans to protect key resources,
resolve identifies problems, and accommodate
development
An implementation Programme
• Streams rivers and drainage systems
• Flooding and erosion problems areas
• Plan for improvements to drainage systems and stream reaches
• Plan for on-going data collection and monitoring
• Cost estimates for all planned actions
• Administration
• Projects, Phasing and budgets
• Financing mechanisms
• Community Education
• Maintenance activities, Standards and Schedules
• Performance Monitoring

SEVEN STEP PROCESS FOR DEVELOPING AND IMPLEMENTING AN ISM

Step Description and Scope

1. Secure Interest and Support (Buy-in)
• Inter-departmental and inter-governmental steering committee
• Public Support
• Stakeholder Focus group
2. Frame the Watershed Problems and opportunities
• Assemble existing information
• Identify and priorities problems (knowledge-based approach)
3. Develop Objective and Alternative Scenarios
• Establish desired levels of environmental protection and other objectives
• Set appropriate performance targets
• Model alternative scenario for achieving targets
4. Collect Meaningful data to refine scenarios
• Collect data to:
- Refine scenarios models
- Evaluate effectiveness and affordability
- Model alternative scenarios for achieving targets
5. Evaluate Alternatives and Develop ISM Component Plans
• Habitant Enhancement Plan
• Flood Risk Mitigation Plan

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 Step Description and Scope
6. Develop an Implementation Programme
• Finance and implement ISM action
7. Refine Through Adaptive Management
• Define adaptive management rules, roles and responsibilities
• Constantly improve integrated solutions

8.6 Partnerships • Environment and Infrastructure Services Department

(EISD)
• EMS (Disaster Management )
The JRA recognises the value of partnerships in achieving
• Johannesburg Metropolitan Police Department (JMPD)
successful service delivery of the road network system. It is
• Communities
common to all Governments that the demands from Citizens
• Private Developers
will exceed available state funding resources. It is thus
• Civil Society and Non-Governmental Organisations
imperative that Governments actively pursue partnerships
(NGOs)
with various progressive stake holders that can provide
• Financial Institutions
assistance (e.g. service providers, communities etc.), carry out
• Institutions of Higher Learning
some parts of service delivery (private developers) or invest
• Research Associations and Industry Organisations
in lucrative public service programmes that can yield a return
(investors). The JRA receives numerous partnership proposals
Partnerships Approach
and will seek to convert many of them going forward
into sustainable partnerships that benefit the Citizens of
• Public Private Partnerships in Research
Johannesburg.
• Partnering with CSIR and other research
institutions (i.e. Agrement of SA) including
Based on previous experience partnerships must be
industry organisations such SAICE and SARF –
carefully considered, risks need to be clearly identified and
initiatives to promote value and sustainability of the
shared, benefits must be quantified and proper contractual
roads construction industry.
arrangements must be put in place to ensure success.
• Energy Efficient Materials – PPP initiatives to
Partnerships should not be pursues in the narrow sense of
promote green technologies and the development
financial support, other forms of collaborations should be
of energy efficient systems and material in new and
pursues as well including human capital, equity, equipment,
upgraded infrastructure to radically reduce their
systems, and technology among others. Public-Private
energy consumption and Co2 emission.
Partnerships are generally complex and heavily regulated, but
• ∞Public Transportation - PPP initiatives to
have proven beneficial in the past. Where such structured
improve the sustainability of the City‟s transport
partnerships are to be pursued, all regulatory requirements
infrastructure and move towards promotion of
must be fulfills, all approvals must be obtained and contracts
non-motorised transportation.
should be well managed.
• Public Private Partnerships in Knowledge and Best
The JRA has many potential partners both within the City’s
Practices
Administration and in the open market. In each case careful
analysis and determination of the merits of the partnership
• Partnering with institutions of higher
shall be conducted to maximize the benefits of relationships.
learning, such as WITS and UJ with the aim of
Some of the potential partners include:
increased industrial participation in the engineering
R&D efforts, and providing more effective solutions.
• CoJ Environmental Planning Unit (EMU)
• Sharing Knowledge and Best Practices
• CoJ City Parks
on application of PPPs contributes to a better
• Gauteng Department of Agriculture, Conservation and
performance. Enhance the exchange of
Environment (GDACE)
knowledge and experience with other cities, roads
• South African National Roads Agency Limited (SANRAL)
authorities, the knowledge of global best practices
• Gauteng Department of Roads and Transport
knowledge provide access to a wealth of related
• National Government
documentation, knowledge resources and through
• CoJ Development Planning Department
events such as international conferences and
• CoJ Housing Department
seminars.

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9. RESEARCH, TECHNOLOGY
AND MATERIALS
• Exploratory Advanced Research strategic approach to
innovation
• Objective 1: Collaborate with Stakeholders
from multiple disciplines (both inside and outside
transportation)
• Objective 2: Promote, fund and enable high*risk
research that has high potential for revolutionary
breakthroughs over the long term
• Objective 3: Demonstrate and communicate the
value and impact of exploratory advanced research
and promote opportunities to move from advanced
to applied research.
• Prepare for the future
• Signal systems that adapt to traffic conditions,
advanced materials for roads and bridge
construction. Challenges that facing transportation
industry continues to change. Technology
demographics, the environment and to economy
continue to evolve. JRA is trying to keep up with
the pace.
• Showcase Activities:
- Facilitate workshops with researchers for
solutions to increase use of new methods for
modelling and simulating traffic and driver
behaviour.
- A study of the next generation of traveller
Policy to analyse the interaction of emerging
social, demographic, and technological trends
as well as their potential impact on current and
future travel behaviour.
- Research and develop vehicle-to-infrastructure
communications technologies, applications
and safety standards is laying a foundation for
the future safety systems that will help avoid or
mitigate accidents due to road infrastructure.
• Promoting Environmental Sustainability
• Showcase Activities:
- Research the use of recycled asphalt in road
infrastructure. These pavements will help in
reducing the environmental impacts of road
construction by reducing waste, conserving
energy and mitigating air pollution.
- Exploring the benefits of greatly increase
use of fly ash hydraulic cement. Exploratory
advanced research seeks to reduce significantly
the environmental footprint of concrete
pavements and structures by identifying
innovative methods to increase the use of
waste by-products coal combustion, new
pavement mixture can be developed that take
less energy to produce and last longer.

Establish and
Research

capacitate a Effective use of

Technology

research unit RAMS for planning

Develop
Materials

and budgetting
Partner with innovative
insititutions of material for
Effective use of
higher learning enhanced road
technolgy for
safety and asset
Roads safety
Partner with preservation
Research Effective use of technology
insitutions Provide testing
for traffic and travel
sites for new
demand management
material

collaborate with
colaborate with other
other entities
entities

10. JOB CREATION, LABOUR In order to ensure success in the City’s drive to create
employment, reduce poverty and reduce income inequality,
INTENSIVE METHODS AND the JRA intends to implement the following programmes:

SMME DEVELOPMENT IN Labour intensive road construction and maintenance

ROADS programmes.

23
 The JRA will use best practice prom successful programmes
such as Vukuzakhe in KwaZulu-Natal, Gundo Lashu in
Limpopo and Zibambele in KwaZulu Natal to introduce
and rollout labour intensive road construction and road
maintenance programmes. These will be used as instruments
to ensure that the City’s infrastructure investment is used to
transform the economic landscape and create meaningful
job opportunities for communities. Through these
programmes people employees will be afforded training and
experience that will improve their employability while also
guaranteeing long term employment for some.
The JRA is also finalising plans to establish an SMME Desk
that will focus on providing support to emerging contractors
and cooperatives. This initiative will focus on technical ability,
financial management and business acumen. Through
partnerships the JRA will facilitate the necessary support
for SMMEs to ensure their sustainable and profitable
participation in business engagements with the JRA. The
JRA will also seek to get buy in from other City Departments
and Entities that use similar services to tap into the pool of
SMMEs that will be supported by the JRA. Such an approach
will ensure that broad and sustainable business opportunities
are provided to SMMEs.
In terms of the number of households per technical
staff it has been found that at least one civil engineering
professional is needed for every 4 000 to 5 000 households,
thus implying that the current numbers should be more than
doubled.
A series of formulae are offered to allow municipalities to
determine the level of civil engineering staff they should
be striving towards. For example a municipality with 200
000 households would need at least 40 civil engineering
staff. Even in a small municipality of 2 500 households, at
least one civil engineering professional is required to deal
with the day-to-day technical problems that arise, supervise
routine maintenance, provide planning input and control
development projects.
The JRA currently has 24 registered engineers and 14
committed to register candidates; however there is a need
to develop a sustainable retention strategy for critical scarce
skills.
The 2013/14 financial year will focus on establishing
partnerships with academic institutions and other
organisations such as SARF, SAICE and ECSA to address
capacity challenges.

11. HUMAN CAPITAL Below are critical skill required going forward:
DEVELOPMENT • Civil Engineers,
Civil engineer per population group • Environmental Engineers
• Artisans,
• Project Managers, Bridge Specialists,

Build capacity with
staff throughout the
organization—beyond
leadership
• In value performance
and loyalty.
• attraction of requisite
skills
• Retention of critical
skills
Build capacity through
private/academic
partnerships and —
scholarship programme
• Partner with institutions
of higher leaning
• Develop and implement
bursary and scholarship
• Identify common goals
and objectives.
Build capacity through Build capacity through
retired professionals professional and experienced
and experts —coaching staff exchange programme
programme
• Establish partnerships • Acknowledge
with professional bodies and develop own
such as SAICE, CESA, professional and senior
SARF, etc. staff.
• Engage retired • Encourage and promote
professionals as coaches the’rotation’ and
and mentors for deployment of staff
senior managers and within the city.
technician across the
City of Johannesburg.

12. INFRASTRUCTURE graduates at tertiary institutions and there is a low number

INVESTMENT
The City is embarking on a R100bn infrastructure investment
drive over the next decade in pursuit of the future defined
in the GDS 2040. This will require adequate service delivery
capacity not only within the city’s administration but also in
the construction industry. There is already a known shortage
of students with mathematics and matric exemptions at
high school level, there is a shortage of engineering
of engineers per 100 000 people in South Africa. Progress
with emerging contractor development has been slow and
many have not grown for various reasons within the industry.
Other disciplines such as artisans, environmentalists, project
managers etc. are also required.
Access to skills is thus a serious determinant of the level
of success that will be achieved in the city’s investment
programme over the next decade.

24
13. CONCLUDING REMARKS
This plan serves as the basis on which the 10-Year Roads Development Plan and other plans of the company will be
formulated. Hereunder is a summary of the principles of the plan.

Road quality
JRA vision 2023 data driven maintenence user experienec
driven service roads hirachy driven maintenence

Road network management

State of the art RAMS for planning ITS for increased road
capacity; use as a measureing tool; electronic communication
and in vehicle telematicscomplete streets

Roads funding
Increased funding partneships alternative revenue generation

Strategic Institutional structure, coodination

and service delivery models
Framework Reconfigured structure internationally bechamarked service
for Roads delivery models

Research and technology

Partnerships with institutions of Higher Learning partnerships
with research institutions pilot new materials

Job creation, labour intensive methods

and SMME development
Establish an SMME desk contractor development use labour
intensive construction methods

Human Capital development

Partneships with reputable professional bodies attraction and
retention strategies Skills development Bursary schemes

The status of civil engineering staff in local government was estimated to be between 1 300 and 1 400, indicating a net loss
of 70 to 90 per year since the late eighties. These civil engineering professionals are serving a population of 47 million or
more. This means an average of less than three civil engineering staff per 100 000, a significant drop from the 21+ serving
towns and cities in the previous dispensation. The load on those remaining is excessive. If allowed to continue, service
delivery will all but come to a standstill.

25
 ACKNOWLEDGEMENTS
Johannesburg Strategic Integrated Transport Plan Framework

The road infrastructure strategic framework for South Africa (2006)

World Bank (2010) ‘Roads: Broadening the Agenda’, in V. Foster and C. Briceño-Garmendia (eds), Africa’s Infrastructure: A

Time for Transformation. Washington DC: World Bank.

Joburg – Reflection on a solid foundation (2005)

ECSA- Needs & Numbers publication by Allyson Lawless

2011 Local Government Budgets and Expenditure Review (Treasury)

Providing and Funding Strategic Roads An International Perspective with Lessons for the UK Measurable Performance

Indicators for Roads:

– Canadian and International Practice

– Federal Highway Administration (Research)

– Europa (Research)

– Stormwater Planning: A Guidebook for British Columbia

26
Notes:
Notes:
 Our
Mission
We commit to provide
quality roads that
are accessible, safe
and liveable for our
communities.

Mobility made easy

www.jra.org.za
City of Johannesburg
Johannesburg Roads Agency
Reg. No. 2000/028993/07

66 Sauer Street P/Bag x70 Tel +27(0) 11 298 5000

Cnr. Jeppe Str. Braamfontein Fax +27(0) 11 298 5178
Johannesburg South Africa www.joburg.org.za
2001 2017

JRA Customer Care Line: 0860 562 874

@MyJra
Johannesburg Roads Agency
hotline@jra.org.za
www.jra.org.za