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PUBLIC TRANSPORT SYSTEM DESIGN and MODAL INTEGRATION in SUB-SAHARAN AFRICAN CITIES August 2020

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PUBLIC TRANSPORT SYSTEM DESIGN and MODAL INTEGRATION in SUB-SAHARAN AFRICAN CITIES August 2020 BY CHRISTO VENTER, IAN BARRETT MARK ZUIDGEEST & NAMATIRAI CHEURE POSITION PAPER: THE STATE OF KNOWLEDGE AND RESEARCH PUBLIC TRANSPORT SYSTEM DESIGN AND MODAL INTEGRATION IN SUB-SAHARAN AFRICAN CITIES August 2020 The Volvo Research and Educational Foundations, VREF c/o Volvo Stiftelseförvaltning Dept 1512, M2.7 SE-405 08 Gothenburg Sweden www.vref.se [email protected] Tel: +46-(0)31-66 22 72 Fax: +46-(0)31-66 16 61 Authors Christo Venter, Professor, Department of Civil Engineering and Centre for Transport Development, University of Pretoria, South Africa (main author) Ian Barrett, Chartered Engineer, Independent Consultant, United Kingdom (co-author) Mark Zuidgeest, Professor, SANRAL Chair in Transport Planning and Engineering, Department of Civil Engineering, University of Cape Town, South Africa (co-author) Namatirai Cheure, Ph.D student, Department of Civil Engineering, University of Pretoria, This paper is part of a series of position papers South Africa (co-author) commissioned by VREF for the Mobility and Access in African Cities (MAC) initiative. The series consists of the Editor following publications: Gail Jennings, Research Consultant, South Africa • Cirolia, L.R,. Harber, J., Croese, S. (2020). Governing mobility in Sub-Saharan African cities. The state of Design knowledge and research. Infestation Design, South Africa • Porter, G., Abane, A., Lucas, K. (2020). User diversity and mobility practices in Sub-Saharan African cities: Commissioned by understanding the needs of vulnerable populations. The state of knowledge and research. This publication was commissioned by Volvo Research and Educational Foundations (VREF) as part of its • Schalekamp, H., Saddier, S. (2020). Emerging business programme Mobility and Access in African Cities models and service options in the shared transport (MAC). VREF inspires, initiates and supports research sector in African cities. The state of knowledge and educational activities. Our vision is: Sustainable and research. transport for equitable access in urban areas. • Tiwari, G., Khayesi, M., Mitullah., Kobusingye, O., Mohan, D., Zuidgeest. (2020). Road traffic injury and transport- Please cite this publication as Venter, C., Barrett, I., related air quality in Sub-Saharan Africa. The extent of Zuidgeest, M., Cheure, N. (2020). Public transport the challenge. system design and modal integration in Sub-Saharan • Venter, C., Barrett, I., Zuidgeest, M., Cheure, N. (2020). Africa cities. The state of knowledge and research. Public transport system design and modal integration Gothenburg, Sweden: Volvo Research and in Sub-Saharan African cities. The state of knowledge Educational Foundations. and research. PUBLIC TRANSPORT SYSTEM DESIGN AND MODAL INTEGRATION IN SUB-SAHARAN AFRICAN CITIES EXECUTIVE SUMMARY Purpose become operational in at least 16 cities, with several more in various stages of planning. These efforts The overall aim of this position paper is to provide represent a significant shift towards improving mo- Volvo Research and Educational Foundations (VREF) bility conditions in SSA cities. and other researchers with state-of-knowledge over- views of issues related to mobility and access in African • In SSA cities that have implemented new cities1. One of the core themes identified for future re- fixed-route public transport systems, there is search is System Design and Modal Integration. evidence of significant benefits to passengers in terms of reduced travel times, enhanced access, and more reliable services. However, the evidence Objectives of this position regarding travel costs is contradictory, suggesting paper that many low-income passengers cannot afford to use these systems. The evidence regarding the • To provide an overview of the state of current knowl- unequal distribution of benefits across groups edge regarding the design and integration of fixed- raises key questions around how, and for whom, route public transport systems in Sub-Saharan transport interventions are planned in Sub-Saharan African (SSA) cities; African cities. • To highlight gaps in knowledge that might be ad- • Bus Rapid Transit (BRT) seems to be the pre- dressed by future research and education; and ferred mechanism through which many govern- ments and development agencies in Africa want to • To summarise the state of research and research improve passenger transport. This is despite some capacity around this theme. interest in rail investments, and some efforts at bus service modernisation via contracting and franchis- ing schemes (with mixed results). Cities, on the other Key findings regarding the hand, take a more pragmatic approach based on in- state of knowledge vestment priorities and affordability. Mobility in Sub-Saharan African cities is generally • BRT implementation is problematic, how- very problematic due to a combination of underde- ever, as evidenced by delays in the expansion of veloped road infrastructure, inefficient traffic manage- starter BRT routes in some cities (Lagos); the fail- ment, land use that tends to be unsupportive of efficient ure of pilot BRT schemes in others (Accra, Nelson public transport, and insufficient government ability to Mandela Bay); long implementation periods (e.g. upgrade and improve public transport (either through in- Dar es Salaam, Rustenburg, Nairobi); and the high- vestment or regulatory actions). There is also little appe- er cost and lower than expected financial perfor- tite amongst governments to manage or reduce reliance mance of some systems (e.g. Cape Town, Johan- on the private car, leading to serious congestion in cities. nesburg, Dar es Salaam). BRT projects are probably more complex than previously thought in terms of • There is nevertheless growing momentum towards the demands put on institutions, finance, and the investing in new fixed-route public transport sys- need to involve existing industries. tems in SSA cities, supported by a mixture of local and international consultants and financing instru- • BRT implementation has followed an incre- ments. Since 2000, new bus and rail systems have mental approach, starting with one high-volume 1 See http://www.vref.se/macprogramme 3 PUBLIC TRANSPORT SYSTEM DESIGN AND MODAL INTEGRATION IN SUB-SAHARAN AFRICAN CITIES corridor along a high-density radial arterial, and • Integration between fixed-route systems (ei- followed (potentially) by a gradual roll-out of further ther rail or BRT) and other existing services corridors. However, undue focus on a single corridor (e.g. buses, informal modes) has generally is harmful to metropolitan mobility as it deprives the been done poorly, although it seems to be improv- rest of the network of needed investment. ing. This is true both in terms of interchange facilities and first/last mile issues. Integration through tick- • There is a growing criticism of BRT as an im- eting and integrated fare systems has been wholly ported solution that is insufficiently sensitive to neglected. Poor road environments affect the safety African realities, and too easily captured by special and accessibility of pedestrians, limiting the benefi- interest groups; this reflects a growing awareness of cial impact of the public transport investment. the political nature of public transport interventions. • The adoption of technology in the course of • A related issue is one of appropriate stand- upgrading public transport has also often ards for BRT. Two design approaches are dis- been problematic. In some BRT and rail systems, cernible in Africa: the so-called ‘BRT Classic’ with electronic ticketing (smart cards) was either not median bus-lanes, fully enclosed stations, and ad- implemented (despite the intention of doing so), or vanced ticketing; and ‘BRT Lite’, which depends on poorly rolled out due to faulty procurement or poor lighter infrastructure such as non-continuous bus- management. Smart cards (particularly EMV) act lanes segregated within existing rights of way, open as barriers to usage by the poor, and prevent ticket stations, and standard buses. The pros and cons of integration. Although some good practices exist, bus each approach under different local circumstances tracking and passenger data are generally not used are being debated. effectively for operational management and plan- ning, suggesting that a mismatch exists between the • Key to the issue of standards is the question sophistication of technology provided, and the au- of affordability and financial sustainability, as thority/operator’s ability to make effective use of it. most SSA cities are financially strained, and most governments seem unable or unwilling to provide • Governance is commonly accepted as anoth- ongoing subsidies for public transport. The pres- er key constraint to the effective deployment sure for systems to be self-sustaining affects many of better public transport (and better cities in aspects of the design, system extent, vehicle stand- general). In some cities progress is being made ards, and fare policy. towards the establishment of metropolitan-wide transport authorities that will assume functions of • Another key issue for fixed-route public coordinated transport implementation. Yet institu- transport is its relationship to informal (par- tional fragmentation, lack of policy that is support- atransit) operators. Questions include whether ive of public transport, and lack of appropriate reg- it is inevitable and desirable to displace informal ulatory frameworks, bedevil effective intervention. operators from fixed-route corridors, or if a more In many countries
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