5-YEAR TRANSPORT IMPLEMENTATION PLAN
JULY 2012
2nd DRAFT PREFACE
In May 2011, I had appointed a Panel of Experts to formulate a transformative 25 year Integrated Transport Master Plan (ITMP25) for Gauteng. The ITMP25 is to be finalised by June 2013.
The Panel’s terms of reference also was to develop an initial report in the form of a Five Year Gauteng Transport Implementation Plan (GTIP5). The GTIP5 should identify the urgent, short-term measures to be implemented by the Department of Roads and Transport to begin the process of re-fashioning the transport system in our province. Such a transport system should be reliable, accessible, safe, affordable and environmentally sustainable. Also, it should be managed effectively and efficiently.
I am pleased to release the Panel’s recommended GTIP5 for public comment. Public input on this report will certainly be considered by the Panel for inclusion in the final report. Written submissions should be submitted to the Chairperson of the Panel, Mr Jack van der Merwe, by the 31 August 2012, by email to [email protected]; or at 22 Milky Way, Linbro Business Park, Johannesburg.
Obviously, a short-term report of this kind will not be wide-ranging and comprehensive; that will take the form of the ITMP25. Notwithstanding this point, the GTIP5 is an important starting point for a meaningful dialogue between the Gauteng Department of Roads and Transport and the public at large on the shape, form and design of a transport system for a globally competitive city-region that Gauteng aspires to become over time.
Finally, I wish to thank the Panel of Experts and the 2037 Consortium for producing the GTIP5 and I commend it to the public for careful and critical consideration.
Ismail Vadi Gauteng MEC for Roads and Transport 23 July 2012
i ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 STATEMENT BY THE CHAIRPERSON OF THE STEERING COMMITTEE
The MEC for Roads and Transport appointed a Steering Committee to take responsibility for the development of a 25 Year Integrated Transport Master Plan for the Gauteng Province. Its core mandate is to develop a 25 year Integrated Transport Master Plan (ITMP25) that will enable the Gauteng Department of Roads and Transport, in collaboration with other spheres of government, to regulate, plan and develop an efficient and integrated transport system that serves the public interest by enhancing mobility and delivering safe, secure and environmentally responsible transportation. The ITMP25 should embody the principles of an efficient, competitive and responsive economic infrastructure network that prioritises public transport. It should assist Government at all levels to deliver a world class, sustainable transport system that supports Gauteng’s economic, social, cultural, environmental and developmental goals.
The members of the Steering Committee are: - Mr. Jack van der Merwe (Gautrain) Chairperson - Prof. Jackie Walters (Univ. of Johannesburg) - Dr. Bridget Ssamula (Univ. of Pretoria) - Dr. Vuyo Mahlati (Univ. of Pretoria) - Dr. John Sampson (Independent Transport Expert) - Ms. Noxolo Maninjwa (DRT) - Mr. Nazir Alli (SANRAL) - Mr. Dries van der Walt (PRASA) - Ms. Jane Barrett (COSATU) - Ms. Amanda Nair (Blue IQ) - Ms. Yolisa Mashilwane (Cross Boarder Agency) - Mr. Jeffrey Mashele (Gauteng Department of Finance)
This 5-Year Gauteng Transport Implementation Plan (GTIP5), as presented by the Steering Committee, sets out a “fast-track” implementation plan of key intervention projects based on a detail analysis of the current planning and construction projects in Gauteng as a precursor to achieving the ITMP25 goals and objectives. The GTIP5 is currently in a draft format and is presented to the MEC and Officials in the Department of Roads and Transport together with all the role players and stakeholders in the Gauteng Province for comments, additions and buy-in. After a consultative process the GTIP5 will be presented to the various Authorities and entities for approval. It is envisaged that the GTIP5 would be finalized and approved by the end of 2012.
Jack van der Merwe Chairperson Steering Committee i ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 GAUTENG 25-YEAR INTEGRATED TRANSPORT MASTER PLAN
FIVE-YEAR TRANSPORT IMPLEMENTATION PLAN
CONTENTS
Chapter Description Page
EXECUTIVE SUMMARY
1 INTRODUCTION VII
2 KEY POLICY DIRECTIONS VIII
3 ECONOMIC DEVELOPMENT SCENARIOS VIII
4 LAND USE PLAN AND SPATIAL PERSPECTIVE IX
5 PRINCIPLES AND DEPARTURE POINTS IX
6 5-YEAR GAUTENG TRANSPORT IMPLEMENTATION PLAN X
6.1 Key Short-term Initiatives x
6.2 Key Capital Projects xi
6.3 Approved Transport Capital Projects xi
7 FUNDING OPTIONS XI
8 INSTITUTIONAL AND LEGISLATIVE ARRANGEMENTS XIII
9 STATE OF THE TRANSPORT SYSTEM XIII
9.1 Strategic Public Transport Network xiv 9.1.1 State of Planning xiv 9.1.2 State of Public Transport in Gauteng xiv
9.2 Freight Logistics Transport xv
9.3 Road Network Planning xv 9.3.1 State of Planning xv 9.3.2 State of the Strategic Road Network xv
9.4 Non-Motorised Transport (NMT) xvi 9.4.1 State of Planning xvi 9.4.2 State of NMT xvi
9.5 Airports Planning xvii 9.5.1 State of Planning xvii 9.5.2 State of Airports in Gauteng xvii
9.6 Intelligent Transport System (ITS) xvii i ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.6.1 State of Planning xvii 9.6.2 State of ITS xviii
9.7 Sustainable Transport and Green Solutions xviii 9.7.1 State of Planning xviii 9.7.2 State of Sustainable Transport xviii
1 INTRODUCTION 1
1.1 Methodology 2
1.2 5-Year Gauteng Transport Implementation Plan 3
1.3 Status of Transportation Planning 4
1.4 Current Transport Realities - Problems and Issues 5
1.5 Confirmation of Key Policy Directions 6
1.6 Key Principles and Departure Points 7
1.7 Economic Development Scenarios 8
1.8 Land Use Development Options 8
1.9 Initial Institutional Arrangements 9
1.10 Funding Options for the Transport System 10
1.11 Catalytic Projects 11
2 POLICY FRAMEWORK AND GOALS 12
2.1 Objectives of the ITMP25 12
2.2 Policy Directives 12
2.3 Departure Points and Considerations 16
2.4 Key Performance Areas 17
3 ECONOMIC DEVELOPMENT SCENARIOS 18
3.1 Background 18
3.2 State of Planning 18
3.3 Gauteng Demographic Indicators 19
3.4 Gauteng Economic Indicators 21 3.4.1 Economic Growth - Gross Domestic Product (GDP) 21 3.4.2 Sector Composition - Gross Value Added by Region (GVA-R) 22 3.4.3 Location Quotient 23 3.4.4 Gross Domestic Product (GDP) Per capita 24
3.5 Population Projections 24 ii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 3.5.1 Alternative Population Scenarios 25
3.6 Economic Growth Scenarios 26
3.7 Deductions 28 3.7.1 Population Forecast 28 3.7.2 Economic Forecast 29
4 LAND USE PLAN AND SPATIAL PERSPECTIVE 31
4.1 State of Planning 31
4.2 Policy Directives 31 4.2.1 National Spatial Development Perspective (NSDP) 31 4.2.2 Gauteng Global City Region 32
4.3 Current Realities 34 4.3.1 Socio-Economic Features 34 4.3.2 Spatial Structure 36 4.3.3 Development Trends 40
4.4 Future Vision and Development Principles 43 4.4.1 Provincial and Local Development Frameworks 43 4.4.2 Development Principles 43 4.4.3 Strategic Initiatives 45
4.5 Future Land Use Development Options 48
5 PRINCIPLES AND DEPARTURE POINTS FOR GTIP5 49
5.1 Economic Development 49
5.2 Land Use 50
5.3 Transport Network Hierarchy 50
5.4 Network Continuity 51
5.5 Public Transport Specific 51
5.6 Freight Transport Specific 52
5.7 Road Network Specific 52
5.8 Airports 52
5.9 Non-Motorised Transport (NMT) 53
5.10 Standards 53
5.11 Sustainable Transport Solutions 53
6 5-YEAR GAUTENG TRANSPORT IMPLEMENTATION PLAN (GTIP5) 54
6.1 Key Short-Term Initiatives 54 6.1.1 Establishment of a Provincial Transport Authority 56 iii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (a) Need for Co-ordination and Integration 56 (b) Departure Points 57 (c) A Provincial Transport Authority 58 6.1.2 Integrated Passenger Information and Communication 58 (a) Lack of Integrated Passenger Information and Communication 58 (b) Departure Points 59 (c) A Provincial Passenger Information Call Centre 59 (d) Projects and Actions 59 6.1.3 Integrated Public Transport Tickets 60 (a) Status of Integrated Fare Management (IFM) Framework 60 (b) Departure Points 61 (i) Integration in Public Transport 61 (ii) Provincial Data Warehouse 62 (iii) Provincial Public Transportation Integration Committee 62 (c) “One Province One Ticket” 63 (d) Actions 63 6.1.4 Integration with the Rail Corridor Modernisation 64 (a) Commuter Rail Planning 64 (b) Departure Points 65 (c) Integration with the Modernisation of the Passenger Rail Corridor 66 (d) Actions 67 6.1.5 Restructuring of Subsidised Bus Contracts 68 (a) Status Quo of Subsidised Bus Contracts 68 (b) Departure Points 69 (c) Rationalisation of the IPTNs 69 (d) Sub-projects 69 6.1.6 Transformation of the Mini-bus Taxi Industry 70 (a) Status of the Mini-bus Taxi Industry 70 (b) Departure Points 70 (c) The Mini-bus Taxis Transformation Initiative 71 6.1.7 Alternative Public Transport Vehicle Propulsion 71 (a) Current Vehicle Propulsion Technologies 71 (b) Departure Points 72 (c) “Green Re-fleeting” Strategy 73 (d) Projects and Actions 74 6.1.8 Travel Demand Management (TDM) 74 (a) Status Quo Assessment 74 (b) Departure Points 75 (c) Travel Demand Management Strategy 76 (d) TDM Initiatives and Actions 76 6.1.9 Accessibility to Major Freight Nodes 77 (a) Freight Tends and Requirements 77 (b) Departure Points 79 (c) Making Major Freight Terminals Accessible 79 (d) Projects 80 6.1.10 International and City Airports 80 (a) Air Transport Trends 80 (b) Departure Points 81 (c) International Hub and City Airports Strategy 81 (d) Projects and Actions 82 6.1.11 Pedestrian Paths and Cycle Ways 82 (a) Status of Non-Motorised Transport 82 (b) Departure Points 83 iv ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) The Pedestrian Paths and Cycle Ways Initiative 83 (d) Projects and Actions 84 6.1.12 Continued Provincial Wide Mobility 84 (a) The Strategic Road Network 84 (b) Departure Points 85 (c) Continued Provincial Wide Mobility 86 (d) Projects 86 6.1.13 Management of Transport Infrastructure 86 (a) Status Quo 86 (b) Departure Points 89 (c) Effective Transport Infrastructure Management and Maintenance 89 (d) Actions 90
6.2 Key Capital Projects 90 6.2.1 Commuter Rail Capital Projects 90 6.2.2 IRPTN Capital Projects 91 6.2.3 Freight Network Capital Projects 91 6.2.4 Road Network Capital Projects 91
6.3 APPROVED TRANSPORT CAPITAL PROJECTS 92 6.3.1 Gauteng Department of Roads and Transport (MTEF) 92 6.3.2 City of Tshwane 93 (a) Tshwane NMT – Masterplan 93 (b) Road Infrastructure (new link construction and upgrading of capacity – major roads) 93 6.3.3 City of Johannesburg 94 (a) Lay-bys, shelters and Public Transport Infrastructure 94 (b) Upgrade traffic signals along SPTN routes (priorities as recorded in the ITP) 95 (c) City Deep Freight Hub and Supporting Road Infrastructure 95 (d) Road Infrastructure (upgrades, rehabilitation, capacity increases, extensions) 95 6.3.4 Ekurhuleni Metropolitan Municipality 95 (a) Compliance to South African Roads Traffic Signs Manual 96 (b) Road upgrades, rehabilitation, capacity increases, extensions 96 (c) Ekurhuleni Aerotropolis 96 6.3.5 West Rand District Municipality, Sedibeng District Municipality and Nkangala District Municipality 96 (a) Lay-bys, shelters and Public Transport Infrastructure 97 (b) Support NMT - Cycle Lanes 97 (c) Road Infrastructure 97 6.3.6 Passenger Rail Agency of South Africa (PRASA) 97 6.3.7 TRANSNET Freight Rail 98
7 FUNDING OPTIONS 100
7.1 Introduction 100
7.2 Principles and Departure Points 100
7.3 Funding Instruments 101 7.3.1 Conditional Grants 101 7.3.2 Public Transport Funding 101 v ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 7.3.3 Private Sector Involvement 103 7.3.4 Adoption of the “User pay” Principle 103
8 INSTITUTIONAL ARRANGEMENTS AND LEGISLATIVE FRAMEWORK 104
8.1 Current Realities 104 8.1.1 Commuter Rail Services 104 8.1.2 Gautrain 106 8.1.3 Rea Vaya 106 8.1.4 Regional Commuter Bus Services 106 8.1.5 Municipal Bus Services 107 8.1.6 Dedicated Learner Transport Services 107 8.1.7 Mini-bus Taxi Services 107
8.2 Legislative Provisions 107 8.2.1 Constitutional Allocation of Transport Functions 108 8.2.2 White Paper on National Transport Policy, 1996 110 8.2.3 National Land Transport Transition Act, 2000 111 8.2.4 National Land Transport Act, 2009 112 8.2.5 Municipal Systems Act, 2000 and Municipal Finance Management Act, 2003 114 8.2.6 National IRPTN Initiative 115
8.3 Gauteng Initiative to Achieve Cooperative Governance 116 8.3.1 Conceptual Plan for the Establishment of a Gauteng Transport Management Authority 116 8.3.2 Gauteng Transport Framework Revision Act of 2002 117 8.3.3 TCC Transport Planning Sub-committee (TPC) 118 8.3.4 Gauteng Inter-governmental Transport Charter 119
8.4 Institutional Challenges 120
8.5 Principles and Departure Points 122
vi ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
5-YEAR GAUTENG TRANSPORT IMPLEMENTATION PLAN
JULY 2012
EXECUTIVE SUMMARY 2nd DRAFT EXECUTIVE SUMMARY
1 INTRODUCTION
The aim of the 5-Year Gauteng Transport Implementation Plan is to “fast-track” the implementation of certain urgent initiatives and projects. This includes major projects that are already contained in the range of transport plans prepared at the respective spheres of Government recently. The 5-Year Gauteng Transport Implementation Plan is guided by the current policy framework, and studies carried out by the various authorities in the respective disciplines, such as Freight, Passenger Transport, Roads, etc. The assessment is done in terms of the level of integration and coordination between plans. The assessment also identifies gaps, overlaps and inconsistencies between plans, as well as certain developments and trends coming to the fore. The analysis covers the Gauteng Global City Region area which incorporates some towns from the adjacent Municipalities and Gauteng such as Rustenburg, Sasolburg, Potchefstroom, Klerksdorp, Balfour, etc.
The core objective is to deliver a world class sustainable transport system that supports Gauteng’s economic, social and cultural, and environmental goals. The key departure points are:
Institutional Arrangement: The Case for the Gauteng Transport Authority; Gauteng Global City Region Land Use Restructuring; Public Transport Rationalisation and Restructuring: Strategic Public Transport Network – “Clearly defined hierarchy and continuity across the Gauteng Global City Region”; Freight Network – “Focus on major rail-based freight logistic hubs developed on the periphery of the core urban areas”; Transformation of the urban form towards greater efficiency and sustainability; Underpin the Gauteng Global City Region concept; Environmental soundness and sustainability; Incorporate current and future land-use needs (including two proposed new mega- cities in Gauteng); Prioritise public transport and the movement of freight; Optimise the deployment of various modes, to minimise traffic congestion and maximise service delivery; Include non-motorised transport facilities, to support public transport services specifically and enhance the quality of the built environment in general; and Utilise financial support to transport and subsidies as a lever and catalyst for the development of the desired urban form.
(up to point 2 this part is not in the exec sum that I have) The GTIP5 is guided by the current policy framework and studies carried out by the various authorities in the respective disciplines such as Freight, Passenger Transport and Roads. The Plan is aligned with the principles of the 25-Year Integrated Transport Master Plan, and the proposed projects are effectively hypotheses of the longer term analysis.
Part A of this report covers the following:
Executive Summary; Methodology; Policy Framework; Economic Development Scenarios; vii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Land Use Plan and Spatial Perspective; Principles and Departure Points for GTIP5; 5-Year Gauteng Transport Implementation Plan (GTIP5); Funding Options; Institutional Arrangements; and Legislative Framework
Part B of the report (bound as a separate document) presents an assessment of the current transportation system in Gauteng, and covers the following:
Strategic Public Transport Network Plan; Rail Network and Services Plan; Freight Logistics Transport; Road Network Planning; Non-motorised Transport; Airports Planning; Intelligent Transport System (ITS); and Sustainable Transport and Green Solutions.
2 KEY POLICY DIRECTIONS
A scan and assessment of applicable policy frameworks and strategies related to transport in Gauteng, was done. Based on this, recommendations on the key policy directions, which will underpin the development of the ITMP25 are given. The aims of these policy directions are to:-
create the context for the ITMP25; and provide criteria against which the various network proposals and strategies can be “measured”.
The areas of policy development that are further unpacked, include:
Transport in support of economic development; Transport integration with development in pursuance of greater efficiencies and social integration; Environmental soundness and sustainability; Optimum utilisation of existing and new transport resources; and Development, maintenance and operation of an efficient transport network and system.
3 ECONOMIC DEVELOPMENT SCENARIOS
External demographic and macro-economic perspectives were developed, to provide a basis for the further development of the ITMP25. Various previous studies (of a similar nature) were consulted. This was supplemented with additional projections and forecasts, based on the latest available data and/or official sources.
The scenarios assessed are mainly developed around:- viii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
population growth; and economic growth.
For the population projections, the Statistics SA’s mid-year estimate for 2010 is used as the base year, at just over 11 million people in the Gauteng Province. For growth into the future a fairly high in-migration is assumed, with a growth in population of over 16 million by 2037. With respect to economic growth, it was decided to use the most probable economic scenario. This is assuming a long-term average annual economic growth of 5%. These forecasts and projections strike a balance between realistic outcomes and conservative planning.
4 LAND USE PLAN AND SPATIAL PERSPECTIVE
There are several statutory land use/spatial plans or development concepts relevant to the Gauteng Province. Most of these have been compiled in terms of legislation, e.g. the Metropolitan and District Spatial Development Frameworks, Local Spatial Development Frameworks and Precinct Plans which have all been compiled in terms of the Municipal Systems Act (2000), and the Provincial Spatial Development Framework which has been developed in terms of the Gauteng Planning and Development Act (2003). At national level the National Spatial Development Perspective (NSDP) puts forward five principles to guide and inform spatial planning in all spheres of government in South Africa, while planning pertaining to the future Gauteng Global City Region is undertaken by the Office of the Gauteng Premier.
Collectively, all these plans/principles should be consolidated to create a Land Use Plan/Spatial Development Perspective for Gauteng Province which will inform the 25 year Gauteng Integrated Transport Master Plan (ITMP25). It is worth mentioning that the principle of using public transport as the backbone to the future urban structure of the province, leading to densification and infill development along all major public transport routes and railway stations, is supported by the Gauteng Spatial Development Framework and the Spatial Development Frameworks of all metropolitan and district municipalities in the Province.
5 PRINCIPLES AND DEPARTURE POINTS
Principles and departure points are proposed, which will underpin the Integrated Network Plan and the various component plans thereof. The purpose of this section is to a large extent derived from the key policy directions. It also “concretises” the policy objectives, and provides a more tangible understanding of the “new” integrated transport system and its key characteristics.
The broader areas for which principles and departure points are proposed are:
Economic development; Land use; Network hierarchy; Network continuity; Public transport specific; Freight transport specific; ix ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Road network specific; Airports; Non-motorised transport; Standards; and Sustainable transport solutions.
6 5-YEAR GAUTENG TRANSPORT IMPLEMENTATION PLAN
The 5-year Gauteng Transport Implementation Plan (GTIP5) section provides for transport initiatives and projects for implementation in the short- to medium-term. This is based on:
A scan and assessment of all approved transport plans; Assessment of the state of transport and “pressing” issues, problems and requirements; and Inputs and participation of stakeholders and role-players in workshops on transport matters.
Projects and initiatives proposed for the medium-term are aimed to “alleviate” bottlenecks or to address prevailing and pressing transport issues or problems, without compromising the 25-Year Master Plan. This is dealt with in terms of the following:
Key short-term initiatives, which will alleviate “bottlenecks” in the short- to medium- term; Key transport capital projects to be supported in the short- to medium term; and Lists of all approved transport capital projects on budgets of government departments, agencies and entities.
6.1 Key Short-term Initiatives
The short-term initiatives proposed in the table below, fall within the Provincial Governments’ core functions, as well as areas where the Province can influence the development of an integrated transport network for the Province as part of its transport coordination role.
Initiatives and Key Focus Areas
1. Transport Authority for Gauteng 1.1 Provincial-wide Public Transport Information Centre
1.2 “One Province One Ticket” 2. Integration with the Commuter Rail Corridor Modernisation Project of PRASA 3. Restructured Subsidised Road-based Public Transport 4. Transformation of the Taxi Industry 5. Greener Public Transport Vehicles Technologies 6. Travel Demand Management, Less Congestion and Shorter Travel Times
x ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 7. Access to Major Freight Nodes 8. International and City Airports
9. Pedestrian Paths and Cycle Ways 10. Continued Provincial Wide Mobility 11. Effective Management of Existing Transport Infrastructure
The above-mentioned key short-term initiatives are unpacked and discussed in the following paragraphs in terms of:
Status Quo assessment; Departure points; Description of the initiative; and Typical projects and actions.
6.2 Key Capital Projects
An assessment of the State of Transport Planning applicable to Gauteng, as well as the transport status quo were used as a basis to identify key capital projects that need to be promoted as a matter of priority. The key capital projects are an addition to the key short- term initiatives listed in the previous sections and their implementation will not necessarily be completed in the next five years.
However, the implementation of these projects will significantly contribute to the continued improvement of a transport system serving the Gauteng Global City Region, its mobility requirements and support economic growth. It is therefore important to high-light these projects.
The key capital projects contained in this section are either already approved, in process of being implemented or on budgets for implementation. Others are listed in terms of the MTEF. The categories of projects covered are:
Commuter Rail Capital Projects; IRPTN Capital Projects; Freight Network Capital Projects; and Road Network Capital Projects.
6.3 Approved Transport Capital Projects
All the approved transport capital projects of the Province, municipalities and other government entities and agencies are listed in the last paragraphs of this section of the report.
7 FUNDING OPTIONS
The section on initial funding options addresses: xi ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Summary of the existing transport financing and funding; Highlights gaps and problems; Initial investigation and assessment of possible additional financing sources to close the funding gap; and Views not only on “filling” the funding gap, but the deployment/allocation mechanisms of funding in a coordinate, integrated and sustainable manner across the Gauteng Global City Region and authorities.
Current funding instruments available to the national, provincial and local transport authorities include:
Funds allocated through the Division of Revenue Act (DORA), which include the Equitable share and Conditional Grants such as Provincial Road Maintenance Grant, Public Transport Infrastructure and Systems Grant, Public Transport Operations Grant, Municipal Infrastructure Grant and various others; Toll fees; Issuing of bonds; Borrowing; Internally generated revenue (Public contributions, Donations); and Private sector investment.
Adequate sources to finance the current backlog and expected future funding requirements of transport across the Gauteng Province have always been a major challenge. Not only is the funding gap problematic, but also the deployment of finances in a coordinated, integrated and sustainable manner across the region and authorities.
The primary funding focus areas of the ITMP25 is on:
Introduction of policies, systems and technology enablers that would result in better use of existing infrastructure and facilities before costly expansions of the network are undertaken; Enhancing the institutional capacity of transportation infrastructure providers and transportation service providers; and Preserving existing transportation assets (infrastructure and facilities), safety of networks and security of users that should attract a high priority during the allocation of available funding.
Initial funding instruments which need to be considered:
Conditional Grants are strongly supported as a means to support critical objectives. Consideration should be given to introduce new grants to support specific objectives such as the integration of transport and traffic safety; Private Sector involvement to enhance the efficiency of the preservation of the transportation network and to design, build, operate and maintain new transportation infrastructure and facilities; A single public transport authority or responsible entity is preferable to address the current disaggregated planning, implementation and management of public transport operators and services, and the different operational funding mechanisms currently adopted. Such an approach would result in a better alignment of funding sources and the alignment of contracting models and subsidy allocation mechanisms; and Continual pressure would be required to ensure fair and equitable delivery of services through “user pay” policies. The levying of tolls on road networks should be part of the holistic approach to road funding. xii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
8 INSTITUTIONAL AND LEGISLATIVE ARRANGEMENTS
The section on institutional and legislative arrangements provides background to the unique public transport governance and management challenges faced by the Gauteng Global City Region (GGCR). The case is then made for appropriate public transport governance and management arrangements in the Gauteng Global City Region.
Further, insight is provided into the public transport governance and management models from a selection of comparative international and African cities and city regions with similar challenges to the GGCR, as well as an overview of the Constitutional and Legislative framework in which public transport governance and management needs to take place.
Three main options are outlined and some conclusions made to serve as the starting point for discussion of the proposed options.
Initial conclusions reached are as follows:
The three options outlined in the initial institutional discussion document could be depicted on a continuum that runs from “weak institutional arrangement” reliant on strong inter-governmental cooperation to “strong” (legislated) institutional arrangement reliant on legislative compliance; The discussion of the pros and cons of the three options outlined in the initial discussion document is not aimed at playing the options off against each other, but rather at providing the decision –makers with a set of conclusions that will result in opting for the right “starter model” and allowing progression to a “desired end state”; and In assessing the three proposed options the legality, complexity, time and costs involved and the “disruptive implications” of each option needs to be considered.
9 STATE OF THE TRANSPORT SYSTEM
An extensive amount of transport planning had been done over the past decade in all three spheres of government (as well as government agencies and entities) which has and will in future impact on the Gauteng Global City Region and its transportation system.
The planning is unpacked, summarised and assessed with respect to the various sub- networks (i.e. roads, public transport, rail, freight, air and Non-motorised Transport (NMT)). The assessment of the “State of Planning”, inter alia focussed on:
level of integration and coordination between plans; gaps, overlaps and inconsistencies between plans; and key developments and trends coming to the fore.
In addition, an assessment of the existing transport system in Gauteng is included, considering the current transport realities, problems and issues. These were identified from:
literature; plans assessed; and
xiii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 public events (ITMP25 Consultative Conference and the Gauteng Global City Region Public Transport Conference).
The current realities discussion covers all the respective sub-components of the ITMP25. From these key short-term initiatives, projects and programmes are identified, which may be pursued and implemented to “unlock” bottlenecks and alleviate current inefficiencies in the transport system.
9.1 Strategic Public Transport Network
9.1.1 State of Planning
An extensive amount of public transport planning work had been done over the past decade or so. However, some of the planning is already dated, has been over-taken by other planning initiatives and is therefore not that relevant anymore.
This section of the report also provides a summary of the latest plans for the various public transport modes done by the respective authorities and entities responsible for such modes (i.e. commuter rail, BRT, bus, etc.). An assessment of the various plans highlighted the following:
Planning of public transport networks and services are “spread” across a variety of government spheres, agencies and entities, with limited integration and coordination, as well as in modal “silos”; Planning of networks did not always follow a network approach, adhering to inter alia the principles of network hierarchy and network continuity; and Planning for the deployment of the most appropriate mode within a corridor.
Further, major opportunities are emerging, where significant improvements in public transport nodes, interchanges and facilities offer the potential to attract development and stimulate higher density development, which should be exploited through planning.
Reliable and up to date information on travel patterns and trends, user preferences and actual passenger volumes (i.e. satisfied demand) is essential as a basis for effective public transport planning at strategic, tactical and operational levels. However, such information is not available at or in a “centralised” data base or format and is dispersed across various planning authorities and entities. This needs to be addressed as a matter of urgency, in order to assist with more efficient planning processes.
9.1.2 State of Public Transport in Gauteng
An assessment of the public transport system reveals that its characteristics still largely reflect the transport arrangements of 30+ years ago, in that it still mostly supports the pre- 1994 political dispensation, which was largely planned by operators in isolation of one- another to maximise their market share.
A number of key issues, problems and inefficiencies with the public transport system inter alia are:
Not appropriately distributed across the Province; Need for long-term stability in managing public transport systems;
xiv ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 En-route competition (healthy vs. destructive); Sustainability issues in the rail, bus and taxi industries; Disaggregated funding streams (PTOG, PTIS, etc.); Affordability of public transport services (both to the users and government); Quality of public transport services in general is not attractive; Safety issues - user and operator related; Ineffective regulation; Lack of and disaggregated passenger information (integrated one-stop); and Adequate, convenient and safe non-motorised access to PT services (“last mile”).
9.2 Freight Logistics Transport
The flow of freight can be described as flowing from Gauteng to ports, flowing from ports to Gauteng and freight flowing from origin and destination via Gauteng. The bulk of freight is currently on road and has a direct impact on congestion levels experienced during peak hours, as well as the gradual/rapid (must be either dradual or rapid, it cannot be both) deterioration of the road network.
An assessment of freight planning done by Transnet and other entities, as well as projections of freight volumes, clearly shows that the multiplication effect and the resulting increases in surface freight, as it is expected to more than double (by when? Date?). Based on these projections it also becomes important to develop a strategy to accommodate freight in and around Gauteng in future, which should inter alia include:
Develop intermodal facilities with supporting services on the periphery of Gauteng; Establish freight roads around the CBD; Identify roads to link the intermodal facilities; Develop sufficient road capacity for the distribution of freight to and from the intermodal facilities; Establish rail and public transport capacity to support the intermodal facilities; and Develop sufficient road capacity for the distribution of fuel and liquids from the tank farms (increase in pipeline capacity) and planned tank farms.
9.3 Road Network Planning
9.3.1 State of Planning
In the review of the road network, the planning and the programmes of SANRAL, the Gauteng Provincial Government, the three Metropolitan Councils, as well as the two District Municipalities (what about the local municipalities?) are considered.
9.3.2 State of the Strategic Road Network
Considering the evaluation of the planning documents and the current status of the road network in the Gauteng Province the following overall conclusions can be made:
The broad road network planning is in place in Gauteng and the Gauteng Strategic Road Network Plan provides structure to the development of the province; xv ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The Strategic Road Network Plan has to a large extent been taken into account in the road master planning undertaken by SANRAL, the Metropolitan and District/Local Municipalities. There is a general cohesion with regard to road planning between the three spheres of Government; The current road planning is an extremely valuable element to enable economic growth in Gauteng; Available road reserves may be utilised differently than originally anticipated with emphasis on integrated transport corridors where public transport and non-motorised transport plays a more important role than private cars; Due to a lack of funding the Gauteng Department of Transport and the Metropolitan, District and Local municipalities implicitly rely on SANRAL to implement the mobility/freight backbone road network of which i.e. GFIP Phase 2 & 3 is the prioritised road network needed; and Funding is a major constraint – The GDRT funding for the development of new roads and the upgrading of existing roads is limited and majority of the budget is earmarked towards road maintenance.
Similarly the Metropolitan, District and Local Authorities again relies on both SANRAL and the Province to upgrade and provide the new higher order (Class 1 and 2) road infrastructure in their respective jurisdictions.
9.4 Non-Motorised Transport (NMT)
9.4.1 State of Planning
Non-motorised transport planning in the past has received very little attention by the three spheres of government and was limited largely to the planning and provision of pedestrian facilities along the road network. However, society and the public sector is slowly awakening to the importance of this component of the transport system, which enhances local access, safety, as well as contributing to the development of a more sustainable urban environment. The City of Joburg has taken the lead with its City Greening Initiative, with its Complete Streets and Streets Alive programmes, as well as the development of a cycling framework.
9.4.2 State of NMT
An assessment of the state of non-motorised transport revealed that:-
More than 23 per cent of the work force and 90 per cent of scholars (in some parts of the Province) are walking to their final destinations. Many others are walking to public transport facilities (rail, bus, taxi) as part of their commuting trip(National Household Travel Survey, 2003); NMT road users comprise about 40 per cent of all road fatalities in South Africa, and large numbers of pedestrians are maimed for life, with Gauteng, KwaZulu-Natal and Western Cape provinces being the major problem areas; and NMT casualties placing a huge burden on the national and provincial fiscus, national health system, police and traffic administration, third party claims, etc..
This illustrates that NMT needs far more attention and prevalence in order to promote:
Liveable urban areas; Convenient local access; xvi ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Safe neighbourhoods; and Sustainable development.
9.5 Airports Planning
9.5.1 State of Planning
The section on airports unpacks the up to date planning done for the following airports in Gauteng, namely:
OR Tambo International Airport; Lanseria International Airport; Wonderboom Airport; as well as the other two main civilian airports in Gauteng, Rand Airport in Germiston and Grand Central in Midrand.
9.5.2 State of Airports in Gauteng
The following initiatives and projects are also unpacked, namely:
Ekurhuleni Aerotropolis; Updated airspace management plan for Gauteng; Integrated planning of airports; OR Tambo International Airport Midfield terminal development; Lanseria International Airport Runway Development; and Wonderboom Airport’s Accessibility.
9.6 Intelligent Transport System (ITS)
9.6.1 State of Planning
ITS planning is currently focussed on BRT systems, with DRT developing an Integrated Fare Management (IFM) Framework to guide deployment of the associated Electronic Fare Collection systems and ensure compliance with the National Regulations.
Urgent planning is required to address the critical gaps, which are essentially institutional relating to the lack of:
ITS skills and retention of existing expertise; Spending (over/under?) on ITS projects as a result of poor management of the contractual process; political support for ITS, which impacts on the priority assigned to allocation of ITS funding; institutional & technical coordination, which prevents systems integration; and awareness of ITS technology.
These issues could be largely addressed by establishing an:
ITS Education & Training programme; and xvii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 ITS Directorate within DRT.
9.6.2 State of ITS
Nationwide, most of the ITS projects before 2001 were being undertaken by the Durban, Cape Town and Johannesburg Municipalities, in the form of Urban Traffic Control (managing a system of signalised intersections from a Traffic Management Centre (TMC)). However, the 2010 Soccer World Cup created the catalyst for ITS, with an injection of funding on an unprecedented scale that helped establish a local ITS industry.
The current state of ITS in Gauteng is fairly healthy, with 3 key flagship projects:
SANRAL Freeway Management System; SANRAL ITS Design, Build, Operate & Maintain (DBOM); and Johannesburg BRT (Rea Vaya).
9.7 Sustainable Transport and Green Solutions
9.7.1 State of Planning
Sensitive areas that were identified, namely Grasslands, Ridges, Wetlands, Ephemeral pans, Highveld protected areas, areas identified in the Gauteng Conservation Plan characterised as Protected, Irreplaceable, Important and Ecological Support as well as areas identified by the National Protected Area Expansion Strategy (NPAES) should be maintained and present as well as future transport development should not negatively impact on these areas either directly or indirectly.
9.7.2 State of Sustainable Transport
The transport sector’s dependence on non-renewable oil resources will lead to a challenging future if it does not consider the diversification of fuel sources and reduction of greenhouse gas emissions. A mindset shift is needed to move away from sustaining the present to actively creating new sources of energy which draw upon renewable energy resources and energy efficiency. These technologies are crucial for long term environmental sustainability seeing that there are significant new challenges arising from ecological constraints to the business-as-usual approach.
A shift towards a low-carbon environment is needed to move from private to public transport as well as to increase the quality, affordability and availability of public transport.
Compressed Biogas is the preferred alternative energy source for public transportation vehicle propulsion in terms of environment conservation and reduction of greenhouse gas emissions. Production and end-use of this alternative energy source will have a low carbon footprint and will provide cities with an opportunity to use their own waste and wastewater to fuel bus fleets (only bus?what about other road public transport modes?). Although the development of low-carbon or ‘clean’ technologies are crucial for the reduction of greenhouse gas emissions, it still has a long way to go in terms research needed to determine its feasibility as well as its sustainability.
The combination of Public Transport, ‘clean’ or ’green’ energy and technologies, and Intelligent Transport Systems will contribute to a more sustainable transport system.
xviii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
5-YEAR TRANSPORT IMPLEMENTATION PLAN
JULY 2012
PART A 2nd DRAFT 1 INTRODUCTION
The 2037 Consortium incorporating the following members and sub-consultants was appointed on 16 January 2012 by the Gauteng Department of Roads and Transport to prepare the Gauteng 25-Year Integrated Transport Master Plan. The 2037 Consortium is composed of the following member firms include GIBB; BKS/Khuthele; Iliso; Aganang and Plan Associates. The sub-consultants are CSIR; Equinox; Global Insight; AfriGIS and TECHSO.
The two primary deliverables of this project are: 1. A 5-Year Gauteng Transport Implementation Plan (GTIP5); and 2. A 25-Year Integrated Transport Master Plan (ITMP25).
As it was anticipated that the 25-Year Integrated Transport Master Plan will take 18 months to be developed, the existence of pressing issues and immediate problems related to the transport system, and economic and land use development patterns had to be addressed sooner. The aim of the 5-Year Gauteng Transport Implementation Plan (GTIP5), therefore, is to ‘fast-track’ the implementation of certain urgent initiatives and projects. This includes major projects that are already contained in the range of transport plans prepared at the respective spheres of government recently.
The GTIP5 is guided by the current policy framework and studies carried out by the various authorities in the respective disciplines such as Freight, Passenger Transport and Roads. The Plan is aligned with the principles of the 25-Year Integrated Transport Master Plan, and the proposed projects are effectively hypotheses of the longer term analysis.
Part A of this report covers the following:
Executive Summary; Methodology; Policy Framework;
1 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Economic Development Scenarios; Land Use Plan and Spatial Perspective; Principles and Departure Points for GTIP5; Five Year Gauteng Transport Implementation Plan (GTIP5); Funding Options; Institutional Arrangements; and Legislative Framework
Part B of the report (bound as a separate document) presents an assesment of the current transportation system in Gauteng, and covers the following:
Strategic Public Transport Network Plan; Rail Network and Services Plan; Freight Logistics Transport; Road Network Planning; Non-motorised Transport; Airports Planning; Intelligent Transport System (ITS) and; Sustainable Transport and Green Solutions.
1.1 Methodology
The study is basically on the Gauteng Province, but the analysis extends beyond the demarcated boundary. The analysis includes the Gauteng Global City Region area which incorporates some towns from the adjacent municipalities, for example, Rustenburg, Sasolburg, Potchefstroom, Klerksdorp and Balfour. Figure 1.1 shows the Gauteng boundary and the adjacent municipalities.
2 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 1.1 – Gauteng Global City Region
1.2 5-Year Gauteng Transport Implementation Plan
The 2037 Consortium proposed that the basis for the development of the GTIP5 will be current Strategies, Transportation Studies, Plans and Projects. Short-term priorities will then be confirmed and prioritised through an assessment of the status quo, consultation and a measurement against a provisional “new” transport vision for Gauteng. The main output for the GTIP5 will be a priority list of urgent transport interventions, initiatives and projects to be implemented in the short-term by the Gauteng Department of Roads and Transport (DRT).
The main steps for the preparation of this plan are:
3 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Conducting a high-level scan of existing planning information, to identify significant initiatives and projects, which will in the short to medium term “kick- start” or accelerate the integrated development of the Provincial transport system; address critical issues, problems areas or gaps; and address lack of coordinated planning or overlaps; Doing a high-level assessment of the development, land use and transport status quo and current realities, to assist in identifying problems and issues that need urgent interventions; Developing a “first cut” or high-level integrated transport vision for Gauteng, to ensure that the implementation of the Plan and its “urgent” implementation projects do not compromise the direction in which the ITMP25 will steer the development of the transport system for the Province in the longer-term; and Developing a priority list of “urgent” projects, with project scoping and cost estimates under-pinned by implementation timeframes, as well as a financial plan and funding strategy.
1.3 Status of Transportation Planning
This section unpacks the “State of Planning” with respect to transport in the Province. Although in many instances not (or not yet) implemented or operationalized, an extensive quantity of transport planning for Gauteng had been done over the past decade or more in all three spheres of Government.
A summary of all plans relevant to the various sub-networks (i.e. roads, public transport, rail, freight and air) are given and the respective plans are assessed. The assessment is done in terms of level of integration and coordination between plans. The assessment also identifies gaps, overlaps and inconsistencies between plans, as well as certain developments and trends coming to the fore.
Key initiatives, projects and programmes being recommended from the plans are noted and highlighted, especially where such initiatives would alleviate bottlenecks,
4 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 unlock potential gains in efficiencies in the transport system or promote economic development in the shorter-term.
1.4 Current Transport Realities - Problems and Issues
The report highlights current transport realities, problems and issues as identified from literature, the plans assessed, as discussed in the previous paragraph, and those highlighted at the first meeting of the ITMP25 Consultative Conference on 11November 2011 and the Gauteng Global City Region Public Transport Conference held on 28 May 2012.
The extent of the current realities highlighted in the report cover all the respective sub-components of the integrated transport network for Gauteng, namely;
Economic Modelling and Demographics; Road network; Strategic public transport network (road-based); Passenger Rail network; Freight network (road, rail, air, and pipeline); Airports; Non-motorised transport; ITS & Technology Applications; Green Transport; Spatial Planning; Institutional Arrangements; and Funding and Financial Plan
Again, a number of key initiatives, projects and programmes are recommended in the report, which may be pursued and implemented to “unlock” bottlenecks and alleviate inefficiencies in the transport system.
5 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 1.5 Confirmation of Key Policy Directions
The report recommends a number of key policy directions for further consideration that will also be used in the development of the ITMP25. These policy directions (or principles) will create the context for the development of the integrated transport network plan and also will used be as criteria against which the various network proposals and strategies can be “checked”.
On a broader level the policy is also in pursuance of the strategic priorities as outlined in the Gauteng Vision 2055, namely:
Creating decent work and building a growing, inclusive economy; Promote quality education and skills development; Providing better healthcare for all; Stimulating rural development and food security; Intensifying the fight against crime and corruption; Building cohesive and sustainable communities; and Strengthening the developing state and good governance.
More specifically in relation to transport, the GTIP5 provides the basis for a 25-year Transport vision for the Province, as well as policy directions on inter alia the following;
A transport network in support of economic development; Transport integration with spatial development in pursuance of greater efficiencies and social integration; Transport, environmental soundness and sustainability; Optimum utilisation of existing and new transport infrastructure (smart solutions); and Development, maintenance and operation of an efficient transport network and system.
6 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 This translates into objectives as part of the further consultation and work done on finalising the vision and objectives for the ITMP25.
1.6 Key Principles and Departure Points
Key principles and departure points, which underpin the Integrated Network Plan and the various component plans thereof, are presented in the GTIP5. This to some extent is derived from the key policy direction, and “concretises” some of the policy objectives into a more tangible understanding of the “new” integrated transport system for the Gauteng Global City Region and its key characteristics.
Key principles for the following sub-plans of the ITMP25 are contained in the GTIP5:
Road network; Strategic Public Transport Network (road-based); Passenger Rail network; Freight network (road, rail, air, and pipeline); Airport Planning; Non-motorised Transport; Spatial Planning; and Funding and Financial Plan
In addition, the key principles and departure points also deals with “green” and “smart”. This underpins all the sub-plans from a sustainability and efficiency perspective, where “smart” goes to using inter alia technology to optimise the utilisation of available infrastructure and resources. These two concepts may have a significant influence on the “way we do business” in the transport sector in future in the Province and the solutions proposed as part of the development of the integrated transport plan.
7 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 1.7 Economic Development Scenarios
The expected economic development and the rate thereof have a distinct impact on both the rate and type of land use development, as well as the nature and volumes of transport in future in the Gauteng Province. In order to plan for the future, it is essential to have a picture of what the future might hold from two perspectives, namely;
population growth; and economic growth.
The GTIP5 recommends the scenarios for both population and economic growth, which forms the basis for the projections of land use development and the development of the future integrated transport network for Gauteng.
The recommendations are based on current and previously completed projects related to demographic and economic scenarios, as well as comparisons with the current best estimates based on the latest available data.
1.8 Land Use Development Options
The GTIP5, as part of the section on land use development options, provides a summary of the information obtained during the Status Quo Analysis. This includes:
An update of all new residential, business, office, and industrial development in Gauteng Province from 2007 to 2010 (which is the Base Year). From this certain spatial trends in terms of development in the province have been identified; The official Gauteng Spatial Development Framework has been analysed to determine the future Vision for the province in terms of the Gauteng Global City Region; and the Development Principles and associated Land Use Proposals for future development in Gauteng Province as contained in the Gauteng Spatial Development Framework have been identified; and
8 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The official metropolitan-, district- and local Spatial Development Frameworks and Growth and Development Strategies of municipalities in the province have been analysed to identify development principles/points of departure for these plans; the most prominent future development initiatives proposed by municipalities; and general spatial trends proposed for future expansion and consolidation of the urban fabric.
The findings emanating from the Situational Analysis (including the gaps identified) are summarised by highlighting the future Land Use Development Options for Gauteng Province.
It is expected that one option be based on a continuation of existing spatial development trends where private transport maintains its current dominance over public transport. The modelling of this scenario will provide the “worst case” from a road network perspective.
The second and preferred option assumes that public transport becomes far more preferential mode of transport and that this will lead to significant changes in the urban structure with densification and infill development along public transport corridors becoming the dominant spatial/land use feature of Gauteng Province. The projected land use and changes thereto, based on this scenario will be modelled, to obtain the “best case” option from efficiency and sustainability points of view.
1.9 Initial Institutional Arrangements
The original scope for the development of the ITMP25 stated that institutional and organisational arrangements must be proposed that will enable the effective and efficient implementation of the ITMP25. In general, however, for the evolving Gauteng Global City Region and a functional transport system to adequately support the region, greater coordination and integrated planning across municipal and provincial boundaries are essential. Institutional arrangements therefore will have to deal not only with implementation of the ITMP25 specifically, but with the
9 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 development, operation and maintenance of the transport system and coordination across municipalities. The GTIP5 includes a section providing provincial wide institutional and organisational options for the Gauteng Global City Region as a whole. These options are based on an assessment of the needs, considering;
Coordination; Planning; Service provision and contracting; and Regulation.
This section is in essence a discussion document in nature, which can be used as a basis for consultation with key decision-makers and stakeholders on the future institutional dispensation.
1.10 Funding Options for the Transport System
Adequate sources to finance the current backlog and expected future funding requirements of transport across the Gauteng Province have always been a major challenge. This section of the GTIP5 starts with the exploration of transport funding options and sources for the development, operation and maintenance of the integrated transport network for the Gauteng Global City Region into the future. Current financing sources available to the national, provincial and local transport authorities include, amongst others:
MTEF funding; MIG funding; and Financial support to public transport (e.g. Commuter Rail Subsidies, PTIS, PTOG)
Further, an initial investigation and assessment of possible additional financing sources, to close the funding gap, is done as part of this section of the report. Not only is the funding gap problematic, but also the deployment of finances in a
10 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 coordinated, integrated and sustainable manner across the region and authorities. Allocation mechanisms are also unpacked at a high-level in the report.
1.11 Catalytic Projects
The report presents a schedule of transport projects for implementation during the next five years, based on a scan and assessment of all existing and approved transport plans applicable to the Gauteng City region. In addition, a number of catalytic projects or key initiatives are identified and listed in the GTIP5 (i.e. by applying the 80:20 principle), to be implemented in the short- to medium-term that will “alleviate” bottlenecks or address prevailing pressing transport issues or problems, without compromising the 25-Year Integrated Transport Master Plan.
11 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 2 POLICY FRAMEWORK AND GOALS
2.1 Objectives of the ITMP25
The core objective of the ITMP25 is to deliver a world class sustainable transport system that supports Gauteng’s economic, social and cultural, and environmental goals.
The ITMP25 is to provide a blue-print for the development of a transport system for Gauteng over the next 25 years, which will be sustainable and also result in skills development, sustainable job creation and improved quality of life.
The ITMP25 has to enable the Gauteng Department of Roads and Transport to regulate, plan and develop an efficient and well integrated transport system that enhances mobility and is safe, secure and environmentally sustainable.
2.2 Policy Directives
The current policy directives and information extracted from existing plans and other relevant documentation, which could inform the process of developing a high-level Integrated Transport Vision for Gauteng and underpin the ITMP25 are given in the following paragraphs. The policy directives encapsulate political, social, financial, and economic objectives. The policy framework is based on the following key official documents:
Gauteng Provincial Vision 2055; White Paper on Transport Policy, 1996; National Land Transport Act, 2009; National Planning Commission, 2011; National Land Transport Strategic Framework, 2006-201; Moving South Africa, 1998; Road Infrastructure Strategic Framework for SA (RISFSA), 2005; National Transport Master Plan (NATMAP 2050);
12 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 DOT Public Transport Policy and Action Plan, 2007; Gauteng Medium-term Strategic Framework 2009-2014 (MTSF); Gauteng Infrastructure Renewal and Investment Plan (GIRIP); Gauteng Employment, Growth and Development Strategy, 2010; Global City Region (GCR) Perspective; Gauteng White Paper on Transport Policy, 1998; Gauteng Land Transport Framework 2009-2014; Gauteng Spatial Development Framework (GSDF); ITMP25 Terms of Reference, 2011; MEC for Roads and Transport Address to the Legislature, 5 July 2011; and Gauteng Budget Speech, 2012.
From the documentation listed above, certain common and over-arching policy directives on transforming society, promoting a democratic urban and rural order and providing equal access to opportunities are found. These inter alia include:
Pro-active government interventions to improve the status quo; Promote quality education and skills development; Strengthening the developing state and good governance; Democratising decision-making; and Redistribution.
In addition and more directly relevant to the Province’s transportation system, possible key policy focus areas which may inter alia be addressed in terms of the Vision and Objectives for the 25-Year Integrated Transport Master Plan are listed in Table 2.1. The policy directives will have a significant influence on the “way we do business” in the transport sector in future in the Province.
13 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 TABLE 2.1 – SUMMARY OF POLICY DIRECTIVES
Policy Focus Area Policy Directives Economic Development Reducing the cost of logistics, doing business, and cost of living; Globally competitive urban area; Creating decent work and building a growing, inclusive economy; Support economic growth and investment through the provision of appropriate transport system and socio-economic infrastructure and services; BBBEE, empowerment of women, youth, people with disabilities, and SMEs, and; Promote sustainable job-creation
Spatial Development and Improving the quality of life; Social Integration Poverty Alleviation Stakeholder Engagement; Gauteng City Region Concept; A sustainable urban environment; Public spaces for social cohesion and liveable communities; Compact City development with infilling along key public transport corridors; Physical, social and economic integration; Stimulation of growth and productivity to rural areas; Gender Equity; Re-distribution of access to wealth Affordable Transportation System Accessible Transportation System Safe and Secure Transportation System Efficient Transportation Services
Environmental Soundness ‘Green’, ‘Smart’, and sustainable solutions; and Sustainability Reduction of current levels of non-renewable energy usage (reduce the transport carbon footprint); Contain the dependency on private cars; Minimise destructive environmental impacts of transport; Renewable energy sources; and Open space system and green lungs.
Optimum Utilisation of new Implementation of global best-practice solutions, and existing Infrastructure customised for local conditions; Protect corridors; Prioritise NMT infrastructure;
14 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Prioritise public transport infrastructure and services; Travel demand management; and Information management and sharing.
Policy Focus Area Policy Directives Development of an Emphasis on Mass Transit - Public Efficient and Effective Transportation, Non-motorised Transport, and Transport Network and modal integration; System Promotes a functional transport area and the transport inter-action in the Global city Region and with adjacent provinces; Integrated transportation system and infrastructure; Balance mobility needs with access; Provides for strategic and operational integration; Offers acceptable levels of predictability and reliability; Prioritise public transport and the movement of freight; Optimise the deployment of various modes, to minimise traffic congestion and maximise service delivery; Consider key freight and logistics nodes and corridors; Utilise financial support to transport and subsidies as a lever and catalyst for the development of the desired urban form. Optimise the time and cost for travel; Acceptable levels of safety and security; and Adequate attention to NMT and Accessibility
Institutional Efficiency Co-operative Governance and partnership between all spheres of Government, Private Sector, media, and the citizens Leadership and Management excellence in the Department of Roads and Transport Customer Focus Integrated Management Systems Regulatory Efficiency Sustainable Funding and Financing mechanisms
15 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 2.3 Departure Points and Considerations
The Terms of Reference lists a number of departure points for the development of the ITMP25, which inter alia include:
Institutional Arrangement: The Case for the Gauteng Transport Authority; Gauteng City Region Land Use Restructuring; Public Transport Rationalisation and Restructuring: Strategic Public Transport Network – “Clearly defined hierarchy and continuity across the City Region”; Freight Network – “Focus on major rail-based freight logistic hubs developed on the periphery of the core urban areas”; Transformation of the urban form towards greater efficiency and sustainability; Underpin the Global City Region concept; Environmental soundness and sustainability; Incorporate current and future land-use needs (including two proposed new mega-cities in Gauteng); Prioritise public transport and the movement of freight; Optimise the deployment of various modes, to minimise traffic congestion and maximise service delivery; Include non-motorised transport facilities, to support public transport services specifically and enhance the quality of the built environment in general; and Utilise financial support to transport and subsidies as a lever and catalyst for the development of the desired urban form.
Moreover, in developing the ITMP25, the following needs to be considered:
Further unlocking the economic development potential of the Gauteng Province from a transport perspective; A functional transport area and the transport inter-action with adjacent provinces;
16 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Pro-active government interventions to improve the status quo; Planning transport for people must deal with person trips and not only vehicle trips; and Optimise the time and cost for travel.
2.4 Key Performance Areas
The Key Performance Areas to be addressed by the Province through the implementation of the ITMP25 are:
Public Transport Efficiency; Increase in public transport patronage; Modal Shift from private vehicle to Public Transport; Administration Efficiency; Management System; Road safety; Transport Mobility and accessibility; Infrastructure Development and Maintenance; Social empowerment; Sustainable transportation; Environmental Management; Restructuring and rationalisation of public transportation system; Land Use Restructuring; Freight Transportation Management (cost of freight logistics); and Sustained Funding.
17 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 3 ECONOMIC DEVELOPMENT SCENARIOS
3.1 Background
The status quo of economics and demographics in the Gauteng Province are recorded in the Gauteng Provincial Land Transport Framework (2009–2014), as well as in the Gauteng Employment Growth and Development Strategy (GEGDS). The recordings are based on a StatsSA Community Survey 2007 undertaken prior to the 2009 recession and economic downturn. These recordings have become outdated. The analysis and results of the national census performed during 2011 will definitely update the status quo, but will unfortunately not be ready for inclusion in this report. The 2037 Consortium prepared an Economic and Demographic Scenarios report which uses later economic and demographic figures as a basis for the different scenarios and future projections. These recordings are up to date and found to be much more informative than outdated statistics. The economic and demographic analysis is based on global and local indicators and trends.
“In order to plan for the future, one needs to have a picture on what the future might hold, both on the human and business side - in terms of population projections and forecasted economic growth. (Global Insight, 2012)
As part of this project there is an emphasis on the use of existing studies and plans – across all the various functional aspects of transport planning. This report presents a brief literature review on current and previously completed projects related to demographic and economic scenarios. It further compares the output from studies with the current best estimates based on the latest available data. Finally, it makes a recommendation on which demographic and economic scenarios to use for the purposes of the GTIP5.
3.2 State of Planning
The following studies in Table 3.1 were consulted in preparing this report.
18 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 3.1 – Supporting Studies
Source Time Economic Population horizon Scenarios Projections Gauteng Transportation Model 2001- Baseline Low Scenarios (2004) 2025 Labour High BMR, Global Insight Capital Panel of experts Tiger Combined National Transport Master Plan 2050 2005- Base Red (2007) 2050 Low Blue BMR, Global Insight High Green Gauteng PERO (2011) 2010- Base only None IHS Global Insight 2015 Gauteng Vision 2055 2008- Limited Low Landau, L. (2008). Population And 2055 data Medium Migration Trend Paper. High
In addition, IHS Global Insight also added projections and forecasts based on the latest available data and/or official sources.
3.3 Gauteng Demographic Indicators
The section describes the population of Gauteng in the context of South Africa as a whole and also provides a breakdown by age and gender comparing this to the national picture. The total population of Gauteng as indicated in Table 3.2 includes all residents, non-residents and individuals of any age, gender and population group in Gauteng.
Table 3.2 - Total Population in Gauteng Province and South Africa, 1996, 2001 and 2010 (Numbers in Millions)
Year Gauteng National GP % Share of National 1996 8.57 42.16 20.3% 2001 9.71 45.86 21.2% 2010 11.19 50.98 21.9%
The total population of Gauteng was 8.57 million in 1996, which constituted 20.3% of the population in South Africa. This increased to 21.9% in 2010, with an estimated 51
19 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 million people in South Africa. Gauteng’s population grew faster compared to the rest of South Africa. This is primarily due to in-migration into Gauteng and not due to natural growth.
A population pyramid is a visual representation of the population broken down by gender and age for the selected year and region. The horizontal axis depicts the share of people, with the left pane depicting males and the right pane depicting females; the vertical axis depicts the 5-year age categories. Figure 3.1 depicts the population pyramid for Gauteng.
Figure 3.1 - Population pyramid – Total population in Gauteng relative to South Africa, 2010
Population structure, 2010 Gauteng vs. National
Male Female
75+
Gauteng 70-74 South Africa 65-69
60-64
55-59
50-54
45-49
40-44
35-39
30-34
25-29
20-24
15-19
10-14
05-09
00-04
6.0% 4.0% 2.0% 0.0% 2.0% 4.0% 6.0%
The age breakdown for Gauteng differs quite significantly from the national picture. Where the national demographic pyramid is shaped like a traditional pyramid, with some flattening off at the younger ages (the typical shape of a developing country), Gauteng has a large working-age population, with relatively fewer children and also fewer elderly people. This working-age phenomenon is more exaggerated for males compared to the females. The problem of HIV/AIDS is also visible with a pronounced dent at the sexually active ages between 15 and 30 years.
20 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 A household is a group of people who live together and who provide themselves jointly with food and/or other essentials for living, or a single person who lives alone. An individual is considered part of a household if he/she spends at least four nights a week within the household.
Table 3.3 - Number of households in Gauteng Province and South Africa, 2010 (Number, average household size)
2010 Gauteng National Number of 3.52 13.77 households (in millions) Average household 3.18 3.7 size (number of persons)
In 2010 the number of households in Gauteng was 3.5 million and the total number of households in South Africa counted 13.7 million. In Gauteng, the average household size was smaller at 3.2 individuals per household compared to the 3.7 persons per household for South Africa as a whole.
3.4 Gauteng Economic Indicators
3.4.1 Economic Growth - Gross Domestic Product (GDP)
Gross Domestic Product by Region (GDP-R) represents the value of all goods and services produced within a region, over a period of one year, plus taxes and minus subsidies. Figure 3.2 is the GDP growth for Gauteng from 1996 to 2011.
The economic growth of Gauteng reveals a positive growth until the economic slowdown in 2008/09 but a fast economic recovery from then onwards. The recovery from the economic slowdown from 2008/09 for the economy is expected to have the classic V-shape, as is evident from the chart. Compared to the economy as a whole, Gauteng is on average growing slightly higher than the rest of the economy.
21 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.2 - GDP growth – Gauteng province and South Africa, 1996 - 2011 (%, Constant 2005 prices)
7.0%
National 6.0% Gauteng
5.0%
4.0%
3.0%
2.0%
1.0%
0.0% 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010
‐1.0%
‐2.0%
3.4.2 Sector Composition - Gross Value Added by Region (GVA-R)
Gross Value Added is a measure of output or production. GVA is often broken down by various production sectors. One can think of GVA-R as the difference between the inputs obtained from outside the region and the outputs of the region, that is, the region’s total "value added".
Table 3.4 - GVA by broad sector from Gauteng and South Africa (Current prices rand millions, 2010)
Gauteng National 2010 GVA % of total GVA % of total Agriculture 3,478 0.4% 58,644 2.4% Mining 30,068 3.6% 227,117 9.4% Manufacturing 136,282 16.5% 332,470 13.8% Electricity 23,609 2.9% 71,403 3.0% Construction 45,001 5.4% 102,801 4.3% Trade 120,852 14.6% 342,750 14.2% Transport 65,455 7.9% 203,673 8.4% Finance 207,936 25.2% 522,048 21.6% Community services 193,456 23.4% 551,584 22.9% Total Industries 826,137 100.0% 2,412,491 100.0%
22 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 In terms of GVA the sector that contributes the largest share to the Gauteng economy is the Finance sector, which is 25% of its economy, followed by Community Services, Manufacturing and Trade.
3.4.3 Location Quotient
A specific regional economy has a comparative advantage over other regional economies if it can produce the same good more efficiently. The location quotient is one way of measuring this comparative advantage by taking into account production and employment. If the location quotient is larger than one for a specified sector and region, then that region has a comparative advantage in that sector. This is because the share of that sector of the specified regional economy is greater than the same sector in the national economy.
Compared to the national economy, the Gauteng province has a comparative advantage when it comes to construction, manufacturing and finance. The sectors that have a comparative disadvantage compared to the rest of South Africa are the mining and agriculture, as indicated in Figure 3.3.
Figure 3.3 - Location quotient – Gauteng Province and South Africa, 2010
1.40 1.28 Gauteng South Africa 1.20 1.20 1.16
1.03 1.02 1.00 0.97 1.00 0.94
0.80
0.60
0.39 0.40
0.20 0.17
0.00 Agriculture Mining Manufacturing Electricity Construction Trade Transport Finance Community Total services Industries
23 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 3.4.4 Gross Domestic Product (GDP) Per capita
Gross Domestic Product by Region (GDP-R) per capita is a broad measure of economic progress within a region. GDP-R per capita is equal to the GDP-R of the region divided by the population of that region.
Table 3.5 – Nominal GDP per capita – Gauteng Province and South Africa 1996, 2001 and 2010 (Rand per Person)
Year Gauteng National GP/Nat Ratio 1996 24,641 14,658 1.68 2001 35,517 22,242 1.60 2010 81,554 52,210 1.56
The nominal GDP per capita for the Gauteng in 1996 amounts to 24,600 and increased to 81,600 in 2010. The GDP per capita of Gauteng is much higher than that of South Africa as whole, which is one of the driving factors for in-migration. In 2010 the GDP per capita for South Africa was R52 200, as indicated in Table 3.5. One can expect that the Gauteng and the National GDP per capita numbers will move closer over time, as migration into Gauteng will weaken in the future.
3.5 Population Projections
Figure 3.4 highlights the large differences between the various studies on projected population growth patterns. It is important to note that StatsSA made adjustments between 2007 and 2010 on its projections. Both the GTS and NATMAP projects started off at a point higher than what the official government numbers (StatsSA 2007). StatsSA adjusted its numbers upwards after the release of Community Survey 2007, even higher than the estimates by other demographers. However, all project a sizeable increase in Gauteng’s population over the next two decades.
24 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.4 – Gauteng Population Projections
Gauteng Population Projections ‐ GTS, Natmap, Gauteng2055 and StatsSA 22 GTS ‐ High GTS ‐ Low 20 Natmap ‐ Red Natmap ‐ Blue 18 Natmap ‐ Green G2055 ‐ Low 16 G2055 ‐ Mid millions G2055 ‐ High StatsSA 2010 14 StatsSA 2007 Population,
12
10
8 2001 2003 2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 2033 2035 2037
The Gauteng-2055 projections are extremely optimistic and generally higher – both from a historical projection perspective as well as compared to other studies. The IHS Global Insight analysed these projections in more detail and concluded that the assumptions are somewhat unrealistic. Even the low scenario had a fertility assumption which is very high; it assumed constant in-migration into Gauteng from the rest of South Africa – where we do have confirmed evidence of declining in- migration. According to the latest mid-year estimates from StatsSA, the population growth for 2011 for Gauteng was 1.6%; slowing down from 2.2% in 2002, where Gauteng-2055 had growth of 2.3% in 2011, only reaching 1.5% in 2025.
3.5.1 Alternative Population Scenarios
Cohort-component demographic models draw heavily on population census data. In South Africa a population census is only conducted every 10 years. For the years in between, the models are calibrated by smaller surveys, and also administrative data such as registered births and deaths. It is therefore possible to estimate population numbers using these inputs. The IHS Global Insight therefore produced projections based on a cohort component demographic model. The 2010 base scenario describes the highest probable population outcome using the best estimates for the
25 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 various demographic input variables. Note that this estimate is slightly higher than the IHS Global Insight estimate, assuming slightly higher fertility to align better with the historical StatsSA fertility estimates. This scenario assumes a slowing in- migration into Gauteng as well as a gradual decline in fertility. The low-scenario assumes that the in-migration into Gauteng will slow down fairly quickly in future and then remain at very low levels. This is a somewhat unrealistic assumption, although it illustrates the importance of the migration assumption relative to the base scenario. The high scenario assumes migration-levels like we had in 2005 as a constant into future, as well as keeping the fertility levels at the same rate as in 2010 constant into the future. Table 3.6 summarises the different scenarios.
Table 3.6 – Population Growth Scenarios Variable Base Low High Fertility Slowing down Slowing down Constant after 2010 Migration Slowing in- In-migration slowing Constant in-migration migration: rapidly: at 2005-levels 2000 – 100,000 2010 – 80,000 pa (2011 onwards): pa 2025 – 10,000 pa 90,000 pa 2010 – 80,000 pa 2037 – zero 2025 – 50,000 pa 2037 – 40,000 pa Life - HIV/AIDS prevalence - Expectancy rate: 5% higher (2011 onwards) Lower Life Expectancy
3.6 Economic Growth Scenarios
Similar to the population projections, Figure 3.5 describes the various studies and specifically the economic growth forecasts.
It is just as difficult to do economic growth forecasts as it is to do the population projections. What makes the economic forecasts even more difficult is the fact that we are exposed to the global economy far more compared to the population projections.
26 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.5 – Gauteng Economic Growth Projections
Gauteng Economic Growth Projections, GTS, Natmap & Other 10
8
6 percent
4 growth, 2 GTS ‐ Baseline GTS ‐ Tiger Annual GTS ‐ Combined 0 Natmap ‐ Low Natmap ‐ Mid Natmap ‐ High ‐2 PERO 2011 IHS Global Insight ‐4
2001 2003 2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 2033 2035 2037
The fact is the economic outlook changes almost on a daily basis and is substantially more volatile than the movement of people. Although the short-term outlook changes quickly, the longer term growth outlook is substantially more stable and this is important from a planning perspective.
Figure 3.5 shows the GTS study had a somewhat slower economic growth, ranging between 2% and 5% where the baseline outlook was roughly 2.5%. This study was conducted in the years remembered for its pessimism, huge data revisions and lack of capacity at StatsSA. The NATMAP study a few years later was conducted during the economic boom years and had a baseline economic growth rate of roughly 6%. Since then we had the global recession.
The black line represents the IHS Global Insight forecasts as at March 2012, together with the Gauteng Provincial Economic Review and Outlook (PERO) of 2011, which predicts a moderate growth rate of 4.5%.
27 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 3.7 Deductions
3.7.1 Population Forecast
Figure 3.6 displays the results of the various scenarios overlaid on top of the population projections considered in the literature review (in gray). The high projection is recommended. The uncertainty around the in-migration parameter justifies a more conservative population projection to be used in the transport modelling. Currently, there is evidence of in-migration slowing down, but the exact level of slowdown is uncertain. Although the base scenario provides the highest probable population outcome based on most recent data, in order to allow for getting the maximum benefit from the transport model it is recommended to use the higher scenario. A conservative transport planning approach requires a high population projection. Consulting international studies do not provide a simple solution as the cultural and socio-economic conditions are unique to South Africa. The high scenario also provides a balanced projection between previous studies, the Gauteng Vision 2055 and most recent available data.
Figure 3.6 – Population Growth Projections
Gauteng Population Projections 22 GTS Natmap 20 Gauteng‐2055 StatsSA 2010 18 Base Low 16 High millions
14 Population,
12
10
8 2001 2003 2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 2033 2035 2037
28 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 3.7.2 Economic Forecast
The IHS Global Insight economic growth forecast scenarios is reflected in Table 3.7. The Gauteng Base provides a balanced view of what to expect in future. It is important to note that any economy does have its business cycles and unavoidably there will be periods of upswings and periods of slower growth or recession. The long term economic projections provide the average annual economic growth across the entire planning horizon.
For transport planning, the biggest risk is on the upper side – when the economy grows faster than anticipated and it runs into transport infrastructure constraints. Having slower growth will result in having sufficient spare capacity on the transport system. In order to come up with a low and high variant of the base assumption, the following assumptions were applied to differentiate between the scenarios. The low growth scenario assumes a slower world economy impacting on South Africa through all the international economy linkages. The higher economic growth assumes a higher level of infrastructure spending. In the base growth scenario we have assumed an under spending based on the historical average when comparing planned projects against actual build projects. The high scenario assumes no under spending and more success with government’s initiatives to create jobs, thereby lowering the unemployment rate, which is one of the structural constraints in the economy.
Table 3.7 – Economic Growth Scenarios Topic Base Low High Infrastructure Assume under Assume no under Spending spending spending (historical average) World Slow and economy prolonged recovery, resulting in slower global growth Labour Status quo / Better success with New jobs limited success the “new growth path” created in creating jobs
29 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.7 demonstrates the result of the three economic growth projections. As mentioned above the lower growth scenario is less important. The Gauteng Base scenario is recommended. The Gauteng high path is indeed possible – as we have seen through the economic boom years earlier. However, the IHS Global Insight attaches a very low probability (10%) to this scenario, where the economy grows consistently at a level of 6%.
Figure 3.7 – Economic Growth Forecast
Gauteng GDP Growth 10%
8%
6%
4%
2%
0% 2001 2003 2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 2033 2035 2037
‐2% GTS Natmap National GDP Gauteng Low Gauteng High Gauteng Base ‐4%
30 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 4 LAND USE PLAN AND SPATIAL PERSPECTIVE
4.1 State of Planning
As illustrated on Figure 4.1 there are several statutory land use/spatial plans or development concepts relevant to Gauteng. Most of these have been compiled in terms of legislation, e.g. the Metropolitan and District Spatial Development Frameworks, Local Spatial Development Frameworks and Precinct Plans, which have been compiled in terms of the Municipal Systems Act (2000) and the Gauteng Planning and Development Act (2003). The National Spatial Development Perspective (NSDP) puts forward five principles to guide and inform spatial planning at all spheres of government in South Africa, while planning pertaining to the future Gauteng City Region is undertaken in the Office of the Premier. Collectively, these plans should be consolidated to create a Land Use Plan/Spatial Development Perspective for Gauteng which should inform the ITMP25.
Figure 4.1 - Spatial Perspective for Gauteng Province
4.2 Policy Directives
4.2.1 National Spatial Development Perspective (NSDP)
The National Spatial Development Perspective was initiated with the aim of not only providing a strategic assessment of the spatial distribution and socio-economic characteristics of the South African population, but also gaining an understanding of the 31 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 distribution of economic activity and potential across the South African landscape. Based on the research conducted, and with key trends and issues identified, the NSDP delineates a number of guidelines for infrastructure investment in South Africa, including Gauteng, as summarised below:
Economic growth is a prerequisite for the achievement of other policy objectives, key among which would be poverty alleviation. Government spending on fixed investment, beyond the constitutional obligation to provide basic services to all citizens (such as water, electricity and health and educational facilities), should be focused on localities of economic growth and/or economic potential in order to attract private-sector investment, stimulate sustainable economic activities, and/or create long-term employment opportunities. Efforts to address past and current social inequalities should focus on people, not places. In localities where there are both high levels of poverty and development potential, this could include fixed capital investment beyond basic services to exploit the potential of those localities. In localities with low development potential, government spending, beyond basic services, should focus on providing social transfers, human resource development and labour market intelligence. This will enable people to become more mobile and migrate, if they choose to, to localities that are more likely to provide sustainable employment or other economic opportunities. In order to overcome the spatial distortions of apartheid, future settlement and economic development opportunities should be channelled into activity corridors and nodes that are adjacent to, or link the main growth centres. Infrastructure investment and development spending should primarily support localities that will become major growth nodes in South Africa and the Southern African Development Community region to create regional gateways to the global economy.
4.2.2 Gauteng Global City Region
The primary objective of the Global City Region (GCR) is to build Gauteng into an integrated and globally competitive region where the economic activities of different parts of the province complement each other in consolidating Gauteng as an economic hub of Africa and an internationally recognised global city-region. The main aim is to encourage greater internal coherence and co-operation within the province for greater external competitiveness. 32 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Gauteng is not only seen as a GCR – it is also most likely a future “Mega-City” within the African context. Figure 4.2 graphically depicts the concept of the Gauteng City Region with the primary urban conurbation clustered around Tshwane, Ekurhuleni, Johannesburg, Mogale City and Emfuleni. The Gauteng City Region is supplemented by four large secondary economic clusters around Rustenburg, Potchefstroom/Klerksdorp, Sasolburg and Secunda/Middelburg/Witbank as illustrated in Figure 4.2. Functional linkages between these areas and the Gauteng City Region core area are critically important.
Figure 4.2 - Concept of Gauteng City Region
Witbank Tshwane Middelburg Secunda Rustenburg Ekurhuleni Johannesburg Mogale City
Potchefstroom Emfuleni Klerksdorp
Sasolburg
The GCR concept aims to develop the province based on the following principles:
Reducing reliance on private mobility in favour of safe, convenient and affordable public transport and non-motorised transport. Reduce present rates on non-renewable energy usage. Reduce rates of energy expended on the manufacture of goods, the delivery of these goods to market and the import of goods. Integrating open space systems into the city region and providing sustainable ecosystems, urban agriculture and quality of life as being fundamental to the province’s development patterns. Promoting a democratic urban order in terms of opportunities for all. 33 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The GCR implementation/action plan comprises eleven strategic pathways to facilitate and integrate implementation and alignment of this concept. Of specific relevance to this report is Strategic Pathway Ten, which deals specifically with aligning strategies within the GCR perspective. In this regard, the key project relates to contextualizing the following strategies within the GCR short and long terms vision:
Safety and security; Transport infrastructure and authorities; Integrated safety and transport system; Sustainable human settlements; Investment and tourism promotion; Infrastructure provision; and Environment and sustainability.
Transportation will play a vital role in urban consolidation; the restructuring of GCR and in finding sustainable movement solutions which lessen the reliance on private mobility in favour of safe, environmentally friendly and affordable public transport and non-motorised transport.
4.3 Current Realities
4.3.1 Socio-Economic Features
Gauteng comprises three metropolitan areas and two district municipalities namely, the City of Tshwane; City of Johannesburg; Ekurhuleni Metropolitan Municipality; West Rand District Municipality; and Sedibeng District Municipality. The West Rand District Municipality comprises the local authorities of Merafong City, Randfontein, Westonaria and Mogale City Local Municipality, while the Sedibeng District Municipality includes Emfuleni, Midvaal, and Lesedi Local municipalities.
34 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 4.3 – Municipal Boundaries
Gauteng is the economic powerhouse of Southern Africa. A number of strategic airports, an extensive rail system comprising both commuter rail services and high-speed inter-city functions, and an extensive road network ensure that Gauteng is well connected in terms of national and international links into the SADC hinterland. However, a rapidly growing urban population is placing increasing pressure on the movement system of the province, with the majority of the incremental population representing low income communities residing on the urban periphery, far removed from the majority of economic opportunities.
Although Gauteng is the smallest province in the country, representing only 1.4% of the land area of the country, it accommodates 11.2 million people which make it the most populous province in South Africa. The population increased by 3.2 million residents between 1995 and 2009, at a rate of 2.6% annually, as compared with the national rate of 0.6%. Population growth has been concentrated in a few locations (90% of the population live in urban centres) and has resulted in strong spatial polarisation, urban sprawl and tracts of under-utilised land between main urban centres.
35 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Gauteng is not only the most urbanised, but also the wealthiest province in South Africa. It is a major determinant and contributor of economic and social development in the country and is classified as Africa’s fourth largest economy after South Africa, Egypt and Algeria. It is generally acknowledged as the economic hub of the sub-continent and SADC region. Gauteng contributes 33% to the national economy of South Africa, and a phenomenal 10% to the GDP of the entire African continent; while the City of Johannesburg contributes 49% of the total provincial GDP. This is followed by Tshwane at 25% and Ekurhuleni at 19%.
The three major sectors contributing to the provincial GDP are Finance, Real Estate and Business Services (contributing 24% of the total GDP of the province), followed by Manufacturing (21%) and Wholesale and Retail (16%). Gauteng is the financial capital of Africa with more than 70 foreign banks that have their head offices in the province and at least that number of South African banks, stockbrokers and insurance giants. The JSE in Johannesburg is the 17th largest stock exchange in the world by market capitalisation.
About 75% of manufacturing companies in South Africa are located in Gauteng. Gauteng also plays a pivotal role in the region and sub-Saharan Africa from a logistical perspective, due to the OR Tambo International Airport and a number of existing Regional Distribution Centres like the City Deep container depots.
About 58% of the population in Gauteng is economically active. The highest unemployment rate and number of unemployed people are currently found in Ekurhuleni (about 600,000 affected), while about 48% of all job opportunities in the province are currently located in Johannesburg, followed by Tshwane (24%), and Ekurhuleni (21%).
4.3.2 Spatial Structure
Figure 4.4 depicts the spatial structure of Gauteng. The first important feature to note is the regional open space network in the province which includes a number of nature reserves and conservation areas that act as strong structuring elements. This will guide, direct and influence future spatial development patterns. The most prominent of these features are the Dinokeng Nature Reserve initiative located to the north-east of City of Tshwane; the Cradle of Humankind to the north-west to the City of Joburg; the Magalies mountain range which runs through the City of Tshwane from west to east; the Rietvlei Dam Nature Reserve which is located to the south-east of the City of Tshwane; and the
36 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Suikerbosrand Nature Reserve which is located to the south of the Ekurhuleni Metropolitan area.
Figure 4.4 – Gauteng Spatial Structure
The core area in terms of economic activity within the province is located in the triangular area defined by the CBD of the City of Tshwane, the CBD of the City of Johannesburg and the OR Tambo International Airport in the Ekurhuleni Metropolitan Area. As is clearly evident from Figure 4.5, there are three major concentrations of economic activities in the province: one around the central parts of the City of Tshwane, the second one in the central part of the Ekurhuleni-Johannesburg Metropolitan complex, and the third, smaller
37 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 concentration is located towards the south of the province in the Emfuleni (Vereeniging- Vanderbijlpark) area. Apart from these major clusters of economic activity, there are a few smaller, decentralised activity nodes located in the peripheral areas of the province.
Figure 4.5 – Major Economic Concentrations in Gauteng
38 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The major concentrations of business (office and retail) development occur in the north- western suburbs of the City of Johannesburg and the south-eastern parts of the City of Tshwane. As far as industrial development is concerned, the major features reflected in Figure 4.5 include the north-south and east-west axis of industrial development, which converges in the vicinity of Germiston in Ekurhuleni. The east-west industrial belt extends from Chamdor in the West Rand area right through the City of Johannesburg to Springs and Nigel in the east; while the north-south belt extends from Olifantsfontein in the north, southwards past Isando-Spartan and Wadeville-Alrode, and along the R59 Corridor through Meyerton (Midvaal), and up to the Emfuleni (Vereeniging-Vanderbijlpark) industrial complex in the Sedibeng District Municipality.
Apart from this major industrial footprint in the province, there are also several smaller industrial areas located to the north-west of the City of Johannesburg around Laserpark, Kaya Sands, and Kyalami, as well as along the N1-Midrand Corridor extending towards Centurion in the central part of the province. In the City of Tshwane the four major industrial areas include Pretoria West, the Silverton-Watloo complex to the east, the Rosslyn industrial area located towards the north-west in the vicinity of Soshanguve, and Ekandustria near Bronkhorstpruit.
The Province has historically been a major mining region, with a large proportion of land use and economic development funded by gold production. However, declining production and increasing costs threaten the viability of several mines, so the overall opportunities for employment have significantly reduced. The relatively small geographic size of Gauteng means that the agriculture sector only accounts for a minor percentage of the total GVA. Its potential is further hampered by the lack of adequate water supplies to support intensive farming practices, reducing its level of job opportunities compared with industrial activity.
Although natural tourist attractions form an important economic driver, its role within Gauteng is limited, particularly when compared with the neighbouring provinces of Limpopo and Mpumalanga. Two prominent tourism features include the Cradle of Humankind near Mogale City and the Dinokeng Nature Reserve to the north-west of Tshwane.
39 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 From Figure 4.5 it is also evident that the low income residential areas and associated informal settlements in Gauteng are located on the urban periphery of the major urban settlements. These include the GaRankuwa-Mabopane-Winterveld-Temba complex located to the north-west of the City of Tshwane, and Atteridgeville, Mamelodi and Olievenhoutbos located to the west, east and south-west respectively. In Ekurhuleni the low income communities are clustered together in four main urban complexes: Tembisa to the north-west, Daveyton-Etwatwa to the north-east; Kwatsaduza to the south-east and Katorus to the south-west. In the City of Johannesburg low income communities are mainly concentrated in the Zandspruit and Diepsloot areas to the north-west, Ivory Park (which is functionally part of Tembisa) and Alexandra to the north-east, and Soweto towards the south-west. Towards the south of Soweto low income communities reside in Lawley, Ennerdale and Orange Farm, followed by the Evaton-Sebokeng complex further towards the south in the Sedibeng District Municipality. These settlements form a linear urban conurbation parallel to the N1 South freeway over a distance of approximately 40 kilometres. In the central parts of the Emfuleni urban area are the Bophelong, Boipatong and Sharpeville low income residential areas. Further towards the west of Soweto are Kagiso, Munsieville, Mohlakeng, and Bekkersdal located in the West Rand District Municipality.
4.3.3 Development Trends
The following is a brief summary of the most salient development trends in the Gauteng:
The areas that have seen the bulk of new property investment in recent years are the central, northern and north-western parts of the City of Johannesburg; the eastern, southern and south-eastern parts of the City of Tshwane; and the western parts of the Ekurhuleni Metropolitan Municipality, especially around OR Tambo Airport and southwards towards Boksburg and Germiston; Office development is by and large concentrated in the wealthier north-western suburbs of the City of Johannesburg; followed by the south-eastern suburbs of the City of Tshwane; with the core area around OR Tambo Airport in the Ekurhuleni Metropolitan Municipality a distant third; Mixed-use developments are concentrated in the City of Johannesburg and the City of Tshwane and are located along main roads in high-income areas in these two municipalities;
40 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Residential development, especially of a higher density nature, has focused in the northern, north-western and southern sections of the City of Johannesburg, the eastern and south-eastern parts of the City of Tshwane, and the northern section of the Emfuleni Local Municipality; The three metropolitan cities are home to just below 90% of all households living in informal settlements in the province; Although the Johannesburg CBD has experienced a major slump in building occupancy rates in recent years, there is a renewed interest with major investment planned for the CBD; The majority of new property investment in recent years has been constructed in the central, northern and wealthier north-western parts of the City of Johannesburg, displacing sites at other locations; The Tshwane CBD plays a significant office, retail and administrative function serving the greater Tshwane region. Much of the office development is located to the east, south and southern parts of the City; and The Germiston CBD, Boksburg and OR Tambo International Airport form part of the ‘Ekurhuleni Core Economic Triangle’, which include the proposed future development of an Aerotropolis around the OR Tambo airport.
As Gauteng represents the economic hub of South Africa, most national freeways converge on Gauteng, resulting in a number of national and provincial corridors affecting the study area. These are illustrated on Figure 4.6 below.
The rail commuter system in Gauteng comprises four major links, working together with several shorter feeder systems linking low-income communities to the main system:
An east-west orientated line serving the Witwatersrand from Springs in the east to Randfontein in the west; A north-south link between the Witwatersrand and Tshwane to the north; and Two north-south links between the Witwatersrand and Sedibeng to the south.
41 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 4.6 – Economic Corridors
42 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 4.4 Future Vision and Development Principles
4.4.1 Provincial and Local Development Frameworks
The Gauteng Spatial Development Framework as reflected in Figure 4.7 below represents the future spatial vision for Gauteng. It seeks to achieve the following:
The creation of an integrated open space system and promoting the function of natural systems; The integration of economically disadvantaged communities into the urban system, particularly those on the periphery of the system; The promotion of densification in specific areas to utilise resources more efficiently; The promotion of viable public transport systems and reduction of reliance on private mobility. Noteworthy in this regard is the strong emphasis on densification along the priority public transport routes, especially rail and BRT routes in the Spatial Development Frameworks of Ekurhuleni, Johannesburg and Tshwane; The establishment of a hierarchy of nodes, and supporting existing development nodes; The improvement of linkages and connectivity; Land use-public transport integration through nodal and corridor development; and Growth management that seeks to advance compaction, residential densification, in-fill development and the restriction of sprawl.
4.4.2 Development Principles
The GSDF as reflected on Figure 4.7 is based on the following Development Principles:
The horizontal spatial extent of the urban system is kept tight and an urban edge is placed on outward sprawl; The majority of the province is kept rural for agricultural, recreational, bio- diversity and aquifer management purposes; and The intensity of urban development and the densities at which people are accommodated are increased significantly through time as population increases;
43 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.7 – Gauteng Spatial Development Framework 2007
An integrated open space network is embedded in the urban system as one of the principal spatial ordering principles; Mass public transport is used as a fundamental shaper of the urban structure with the existing rail systems and BRT routes forming the basis of the movement system; Urban structuring elements (consolidation zones, urban corridors, urban activity nodes, activity spines) are defined to create a ‘skeleton’ on which urban development/redevelopment takes place over time; Strong relationships between movement, particularly public transport routes and urban intensification, are formed as public transport routes become the priority areas for densification and infill development; and The shape and pattern of the urban system’s existing and proposed road network is used to reinforce and shape the urban form.
44 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
It is important to note from the above principles the strong emphasis on public transport becoming the basis of the movement system in the province; and urban corridors, activity spines and public transport routes creating the “skeleton” for future process of densification and intensification. This would also include Transit Oriented Development around railway stations.
4.4.3 Strategic Initiatives
The GSDF identifies several strategic initiatives focused on implementation within the next 5 to 10 years, which relate to urban structuring and priority action areas. These initiatives are regarded as the primary spatial focal points to act as catalysts in terms of significant urban transformation in Gauteng over the next decade. Following is a brief overview of these projects/initiatives as depicted on Figure 4.8.
The continued growth and expansion of the Rosslyn Industrial Node which should serve as an urban anchor to support the large concentration of low income communities located to the north of the City of Tshwane. This node is located at the intersection between the Maputo Corridor (N4) and the Mabopane Freeway (PWV9); The Lanseria Airport holds enormous potential for economic and residential development with an estimated residential capacity of about 30 000 households. It is already acknowledged as a future metropolitan node to the City of Johannesburg. At present the major development constraint is the lack of bulk water, sanitation and electricity infrastructure to the area; The Modderfontein consolidation and infill development which holds development capacity in excess of 50 000 residential units. This area could also be expanded northwards onto the agricultural holdings of President Park, Austin View and Glen Austin in the future. It is strategically located in the central part of the economic core triangle of Gauteng Province being bordered by the N1 to the west, R24 towards the south, and R21 towards the east. It is also served by Gautrain and PRASA passenger rail services. This area represents a large-scale mixed use infill development opportunity between the three major activity nodes in Gauteng Province-Joburg CBD, Tshwane CBD and OR Tambo Aerotropolis;
45 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.8 – Strategic Initiatives
The R21 development corridor between Tshwane and Ekurhuleni currently attracts significant private investment with a wide range of economic activities establishing along this route; The OR Tambo Aerotropolis is a new initiative intended to further intensify and optimally utilise the economic benefits to be derived from the OR Tambo Airport and surrounds. This is expected to become the third large activity node within Gauteng Province, at similar scale to the Inner Cities of Joburg and Tshwane; The Waterfall node to the south of Gauteng Province along the R59 development corridor is an emerging activity node which recently attracted a large investment with the Heineken brewery plant being established here. This represents the first phase of a longer term initiative driven by the Midvaal Local Municipality to promote corridor development along route R59; Along the N1 south in the vicinity of Ennerdale, the City of Joburg intends to initiate the development of a mixed-use activity node in close proximity to the Ennerdale and Orange Farm communities next to the N1 Freeway. This is an effort to promote local economic development in the southern parts of the City of Joburg which would 46 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 enhance the economic sustainability of the large concentrations of low income communities residing in this area; The Chamdor node has a predominant industrial focus and forms part of a cross- border initiative between the City of Joburg and the Mogale City Local Municipality with large housing projects like Lufhereng, Leratong, as well as extensions of Kagiso being located in close proximity. The proposed extension of the Naledi railway line to link up to this node is also being investigated; The City of Tshwane identified the areas around the Temba-Hammanskraal railway station, the Mabopane railway station, as well as the Kopanong railway station further towards the south in Klip-Kruisfontein as future activity nodes intended to support the surrounding low income communities. Applications for Neighbourhood Partnership Development Grant initiatives have been approved for these three areas, and some of the urban renewal initiatives are currently underway. Large parcels of council owned land, especially in the Temba-Hammanskraal area will also be made available to the private sector to enhance investment in these areas; The Western Mining Belt in the City of Joburg currently attracts extensive development interest, specifically for low and middle income residential development. In the far western parts of the mining belt south of the Roodepoort CBD current housing projects at different stages of planning total about 26 000 units. As the development potential of the mining belt is exploited more and more, the need to create a proper east-west link through this area by way of the N17 western extension becomes more prominent; Following from the above, the Gauteng Spatial Development Framework highlights the need for a continuous ring road through the southern parts of the Gauteng City Region which would link the existing and/or proposed nodes at Chamdor, Ennerdale, and Klip River, to the Aerotropolis located around the OR Tambo International Airport. This ring road will not only enhance the economic potential of these areas by improving access and accessibility to the individual nodes, but it will also provide a functional link between the N1 and route R59 which will offer the low income communities in the southern parts of the City of Joburg access to a wider range of economic opportunities in the province; With the increased importance of the Lanseria node in the north-western parts of the City of Joburg, there is also interest to establish a mass transport service between Sandton and Lanseria through the Fourways area. This could be done as an extension of the existing BRT initiative of the City of Joburg; 47 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Within the inner cities of the City of Tshwane and the City of Joburg there is potential to create/enhance a local ring-rail system/loop which would enhance and fully utilise the development potential in the surrounding areas; The functional extension of the existing Mabopane railway line to link up to Temba in the north and eventually create a circular rail system through the far northern parts of the City of Tshwane is also one of the priority projects emanating from the Gauteng Spatial Development Framework. Not noted in the GSDF is the potential to establish a rail system along the existing Moloto road to serve the communities of Thembisile and Dr JS Moroka to the north-east of Tshwane; and Apart from the above, the upgrading of activity nodes in peripheral townships like Mamelodi, Atteridgeville, Alexandra, Soweto and Katorus is also high on the agenda of the Gauteng Spatial Development Framework. The Neighbourhood Partnership Development Grant managed by National Treasury already contributes significantly towards this initiative.
4.5 Future Land Use Development Options
As far as future land use development options for Gauteng are concerned there are basically two alternatives. The first alternative represents a continuation of existing development trends which is predominantly private transport based with limited urban densification taking place and as a result the gradual expansion of the Gauteng urban footprint continues.
The alternative, which is supported by the Gauteng Spatial Development Framework and the Spatial Development Frameworks of all the metropolitan and district municipalities in the province is to use public transport as the backbone to the future urban structure of the province, leading to densification and infill development along all major public transport routes and Transit Oriented Development around railway stations. As a result of the higher densities and intensification of uses pressure on outward sprawl of the urban footprint is limited and a compact city is established.
48 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 5 PRINCIPLES AND DEPARTURE POINTS FOR GTIP5
Principles and departure points that provide the basis for the development of the 25-year Integrated Transport Master Plan for Gauteng are presented in this chapter. These are meant to underpin the Integrated Network Plan and guide the various components and the integrated network plans, albeit the commuter rail, public transport, freight and roads networks and the development thereof.
The principles and departure points are to a large extent derived from the key policy directions outlined in Chapter 3. This is in the sense that it also provides a more tangible understanding of the “new” integrated transport system and its key characteristics. On a strategic level, the whole set of principles are aimed to facilitate, enhance and promote the following general policy prerogatives, as part of the development of the ITMP25 network proposals:
Transformation and restructuring of the urban community and social integration of society; Being “smart” by using scarce resources more effectively and application of suitable technology; and A more sustainable Global City Region.
The principles and departure points are in many instances cross-cutting and are applicable to more than one component of the ITMP25, such as transport network hierarchy and continuity, whereas others are network or transport mode specific.
5.1 Economic Development
Departure points for the ITMP25, with respect to economic development and the development of the integrated transport system for the Gauteng City Region as being a catalyst in facilitating this, are as follows:
Production competitiveness across the manufacturing, retail, and service industry sectors are to be enhanced, by improving mobility and access; Household welfare are to be improved, by improving mobility and access to opportunities, goods and services;
49 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Transport and the manner in which the system evolves contributes to the strengthening of the economy (efficiency gains, employment creation and attraction of foreign direct investment); Underpins and support growth corridors and nodes; Barriers to travel are to be lowered (more convenient, faster and cheaper to travel); Road safety is to be improved and road accidents reduced; and A reduction of congestion and travel delays.
5.2 Land Use
For the future sustainability and efficiency of the Gauteng City Region, the integration and interaction between the urban structure and the development of land in relation to the transport system are very important. In this regard the departure points are as follows:
Mass public transport are to be used to shape the urban structure (rail and BRT networks and nodes to form the basis); Urban structuring elements such as urban corridors, urban activity nodes and activity spines are used to defined a basis for future urban development or redevelopment; Strong relationships between movement, particularly public transport routes and urban intensification, are formed; and Key public transport corridors and nodes will guide the densification of land use.
5.3 Transport Network Hierarchy
The integrated transport networks for the future of Gauteng are to provide for:
Rail being the backbone of an integrated multi-modal system; Creation of a clear Public Transport Network hierarchy that provides a balance between mobility and accessibility, through optimal deployment of modes onto the network; and A hierarchy of roads that provides mobility roads (Class 1 and Class 2) and roads, which enhances accessibility (Class 4 and 5) with Class 3 roads that provided a balance between mobility and access. 50 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 5.4 Network Continuity
The integrated transport networks across the Global City Region provide for:
Seamless and convenient travel, from one municipal area to another, as well as across provincial boundaries; and A transport system that allows for continuity of travel across the province in terms of road network; public transport systems and services; and freight and logistic networks.
5.5 Public Transport Specific
Principles for the development of the integrated public transport networks, which includes commuter rail and road-based public transport modes, are based on the following:
Coordinated and integrated planning, integration and funding; Seamless and convenient travel; Well developed interchanges and stations (i.e. with Transit Oriented Developments and Transit Oriented Housing); Optimal utilisation of existing infrastructure; Avoidance of duplication/parallel subsidised services. (modes should complement each other, and not compete); Appropriate deployment of modes to suit demand and travel distance (All corridor feasibility studies to consider alternative technologies such as express bus, light rail transit, etc.); Equitable and targeted allocation of financial support in such a way that transport becomes affordable to everyone; Effectively regulated; Provision for universal access on normal scheduled services; Promotion of environmental sustainability through the modes and technologies deployed on the Network; and Provision for the “last mile” access to public transport in terms of Non-Motorised Transport and Accessible Transport.
51 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 5.6 Freight Transport Specific
The freight transport network and its future development are to provide for:
The decrease in the number of heavy freight vehicles in the urban core areas and central business districts by providing freight hubs, and road and rail mobility on the periphery of the Global City Region; Establishment of freight intermodal facilities on the northern and eastern periphery of Gauteng; Adequate linkages for inter-provincial and cross-border freight (for example, Gauteng - KZN Corridor); Supporting infrastructure to freight intermodal facilities; Equitable and targeted allocation of financial support; Adequate public transport to the planned freight intermodal facilities and associated developments; and Coordinated planning and integration between authorities.
5.7 Road Network Specific
The road network specific principles and departure points are:
Acceptable levels of service during peak hour travel i.e. LOS D or better; Accommodation of heavy vehicles, private vehicles and public transport; Provision for non-motorised users on the Class 2 to 5 network; Provision of priority measures for higher occupancy vehicles where appropriate; Management of congestion and focus on the promotion public transport; Sustainable infrastructure maintenance program; and Effective use of existing and future freeway road space.
5.8 Airports
The development of the aviation network and airports to adequately serve the Gauteng City Region must be able to accommodate growth in both passenger and air traffic beyond 2037 in terms of:
52 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Airport capacities; Airspace management; and Land side implications (passengers access and freight hubs and terminals).
5.9 Non-Motorised Transport (NMT)
Safe, secure and convenient NMT facilities characterised by operational features such as continuity, connectivity, accessibility, comfortable and convenience are to be mandated through Provincial and Municipal regulations. As a result, every development application must provide for NMT and accessibility infrastructure.
5.10 Standards
Standards for the integrated transport network must facilitate efficiency, convenience, acceptable service levels and sustainability, and must include: Road cross-section making adequate allowance for private cars and freight vehicles; public transport infrastructure and facilities; NMT facilities; accessibility facilities; and urban design and greening; Minimum service levels for public transport (punctuality, reliability, over-crowding) and freight; Minimum standards for rolling-stock (rail, BRT, bus); adequate levels of safety and security (i.e. on public transport, at freight hubs, etc); and Effective infrastructure and facility operations and maintenance.
5.11 Sustainable Transport Solutions
Sustainable transport solutions must facilitate: Promotion of environmental sustainability through the modes and technologies deployed on the network; Greening of transport and reducing traffic congestion through the popularising of cycling and short distance walking trips to destinations; using NMT modes (walking and cycling) as feeder systems to public transport; Application of Travel Demand Management and Transport System Management; and Utilisation of “sustainable power sources” for transport facilities, amenities and equipment. 53 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 6 5-YEAR GAUTENG TRANSPORT IMPLEMENTATION PLAN (GTIP5)
6.1 Key Short-Term Initiatives
The 25-year Integrated Transport Master Plan (ITMP25) will contain a full Implementation Strategy for the transformation of the transport system in Gauteng over the next 25 years. However, given the current state of transport in the Gauteng City Region and the associated pressing problems and challenges, some urgent interventions are required.
In order to be decisive and pro-active in dealing with the current transport challenges, as well as accelerating the development of the transport system that underpins the development of the Gauteng City Region, this chapter proposes a number of key initiatives and projects that should be considered for implementation in the immediate future. It consists of three types of initiatives and projects, namely:
Key short-term initiatives, which will alleviate “bottle-necks” in the short- to medium- term; Key transport capital projects to be supported in the short to medium term; and Lists of all approved transport capital projects on budgets of government departments, agencies and entities.
Collectively, these key initiatives constitute the 5-Year Gauteng Transport Implementation Plan (GTIP5), which are being recommended for consideration by the Gauteng Department of Roads and Transport. These initiatives were identified and based on:
A scan and assessment of all existing and approved transport plans applicable to the Gauteng City Region; and Recent inputs and participation of stakeholders and role-players in workshops on transport matters.
All the proposed initiatives fall within the provincial government’s core functions, as well as where the province can influence the development of an integrated transport network for the Gauteng, as part of its transport coordination role.
54 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The proposed initiatives are founded in the following prerequisites and will enhance and promote:
Transformation and restructuring of the urban community; Social integration of society; Being “smart” by using scarce resources more effectively and application of suitable technology; and Promotion of a more sustainable Gauteng City Region.
Projects to be implemented in the short- to medium-term are aimed to “alleviate” bottlenecks or address prevailing and pressing transport issues or problems, but with the intention not to compromise the development of the integrated transport network proposals for the ITMP25.
The recommended key initiatives are listed in Table 6.1 below and should be considered by the Gauteng Department of Roads and Transport for urgent implementation.
Table 6.1 – Key Implementation Initiatives
Initiatives and Key Focus Areas
1. Transport Authority for Gauteng 1.1 Provincial-wide Public Transport Information Centre
1.2 “One Province One Ticket” 2. Integration with the Commuter Rail Corridor Modernisation Project of PRASA 3. Restructured Subsidised Road-based Public Transport 4. Transformation of the Taxi Industry 5. Greener Public Transport Vehicles Technologies 6. Travel Demand Management, Less Congestions and Shorter Travel Times
7. Access to Major Freight Nodes 8. International and City Airports
9. Pedestrian Paths and Cycle Ways 10. Continued Provincial Wide Mobility 11. Effective Management of Existing Transport Infrastructure
55 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Each of the above-mentioned key short-term initiatives is discussed under the following sub-headings:
Status Quo assessment; Departure points; Description of the initiative; and Typical projects and actions.
6.1.1 Establishment of a Provincial Transport Authority
(a) Need for Co-ordination and Integration
In contrast to other cities in South Africa, Gauteng City Region is unique in the sense that it spreads across a significant portion of the province. Whereas eThekwini and Cape Town are comprised of one central metropolis surrounded by smaller urban areas, Gauteng consists of three metropolitan municipalities and multiple district and local municipalities ranging from peri-urban to high density in nature. Each of the municipalities is at different levels of transport planning and implementation, resulting in fragmented and uncoordinated service delivery.
The transport challenges that Gauteng is facing can be ascribed to the lack of cross- municipal boundary integration of public transport services. Improved public transport accessibility, affordability, consistency and safety is required to give effect to redressing apartheid spatial planning; allowing economic growth; and reducing economic and social opportunity cost for communities to access economic opportunities.
At present, the province is responsible for the Provincial Land Transport Framework (PLTF) and the performance of all regulatory functions pertaining to public transport. The provincial government is the Contracting Authority in respect of the main commuter bus services operating across municipal boundaries in Gauteng; the Gautrain Management Agency; and the Provincial Regulation Entity (PRE).
The metropolitan and local municipalities are responsible for Integrated Transport Plans (ITP) and Integrated Public Transport Network Plans (IPTNs) pertaining to their areas of jurisdiction. Metropolitan and Local ITPs in turn inform the need to align with the PLTF.
56 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Metropolitan municipalities also act as Contracting Authorities in respect of some public transport services in their areas of jurisdiction, such as bus operations, municipal bus operations and Bus Rapid Transit operations. Metropolitan and local municipalities also fulfil a critical role in the regulatory and law enforcement processes. The relatively strong autonomy of metropolitan and local municipalities over practical matters such as fare management systems and traffic management systems point to the fact that the Gauteng City Region requires a public transport governance and management model that institutionalizes cooperation in respect of planning, regulation and contracting.
(b) Departure Points
Against the backdrop of the Constitutional and Legislative provisions, it is imperative that the discussion of appropriate institutional arrangements for the governance and management of public transport in the Gauteng City Region be informed by the following principles for the proposed institutional arrangements:
Facilitate co-governance and co-ownership of transport, or at least public transport; Not undermine the legislative duties and accountability of the participating institutions; Not seek to remove powers or revenue from participating institutions; Facilitate greater equity and inter-operability with respect to public transport; Facilitate the appropriate allocation of Public Transport powers, duties and functions, and this must be followed by a corresponding allocation of resources; Combine functions where economies of scale can be achieved and must seek to separate functions where separation of powers, duties and functions is required to ensure good governance (e.g. Contracting and Regulation); Legal institutional arrangements, which draws on the Constitutional and legislative provisions for cooperative governance; and Enhance and unlock own funding for public transport.
57 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) A Provincial Transport Authority
Addressing the fragmentation of the public transport governance and management in a polycentric region through appropriate institutional arrangements is thus the key way forward for Gauteng, and may take the form of a Gauteng Public Transport Authority. The first step in working towards a Gauteng Transport Authority is assessing and obtaining agreement amongst all stakeholders in such an institutional structure.
In assessing the institutional options discussed latter in this report, the legality, complexity, time and costs involved and the “disruptive implications” of each option needs to be considered carefully.
6.1.2 Integrated Passenger Information and Communication
(a) Lack of Integrated Passenger Information and Communication
The potential for collecting and integrating passenger travel information has always existed, but never realised because complex surveys were necessary to record this data. However, this problem has been resolved with the advent of Integrated Fare Management and, in particular, the requirement for fare collection systems to comply with National AFC Regulations through the of use bank issued fare media. Many such electronic fare collection systems calculate and deduct a passenger’s public transport fare through a “tap- on tap-off” process. With the aid of vehicle satellite tracking systems this data translates into information on passenger travel patterns and volumes.
All that is required is for a central data warehouse to be established in order to collect and collate this passenger travel data from different operators. The data can then be analysed to produce passenger travel information and real-time data for schedule information systems at stations and on-board busses. The advent of fast, reliable and affordable wireless/Internet communication has made it possible for travel information to be disseminated timeously and reliably via mobile phone (sms or social media), web sites and electronic signs.
58 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (b) Departure Points
Firstly, the use of an integrated, bank issued fare media must be established, through compliance with National AFC Regulations, followed by a Provincial Public Transport Data Warehouse. This will ensure the centralised collection of passenger data, to be disseminated as required once analysed. A Passenger Information Call Centre would be one means of co-ordinating the dissemination of such travel information.
(c) A Provincial Passenger Information Call Centre
The core of this initiative is the setting up of a Provincial Passenger Information Call Centre, which could assist public transport passengers with service information. It may even go to the extent of providing “real time” information. The Call Centre should be linked to a “back office”, which is linked to various information sources; manages an extensive transport data basis; and possesses efficient reporting capacity. It should also have the ability to disseminate information on a “real time” and “historic” basis. It should accommodate the national data structure and data collected through and integrated public transport ticketing system and EMV card application. The “historic” information should not only be available for passenger information and communication purposes, but also for tactical and operational planning of services, as well as the management of operations.
Many transport authorities have an existing Traffic Management Centre (TMC), which can also be used as an information source for a Passenger Information Call Centre and there are good reasons for these functions to be integrated.
(d) Projects and Actions
The action and projects related to the setting up of a Provincial Passenger Transport Call Centre and associated “back office” is:
Development of a “centralised” GIS, containing transport information for the province as a whole; Establishment of an Advanced Public Transport Management Systems (APTMS), including Fleet management, GPS and vehicle satellite tracking systems; Technical and operational scoping of a Provincial Public Transport Data Warehouse
59 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Development of a National Operational Concept for Integrated Passenger Information and Communication; contract for technical integration of passenger information, and contract for operation and maintenance of Integrated Passenger Information System; and Setting up of the Call Centre and supporting Back Office.
6.1.3 Integrated Public Transport Tickets
(a) Status of Integrated Fare Management (IFM) Framework
In April 2011, Gauteng Department of Roads and Transport undertook the "Completion of Public Transport Systems Planning and Development of an Integrated and Interoperable Fare Management Framework", which was the successor to a previous desktop study.
The objective of Integrated Fare Management (IFM) is to make it possible for seamless travel and transfer across an entire journey using a single fare media (and possibly a single fare) for different operators and modes of transportation. Furthermore, it is to promote an integrated fare collection system that will improve the transit experience and convenience for commuters. The IFM approach is to make public transportation systems more efficient by reducing the need for cash and cash management, and improving boarding times, which in turn reduces delays leading to better schedule adherence.
IFM relates to multiple operators (and multiple modes such as bus, rail, taxi) who deploy and accept the same fare collection mechanism for public transport services within a defined region. This type of system allows customers to travel throughout the region in a seamless manner. At a minimum, the use of a common fare media permits commuters to load individual Transit Products (e-Tickets or passes) from multiple operators as well as e- Money (electronic cash for fare payment) onto a single card.
IFM not only facilitates an efficient public transport service, but also supports the secure storage of fare transactions to provide information on public transport operations and commuter travel patterns. This facilitates the better planning of routes and integrated schedules and provides operators with the intelligence and insight they need to visualise trends in usage, enabling them to optimize the use of the assets and networks.
60 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Successful IFM involves coordination and cooperation among stakeholders to ensure that formal institutional arrangements are understood and are in place. This will ensure the effective management and transformation of transport related institutions, systems and processes (including subsidy management systems) and assist in a smooth transition from legacy fare management systems.
The purpose of the IFM Framework is to establish a common basis and vision from which to promote and execute Integrated Fare Management, towards establishing an integrated public transport system in Gauteng. The framework is being developed on a provincial level (to ensure consistency for strategic components), although operational components of the framework will be carried out primarily at a municipal level.
The IFM Framework identifies the strategic issues to be addressed in the development and delivery of interoperable fare payment media. It addresses the key objectives of the Gauteng Department of Roads and Transport for the introduction of integrated and interoperable fare payment for the province. This initiative focuses on the integration of all aspects of electronic fare payment systems in public transport, particularly the requirement that these systems must comply with the recently gazetted National AFC Regulations.
Development of this framework required consultation and cooperation with key stakeholders, in order to understand their existing services and what measures would be required for them to be compliant with the National AFC Regulations and to ensure interoperability with other IFM related technologies that are currently being installed. These consultations facilitated the undertaking of Institutional Agreements with stakeholders and preparation of User Requirements. This IFM Framework document is currently in draft form and will be finalised by August 2012.
(b) Departure Points
(i) Integration in Public Transport
The IFM Framework should be used as a tool to direct the deployment of IFM across Gauteng to ensure compliance within 5 years of legacy AFC systems. It should ensure that all new electronic fare payment systems comply immediately with the National AFC Regulations. In achieving a fully integrated solution for Public Transport fare payment, it is
61 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 important to consider that there are four different levels of integration required, as depicted in Figure 6.1.
Figure 6.1 - Forms of Integration
Fare Fare Media Travel Info Fare Structure Integration Integration Integration Integration
data
In terms of the way forward two critical IFM components have to be deployed immediately to assist in achieving integration in public transport, namely, Fare Media Integration; and Travel Information Integration. The IFM Framework describes what is required to achieve these two levels of integration, as well as additional components (Fare Structure Integration and Fare Integration) that would be required for a fully integrated public transport system.
(ii) Provincial Data Warehouse
A Provincial Data Warehouse should be established where all public transport related transactions can be stored, consolidated and analysed. This is an important step in achieving general public transport integration and will facilitate the central management of aggregated transportation data for strategic planning; reporting; transport policy; and providing accurate travel information.
(iii) Provincial Public Transportation Integration Committee
A Provincial Public Transport Integration Committee should be established to take the integration process forward, along with other strategic provincial integration initiatives. There is a dire need for a forum to manage transportation integration across Gauteng and such a Committee should include key stakeholders such as PRASA, Metropolitan Authorities the Gauteng Department of Roads and Transport and Gautrain. However, it will be necessary to establish a clear mandate for this Provincial Public Transport Integration Committee through the ITMP25 and also determine its possible association with the proposed Gauteng Transport Authority.
62 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) “One Province One Ticket”
The vision for IFM in Gauteng should maximise the accessibility and convenience of public transport, while also offering value for money. The slogan, “One Province-One Tariff-One Ticket” encapsulates this vision. In order to realise this vision, the following actions should be prioritised:
Fare Media Integration - promote and market the IFM Framework for the deployment of fare collection systems that are compliant with the National AFC Regulations, thereby ensuring Fare Media Integration; Travel Information Integration - Establish a Provincial Data Warehouse for receiving fare collection data from the compliant operator’s fare collection systems, thereby facilitating Travel Information Integration; and “One Tariff” - This refers to Fare Integration (where the commuter pays a single fare for complete journey, using the services of more than one transport Operator or mode of transport) and requires other measures to be in place, such as Fare Structure Integration. As such the concept of “One Tariff” can only be implemented at a much later stage.
(d) Actions
Entrench the Gauteng IFM Framework Strategy in the ITMP 25. This will ensure, not only the immediate “quick wins” of Fare Media Integration (i.e. seamless travel between modes using a single card) and Travel Information Integration, but also the longer term goal of fully Integrated Public Transport through implementing Fare Structure Integration and Fare Integration.
Establish a Provincial Public Transport Integration Committee through the ITMP25 process. This may be the ideal forum to facilitate establishing such a Committee, which would include IFM deployment in its mandate. As such this Committee would also consider IFM matters such as a branded Gauteng fare payment media and identifying aspects of public transport where interoperability needs to be addressed.
63 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 6.1.4 Integration with the Rail Corridor Modernisation
(a) Commuter Rail Planning
Commuter rail services have reached a state where the role that this mode is able to play and to contribute towards transport is diminishing. This is as a result of the reported under- investment in the commuter rail system. As the commuter rail network is viewed in terms of stated government policy as the “back-bone” of the public transport system, this trend clearly needs to be redressed. In 2006, the Department of Transport accepted a national rail plan, which prioritised commuter rail corridors into Categories A, B and C for investment and development purposes with a view to focussing significant investment into the Category A Corridors. This was further refined into a Master Plan, whereby PRASA prioritised three Category A Corridors on the Gauteng rail network into a so-called “super corridors”, to spearhead its modernisation drive. This includes the Mabopane-Pretoria; Pretoria-Germiston- Johannesburg (including Tembisa); and Johannesburg - Soweto corridors, as shown below in Figure 6.2.
The critical priorities for PRASA over the next three to five years include the modernization of the existing passenger railway system and the introduction as well as the implementation of new passenger rail technology. The modernization of the signalling, telecommunication system, rolling stock and train operating systems will lay the foundation for a modern, efficient and sustainable rail transport system in Gauteng.
A major component of the PRASA Rail Corridor Modernisation initiative is the revitalisation of the aging train fleet (rolling-stock). The first new train sets are expected by 2015 and will be deployed on these priority corridors.
Over R4bn has also been earmarked for the modernisation of track, signalling and electrical infrastructure. It also includes the improvement of access to stations and the upgrade of station facilities and amenities. A number of these station upgrades include joint project development with Gauteng Provincial Government and local authorities to create fully integrated intermodal facilities at stations.
64 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 6.2 - PRASA “Super Corridor”
Given the key role that the commuter rail system is and will in future play in providing mobility across the Gauteng City Region, this initiative needs to be supported and aligned and integrated with other public transport initiatives undertaken in the province. This inter alia includes the integration with the integrated road-based public transport network, ticket system and passenger information and communication.
(b) Departure Points
PRASA’s objective is to create a fresh new service experience for the commuter rail service users and to attract passengers back to the rail mode of transport. This is also viewed as a pilot project to change their approach towards operational planning and management of services. The vision for this corridor is that safe, reliable, affordable and comfortable rail transport should be delivered at global standards of quality and reliability. In addition, this vision implies that PRASA intends to achieve the following:
Extended hours of service;
65 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Improved travel times, improved customer experience and improved security and uncompromised safety on trains and on rail stations, including railway station precincts; Improved service levels in terms of reliability, availability and predictability (i.e. punctuality to at least 98% right time arrivals at all times and zero cancellations). Full system accessibility; Provide capacity to ultimately move 60 000 - 80000 passengers per hour in peak periods; Modal integration, seamless transfer between different modes and coordination with planning authorities and public transport operators; Transit oriented development around stations and improved business sustainability; Dedicated passenger rail corridor to reaffirm rail as the backbone of an integrated multi-modal system; and Green corridor.
(c) Integration with the Modernisation of the Passenger Rail Corridor
The initiative to support PRASA’s Modernisation of the Passenger Rail Corridor and to integrate therewith is based on the coordination and alignment with other public transport initiatives undertaken in Gauteng. This inter alia includes:
Integration with the integrated road-based public transport network (IPTN) at key stations; Effective road linkage to key stations (where required); Integrated public transport ticketing; Integrated passenger information and communication; Creation of a fresh new service experience for the commuter rail service users to attract passengers back to the rail mode of transport; and Initiation of a pilot project to demonstrate a changed approach towards capacity and operational planning and management to meet the public transport requirements for the respective cities.
Furthermore, this initiative is supported as it is more than just the modernisation of the identified super rail corridor in Gauteng. It is about two key economic catalysts for the province, namely, improved mobility and increased economic activity in the corridor 66 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 facilitated by the transport sector, which could result in significant job creation opportunities.
(d) Actions
The following actions and sub-initiatives should inter-alia form part of province’s pro-active support of PRASA’s Rail Corridor Modernisation in Gauteng:
Creation of joint planning and monitoring forums to coordinate all transport and integration related activities, which includes all key role-players; Agreement on a joint corridor vision between all role-players and PRASA; Agreement with PRASA on the main stations on the corridor to be focussed on (i.e. Germiston, Vereeniging, Roodepoort and Leralla); Support of PRASA’s full implementation of the Gauteng Re-signalling (Phase 1 and Phase 2) programme; Encouragement of PRASA to operate express trains between these higher order stations on the corridor; Encouragement of PRASA to finalise the automatic fare collection system investigation and to proceed with the implementation of an integrated pilot project; Consider key stations as integrated multi-modal transfer facilities and identification of those that could be targeted for Transit Orientated Developments (TODs); Alignment with the road-based public transport planning and the IPTN development; Ensure integrated provision of passenger service information on this corridor. This should be the first integrated service to be addressed when a Transport Information Call Centre is established in Gauteng; Investigation of road and NMT access to key stations; and Ensure that signage to and from these stations are improved.
67 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 6.1.5 Restructuring of Subsidised Bus Contracts
(a) Status Quo of Subsidised Bus Contracts
Subsidised commuter bus services are managed by the Gauteng Department of Roads and Transport in terms of kilometer- based contracts, which have all long expired and have for a number of years been extended on a month-to-month basis. All contracts have been extended and will again expire in September 2012. The letting of new contracts have been delayed for many years, largely as a result of disagreements between organized labour and government on certain contracting terms. These short-term contracting arrangements have created some instability in the bus industry and have discouraged operators to invest in fleet and infrastructure.
The services operated in terms of the current subsidized commuter contracts still largely reflect the pre-1994 era, with very little integration with other public transport services. In order to align the next generation of contracts to be let with the evolving public transport system in Gauteng, the services will require significant restructuring and redesign. Many of the services are not aligned with either the local or provincial IPTN designs. Duplications of services also exist with the BRT lines, which are already in operation in Johannesburg.
However, to promote integration and remove some of the inefficiencies and duplication from the public transport network of services in Gauteng, the restructuring, design and letting of new contracts should be done as soon as possible.
Further, the disaggregated funding dispensation, whereby various modes and types of road-based public transport services are supported operationally does not enhance integration; the sustainability of public transport systems; and the affordability thereof to government. To effectively promote integration amongst modes, a more integrated operational funding dispensation for road-based public transport services is required.
In addition, a range of contracting arrangements for the provision of the various public transport services and the basis for providing operational support (i.e. subsidy allocation mechanisms) are found in Gauteng. For the effective integration and management of road- based public transport services across the Gauteng City Region, a strategy for arriving at a common or shared basis for contracting public transport operators needs to be developed.
68 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Mini-bus taxis, transporting the majority of commuters, are mostly providing “own planned” services, which are often not aligned and/or integrated (but in competition) with most other subsidised public transport services.
(b) Departure Points
The departure points in dealing with the planning and development of an integrated public transport network for the province, which will also provide a basis for the finalisation of a new subsidised road-based commuter contracting dispensation, are;
Commuter rail being the backbone of an integrated multi-modal system; Enables seamless and convenient travel; Public Transport Network hierarchy that provides a balance between mobility and accessibility, through optimal deployment of modes; Provides a transport network that allows for continuity of travel across the province; Integrated operational funding dispensation; A more aligned service provision and contracting arrangements; and Viable and sustainable role for the mini-bus taxi mode.
(c) Rationalisation of the IPTNs
The restructuring of subsidised road-based public transport services will use the finalisation of the Integrated Public Transport Network (IPTN) as a departure point. Thereafter, the implementation thereof will be done through the optimal deployment of modes onto such a network and its corridors in an integrated manner, through operational contracts and other appropriate mechanisms. This will enable all road-based public transport modes to operate more viably and sustainably on restructured routes forming part of the IPTN. As a result, this will deliver on a system that provides a balance between mobility and accessibility, as well as identify routes and corridors which can be “reserved” for mini-bus type services.
(d) Sub-projects
The sub-projects dealing with the restructuring of subsidised road-based public transport services will inter alia include:
69 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Refinement of the Gauteng IPTN; Identification of the appropriate modes to be deployed on the IPTN corridors and links (i.e. rapid bus transport, express bus, bus and mini-bus); Integration of funding strategies for road-based public transport; Strategy for arriving at a common basis for contracting public transport operators; and Development and letting of subsidised contracts for the provision of commuter services.
6.1.6 Transformation of the Mini-bus Taxi Industry
(a) Status of the Mini-bus Taxi Industry
Despite being the largest mover of passengers in Gauteng, the slow rate of reorganisation and formalisation of the industry inter alia impacts on the potential role that mini-bus taxis could play and sustainability of this mode. This causes marginally viable operations and often “destructive” competition. It has also lead to unsafe operations often using old vehicles, which are expensive to maintain. This also has an impact on the efficiency of the transport system as a whole.
Although the inclusion of operators into BRT operating companies has gone some way in transforming the business of taxi operators, other opportunities as part of the IPTN needs to be exploited to put the industry on a more viable footing and provide it with a more sustainable future. However, this will require further restructuring and reorganisation of the industry into larger operating entities (companies), for it to be able to optimally exploit and benefit from participation in more formalised and profitable service opportunities, offer inter alia as part of the establishment of the Provincial IPTN. This may also entail access to further financial support from Government.
(b) Departure Points
The following are departure points for this initiative:
Transformation and restructuring to become more “formalised”; More business opportunities; Training and facilitation; Improved service quality and safety;
70 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Improved viability and sustainability; and Growth.
(c) The Mini-bus Taxis Transformation Initiative
This initiative is aimed at transforming the mini-bus taxi industry and placing it on a more sustainable path to the future through;
Reorganisation and corporatisation strategy; Stream-lined registration and licensing systems; Development of business opportunities on the IPTN, with associated financial support; Implementation of pilot projects; and More effective urban & CBD planning for taxi facilities (ROW, stops, etc.).
6.1.7 Alternative Public Transport Vehicle Propulsion
(a) Current Vehicle Propulsion Technologies
The transport sector is responsible for 34% of the energy use in Gauteng. Its dependence on non-renewable oil resources will lead to a challenging future, if it does not consider the diversification of fuel sources and reduction of greenhouse gas emissions. Present patterns of transportation based on petrol and diesel fuelled vehicles generate social, environmental and economic damage and are highly unsustainable.
A shift in mind-set is needed to move away from the idea of sustaining the present, to actively creating new sources of energy which draw upon renewable energy resources and energy efficiency. These renewable/green technologies are crucial for long-term environmental sustainability, seeing that there are significant new challenges arising from ecological constraints to the business-as-usual approach. Therefore, not only promoting a modal shift towards public transport, but reducing vehicle use and the use of fossil fuels are important interventions to address climate change and to improve the quality of life for present and future generations.
The City of Johannesburg has taken several initiatives to develop and implement biogas technology as alternative energy source and focus will thus be placed on pilot Biogas-to-
71 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Energy projects within the city in order to set a precedent for other districts within Gauteng. The City of Tshwane seems to be following suit with its recent tender specification for IRPTN vehicles. Current projects include the following:
The City of Johannesburg has invested in the development of the Landfill Gas to Energy Clean Development Mechanism Project that will use methane-rich gas to generate renewable energy. Approximately 17MW of power will be generated from the project and is estimated to be sustainable for 15 to 20 years. The project was launched in 2007 with the first infrastructure of this type constructed at the Robinson Deep Landfill Site that has been operational since July 2011. The construction of five Landfill Gas sites is expected to be completed in 2012; Johannesburg Water has launched the Biogas-to-Energy Project to be implemented over a five year period (2012–2017). High performance mesophilic anaerobic digestion including pre-thickening as well as mixed and heated anaerobic digesters with biogas collection and storage facilities will be implemented at its Wastewater Treatment Plants. The two Wastewater Treatment Works earmarked for this project are the Driefontein WWTW and the Northern WWTW; A reputable company has offered to reactivate and operate dormant anaerobic digesters at Johannesburg Water’s waste water treatment plants or Energy Systems collected gas from Johannesburg’s landfill sites. This company will produce clean, concentrated, compressed and transported truck fuel-grade biogas for Metrobus use from either landfills or waste water treatment plants; and The Industrial Development Corporation (IDC) is developing a scheme for the production of biogas at multiple sites and from multiple feed stocks.
It is evident that a coordinated and integrated approach towards alternative public transport vehicle propulsion for Gauteng is required.
(b) Departure Points
One of the key departure points in promoting environmental sustainability is through the modes and technologies deployed on the public transport network.
72 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) “Green Re-fleeting” Strategy
The Green Strategic Programme for Gauteng envisages a province that “provides accessible mobility for all, thereby ensuring proximity to social and economic opportunities by embracing the principles of transport safety, efficiency and sustainability and by developing a well-designed, integrated and well-maintained public transport system that is less dependent on fossil fuels”.
The “Green Re-fleeting” Strategy focuses on measures to shift the energy source for transportation from current non-renewable oil resources to sustainable or ‘clean’ fuels. The aim of the strategy is to reduce transport’s contribution to greenhouse gas emissions by 35% by the year 2020 and 50% by 2040. This strategy focuses on the improvement of vehicles and fuels to not only reduce urban air pollution and greenhouse gas emissions but also to contribute to the green economy and employment and income generation opportunities. Alternative/clean forms of energy that were identified include Natural Gases (Compressed Natural Gas and Liquid Natural Gas), Biofuels (Bio Ethanol and Bio Diesel) and electric vehicles.
The Green Re-fleeting Strategy identified a number of alternative energy initiatives. This strategy envisages the development of the economy by transforming it into a low carbon using, increased resource efficient and socially inclusive economy. Planned projects within Gauteng include:
Bio fuel development and processing facilities; Massive distillery ethanol manufacture plant; Wide distribution of gas to households; and Conversion of public transport vehicles to gas.
Compressed Biogas is the preferred alternative energy source for bus propulsion in terms of the environment and reduction of greenhouse gas emissions. It is naturally produced under controlled circumstances in specially designed biogas digesters. The extended use of biogas for city buses will not only lower emissions and improve inner city air quality, but will also strengthen the role of public transport in an efficient strategy to limit the impact of the transport sector on climate change. Biogas is more sustainable compared to diesel seeing that it has no net emissions of CO2; less than half the emissions of NOx; and 73 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 minimal emissions of hydrocarbons, carbon monoxide and particulates. Production and end-use of this alternative energy source will have a low carbon footprint and will provide cities with an opportunity to use their own waste and wastewater to fuel bus fleets.
(d) Projects and Actions
It is recommended that biogas be investigated as alternative energy source for bus propulsion within Gauteng. The use of biogas for bus propulsion will require the following actions:
A feasibility study is required to determine the feasibility of alternative energy sources, in particular Biogas, as alternative bus propulsion energy to be used in Gauteng; Monitor and evaluate above mentioned pilot projects in terms of feasibility and sustainability, and depending on evaluation outcomes, expand to other districts within Gauteng; Implement, monitor and evaluate a pilot project involving the use of buses fuelled by biogas. Evaluate vehicle performance including emissions and energy consumption of biogas propelled buses; and If buses are to switch to alternative energy for propulsion, the existing Euro III vehicles also have to be converted over time, to run on biogas or buses would have to be replaced by new vehicles. The feasibility of converting existing diesel powered vehicles to gas operated vehicles has to be investigated.
6.1.8 Travel Demand Management (TDM)
(a) Status Quo Assessment
The population of Gauteng is estimated to double by 2037. Two of the policy objectives of government are to reduce poverty and create jobs. Assuming these policies are implemented successfully and as people progress economically, there is a tendency to prefer car ownership over public transport. This will result in private car travel increasing significantly.
Gauteng is the economic hub of Southern Africa. Transportation is the highest contributor to the cost of logistics, while the cost of logistics in South Africa is one of the highest
74 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 relative to global standards. The results of congestion are loss of productivity, higher energy consumption, pollution and loss in family time. Addressing congestion aggressively is important to achieve better quality of life.
The current level of congestion, especially during the peak periods, is high. Fortunately, the Gauteng Freeway Improvement Scheme Phase 1 has provided some relief for regional travel over the medium-term, but will again change for the worse over time if current traffic growth rates are sustained. The morning and evening peak periods are prolonged over three hours respectively, and are spreading even further. There are limited alternative routes in the event of incidents that cause severe congestion.
As choice, public transport services are available to some extent as an alternative to some, but these services are often fragmented, unreliable and unsafe. It may be unrealistic to expect a major shift by the middle and higher income private car users to public transport in the short- to medium term (especially for all trip purposes). Gautrain is currently the best example of a public transport alternative for higher income travellers, but it is limited in terms of geographic reach even with its feeder bus service.
Heavy vehicle freight traffic is also significant contributors to congestion and incidents on the Gauteng network. Gauteng is the economic hub of Southern Africa and high volumes of road freight (local, inter-provincial, and cross-border) is transported to, from and through Gauteng.
Travel demand management (TDM) measures, in addition to the promotion of public transport, are appropriate for the reduction of traffic, travel and creating a more sustainable urban environment. This also contributes to the more effective utilisation of transport infrastructure and scarce resources.
(b) Departure Points
Managing congestion is critical for the socio-economic sustainability of Gauteng and TDM should focus on the effective use of the existing road network; extent and time of travel; distance of travel; and public transportation improvements as priority focus areas.
75 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) Travel Demand Management Strategy
Travel Demand Management strategies in first world economies is concurrent with Transport System Management (TSM) strategies, and generally includes measures such as user-pay (i.e. toll and congestion pricing), higher parking fees, limited inner-city parking, high-occupancy vehicle lanes, high-occupancy toll lanes, telecommuting, reversible lanes, traffic signal optimisation, bus priority at intersections, incident management and application of Intelligent Transport Systems (ITS).
The current global and South African economic circumstances and inequity among South Africans present a challenging dilemma to implement punitive measures like congestion pricing and tolls. There is need for a balanced approach or the “carrot and stick” approach where affordable and effective choices are presented to the users. Gauteng should focus on effective use of the existing road network and providing an improved quality of public transport service. This may also include the spreading of working hours and time of travel.
The key thrust of the Public Transport Action Plan is accelerated modal upgrading which focuses on the 3-7 year transitional period with regard to improving the quality of the public transport fleet and its current operations. In addition, the implementation of TDM requires coordination between the province and the metropolitan municipalities, political commitment, appropriate technical expertise, effective public participation and communication, and budget.
(d) TDM Initiatives and Actions
The following TDM and TSM initiatives are possible with the current road network and public transport system:
Creation of the capacity within the Gauteng Department of Roads and Transport to manage TDM and TSM programmes; Set new standards for public transportation and rationalise municipal public transport corridors according to the new standards (for example, there is currently duplication of services between municipal bus services, provincial subsidised services and taxi operators); Implementation of HOV lanes on parts of the regional road network;
76 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Application of ITS for congestion and incident management (i.e. variable message signs and cell-phone messaging); Support to municipalities with respect to capacity, analysis and funding for TDM related initiatives (i.e. reversible lanes, continuous assessment of traffic signals to optimise signal timing plans and maintenance of traffic signals); Feasibility studies into spreading of working-hours; and Active promotion of integration with land uses development to facilitate densification and mixed use.
6.1.9 Accessibility to Major Freight Nodes
(a) Freight Tends and Requirements
The projected growth in volumes of freight which will be moved into, out of and within Gauteng is significant. This is depicted in Transnet’s latest Market Demand Strategy for the next 7 years as shown in Figure 6.3. The demand for containers, manganese, liquid bulk and automotive freight is directly link to Transnet’s planned port developments.
Figure 6.3 – Transnet Market Demand up to 2018/2019
The trend shown above will lead to tremendous increases in freight traffic on Gauteng roads and freeways, leading to decreased road capacity for other types of traffic, increased congestion and also air pollution. The projected numbers of freight vehicles on
77 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 the strategic road network links in Gauteng in 2037 are shown in Figure 6.4. These numbers are based on a growth rate of 3%. In reality, the current growth rate of container traffic is closer to 5%. This type of traffic can be considered as the fastest growing type in South Africa. Currently, less than 20% of all container traffic is on rail.
Transnet’s freight strategy is based on the establishment and/or strengthening of freight rail terminals located on the periphery of the core urban areas forming part of the Gauteng City Region. The philosophy behind the establishment of freight terminals on the periphery of the urban conurbation is that cargo is moved in bulk to these terminals, where it is then packed into containers for export. As an example, cobalt, cotton and tobacco are transported by road from Zimbabwe to City Deep, where these commodities are packed into containers and transported by rail to the Durban Port. With a newly upgraded terminal at Pyramid, this freight traffic will move to the north of Tshwane, where it will be containerised and railed to Durban. This will take off approximately 50 000 heavy vehicles per annum from the R21.
Figure 6.4 - Heavy Freight Vehicles on Gauteng road network and projected number of vehicles in 2037
78 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The proposed new or upgraded freight terminals will also provide the opportunity to establish light industrial development and office parks around these terminals. This will further create the opportunity for retailers to build their distribution centres at the freight terminals from where final distribution will take place. However, these freight terminals will require an integrated road system for feeding and distribution of smaller consignments of cargo into the central business districts and key commercial nodes. Effective public transports services will also have to link up with these terminals to transport workers there.
(b) Departure Points
The following key principles and departure points should underpin any initiative to provide effective commuter and freight access to major decentralized freight terminals on the northern and eastern periphery of the urban core of the Gauteng City Region;
Decrease in heavy freight vehicles numbers in core urban areas and central business districts; Adequate linkages outside the province (i.e. Gauteng - KZN Corridor); Supporting infrastructure to freight intermodal facilities; Align freight intermodal facilities with Transnet’s Container Strategy for Gauteng and Durban port developments; and Adequate public transport to the intermodal freight facilities and associated developments around them.
(c) Making Major Freight Terminals Accessible
In essence, this is aimed at providing effective accessibility to major decentralized freight terminals on the northern and eastern periphery of the urban core of the Gauteng City Region, such as Tambo Springs, through:
Integration with the PRASA Passenger Rail Plan; Finalisation of integrated public transport network; Upgrade and development of key road links and section; and Creation of dedicated freight routes on the periphery of the province for freight to flow directly to and from the N1/N12 via the freight terminals to Limpopo, Mpumalanga and KZN or vice versa.
79 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (d) Projects
The following projects will enable freight flows “around” core urban areas and central business districts, as well as provide for adequate connectivity to major freight intermodal facilities:
Conduct feasibility studies on the PWV 18 between N1 and PWV 17; PWV 17 between PWV 18 and PWV 5, and PWV 5 between PWV 17 and N1; Conduct feasibility, Environmental Impact Assessments and socio-economic studies for the proposed sites; Plan effective road connectivity linkages between the Aerotropolis and freight intermodal facilities (i.e. R25, R21, PWV5); and Set up a coordination structure between all role-players to enable integrated planning between government departments, developers and potential operators to establish such freight intermodal facilities.
6.1.10 International and City Airports
(a) Air Transport Trends
The OR Tambo International Airport is the major hub, which connects Southern Africa with the rest of Africa and the world. It is the busiest airport on the African continent and will most probably fulfill a similar role in the next 25 years. Last year, the OR Tambo International Airport accommodated over 19 million passengers and 212 580 flights. Assuming a 5% conservative passenger growth rate over the next 25 years will mean that the demand will increase to 65 million passengers per annum. In addition, the Aerotropolis development may further facilitate the growth in demand and development. This means that careful consideration should be given as to how the growth in demand could be met in future. This will entail the adjudication of the potential capacities of all the major airports in the province, airspace optimisation and the analysis of landside implications from a passenger and freight perspective.
It may also require that an approach of “hub and city airport” be analysed and considered. This is due to the cost differentiate and land requirements to develop a hub airport which can accommodate wide body aircraft on intercontinental journeys, compared to the cost to develop city airports which can accommodate maximally ICAO Class C aircraft (aircraft with wingspans up to 36 metres carrying a maximum of 200 passengers). A distinction 80 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 may have to be drawn between hub airports and city airports, where a hub airport connects Southern Africa as a region to Heathrow, Frankfurt, Dulles (Washington), JFK (New York) and city airports, which connect cities such as Johannesburg to Cape Town, Durban, Harare, Maputo, Luanda etc. In order for city airports and the hub airports to support one another, the network should be planned holistically and effective land based connections must be available between the airports.
Given the rapid rate of urban development, the early reservation of land for the expansion and development of further airport capacity, if and where required, needs to be considered. This is to ensure that a situation does not develop, where future airport capacity has to be developed further and further away from the urban centres due to the non-availability of land, thereby placing a further burden on the land-based transport system in terms of accessibility.
(b) Departure Points
The approach towards the development of airports for the Gauteng City Region should be based on the following principles:
Must accommodate growth in both passenger and air traffic beyond 2037 in terms of airport capacities; airspace management and land side implications (passenger access and freight hubs and terminals); Early reservation of suitable and adequate land for the extension/development of airports; and Effective passenger and freight linkages to, from and between airports.
(c) International Hub and City Airports Strategy
An analysis of international hub and city airports will entail that all major role players need to confirm whether or not they are comfortable that OR Tambo International Airport will be able to solely fulfill the role of hub airport by 2037 and beyond. Should the outcome be that OR Tambo will not be able to serve the Gauteng City Region and the Southern Africa economy adequately a determination must be made as to which existing or new city airports and air freight hubs can fulfill a supporting role to OR Tambo. Consultations on possible city airports should be entered into with the major airport owners and management, local authorities as well as corporate and general aviation representative
81 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 bodies to determine their needs to ensure that these airports can be developed to fulfill this supportive role. This will include land requirements, land reservation and land-based transport linkages. Given the province’s concern for economic growth, its transport coordination role and the requirement to maintain adequate levels of regional transport mobility, it is in the interest of the province to facilitate such an initiative.
(d) Projects and Actions
The following projects and actions will be supportive of such an initiative:
Whether Gauteng requires a second major hub airport needs to be debated between all aviation role players and a firm decision should be taken in that regard; If a second hub is needed for either passengers, freight or a combination thereof, an area should be earmarked as such and servitudes should be registered to reserve the land for that purpose; and If city airports are required, what is the niche markets are to be served by each of them, and where should these be located.
6.1.11 Pedestrian Paths and Cycle Ways
(a) Status of Non-Motorised Transport
A very significant portion of daily commuters walk to work and an even larger proportion of commuters walk to access public transport. This is often done under very unsafe, insecure and inconvenient conditions caused by the lack of good non-motorised transport (NMT) facilities and amenities. This explains the fact that 40% of road fatalities are of pedestrians. Although not such a significant mode of transport in Gauteng currently, the same goes for cyclists.
A number of non-motorised initiatives are being implemented in Gauteng, namely, City of Johannesburg’s “Streets Alive Programme” and cycling framework; the City of Tshwane’s NMT Master Plan, 2010; Gauteng NMT Policy Guidelines, 2005; and distributing bicycles such as Qhubeka and Shova Kalula. The “Streets Alive Programme” seeks to establish high quality pedestrian and cycling routes across Johannesburg to establish NMT as preferred mode for short distance trips; to increase the NMT modal split; to facilitate access to the City for marginalised and low income families; and to integrate NMT with other strategic public transportation initiatives such as Gautrain, Metrorail and BRT. The
82 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 City of Tshwane’s Non-Motorised Master Plan identified various implementation projects for the provision of bicycle routes in terms of the Shova Kalula Bicycle Project. Many of these projects are located within marginalised areas. The Gauteng NMT Policy Guidelines pertain to the type of pedestrian and bicycle facilities to be provided along the various classes of urban and rural roads and streets in the province.
Qhubeka, which means ‘to move forward’, is a Corporate Social Investment Project backed by MTN that aims to help rural communities advance their lives by providing bicycles to children in return for work done to improve their environment and communities. It is funded through bike sales, Corporate Social Development funds, corporate sponsors and donors, consulting, events, fund raisers, individual donors, and merchandise sales and sports team endorsement. The Shova Kalula (Ride Easy) programme was initiated by the Department of Transport. The primary focus is on providing scholars with bicycles.
However, the challenge remains to establish a coordinated approach toward NMT across the Gauteng City Region and integrating the above-mentioned NMT initiatives. Furthermore, the provision of NMT facilities and amenities are relatively inexpensive and can make a huge difference to the quality of life of most inhabitants of Gauteng, especially those living in previously disadvantaged communities.
(b) Departure Points
Key principles and departure points of an initiative that will provide for convenient and safe NMT, as well as promoting the greening and sustainability of the transport system as a whole, are:
Promoting the greening of transport and reducing traffic congestion through popularising of cycling and short distance walking trips to destinations; Provide for non-motorised users on the Class 2 to 5 road network; and Using NMT modes (walking and cycling) as feeder systems to public transport and provide for the “last mile” in terms of NMT.
(c) The Pedestrian Paths and Cycle Ways Initiative
The pedestrian paths and cycle ways initiative is aimed at bringing the various schemes in the province together and mobilise the development of a more comprehensive NMT network in a meaningful way, through:
83 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Agreement on a coordinated approach and strategy; Development of pedestrian paths and cycle ways and amenities, integrated with the IPTN and key public transport interchanges; Linking the Shova Kulula and Qhubeka initiatives; and Launching an education, awareness and road safety campaign.
(d) Projects and Actions
The key actions and projects to flow out of the Pedestrian Paths and Cycle Ways Initiative are:
Finalisation of the Provincial NMT policy and strategy; Development of 50km pedestrian paths; Development of 50km cycle ways; Provision of 200 cycle racks at key public transport interchanges; and The launch of a NMT Campaign.
6.1.12 Continued Provincial Wide Mobility
(a) The Strategic Road Network
The national road network in Gauteng constitutes a small percentage of the entire road network (470 km), but carries high traffic volumes and provides the freight network. The provincial road network, comprising 14.1% of the roads (4 830 km), performs an important role in linking the national road network with the main municipal road network. The proper maintenance of the provincial road network is restricted by budget allocations and is a major concern, especially considering the required mobility function of the network. The provincial road network also performs an important role in catering for public transport either in mixed traffic conditions or exclusive public transport/high occupancy vehicle lanes as well as freight traffic.
Continued road planning and development of the strategic road network is an extremely valuable element to enable economic growth in Gauteng. The Gauteng Department of Roads and Transport and Metropolitan, District and Local Councils rely heavily on the Gauteng Freeway network as the “backbone mobility road network” of the province. It is, therefore, critical that cohesive planning be achieved between SANRAL, the Gauteng
84 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Department of Roads and Transport and the Metropolitan authorities to ensure that continued and acceptable mobility and service levels are maintained.
Based on the Gauteng Strategic Road Network (GSRN) Review, a prioritization plan for Class 1 and 2 roads exists. The top 5 priorities of each is summarised in Table 6.2.
Table 6.2 - GSRN Top Five Class 1 and Class 2 Priority Roads
Route From To Class 1 Roads 1. PWV9 Southern N1 N14 2. PWV5 Eastern/Central PWV9 R21 3. N17 Western Soweto M1 Crownwood 4. PWV14 Entire M2 N12 5. PWV16 Eastern K133 N3 Class 2 Roads 1. K57 K142 K158 2. K71 K103 North D49 3. K105 K220 K121 4. K145 K22 K34 5. K69 K34 K16
In the development of the National Transport Master Plan, the following key strategies were also identified for the Gauteng province:
Strategy 1: Develop a link between Johannesburg and Rustenburg via Lanseria Airport and the N4 Platinum Corridor; Strategy 2: Provide a link between Sandton and the N4 Platinum Corridor; and Strategy 3: Link the N3 to the N4 Maputo Corridor through Ekurhuleni, specifically catering for freight haulage.
(b) Departure Points
The continued development of the national and provincial road network should be based inter alia on:
Acceptable levels of service during peak hour travel i.e. LOS D or better;
85 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Adequate provision for all types of traffic, including heavy vehicles, private vehicles and public transport; and Priority measures for higher occupancy vehicles, where appropriate.
(c) Continued Provincial Wide Mobility
Continued provincial wide mobility and acceptable service levels are to be maintained for road-based public transport, freight and private vehicle traffic, through the proper planning and development of the strategic road network.
(d) Projects
The following road projects have been identified as important projects that are catalytic in nature and which will unlock and stimulate growth and thus job opportunities in Gauteng:
Detail design and construction of the K148/N3 interchange; Detail design and EIA of K148, K146 and PWV15; Detail design of the PWV 18; and GFIP Phase 2.
6.1.13 Management of Transport Infrastructure
(a) Status Quo
The Gauteng Pavement Management System shows that about 80% of the total road network in Gauteng has a pavement structure older than 20 years, which is normally considered the design life for a pavement. In other words, 3100km have already reached the end of their design life. In the 20 years since 1985, the proportion of sub-standard roads has increased from 4% to 24% and the proportion of those in acceptable or better condition has reduced from 96% to 76%. In order to maintain and preserve the provincial road network diligently, about 100km to 200km of road (for a 40-year to 20-year life span target respectively) should be reconstructed or rehabilitated each year. Since 1990, the rate of repair/rehabilitation has decreased markedly, averaging only 22km per annum.
During the 2009 visual assessment, 4092km of the total length of the paved provincial network was assessed. This represents 95% of the paved carriageways shown on the Road Network Management System as being under jurisdiction of the Gauteng
86 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Department of Roads and Transport. The assessment data, expressing the condition of the surfacing, the structural condition and functional condition through the degree (seriousness) and extent of occurrence of distresses, are used to calculate a single Visual Condition Index (VCI) for each visual segment. This index expresses the condition of the road segment as a percentage between 0% for very poor, to 100% for very good. The VCI is furthermore grouped into five condition categories that are used to describe the condition distribution of the visual segments in the road network. The categories adopted by the Gauteng Department of Roads and Transport and the rest of South Africa are:
Very Good = 86% to 100% Good = 71% to 85% Fair = 51% to 70% Poor = 36% to 50% Very Poor = 0% to 35%.
Figures 6.5, 6.6 and 6.7 show the VCI for the road network, the road class and per area respectively.
Figure 6.5 - VCI Distribution of the Network (% Length and km) for 2009
87 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 6.6 - VCI per RISFSA Road Class (% Length) for 2009
Figure 6.7 – VCI per RISFSA Area for 2009
The current (2012/13) budget allocation of the GDRT is R4.36 billion, which includes R1.245 billion for infrastructure. The infrastructure budget is further allocated as follows:
Maintenance R783 million Construction R276 million Design R72 million Transport Branch R114 million
88 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 It can be seen that a relatively small amount is available for road upgrading and new roads. In order to effectively utilise and maintain the extensive past investment in road infrastructure in the province, the above-mentioned trend needs to be redressed urgently, to ensure adequate mobility across the Gauteng City Region going into the future.
(b) Departure Points
The Government’s “New Growth Path” outlines an approach to accelerate growth and employment focusing on job creation targets and sector-based actions, which will assist to achieve them. Jobs drivers are identified as:
Continuing public investment in infrastructure, creating employment directly in construction, operation, maintenance and the production of inputs, and indirectly by improving efficiency across the economy; Targeting more labour-absorbing activities in the agricultural and mining value chains, manufacturing, construction and services; Promoting innovation through “green economy” initiatives; and Supporting rural development and regional integration.
Gauteng strives for world class standards for transportation infrastructure and services and needs to maintain the existing road network through a sustainable Road Network Management System.
(c) Effective Transport Infrastructure Management and Maintenance
Strategic preventive maintenance planning is necessary annually over the MTEF period, where road sections are prioritised for preventative maintenance, with the list of priorities being reviewed during each financial year.
This initiative is aimed at revitalisation and updating of the Road Network Management System (RNMS). The RNMS provides the motivation and upgrades to the provincial road network. The RNMS comprises primarily of the Pavement Management System, the Bridge Management System and Storm Water Management System. However, the foundation for the RNMS is the annual infrastructure assessment, which has not been done over the past three years.
89 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (d) Actions
The RNMS is a critical tool for the Gauteng Department of Roads and Transport and requires dedicated resources. The Department needs to address the following:
Creating further roads engineering capacity within the Department (i.e. Road Pavement and Bridge expertise); Have the annual pavement, bridge, and storm water assessment done (where capacity is lacking this may be outsourced); and Develop an Annual Report, containing project prioritisation, as well as budget estimates for preventative maintenance, rehabilitation and upgrades.
6.2 Key Capital Projects
An assessment of the state of transport planning applicable to Gauteng as well as the transport status quo was used as a basis to identify key capital projects that needs to be promoted as a matter of priority. The key capital projects are an addition to the key short- term initiatives listed in the previous section and their implementation may not necessarily be completed in the next five years.
However, the implementation of these projects will significantly contribute to the continued improvement of the transport system serving the Gauteng City Region, its mobility requirements and support economic growth. It is, therefore, important to high-light these projects.
The key capital projects contained in this section are either already approved, in process of being implemented or on budgets for implementation. Others are listed in terms of the MTEF.
6.2.1 Commuter Rail Capital Projects
The following key Commuter Rail projects are supported: PRASA - Tshwane/Pretoria Ring Rail; PRASA - Hammanskraal Commuter System; PRASA - Baralink to Johannesburg Park Station; PRASA - East Rand to Gautrain/Rhodesfield; and PRASA - Moloto Public Transport Corridor. 90 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 6.2.2 IRPTN Capital Projects
The following key Integrated Rapid Public Transport Network implementation projects done by metropolitan authorities are supported in principle:
City of Johannesburg - Rea Vaya Phase 1B Operational Plan; City of Tshwane - Draft IRPTN Operational Plan; and Ekurhuleni Metropolitan Municipality - IRPTN Scoping Study.
However, further coordination between these projects and the finalisation of the Provincial IPTN may be required to ensure optimal integration and public transport network continuity.
6.2.3 Freight Network Capital Projects
The following Transnet freight network capital projects are supported:
Durban capacity expansion programme; Durban rail infrastructure to support freight intermodal facilities to existing port and Airport Dig-out Port; and Rail link from Ermelo to Richards Bay via Swaziland.
6.2.4 Road Network Capital Projects
The important capital projects identified for Gauteng by the National, Provincial and Local Authorities, which needs to be supported are summarised below:
National Road Network Planning o GFIP Phase 2 and 3;
Provincial Road Network Planning o K71 Between K103 (Wierda Road) and Laudium (doubling of existing road); o K46 (William Nicol) - Doubling of road K46 from Fourways to Diepsloot/N14; and o K15 (R512) - Doubling of Adcock Street from Dobsonvile to Protea Glen.
Metropolitan Road Network Planning
91 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 o The improvement of the K8 and extension south of Wonderboom Airport; o K97 link; o K99 link to the south (Dr Swanepoel Drive); o PWV9; o PWV13/14; and o PWV 15.
6.3 APPROVED TRANSPORT CAPITAL PROJECTS
The approved transport capital projects of province, municipalities and other government entities and agencies are listed in the paragraphs below. The information on projects was sourced from plans, budget documentation or engagements with officials.
6.3.1 Gauteng Department of Roads and Transport (MTEF)
The approved transport capital projects for the GDRT are summarised in Table 6.3:
Table 6.3 – GDRT Approved Capital Projects
Project Length Budget (million) 2011/ 2012/ 2013/ 2014/ 2012 2013 2014 2015 K71 Between K103 (Wierda Rd) and 6.3 km R 150.0 R 154.9 R 0.2 R 0.0 Laudium (doubling of existing road) (P66-1)
Surfacing of Cayman road as an access 4 km R 15.0 R 7.3 R 0.0 R 0.0 road to the Eye of Africa Development
K46 William Nicol: Doubling of road K46 4 km R 5.3 R 150.0 R 105.3 R 14.4 from Fourways to PWV 5 (Erling road) (P79-1) K46:PWV 5 to Diepsloot/N14: Doubling of 7.2 km R 9.0 R 9.0 R 0.0 R 0.0 road
Doubling of Adcock Str (R55) from 5.8 km R 10.0 R 150.0 R 124.6 R 12.5 Dobsonvile to Protea Glen. (Last section) (D524) K72/P126-1: Construction of P126-1 N14 - R 7.0 R 135.0 R 151.0 R 15.0 interchange including 3km approaches
92 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
6.3.2 City of Tshwane
The City of Tshwane has identified and/or is implementing the following transport capital projects. BRT (Line 2) Phase 1A - Eastern corridor to Mamelodi via Hatfield and Menlyn is indicated in Figure 6.8. Phase 1A (CBD to Hatfield) construction is planned to commence in August 2012 and will be operational in August 2014. Completion and operational of the full Phase 1 is scheduled for April 2016.
Figure 6.8 – City of Tshwane BRT Network
(a) Tshwane NMT – Masterplan
Proposed projects to develop the walking and cycling network includes Hammanskraal to Babelegi (26km), Mabopane to Soshanguve (9km), Wonderpark to Akasia (11km), Claremont (10km), Atteridgeville (12km), Pretoria CBD to Sunnyside (19km), Centurion, Olievenhoutbosch and Sunderlandridge (28km), Erasmusrand and Faerie Glen (25km) and Mamelodi East (23km).
(b) Road Infrastructure (new link construction and upgrading of capacity – major roads)
Eight projects are listed on the capital budget, namely, Menlyn area (including Atterbury Road and N1 Garsfontein interchange), Nelson Mandela Drive, Simon Vermooten Road, Stormvoël Road, Derdepoort Avenue, Hans Strijdom Drive, Lynnwood Road and Church Street. The following lead transport projects have also been identified: K8, N4 – K97 Link to Rainbow Junction and K99 Link to the South (Dr Swanepoel Drive). 93 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
6.3.3 City of Johannesburg
The City of Johannesburg has identified and/or is implementing the following transport capital projects.
BRT Phase 1B: Trunk route being implemented for 2013 - (T20 Thokoza to Parktown/ Library Gardens) as indicated in Figure 6.9.
Phase 1B: Complementary route being implemented for 2013 - (C06 - Windsor West/Cresta to Parktown/City along Beyers Naude from N1 and along Empire Road, C4002, Florida North to Parktown and Liberty Gardens along Ontdekkers/Perth /Empire Roads).
Phase 1B: Feeder routes being implemented for 2013: (F5001 - Yeoville to City, F5004 - Parktown Distribution Route, F2004 - Rahima Moosa Hospital to Greymont, F2001 - Highgate to Lea Glen, F2002 Highgate to Amalgam, F3009 - Mapetta to Thokoza Park and F3099 - Pimville to Klipspruit Valey).
Figure 6.9 – City of Johannesburg BRT Network
(a) Lay-bys, shelters and Public Transport Infrastructure
Implementing lay-bys, shelters and public transport infrastructure along SPTN routes, (priority W/E = Roodepoort - Cresta - Randburg - Sandton - Wynberg - Alexander. N/S =
94 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Sunninghill - Rivonia - Sandton - Rosebank - Parktown - RAU - Highgate - Mlamlankuzi - Orlando - Baragwanath, Nasrec, Ellispark).
(b) Upgrade traffic signals along SPTN routes (priorities as recorded in the ITP)
Nasrec, Ellispark and E/W flagship components, bus priority signals along SPTN routes (W/E = Roodepoort - Cresta - Randburg - Sandton - Wynberg - Alexander. N/S - Sunninghill - Rivonia - Sandton - Rosebank - Parktown - RAU - Highgate - Mlamlankuzi - Orlando – Baragwanath).
Implement centralised control to monitor/control network operations along SPTN routes.
Support NMT cycle lanes, intersection pedestrian crossings infrastructure and lighting.
(c) City Deep Freight Hub and Supporting Road Infrastructure
City Deep anticipated Transnet Intermodal Facility Development will require access/collector roads (suggested to be funded by developers) plus City responsibility of a bridge over Main Reef Road along Cleveland Road. Key intervention identified also includes: Rosherville Road extension, Bonsmara Road upgrade, Heidelberg Road upgrade, Lower Germiston Road upgrade, Vickers – Heidelberg loop-road, Cleveland Road link.
(d) Road Infrastructure (upgrades, rehabilitation, capacity increases, extensions)
Johannesburg has listed 30 priority road projects for possible implementation over the following 5 year period. The following roads have been proposed for implementation commencement during the first year: Odendal Road - Main Reef Road link, West Lake Road extension, James Street extension, Spencer Road new link, Jan Smuts Avenue - doubling, Bally Claire Drive widening and Outspan Road upgrading.
6.3.4 Ekurhuleni Metropolitan Municipality
Ekurhuleni Metropolitan Municipality has identified and/or is implementing the following transport capital projects.
95 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 BRT Route 2 (Phase 1) - Figure 6.10 shows the chosen Route 2 (Phase 1) in a scoping phase, inclusive of confirmation of the full BRT network and detailed investigation to implement Phase 1.
Figure 6.10 – Ekurhuleni BRT Network
(a) Compliance to South African Roads Traffic Signs Manual
Emphasis is placed in the budget on tasks to ensure compliance of all road signs and traffic signal installations to the SARTSM.
(b) Road upgrades, rehabilitation, capacity increases, extensions
Twenty Five priority road projects for implementation up to 2020 were budgeted for.
(c) Ekurhuleni Aerotropolis
Development initiatives in line with the Ekurhuleni Aerotropolis concept are supported.
6.3.5 West Rand District Municipality, Sedibeng District Municipality and Nkangala District Municipality
BRT systems are not currently planned. Consensus exist that a sustainable public transport solution is required along the Moloto corridor for implementation.
96 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (a) Lay-bys, shelters and Public Transport Infrastructure
Apart from two intermodal (taxi) facilities significant public transport infrastructure projects, planned to be implemented, could not be sourced.
(b) Support NMT - Cycle Lanes
Significant NMT projects are planned to be implemented, but the details on these projects could not be sourced.
(c) Road Infrastructure
Important and priority roads for upgrading, extensions and capacity improvements have been identified only.
6.3.6 Passenger Rail Agency of South Africa (PRASA)
The infrastructure investment allocation for the Gauteng rail network is in excess of R10bn over the next 3 years. The investment program includes:
R3bn for the upgrade of existing trains in Gauteng to ensure continuity of the service until the new trains are introduced into the system; R4bn for the signalling modernization over the next 5 years. Work on Phase 1 of this project valued at R1bn has already started. The project will increase train safety and network capacity optimisation over the short term, and will lay the foundation for full digital signalling and automatic train protection in future; Corridor Modernisation Project – complete remodelling of Mabopane- Johannesburg- Naledi corridor with R4bn earmarked for track, platform, station and electrical infrastructure rehabilitation; New gate control systems, electronic display boards and CCTV cameras at major stations to improve access control and security. R900m has been allocated for installations in Gauteng over the next 3 years. New PA systems at 40 stations in Gauteng. Pretoria station completed; Station upgrade programme: Mabopane (R260m) plus additional 7 stations upgrade projects and 20 station improvement projects; Station modal integration projects in conjunction with province and municipal authorities: Stredford, Leralla , Vereeniging, Germiston and Roodepoort; 97 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 5 stations identified for universal access pilot projects; Corridor public works job creation programme: Cleaning of corridors, fencing and walling of stations; and Three corridors on the Gauteng rail network have been prioritised to spearhead modernisation in preparation of the new rolling stock. The corridors include Mabopane – Pretoria; Pretoria – Germistion – Johannesburg and Johannesburg – Soweto.
6.3.7 TRANSNET Freight Rail
The following planning and capital projects form part of the 7 year (R300bn) and 2050 expansion plans:
Procurement of rolling stock; Upgrading of City terminal; Gauteng and Durban freight terminals; Capacity expansion projects on the rail line between Gauteng and Durban as well as the freight ring to support freight terminals; Durban port capacity expansion project; Durban airport dig-out port project; Coal expansion project; Manganese expansion project; Iron ore expansion project; Rail link between Ermelo to Richards Bay via Swaziland; and Completion of the new multi-purpose terminals.
The capital allocation for the next seven years in Transnet is shown in Figures 6.11 and 6.12.
98 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 6.11 – Transnet Capital Investment
Source: Transnet MDS 2012
Figure 6.12 – Transnet Capital Investment Allocations
Source: Transnet MDS 2012
99 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 7 FUNDING OPTIONS
7.1 Introduction
The Medium-Term Expenditure Frameworks (MTEF) of the national and provincial governments for the 2012/13 to 2014/15 financial years and the Medium Term Revenue and Expenditure Budget (MTREF) of the local government for the 2012/13 to 2014/15 financial years were only recently officially tabled at the various legislatures. The devolution of power to the lowest level of government results in different and in certain cases conflicting objectives with regards to the preservation and upgrading of the transportation networks.
An equitable share of the total national income is allocated to the respective national, provincial and municipal authorities in terms of the Division of Revenue Act (Act 5 of 2012). Each of the authorities then follows a budget prioritisation process to allocate the equitable share and other available funds to various functional areas. In this process the transportation sector competes with the other functional areas for an equitable portion of the funding. It would seem that the outcome of this process of devolution of power and fragmentation results in the allocation of inadequate funding to transportation authorities for the management, preservation, upgrading and extension of the transportation networks due to significant needs within other functional areas.
It could be argued that the current institutional framework and process of allocation of funds will not change in the short-term. A few initial comments on principles and departure points and possible funding options are made in the following sections.
7.2 Principles and Departure Points
The ITMP25 should reflect regional, social, economic, environmental and transport policies that aim to ensure a competitive, safe, sustainable, equitable and accessible integrated transport system. These policy drivers have an impact on funding sources, prioritization and resultant budgets.
The primary funding focus areas of the ITMP25 is on:
100 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Introduction of policies and system and technology enablers that would result in better use of existing infrastructure and facilities before costly expansions of the network are undertaken;
Enhancing the institutional capacity of transportation infrastructure providers and transportation service providers; and
Preserving existing transportation assets (infrastructure and facilities), safety of networks and security of users that should attract a high priority during the allocation of available funding.
7.3 Funding Instruments
7.3.1 Conditional Grants
The funding approach introduced by National Treasury to allocate funds by means of Conditional Grants is strongly supported. With this approach funds are channelized to enhance the achievement of certain critical objectives such as the improvement of the skills base of local municipalities or the maintenance of provincial and local transportation networks.
Consideration should be given to restructure or introduce new Conditional Grants. Such new grants should focus on the achievement of critical objectives such as:
Integration of Transportation Network Grant. This proposed Conditional Grant aims to promote an integrated transportation network in Gauteng. Projects that would enhance the integration of transport should be financed through this grant; and
Traffic Safety Grant. This grant should be allocated to local municipalities to subsidize safety-related maintenance of mini-bus taxis, training of drivers, etc.
7.3.2 Public Transport Funding
The current institutional arrangements portray a disaggregated dispensation that is in place for the planning and management of public transport operators and services. This is not conducive to the notion of “planning, implementation and management of modally integrated public transport networks and travel corridors” within a functional transport area.
101 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Neither, will it be advantageous for the successful implementation of an integrated fare management system incorporating most, if not all modes of public transport.
It could be argued that although no significant changes in this environment will take place in the short-term, fare media integration may still be viable within the context of the current institutional arrangements. However, international experience and best practice have shown that far better institution integration and/or alignment is necessary for achieving fare integration. The best of such examples are achieved under a single transport authority/responsible entity for planning, implementation and management an integrated network of public transport services. It has to be added that the National Land Transport Act, 2009 promotes and provides for a much better aligned institutional dispensation for the planning, implementation and management of integrated public transport in the country. The implementation of these institutional structures and arrangements is something that will, however, not be achieved in the short-term.
Similarly, from the current funding arrangements, it is evident that a multitude of funding sources for financial operational support is used. This is almost to the extent that each mode of public transport has its own and different operational funding mechanism. As operational subsidies and the funding thereof will play an inseparable role in the establishment of an integrated fare regime for the province, much better alignment of funding sources will be required to enable this. This may almost have to be taken to the level of a consolidated and/or single source of “pot” of funds for providing operational support to an integrated public transport network of services.
Lastly, from the breakdown of contracting dispensations in Gauteng, it becomes clear that a range of contracting arrangements and bases for subsidy allocation to public transport operators or operating companies are found. Furthermore, an array of subsidy allocation mechanisms are deployed (i.e. deficit, top-up, gross cost- and net cost kilometre based, operating fees). Alignment of contracting models and subsidy allocation mechanisms may be required to create a more enabling environment for developing an integrated fare system. It will most probably not be possible to have exactly the same mechanisms for all rail modes and road-based modes, but the bases should to be similar. Consideration should for example be given to at least contract all road-based modes on a gross cost kilometre basis.
102 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 7.3.3 Private Sector Involvement
The private sector should be involved to enhance the efficiency and the preservation of the transportation network. Routine Road Maintenance contracts are good examples where the private sector is tasked to maintain a specific section of the road network. The involvement of the private sector in road maintenance can be further expanded through the commercialisation of the maintenance of transport infrastructure funded through the use of shadow tolls. Furthermore, private funding could be used to design, build, operate and maintain new transportation infrastructure and facilities.
7.3.4 Adoption of the “User pay” Principle
Additional funding instruments should be implemented to supplement current funding levels. The “user pay” principle is considered a more sustainable funding instrument. Continual pressure should be maintained to ensure fair and equitable delivery of services through “user pay” policies. The following additional transportation funding sources should be considered:
An electronic toll collection system provides a platform not only as an additional source of funds for the provision of road infrastructure, but also to introduce transport demand management. The levying of tolls is part of a holistic approach to road financing and has a role to play in the Global City Region.
The possible introduction of a “balanced road user tariff” should be considered that would consist of:
o Vehicle license fees to access the network;
o Fuel levy to provide for the usage of the network;
o Weigh-distance levy to allocate responsibility for the structural impact on network;
o Congestion charges to allocate responsibility for cause of congestion, and
o Environmental charges to allocate responsibility for cause of environmental impact.
It is preferable to introduce a mechanism that is based on Time, Distance and Place (TDP) of vehicle movements. The privacy concerns of road users should be addressed that limit the application of innovative new means of road user charging enabled by GPS. 103 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8 INSTITUTIONAL ARRANGEMENTS AND LEGISLATIVE FRAMEWORK
8.1 Current Realities
There are various public transport modes, operators and services currently found in the Gauteng. All of them differ significantly in characteristics and nature. The following is generally what they are and who currently offers the service:
Commuter rail services are provided by Metrorail/PRASA; The Gautrain Rapid Rail Link is operated by a private concession company; The Rea Vaya bus rapid transit system is operated by privately owned operating Companies in Johannesburg; Commuter bus services are provided by privately owned operators providing services between previously disadvantaged residential areas and major employment nodes; Municipal bus operators in Ekurhuleni, Tshwane and Johannesburg provide commuter services largely within the boundaries of the pre-1994 metropolitan areas; Dedicated learner transport services are provided mostly by small bus companies for learners in the more rural areas of the province; and A large number of mini-bus taxis are operated by private operators organised in associations.
The institutional arrangements related to the “planning, implementation and management of modally integrated public transport networks and travel corridors” as legislated in terms of the National Land Transport Act, 2009 (NLTA, 2009) by the municipal sphere of government are not currently in practice in many respects.
8.1.1 Commuter Rail Services
Passenger rail services in Gauteng, including commuter rail services, are provided by PRASA, an entity responsible to the national government. These services are operated by one of PRASA’s subsidiaries, namely, Metrorail.
104 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 In terms of the NLTA, 2009, the municipal sphere of government in its capacity as a planning authority is required to prepare transport plans, ensure the implementation thereof and monitor its performance. This is to include “service level plans” for passenger rail and means that the planning of commuter rail is to be devolved to the local level.
Discussions had commenced on this devolution process between the Department of Transport and the respective metropolitan municipalities. However, due to the lack of capacity and rail expertise at a local level this will largely be a consultative process around rail planning, still lead by PRASA.
One can deduce that joint passenger rail planning at a strategic and tactical level will be done through this process, whereas operational planning will be done by Metrorail. PRASA will in the foreseeable future take the responsibility for the planning and development of fare management system for passenger rail, whereas fare structures will be determined by Metrorail.
The Integrated Transport Portfolio, which includes rail management as one of its functions, established a slightly different perspective to the other portfolios. Gauteng has not as yet been delegated the heavy rail function but is, at the same time, responsible for the Gautrain and is in the process of exploring other rail investments for the Province.
The overall objective of the Integrated Transport Portfolio is to facilitate processes and projects across Gauteng that will elevate the rail agenda and assist the current custodians of the rail function to ensure that both domestic and commercial rail services are brought to the fore in Gauteng, for the benefit of its population. In general, the need for institutional restructuring for rail services in the province is to:
Ensure that mandated rail authorities unlock the potential that rail should play as a public transport mode; Respond to local commuter needs and to ensure relevant response times; Ensure integrated planning at the appropriate level and to phase such planning with a short/medium and long term rail vision; and Maximise successful funding applications/initiatives for new/upgrading and maintenance projects.
105 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8.1.2 Gautrain
The operation of the Gautrain Rapid Rail Link is managed by the Gauteng Provincial Government through the Gautrain Management Agency (GMA) based on a Concession Agreement with a concessionaire, Bombela, consisting of a number of private sector companies. The strategic and tactical planning is largely done by the GMA, whereas the concessionaire plans the system on an operational level and operates it. The access control and fare management system was procured as part of the overall procurement process for the total system and the fare structure is largely fixed in terms of a schedule contained in the Concession Agreement. Any future changes to the fare management system or structure will have to be done through a variation of the Concession Agreement and could be very costly for the Province.
8.1.3 Rea Vaya
The Rea Vaya bus rapid transit system is planned by the City of Johannesburg and its transportation planning department. An entity has been established called the Rea Vaya Business Unit that is continuing with implementation and management of the various contractors and entities involved in the system. The system currently operates, as an interim solution, a paper ticket system with a flat fare regime. The intention is to introduce an EFC system in the near future, which is compliant with the National Regulations on EFC. This may also entail a fare structure based on zones.
8.1.4 Regional Commuter Bus Services
Subsidised regional commuter bus services operated by private bus companies are planned, managed through contracts and monitored by the Gauteng Department of Roads and Transport. Electronic ticketing equipment (mainly Way Farer technology) is deployed on all buses and passengers use a combination of cash and coupon cards. Fares are generally based on zonal structures, with the tariff being paid by passengers having its origin in the pre-1994 “economic fare calculation” (what it costs the operators to provide the service in relation to what the average passenger on a specific route/area could afford), which was then escalated annually more-or-less in line with inflation.
106 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8.1.5 Municipal Bus Services
In certain cases these are co-called “corporatized entities” with a service level agreement signed between the relevant metropolitan municipality and the municipal bus operator. Metropolitan authorities are mostly involved in the strategic planning of these operators, through their transport planning departments, whereas the operators themselves do their own tactical and operational planning. Most of these operators use electronic ticketing and fare collection systems, similar to the regionally subsidised bus services. Fare tariffs are often based on a regional or flat fare structure, with the mayoral committees approving fare increases.
8.1.6 Dedicated Learner Transport Services
Dedicated learner transport services are being provided on contract by mostly small transport operators for the Gauteng Department of Education (GDE). Although the GDE has an oversight responsibility, these services are only managed at a high and superficial level. Operations are mostly planned and managed by school principals, parent committees and operators. No ticketing or fare regimes are applicable to these services as they are supplied at no cost to the users.
8.1.7 Mini-bus Taxi Services
The planning and management of mini-bus taxi services are limited to government fulfilling the responsibility of regulation and control function, as well as law-enforcement. The regulation and control function lies with the province, through the Provincial Regulatory Entity (PRE), whereas the law-enforcement duties are performed at a local level. The NLTA, 2009, makes provision for a Provincial Regulatory Entity and for it to take over the roles and responsibilities of the Operating Licence Board. Regulation 1208 published in relation to the NLTA, 2009, also provides for Municipal Regulatory Entities to be established.
8.2 Legislative Provisions
In addition to the municipal sphere of responsibility to plan, implement and monitor public transport systems, the NLTA, 2009, also states that municipalities must introduce or assist in the “establishment of integrated ticketing systems, the managing thereof including
107 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 through-ticketing and determining measures for the regulation and control of revenue- sharing amongst operators involved in those systems”. The NLTA, 2009, goes on to state that municipalities shall “in the case of gross cost contracts for subsidised services determine fare structures and fare levels and periodically adjust fares after publishing the proposed adjustments for public comment”.
Except for the cases of the Rea Vaya operations and the various municipal bus operations, the municipalities are not involved with ticketing or fares of other modes of public transport in their respective areas. Similarly, they are also not involved with the route or operations planning of the other modes of public transport at present.
8.2.1 Constitutional Allocation of Transport Functions
As a point of departure, the provisions of the Constitution allocating functions to the three spheres of government need to be considered. Schedule 4 lists functional areas of concurrent national and provincial legislative competence. These include the following:
Public transport; Road traffic regulation; Vehicle licensing; and Environment.
The following municipal functions are listed in Part B:
Municipal public transport; Municipal planning; and Municipal airports.
Schedule 5 lists functional areas of exclusive provincial legislative competence. These include the following:
Provincial planning; and Provincial roads and traffic.
108 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The following municipal functions are listed in Part B:
Municipal roads; and Traffic and parking.
Provinces are responsible for the abovementioned functional areas set out in Schedules 4 and 5 and other functions assigned to them by national legislation (Section 125 of the Constitution). Municipalities are responsible for the functional areas set out in Parts B of those Schedules and other functions assigned to them by national or provincial legislation (Section 156). These functions are funded by the equitable share of revenue received each year and the province or municipality’s own sources.
Furthermore, the Constitution provides for additional functions to be assigned to municipalities. If any function is to be assigned to one or more municipalities outside of their normal constitutional functions (e.g. rail functions), this can be done by means of a specific provision in transport legislation, but only if certain procedures are followed in terms of other municipal and financial legislation. These procedures involve, among others, that sufficient funding and capacity on the part of the municipality/ies must be assured, the financial implications must be assessed and approval must be obtained from the National Treasury and the Financial and Fiscal Commission (FFC).
The Constitution provides that a function in Part A of Schedule 4 or 5 must be assigned to a municipality if —
a) the matter would most effectively be administered locally; and b) the municipality has the capacity to administer it (Section 156(4)).
Before the national government or a province assigns a function to a municipality, it must ask the Financial and Fiscal Commission to assess the financial and fiscal implications and consult the Department of Finance and other bodies. There are also other processes that must be followed. It must also take appropriate steps to ensure sufficient funding. Where a function is assigned without adequate provision for funding, it is known as an unfunded mandate.
109 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8.2.2 White Paper on National Transport Policy, 1996
The White Paper identified the fragmentation of functions across the three spheres of government as a major weakness besetting the effective planning, development and overall management of the transport system. It advocated the establishment of transport authorities at the municipal sphere to take responsibility for the full range of transport functions. It set out a number of policy principles dealing with, amongst other matters, the role of government, institutional principles, arms-length bodies and financing principles. Drawing on the Constitution, it supports the principle of subsidiarity. In the mission statement for land passenger transport it states:
“In observing national development principles, the policy is mindful of subsidiarity, which is the exercising of devolved power at the lowest competent level of government.”
In support of this position, it recognises the important role of metropolitan municipalities in addressing transport:
“The metropolitan conurbations in particular are, however, of major importance, and a large proportion of South Africa’s transport activities take place within metropolitan areas. Institutional arrangements should recognise this. Government is committed to the principle of subsidiarity.”
The White Paper supports the notion of establishing suitable structures in the form of transport authorities to take responsibility for transport functions.
“In line with the Constitution….land passenger transport powers and functions should be assigned to the lowest competent level of government. This level should take full responsibility for execution and implementation in metropolitan areas. The functions assigned to this level should be executed within the framework of provincial legislation, policy, guidelines, norms and standards, and appropriate institutional structures should be established to take responsibility for these functions.”
As one of the strategic objectives on planning and regulation, it states:
110 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 “To provide appropriate institutional structures, which facilitate the effective and efficient planning, implementation, funding, regulation and law enforcement of the passenger transport system, devolved to the lowest competent level.”
Outside metropolitan areas, the White Paper advocated options for the province, district or local municipalities to act as transport authorities. The clear policy emanating from the White Paper is the notion of devolution to the lowest competent level and the establishing of appropriate structures in the form of transport authorities in the metropolitan areas.
8.2.3 National Land Transport Transition Act, 2000
The National Land Transport Transition Act of 2000, Act No. 22 of 2000 (6) (NLTTA) provided that the establishment of transport authorities at the municipal sphere to have be responsible for transport functions. After the enactment of the legislation, the option of a transport authority was pursued with great enthusiasm in a number of metropolitan municipalities and district municipalities. The reality, however, has been that only one such authority was established in eThekwini.
At the time the NLTTA was being developed, metropolitan municipalities were still two-tier structures with the metropolitan municipality and a number of sub-structures. The concept of a TA as a single body which could operate across political jurisdictions was well founded, and drew largely on the practice overseas. With the advent of unitary metropolitan municipalities, the case for a TA is somewhat weaker since a single municipality has full responsibility for all its functions. The issue of horizontal fragmentation and transport across political boundaries falls away. There are still benefits however: focused attention to transport, a governing body responsible for transport, its own funds, etc.
Given rapid urbanisation pressures, transport functional areas may expand to include more than one municipality. In these circumstances the case for a TA is strong. A good example is in the Gauteng region with three metropolitan municipalities in close proximity with transport cutting significantly across jurisdictional boundaries.
In the district and local municipalities, there would seem to be a case for a TA but from a different perspective, one of a lack of any real capacity. Rather than attempt to replicate or
111 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 build capacity in a number of local municipalities, there may be a case to garner resources in one municipality which could then serve the whole area. The lack of capacity in non- metropolitan municipalities, and the ability to attract these resources, is a reality.
The White Paper argued strongly for transport authorities in metropolitan municipalities. The NLTTA provided for their establishment as a voluntary process through negotiation between the MEC and the participating municipalities. The argument was that a transport authority may be formed if its “effect is to improve transport service delivery in the local sphere of government by grouping transport functions into a single, well-managed and focussed institutional structure”. (NLTTA Section 10(3)).
The case for a transport authority is strong in complex regions with a diversity of land uses; multi-modal transport systems – bus, minibus-taxi, rail, long-distance bus, metered taxi; existence of subsidised public transport services; high proportion of internal trip making; and an extensive economic area of influence. Some form of inducement for such a municipality or municipalities to form transport authorities could be considered.
8.2.4 National Land Transport Act, 2009
The NLTTA was replaced by the National Land Transport Act, (NLTA 2009). The purpose of the NLTA is set out in Section 2 of the Act as follows:
2. The purpose of this Act is – (a) To further the process of transformation and restructuring the national land transport system initiated by the Transition Act; (b) To give effect to national policy; (c) To prescribe national principles, requirements, guidelines, frameworks and national norms and standards ….; and (d) To consolidate land transport functions and locates them in the appropriate sphere of government.
Matters included in the NLTA that differ from or are additional to the NLTTA from an institutional and planning perspective are, inter alia, the following:
112 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Section 15: The establishment of Intermodal Planning Committees (IMPC) by municipalities that are establishing integrated public transport networks and/or has significant passenger rail services; the function of these committees is to co- ordinate public transport between modes, especially while different institutional bodies or spheres of government are responsible for different modes of transport; Section 16: The establishment of land transport advisory bodies (LTAB) with representation from government and the private sector, to advise a municipal planning authority in relation to transport; Section 11: The detailed description of the transport responsibilities of the different spheres of government, including the municipal sphere – previous provisions for the establishment of Transport Authorities have been scrapped; Section 11(2) and Section 17: Provision for the assignment by the Minister of the operating license function to a municipality, relating to operating licenses for services wholly in their areas of jurisdiction or starting in their areas of jurisdiction, but excluding applications that must be made to the National Public Transport Regulator (NPTR) or a Provincial Regulatory Entity (PRE); and Section 40: The integration of the current bus subsidy system into the larger public transport system in terms of relevant integrated transport plans.
It is important to note that, contrary to the transition legislation, no specific mention is made in the NLTA of transport authorities.
The NLTA places much emphasis on the co-ordination responsibilities of the provinces and requires from the MEC to establish coordinating structures or take any other steps it deems necessary for this purpose (Section 9(2)(f)). In addition, the provincial sphere of government is required in Section 11(b)(iii) to take responsibility for the: co-ordination between municipalities with a view to ensuring the effective and efficient execution of land transport in the province and promoting provincial legislation with a view to promote the objects of this act;
In Section 12 on intergovernmental relations, the act makes provision for the joint exercise of functions by a province as follows:
12. (1) A province may enter into an agreement with one or more municipalities in the province to provide for the joint exercise or performance of their respective 113 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 powers and functions contemplated in this Act and may establish a provincial entity or similar body in this regard, subject to the Constitution and this section. (2) One or more adjacent municipalities may agree on the joint exercise or performance of their respective powers and functions contemplated in this Act, or may establish municipal entities in terms of the Systems Act for this purpose. (3) If the spheres of government cannot agree, subject to this Act, on the division of land transport functions between them, they must act in a manner and spirit consistent with the principles of co-operative government prescribed by section 41 of the Constitution and apply the provisions of the Intergovernmental Relations Framework Act, 2005 (Act No. 13 of 2005).
In Sections 15 of the NLTA it is required from Planning Authorities (defined as a municipality in relation to its planning functions) with significant rail services in its area, to establish an Intermodal Planning Committee. Allowance is also made in Section 16 for a Planning Authority to establish a Land Transport Advisory Board in order to be advised on land transport matters as it relates to its area. It can be assumed that the province will play an important role in any of these bodies given its mandate to co-ordinate transport within the province as discussed above.
8.2.5 Municipal Systems Act, 2000 and Municipal Finance Management Act, 2003
The Municipal Systems Act and Municipal Finance Management Act were enacted after the NLTTA. These Acts govern, amongst other things, the establishment by municipalities of bodies and mechanisms for delivery of functions and services.
A possible conflict arises between the NLTTA and municipal legislation. The conflict arises from the definition of municipal entities and the legal status of transport authorities as interpreted by the local government legislation. These Acts do not define or refer directly to transport authorities.
The relevant parts of the municipal legislation set out the legal status, structure and governance of municipal entities. Section 86B (2) of the Municipal Systems Amendment Act states that:
“(2) No municipality may establish or participate in the establishment of, or acquire or
114 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 hold an interest in, a corporate body, including a trust, except where such a corporate body is- (a) private company, service utility or multi-jurisdictional service utility referred in Section 1;”
In this context a private company refers to a municipal entity which is defined as such in the Amendment Act. The Amendment Act states that the directors or governing body of such entities must not comprise municipal councillors.
According to Reference 4, the key question is whether a TA falls under the definition of a corporate body as set out in Section 2 above. If so, and given the governance model of a TA in the NLTTA where only councillors may serve on the governing body, there is clearly a conflict with municipal legislation. This implies that a TA cannot be established in this form.
On the other hand it can be argued that a TA is an “authority”, not a municipal entity, and does not fall within the definition of a corporate body as used in the Amendment Act. On this basis, there is no conflict between the NLTTA and municipal legislation.
8.2.6 National IRPTN Initiative
The Department of Transport published in 2007 its Public Transport Strategy aimed at transforming public transport on an accelerated recovery programme and leaving a lasting legacy of improved public transport and a car-competitive public transport system. This is founded on the development of integrated rapid public transport networks. The strategy also speaks to the institutional model for strong municipal control of the integrated networks:
“Strategic shift to municipal controlled integrated networks - Achieving the legacy articulated in detail above will require a municipality acting as a network authority that procures the required public transport infrastructure – including dedicated road space, dignified public space, good pedestrian and bicycle access, good park and ride facilities for car users, and high quality stations, stops, interchanges, terminals and depots. High quality vehicles are specified in the operating contracts and are tailored to meet a corridor’s particular service requirements.”
115 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8.3 Gauteng Initiative to Achieve Cooperative Governance
Various initiatives were implemented in the past to improve the co-ordination and integration of transport on a province-wide basis.
8.3.1 Conceptual Plan for the Establishment of a Gauteng Transport Management Authority
The need for a provincial Transport Authority was debated since 2006 in line with the need to consider Gauteng as a Global City Region. An attempt to establish the Gauteng Transport Management Authority (GTMA) was undertaken in May 2008 through the promulgation of the Gauteng Framework Revision Act of 2008. Due to inadequate and limited resources, overlap and duplication of functions experienced in the province, a need to re-organise the Provincial Government Departments was announced by the Premier during the course of the 2009-2010 financial year to ensure effective and efficient service delivery for the people of Gauteng.
The objectives of the Gauteng Transport Management Agency (GTMA) as stated in the Gauteng Transport Framework Revision Amendment Act, Act no.3 of 2008 (7), were to:
Improve the planning, coordination and facilitation to transport functions of the Province as may be delegated to it by the MEC from time to time; and Promote intergovernmental relations within the transport environment.
The roles and responsibilities of the GMTA include the following:
Determine the strategic policy and agenda for the province; Ensure that there is a linkage with other matters that have an impact on transport including land use and economic development; Set transport related standards, performance criteria and related indicators to ensure intermodal integration and efficient management of transport investment; Source financial mechanisms to enable investment in transport; Determine similar transport implementation opportunities across Gauteng; and Coordinate transport initiatives with the local authorities and transport stakeholders.
116 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Essentially, this provincial legislation allows the province to establish its own provincial planning, coordination and facilitation transport authority which will be responsible for the execution of the mandate of the GTMA as required in the provincial legislation.
The decision to re-organise government institutions included the creation of new departments, the rationalisation of provincial public entities, incorporating best practices on transformation of government to deliver on services and build on existing success and deal with challenges. This decision to rationalise government institutions in Gauteng, particularly public entities, saw the disestablishment of the GTMA. In addition, the Department embarked on a process of rationalizing all its Provincial Transport Laws, most of which had become outdated with the coming into effect of the National Land Transport Act (NLTA) in 2009 and its subsequent implementation. Furthermore, in the light of the NLTA being enacted in 2009, the approach to establishing any Transport Authority would need to be significantly different from the approach taken previously. Thus, the GTMA was disestablished.
8.3.2 Gauteng Transport Framework Revision Act of 2002
The Act was promulgated in 2002 with the objective to, inter alia, “provide a framework for integrated planning and provision of a transport system in the Province”. In Chapter 11, allowance is made for the establishment of co-ordination structures at the political and technical levels respectively, namely the Gauteng Transport Consultative Forum (GTCF) and Transport Co-ordination Committee (TCC). The functioning of these two bodies has been successful to some extent.
Both the GTCF and the TCC were established, with the TCC probably the more successful of the two bodies. As these structures have largely been initiated by the province, they were not always acknowledged and supported to the same degree by the municipalities. The concern was expressed from time-to-time that the province was interfering in the areas of responsibility of the municipalities. They also criticized the province of relying too much on support by consultants even as far as participating in the proceedings during meetings.
This act also allows in Section 37 for the establishment of a Joint Planning Structure (JPS), “to deal with common transport planning matters on a provincial wide basis”.
117 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 As a point of departure, the TCC agreed that the role of the JPS should initially be fulfilled by a subcommittee of the TCC to be called the Transport Planning Subcommittee or TPC. This would result in the disestablishment of TCC: Working Group 1 which was responsible for the co-ordination of transport planning in the province. The basic purpose of the TPC is to advise the TCC on the co-ordination of municipal transport plans, to incorporate municipal plans into the Provincial Land Transport Framework (PLTF) and to develop province-wide transport policies and strategies.
Neither the TPC nor JPS came off the ground despite the fact that most of the preparatory work for their establishment was completed. This was probably due to significant changes in the organisational structure provincial roads and transport department over the years, coupled to some reservations by the municipalities on the merits of these bodies.
8.3.3 TCC Transport Planning Sub-committee (TPC)
During the course of 2002, the planning working group, Working Group 1, of the Gauteng Transport Coordinating Committee appointed a Task Team to investigate the feasibility and need for the establishment of a joint planning structure in Gauteng. The Task Team met five times during the course of 2002 and early 2003 and drew up Terms of Reference for the planning structure. The Task Team concluded that there are many common tasks that could be undertaken more effectively if handled jointly by a body such as the proposed TPC. This would speed up the planning process and avoid the situation described in the preceding section. Examples of these common tasks include the following:
establishment of a TPC Website and a common Transport Information System (TIS) linked to the GDRT Website (the Website could contain all the reports and transport plans prepared in terms of the transport legislation making the information available to all planning authorities); application of a standardised province-wide household travel survey; establishment of a common set of Key Performance Indicators for use by all Core Cities and Planning Authorities in the province; and co-ordination of the infrastructure survey required by GDRT Modal Integration Directorate.
118 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 It was felt that there are many planning tasks which can and should be standardised, for example, traffic counts, should be done by means of a joint or collaborative exercise. The main benefit of such joint exercises is that they can be planned and managed centrally. The standardised results are useful to all parties, provide a common information resource and enable comparisons between all municipalities in the province. This is important because of the extent of inter-authority travel and transport interaction, which call for multilateral agreements about the management and control of cross-border movement and inter-authority bus contracts. It was proposed that the TPC would serve as a resource centre and advisory body for all municipalities. In some cases, where district municipalities are under-resourced, the TPC could undertake a large part of the planning required by the NLTTA and GTFRA, if requested to do so. Unfortunately, the establishment of the TPC never materialized and the functioning of the TCC and its Working Groups also scaled down significantly from 2004.
8.3.4 Gauteng Inter-governmental Transport Charter
This Charter is a high level agreement between the transport MMCs of the six municipalities and the provincial MEC in Gauteng, committing themselves and the public officials in their respective spheres to work together to achieve shared transport objectives and outputs over the next five years. The national and provincial legislative framework details the respective roles and responsibilities for transport of different spheres of government in Gauteng. Within this framework, the Charter sought to set out what they want to achieve collectively, and to provide a high level agreement about the nature, scope and form of co-operation and co-ordination between the provincial and local spheres on transport roles and responsibilities. The Charter sought to give a joint focus and common purpose to their endeavors. The common objectives and key outputs to be jointly achieved were:
The need for strong political oversight and decision-making; Delivery should happen at the local level unless economies of scale or nature of the function dictate otherwise; Commitment to build Gauteng as a globally competitive city region with increased co-operation between the different spheres of government; and The imperative to make the 2010 Soccer World Cup a success and to use the opportunity to create a lasting public transport legacy.
119 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 This Charter should help in the efforts and apply collective resources more efficiently to achieve the objectives. It sought to give momentum to move policies, plans and strategies forward to tangible implementation and solutions. Some of the outputs described in the Charter will require engagement with non-signatories to the Charter for its success. Interaction with others – including the national sphere, parastatal bodies, other provinces and the private sector – will be guided by the objectives and outputs expressed in the Charter. The Charter was structured around the following themes:
Planning: Ensuring effective and informed planning which prioritised public transport and good land use management; Public Transport: Ensuring a quality public transport system that offers a realistic alternative to individual transport; Transport Infrastructure: Increasing provision of transport infrastructure with a focus on public transport friendly facilities and transformation of delivery; Road Space Management: Ensuring the efficiency and effectiveness of the transport system for the movement of people and goods; Regulation: Ensuring the regulation of the public and private transport system so that it is efficient and safe; and Freight and logistics: Ensuring that goods are moved efficiently and safely around our province and between our province and the sub-region.
8.4 Institutional Challenges
There are identified problems associated with the management and implementation of integrated, efficient and sustainable transportation systems across Gauteng, namely,
Currently there are several accountable structures/bodies determining transportation planning, standards and implementation parameters or carrying out the coordination role between local authorities within Gauteng. This is even more apparent because of the diversity in structure and capacity that exists at local level. The result is a fragmented approach to planning and implementation of transport infrastructure, standards and systems. Furthermore, there is a need for accountability in the implementation of the requirements as determined in the Gauteng Growth and Development Strategy and in accordance with the Gauteng Global City Region; 120 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 There are no common standards or performance criteria in operation in Gauteng, in relation to achieving integrated, sustainable transportation; There is no spatial and operational integration within the transport system and network; Transport functions cut across jurisdictional boundaries thereby requiring the need for more effective co-ordination and planning; Commuters do not have any access to intermodal transport systems and communication, and the cost of transport is high; and The absence of uniform standards makes it difficult to monitor and results in incongruence within the system.
In December 2005, the Technical Coordinating Committees (“TCC’) agreed that to ensure integration and the most effective implementation, the following appropriate institutional arrangements should exist:
A province-wide planning and co-coordinating body whose critical mandate is to ensure integration across transport infrastructure and operations; Local government to decide whether Transport Authorities is the most appropriate structure to address integration between transport, land use and other municipal functions; and Rationalised service delivery public entities such as roads and rail implementing bodies which could be accountable to the province wide body or local government depending on the function.
The Gauteng Department of Roads and Transport is adopting new and revised approach in considering the establishment of an authority. Such an approach would need to be in line with the NLTA and ensure significant involvement of and ownership by municipal stakeholders. At the Public Transport Conference on 28 May 2012, the MEC of Transport articulated the need again for a Gauteng Transport Authority and expressed a commitment towards the establishment of Transport Authority by March 2013. In response to this political commitment, the Gauteng Department of Roads and Transport will need to execute that commitment by investigating the options available to the department to successfully establish such an authority.
121 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 8.5 Principles and Departure Points
A Charter is required in the context of the NLTA which ensures that municipalities participate once more in the determination of such an authority. The key question is no longer whether a single authority is needed, but rather what and how can the Province and Municipalities collaborate to jointly build a single sustainable institution.
In addition to the above, the Gauteng Global City Region perspective and initiative has also been considered in formulating proposals for intergovernmental relations for transport in Gauteng. The objective of the GCR perspective is “to build Gauteng as an integrated and globally competitive region, where the economic activities of different parts of the province complement each other in consolidating Gauteng as an economic hub of Africa and an internationally recognized global city-region”. A guiding principle is that “for our city-region to compete better externally, we must co- operate internally”; “Getting government right” is one of the success factors for building a GCR. The GCR strategy notes that world city-region governance models are notable in that they do not promote monolithic government structures; and Fundamental to the success of the GCR is the development of measures to strengthen both local government and intergovernmental relations. This can be facilitated by an institution that complements the work of the Department. Institutions such as the Gauteng Transport Authority for the Global City Region will also contribute to the positioning of Gauteng as an economically active and sustainable region.
122 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
5-YEAR TRANSPORT IMPLEMENTATION PLAN
JULY 2012
PART B 2nd DRAFT GAUTENG 25-YEAR INTEGRATED TRANSPORT MASTER PLAN
FIVE-YEAR TRANSPORT IMPLEMENTATION PLAN
CONTENTS
Chapter Description Page
9 STRATEGIC PUBLIC TRANSPORT NETWORK PLAN 124
9.1 State of Planning 124 9.1.1 NATMAP, 2010 125
9.2 Public Transport Action Plan, 2007 128
9.3 Gauteng SPTN, 2004 129
9.4 Integrated Public Transport Action Plan, 2007 130
9.5 Gauteng IPTN, 2009 133
9.6 Gauteng IPTN Review 135
9.7 City of Tshwane BRT Operational Plan 2008 135
9.8 City of Tshwane Draft IRPTN Operational Plan, 2012 136
9.9 City of Joburg BRT Operational Plan 138
9.10 Ekurhuleni Modal Integration Study, 2008 140
9.11 Ekurhuleni IRPTN Scoping Study, 2012 143
9.12 West Rand District Municipality DITP, 2009 144
9.13 Sedibeng District Municipality IPTN Design Report and DITP 145
9.14 Nkangala District Municipality CPTR 146
9.15 Current Realities 146 9.15.1 Planning Coordination 147 9.15.2 Network Approach 148 9.15.3 Integration at Transit Nodes 150 9.15.4 Planning Information 151 9.15.5 Modal Planning 151 (a) IRPTNs 151 (b) Commuter Bus 152 (c) Municipal Bus 153 (d) Scholar Bus 154 (e) Mini-bus Taxi 154
9.16 Status Quo Analysis 155 9.16.1 IRPTNs 155 i ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.16.2 Commuter Bus 155 9.16.3 Municipal Bus 156 9.16.4 Learner Transport Services 157
9.17 Deduction 158 9.17.1 Management of the Public Transport Function 158 9.17.2 Sustainability and Affordability to Government 159 9.17.3 Affordability, Fares and Ticketing 160 9.17.4 Service Quality 162 9.17.5 Availability of Passenger Information 162 9.17.6 Facilities and Amenities 163 9.17.7 Basis for Contracting Operators 163
10 RAIL NETWORK AND SERVICES PLAN 165
10.1 Background 165 10.1.1 Hierarchy of Modes 166
10.2 State of Rail Planning in Gauteng 166 10.2.1 Institutional Arrangements and Alignment Plans 168 10.2.2 Gauteng Transport Management Authority (GTMA) 168 10.2.3 PRASA Long Distance Passenger Transport 169 10.2.4 PRASA Planning Objectives 170 10.2.5 Approach and Key Aspects of the Planning 171 a) Planned Modernisation Projects in Gauteng 172 b) Planned Extensions 172 10.2.6 PRASA Long Distance Passenger Transport 174 10.2.7 Gautrain 176 Transfer Facilities of International / National Significance 180 Transfer Facilities of Provincial Significance 180 Transfer Facilities of Local Significance 180
10.3 Current Realities / Status Quo of the Gauteng Rail System 182 10.3.1 PRASA Commuter Rail 182 10.3.2 PRASA Long Distance Passenger Transport 186 10.3.3 Gautrain 187
10.4 Rail Planning and Implementation Initiatives 189 10.4.1 PRASA Commuter Rail 189 10.4.2 PRASA Long Distance Passenger Transport 192
10.5 Gaps and Inconsistencies in Planning and Implementation 192 10.5.1 Rail integrated BRT planning 192
11 FREIGHT LOGISTICS TRANSPORT 195
11.1 Introduction 195
11.2 Modal and Infrastructure overview 196 11.2.1 Introduction 196 11.2.2 Road Freight 196 11.2.3 Rail Freight 201 11.2.4 Air Freight 202 11.2.5 Pipelines 202
ii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11.3 Transport Trends 204
11.4 Logistics Costs 206
11.5 Overloading in Gauteng 208 11.5.1 Introduction 208 11.5.2 Existing Weighbridges 209 11.5.3 Gauteng Overload Control Strategy 210 11.5.4 Proposed overload control on the GFIP road network 210
11.6 Freight Transport and Logistics Problem Areas 211 11.6.1 Supply Chain Constraints 211 11.6.2 Overloading 212 11.6.3 Logistics Infrastructure Requirements 212
11.7 Planned Infrastructure 215 11.7.1 West Rand Logistics Hub 216 11.7.2 Tambo Springs Hub 216 11.7.3 Vaal Logistics Hub 216 11.7.4 Tshwane Intermodal Freight Hub 217 11.7.5 Weighbridges 217 11.7.6 Rail Infrastructure 218 11.7.7 Air Cargo Infrastructure 222
12 ROAD NETWORK PLANNING 224
12.1 Investing in Infrastructure 224
12.2 Principles and Departure Points 225
12.3 The Gauteng Road Network 226
12.4 The Gauteng National Road Network 226 12.4.1 Background 226 12.4.2 Gauteng Freeway Improvement Project 228 (a) Overview of the Project 228
12.5 The Gauteng Provincial Road Network 232 12.5.1 Extent of the Road Network 232 12.5.2 Condition of the Road Network 233 12.5.3 NATMAP Road Network Planning Priorities 235 12.5.4 Provincial Road Network Planning 236 12.5.5 Gauteng Department of Roads and Transport – Current Road Projects 244
12.6 Gauteng Local Municipality Road Networks 247 12.6.1 Road Network City of Tshwane 248 12.6.2 City of Johannesburg 250 12.6.3 Ekurhuleni Metropolitan Municipality 252 12.6.4 Sedibeng 253 12.6.5 West Rand District Municipality 256 (a) Merafong City 257 (b) Mogale City 259 (c) Randfontein 260 (d) Westonaria 261
iii ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.7 Municipal Road Network Planning and Priorities 263 12.7.1 City of Tshwane 263 (a) Strategic Road Network 265 (b) Completion of the Tshwane Mobility Ring (PWV 9) 266 (c) Planning Projects of a Strategic Nature 267 (d) Transport lead projects 268 12.7.2 City of Johannesburg 269
12.8 Ekurhuleni Metropolitan Municipality 275
12.9 West Rand District Municipality 278 12.9.1 Merafong City 278 12.9.2 Mogale City 279 12.9.3 Randfontein 279 12.9.4 Westonaria 280
12.10 Road Network Planning in Sedibeng District Municipality 280
12.11 Road Network Realities Problems and Issues 283
12.12 Catalytic Road Network Projects 283 12.12.1 Introduction 283 12.12.2 Tambo Springs Road Accessibility 284 12.12.3 PWV 18 285 12.12.4 GFIP Phase 2 287
13 NON-MOTORISED TRANSPORT 288
13.1 State of Planning 288
13.2 State of NMT 289
14 AIRPORTS PLANNING 291
14.1 State of Planning 291
14.2 Current Transport Realities, Problems and Issues 291 14.2.1 O R Tambo International Airport 292 14.2.2 Lanseria International Airport 292 14.2.3 Wonderboom Airport 293 14.2.4 Other Airports 293
15 INTELLIGENT TRANSPORT SYSTEM (ITS) 295
15.1 Introduction 295
15.2 State of ITS Planning in Gauteng 296
15.3 Current Gauteng ITS Deployment 296
15.4 Recent Flagship Gauteng ITS Projects 297 15.4.1 SANRAL Freeway Management System 297 15.4.2 Johannesburg BRT (Rea Vaya) 297 15.4.3 SANRAL ITS Design, Build, Operate & Maintain (DBOM) 297 15.4.4 Gauteng Integrated Fare Management (IFM) Framework 298
iv ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 16 SUSTAINABLE TRANSPORT AND GREEN SOLUTIONS 299
16.1 Status Quo Assessment 299 16.1.1 City of Tshwane BRT 299 (a) Findings 299 (b) Recommendations 300 (c) Critical Gaps 301 16.1.2 City of Johannesburg BRT 301 (a) Findings 301 (b) Recommendations 302 (c) Critical Gaps 302
16.2 Non-Motorised Transport 302 16.2.1 Tshwane Precinct Master Planning – Beautification Project 302 (a) Findings 303 (b) Recommendations 303 (c) Critical Gaps 303 16.2.2 Gauteng Walking and Cycling on Roads and Streets 303 (a) Findings 304 (b) Recommendations 304 (c) Critical Gaps 304 16.2.3 Tshwane Non-Motorised Transport Master Plan – Shova Kalula Bicycle Project 305 (a) Findings 305 (b) Recommendations 305 (c) Critical Gaps 306 16.2.4 Intelligent Transport System Strategy 306 (a) Findings 306 (b) Recommendations 306 (c) Critical Gaps 307
v ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 This is the second part of GTIP report this provides analysis of the current state of transport in Gauteng
9 STRATEGIC PUBLIC TRANSPORT NETWORK PLAN
9.1 State of Planning
The various transport plans applicable to public transport in Gauteng, which were studied and assessed are listed in Table 1.1.
Table 1.1 – Public Transport Plans
Compl Approval Plan Title etion Status Date
1. NATMAP 2010 Not approved
2. Public Transport Action Plan, Jan 07 Approved
3. Gauteng SPTN Nov 04 Approved
4. Integrated Public Transport Action Plan 2007 Approved
5. Gauteng IPTN Jul 09 Approved
6. Gauteng IPTN, review of proposals for COJ, Was - CoT, West Rand and Sedibeng & designs for due Merafong and Metsweding April 2012 7. City of Tshwane BRT Operational Plan 2008 Approved
8. City of Tshwane Draft IRPTN Operational Plan, Jun 12 Draft 2012
9. City of Joburg BRT Operational Plan ? Approved
10. Ekurhuleni Modal Integration Study 2008 Approved
11. Ekurhuleni IRPTN Scoping Study 2012 Draft
12. West Rand District Municipality DITP 2009 Approved
13. Sedibeng District Municipality IPTN Design 2009 Approved Report and DITP
14. Nkangala District Municipality CPTR 2008 Approved
The plans in the above-mentioned table is summarised in the following section.
124 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.1.1 NATMAP, 2010
The National Transport Master plan was developed to enable the National Department of transport to have a strategic coordinated implementation schedule/action agenda for transport in the whole country. The transportation plans of the nine provinces were used as building blocks in the development of the National Transport Master Plan
The aim of the National Transport Master Plan 2005-2050 is for the plan to be the framework by which future state-of-the-art land use/multimodal transportation systems planning, implementation, maintenance, operations, investments and monitoring decisions can be made. The national plan thus advocates an integrated and coordinated approach to transport planning in South Africa.
The objectives of the NATMAP are to deliver on the following:
Land use/spatial development models to achieve multi modal transportation efficiencies; From a transportation perspective, focused visions, goals, objectives, implementation parameters and prioritised projects for the identified development corridors and economic hubs; Integrated growth and development strategies utilising transportation as the catalyst; Integrated multi-modal infrastructure facilities development plan; Cost effective policy development in order to enhance coordination and integration
In terms of passenger transport NATMAP includes an analysis and summary of the most pertinent problems and issues experienced in Gauteng. Some of the main points are:
Demand in Gauteng is currently supported by the supply of a number of services. Infrastructure capacity bottlenecks are mainly the result of the sharing of critical road infrastructure by local public transport services and private transport. The public transportation network is unable to efficiently and cost-effectively link excluded settlements to the concentration of economic opportunity within Gauteng. Rivalry exists between institutions on the national, provincial and municipal levels over the planning, strategy development, operational control and implementation. Competition exists between modes and institutions on the roles of the different modes as well as competition for getting government funding for implementation.
125 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The existing public transport services under current operating and management practices are unsustainable. Low levels of profitability for many private operators’ results in a failure to adequately maintain and recapitalise fleets. The modal integration of public transport services is limited and public transport planning and infrastructure provision does not support the integration of transport modes.
The Analysis conducted as part of the formulation of the NATMAP found that most passenger operational problems are related to inefficient management, insufficient funding, institutional fragmentation, as well as inadequate and complex legislation; and not due to infrastructure.
With regards to Strategic Public Transport Networks, The National Transport Master plan highlights the fact that while Public Transport Plans for Gauteng’s metropolitan and district municipalities have been completed; they mostly reflect the status quo of public transport in the municipalities in terms of the flawed, statutory Current Public Transport Records (CPTR). Accordingly, the data they contain are not a reliable indication of the demand for public transport in Gauteng.
The implementation projects contained in some of these plans are mostly planning projects which involve further research and analysis and were, therefore, of little relevance to NATMAP in its search for locally generated infrastructure and services projects of provincial and national significance. The infrastructure projects that were proposed in the 2005/06 plans, such as the Strategic Public Transport Networks (SPTN) were not implementable as long as PRASA and the Province controlled the rail and bus contracts respectively.
NATMAP further stresses the little progress made in the implementation of any of the SPTN rationalised networks while the cities were not in control of the contracts. The only projects to be implemented were piecemeal projects, such as the various bus priority lanes and others which have little hope of success without comprehensive system based, or network approaches to public transport improvements.
Although the NATMAP only provides a summary of the progress made with regards to the state of planning of SPTN’s in Gauteng, it offers valuable insights into cross-border transport volumes not addressed in local plans and indicate both the local and long-distance bus and taxi services in Gauteng Province. Important cross-border services to Mpumalanga, North- West and the Free State Province are clearly visible on Figure 1.1, and Figure 1.2.
126 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.1 - Gauteng Passenger Link Volumes by Bus
Figure 1.2 – Gauteng Passenger Link Volumes by Mini-Bus Taxi
127 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.2 Public Transport Action Plan, 2007
The National Public Transport Strategy and Action Plan was approved by Cabinet in January 2007 and aims to address the problems in local and long distance public transport through implementing a Catalytic Integrated Rapid Public Transport Network Projects in up to 12 cities and 6 districts that addresses the need for high quality services that can retain current users and attract new users.
The Action Plan is a high-level plan that supplements the Public Transport Strategy. It maps out the Phase 1 (2007-2010) implementation programme and funding requirements for the next 4 to 7 years. It aims to initiate implementation of catalytic Integrated Rapid Public Transport Network (IRPTN) projects in up to 12 cities and 6 districts at an estimated cost of R12bn over and above the current capital allocations to bus and rail subsidies and the Public Transport Infrastructure and Systems Fund (PTIS).
The Public Transport Strategy has two key thrusts as follows:
Accelerated Modal Upgrading, which focuses on the 3-7 year transitional period with regard to improving the quality of the public transport fleet and its current operations. Integrated Rapid Public Transport Networks (IRPTNs) that meet high quality standards with regards to accessibility and coverage - 85% of all metropolitan city residents within 1km of Rapid Public Transport Networks by 2020.
The strategy focuses on Integrated Rapid Public Transport Networks over the 4-20 year period and aims to implement high quality networks of “car competitive” public transport services that are fully integrated, have dedicated rights-of-way and are managed and regulated by a capable municipal transport department. In this regard, the aim is for major cities, such as Johannesburg, Tshwane and Ekurhuleni to upgrade both commuter rail services and bus and minibus services to a Rapid Rail and a Bus Rapid Transit (BRT) level of quality respectively. Ultimately, these services will be fully integrated to form a single system regardless of mode. South African cities and districts are also cautioned to refocus their current Integrated Transport Plans to include the phasing in of IRPTNs.
In order to achieve this, the Action Plan maps out a framework to accelerate the transformation of public transport service delivery in 3 phases:
Phase 1: 2007-2010 Accelerated Recovery and Catalytic Projects Phase 2: 2010-2014 Promote and Deliver Basic Networks
128 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Phase 3: 2014-2020 Advance and Sustain Accessible Networks
Phase 1: Accelerated Recovery and Catalytic Projects Agenda (2007-2010)
The strategic thrust of this phase is to stabilise the current passenger transport service delivery environment as well as to recover from the accumulated neglect of decades of under-investment. The Accelerated Recovery Plan includes: the completion of network design for all subsidised services, building local sphere capacity in planning, monitoring and network management, acceleration of fleet upgrading, taxi recapitalization and the tendering of bus contracts based on redesigned routes. The Catalytic Projects component is dealt with in the Action Plan’s focus on IRPTN Phase 1. The key objective of this phase is an effective public transport implementation platform including Integrated Transport Plans with a focus on Integrated Rapid Public Transport networks.
Phase 2: Promote and Deliver Basic Networks Agenda (2010-2014)
The strategic thrust of this action agenda is to incrementally enhance and expand the passenger transport system through the upgrade of key integrated rapid public transport network corridors, travel demand management measures for car users, and consolidating public transport operators into capable entities.
Phase 3: Advance and Sustain Accessible Networks Agenda (2014-2020)
The strategic thrust of this phase is to incrementally enhance and expand the passenger transport system through large scale implementation including: rolling out fully interconnected mass rapid public transport networks, ensuring most public transport facilities, vehicles and infrastructure are high quality and expanding universally accessible vehicles and infrastructure for users with special needs.
9.3 Gauteng SPTN, 2004
The Gauteng Strategic Public Transport Network (SPTN) was designed within the context of the Gauteng Global City Region initiative and the GDRT's Public Transport Strategy and Action Agenda. The Gauteng Strategic Public Transport Network for Gauteng (SPTN) is a network of planned mass public transport trunk routes (road and rail). The SPTN sets the parameters and standards for all operators, whether public or private. The GSPTN is not the sole responsibility of Provincial Authorities. Its success is dependent on the local authorities aligning their programs and policies to the requirements as set out in the GSPTN.
129 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The main aim of the GSPTN is to provide:
A Strategic framework for planning and improving public transport in the province A vision to develop a network of public transport corridors, routes and areas where land use development should be planned and managed in such a way as to support public transport services and operations A broad provincial urban structure with a strategic public transport network leaving it to local authorities and other service providers to undertake the more detailed planning. The opportunity to expand the network in future should the urban structure of the province expand
The Gauteng Province‘s Public Transport System comprises two main components: The SPTN and the Expanded Public Transport Network (EPTN).
The SPTN provides a framework for public transport in Gauteng based on major regional movement needs. These two components are functionally linked to one another and in combination comprise a system of public transport for Gauteng as a whole. The SPTN comprises a rail component supplemented by roads. It is a provincial and national responsibility and it provides a framework for public transport in Gauteng based on the major regional movement needs.
The EPTN on the other hand comprises predominantly road infrastructure supplemented by rail sections. It is primarily the responsibility of local authorities to design and implement the EPTN for their respective areas.
The SPTN routes link the main generators (residential areas) with job opportunities and social and retail services (attractors), focusing both on the existing public transport market, as well as on car users who could be attracted to use public transport. The main generators and attractors have been designated as nodes on the SPTN. Figure 1.3 indicates the Gauteng Strategic Public Transport Network.
9.4 Integrated Public Transport Action Plan, 2007
The intention of the Strategic Action Agenda for Gauteng is to confirm the Province’s role in the transport milieu and to elaborate on its implementation program for public transport in the immediate, short, medium and long term. The Strategic Action Agenda for Transport is considered to be the Provincial Transport Planning Framework for the next 5 years which is
130 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 to be reviewed annually so as to take into account the changes of the dynamic Gauteng context.
The document further provides the policy, strategy and operational guidelines that need approval from the Department of Transport so as to enable Gauteng to effect the required changes and operational approvals in a comprehensive manner rather than having to obtain piecemeal approval per public transport subsidy application.
The Gauteng Strategic Action Agenda for Transport has taken a number of approved strategic policies and programmes, integrated them and elaborated on an action plan for the next five years the focus being on facilitating and coordinating public transport management – a Provincial competency in terms of both the Constitution and the National Land Transport Transition Act. The overall aim of the document is to obtain approval for the Strategic Action Plan: 2007, with the premise that it becomes the basis for implementation of all public transport subsidized contracts.
The focused objectives of the Gauteng Strategic Action Agenda include:
To ensure the furtherance and implementation of efficient and effective intermodal transport in an integrated manner in order to further the objectives of the Global City Region. To obtain approval of the Gauteng Strategic Public Transport Network (SPTN) and its operational guidelines as the basis for the evaluation and provincial approval for all subsidized public transport systems. This means that there will be one approval from DOT of the SPTN, its operational plan and the implementation timetable, after which monitoring an implementation will take place at regular intervals, and will be reported to National. The focus of this reporting will be in terms of compliance with the parameters of the Public Finance Management Act and Treasury Regulations. To utilize as a basis for securing funding both nationally and internationally for the medium to long‐term implementation of public transport investments. To be the basis for the operation of the Gauteng Transport Management Authority and the related consultative structures. To be the evaluation tool for all current and future transport modes across Gauteng, as well as for future technological advances in the transport industry.
131 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.3 – Gauteng Strategic Public Transport Network
132 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 In conclusion, the document highlights Gauteng’s’ different approach to the implementation of National Passenger Transport Plan, due to the development intensities in the Province, the collective decision to the establishment of the Gauteng Transport management Authority and due to Gauteng being defined as a Global City Region, namely:
The Transport Authority is being established at Provincial level in Gauteng; Integrated transport is the primary focus but it includes all modes, not just road transport. The Gauteng Strategic Action Plan has already established the framework for implementation and therefore implementation is to be initiated with immediate effect. All operators, whether private or public (in the form of the local authorities) will be required to comply with the new operating parameters. This implementation plan will address all modes in the short term with focus on bus and taxi transformation and how to extend the subsidies to the taxi industry in Gauteng. The medium term will focus on the integration, promotion and improvement of the rail sector, ensuring the promotion of new technologies and innovations in efficiency. Finally, a further medium term action plan will be the design and implementation of integrated, intelligent transport systems across Gauteng, in accordance with the principles and performance standards.
9.5 Gauteng IPTN, 2009
The purpose of the IPTN Design Report is to provide a report on the development of an Integrated Public Transport Network (IPTN) for Gauteng. The report focuses on the IPTN’s for the following areas:
City of Tshwane Metropolitan including the Metsweding District Municipality; West Rand District Municipality; City of Johannesburg Metropolitan Municipality; Sedibeng District Municipality
In 2006 and 2007, the national Department of Transport (DOT) developed the Public Transport Strategy and Action Plan which introduced and set out the Action Agenda for implementing Integrated Rapid Public Transport Networks (IRPTNs). Simultaneously, the Gauteng Department of Public Transport, Roads and Works were developing the Gauteng Integrated Strategic Public Transport Network (GISPTN) as the basis for its detailed IPTN designs.
133 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 In July 2008 it was agreed by DOT and the GDPTRW that: IPTN designs, carried out according to DOT Guidelines, would be completed for Joburg, Tshwane, West Rand and Sedibeng by July 2009. Implementation of these IRPTN designs was supposed to be phased in from 1 April 2010. Hence, there would be a 10 month period from 1 July 2009 to 1 April 2010 for the approval of the designs and implementation programme. Ekurhuleni Integrated Network Designs and funding applications would follow a year after the other Gauteng municipalities.
The IPTN should be viewed in the context of the GSPTN and followed the same principles as guided by the GSPTN: Road-based public transport corridors should be located on arterials and main roads rather than freeways, with generators/attractors on both sides and ends of the route. This is to try to maximize the number of people who can access the GISPTN by walking, as well as the potential for passenger turnover along the route. The SPTN should be kept as direct as possible to minimize travel times and maximize the potential for road-based public transport priority measures such as dedicated bus ways, public transport lanes, priority traffic signals, and so on. The SPTN should have integrated public transport facilities at all nodes to allow for transfers between modes. Public transport services should be provided by the appropriate mode for the demand A system of feeder and distribution routes serving the SPTN trunk routes to ensure maximum geographic and network coverage. Frequent and rapid peak and off-peak services between major origins and destinations on the SPTN provided by the appropriate mode for the corridor demand. Sufficient vehicle capacity to prevent overloading and long queues.
The Gauteng IPTN Design Report also highlights the timeframes as set out in the National Public Transport Action Plan for the implementation of the IPTN designs in Gauteng as part of its first phase:
Completion and costing of working IPTN designs for Joburg, Tshwane, West Rand and Sedibeng: July 2009 Application to Treasury for 2010/11 funding: July 2009 Expansion of West Rand design to include Merafong, September 2009 IPTN designs for Ekurhuleni: July 2009 – July 2010 Conversion of interim contracts to km-based short-term contracts: September 2009 Discussion and approval of working IPTN designs with municipalities and DOT: July - November 2009 134 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 IPTN Implementation Roadmap: February 2010 Phased implementation of IPTN designs: April 2010 - March 2014 (during this period the km-based short-term bus contracts will be converted to IPTN contracts).
9.6 Gauteng IPTN Review
A study for the Gauteng IPTN review and the inclusion of Merafong and Metsweding had been commissioned, but only has an anticipated completion date of July 2012.
9.7 City of Tshwane BRT Operational Plan 2008
The City of Tshwane developed and approved a full Operational Plan for implementing the proposed road-based public transport system in Tshwane in 2008. The plan was to provide an integrated package of measures with the emphasis being on the provision of a Bus Rapid Transit (BRT) system for the Tshwane metropolitan area. The mandate for the development and implementation of the BRT Operational Planning was a solution to providing mass transit within a limited timescale was provided by the Council following the Scoping Study undertaken in 2007.
In the development of the proposed BRT system, a layered approach to the network planning was adopted, with the existing rail system at the top of the hierarchy of modes, followed by the proposed BRT system, enhanced bus corridors and then feeder or distributor services.
The Operational Plan identified the implementation of Tshwane’s BRT in Phases, with the proposed system for Phase I consisting of BRT and enhanced route corridors as can be seen in Figure 1.4.
• Line 1 Bus Rapid Transit route between Mabopane and Pretoria Station • Line 2 Bus Rapid Transit route between Belle Ombre Station and Mamelodi • Line 1 Enhanced bus corridor on Church Street between Atteridgeville and Hatfield • Line 2 Enhanced bus corridor on Church Street between DF Malan and Mamelodi • Feeder routes to provide access to the BRT services
135 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.4 - Original Tshwane BRT Phase 1
Although the Operational Plan was approved by the City of Tshwane, it was questioned by the National Department of Transport with regards to its routes being competition to rail by running parallel to existing rail services, trunk routes running on the R80 Mabopane Highway that was deemed inaccessible, high cost of infrastructure associated with the design and the need for extra work to be done regarding the CBD linkages.
The 2008 Operational Plan was subsequently reviewed, leading to the formulation of the new Operational Plan in 2012.
9.8 City of Tshwane Draft IRPTN Operational Plan, 2012
Building on to the previous Tshwane Operational Plan, and other studies that have identified a requirement for a link from Mamelodi in the east to the Pretoria CBD, and from Mabopane in the north to the CBD, the 2012 Draft Operational plan identifies these routes as projects that must be delivered early in the development of the BRT Project for the CoT.
The Draft IRPTN Operational Plan identifies the following priority corridors:
Northern corridor from the CBD towards Mabopane. The BRT Line 1 (Northern Corridor) route originally followed a route from Paul Kruger Street to DF Malan and the
136 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 R80 terminating in Mabopane. This route was subsequently amended by the BRT Line 1 Review Report approved by Council in 2010 to run from Paul Kruger Street to Rachel De Beer, Akasia, Doreen and terminate in Soshanguve. Eastern Corridor to Mamelodi via Hatfield and Menlyn. The BRT Line 2 Route has in general followed a route south-west from Mamelodi towards Lynnwood, Hatfield, Brooklyn and the CBD. This route was finalised in the BRT Line 2 Review Report and approved by Council in April 2012. Future Extensions during phase 2-4 includes services to Centurion, Atteridgeville, Mamelodi via Zambezi and Hans Strijdom Drive.
Figure 1.5 indicates the Tshwane IRPTN Route network as included in the Draft 2012 IRPTN Operational Plan.
The 2012 Draft IRPTN Operational Plan also identifies complimentary services from Kopanong to Akasia and Menlyn to Denneboom should financing be available.
The planning of the Phase 1 BRT system as part of the IRPTN has focused on the detailed development of the alignments of BRT Lines 1 and 2. The development of these lines was influenced and informed by a several factors as follows:
The overall passenger demand (public and private) in the main movement corridors; The need to not only service the main corridor movements (i.e. longer trips) but also the residential and employment suburbs along the main corridors (i.e. shorter trips); The integration of the existing and new modes making up the IRPT network; The suitability of the road infrastructure along the corridors to provide the exclusive trunk bus lanes, stations and passing lanes at stations; The current and future land use proposals along the corridors; The comments and concerns of the Departments of Transport (DoT) and National Treasury in regard the original BRT system designed in 2009 and 2010.
137 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.5 - Tshwane IRPTN Planned BRT Network
The proposed project phasing has construction of Phase 1A (CBD to Hatfield) to start in August 2012, with the phase “going live” in August 2014. The completion date for the complete phase 1 is currently scheduled for January 2016, with full phase 1 operating from April 2016. At time of writing, the status of this Draft Operational Plan was not known.
9.9 City of Joburg BRT Operational Plan
The City of Johannesburg adopted BRT in principle as its long-term mass transit solution in November 2006. The first construction contract was signed in September 2007. The first Rea Vaya buses began operating in August 2009. The Operational plan for Phase 1 was developed in three phases, with a brief investigation conducted at the long term, full Rea Vaya System:
• Phase IA: Planned completion by April 2009, 25 kilometers • Phase IB: Planned completion by April 2010, 63 kilometers • Full Phase I: Completed by 2013, adding an additional 122 kilometers of routes to the network. • Full Long Term Rea Vaya BRT System: 2020 and beyond
138 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.6 shows the full 122 km Phase I Rea Vaya Trunk system. On all of these roads, physically segregated bus lanes need to be constructed. In addition, 150 special prepaid boarding stations need to be constructed and eight terminal stations. Phase I also requires the construction of six bus depots.
Corridors for the complete long term Rea Vaya BRT system have been identified but the service plan has not been detailed.
Figure 1.7 shows the 330 kilometers of trunk corridors that should all be included in the long term full Rea Vaya BRT system plan based on demand levels and upon the Strategic Public Transport Network developed by the City of Johannesburg.
Figure 1.6 - Rea Vaya Full Phase 1 Trunk, Feeder and Complimentary
139 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.7 - Full Future Rea Vaya Network approved in November 2006
9.10 Ekurhuleni Modal Integration Study, 2008
The Ekurhuleni Modal Integration Strategy was completed in 2009 and analyses the entire Ekurhuleni Public Transport System, including the BRT routes as identified in the IRPTN Scoping Study. The study identified the need for a pilot project for Modal Integration in the municipality, to be implemented on a planned BRT Corridor
The short term approach of the pilot project was aimed to improve safety and security (day and night), improve access to stations (local and regionally), upgrade existing facilities, improve pedestrian linkages between existing facilities and the station, as well as between the station and the surrounding attractions, include non-motorized transport paths and facilities, and to improve operational efficiencies between the existing modes.
The medium and longer term focus is to incorporate Rapid Public Transport (RPT) in such a way that it would complement and integrate with the commuter rail components of the IRPTN. In the first phase this is to be introduced by prioritized bus and mini-bus taxis by dedicating lanes for their exclusive use.
140 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 From the routes identified in the Scoping Study, the Modal Integration Study chose Route 2 for implementation because it connects to major economic nodes in the area as well as different transport services such as PRASA stations, the OR Tambo Airport and Gautrain. The timeframe for the implementation of the project was estimated to be 30 months. Figure 1.8 below indicates the route chosen to implement as a pilot project.
The current progress with regards to the implementation if the Ekurhuleni IRPTN can be summarized as follows:
Chosen Route 2 (phase 1) was put out to tender in June 2010. Scope includes a basic confirmation of the full future BRT network with the 5 routes as well as detailed investigation of Route 2 (Phase 1) for implementation EMM is now consulting on Phase 1 of the BRT systems and the following program will follow after the approval: o EIA processes on Phase 1 o Detail Design – Phase 1 A o Construction
141 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
o .
Figure 1.8 - Modal Integration Pilot Project
142 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.11 Ekurhuleni IRPTN Scoping Study, 2012
The Ekurhuleni IRPTN Scoping Study and Implementation Framework was completed in 2008 with the aim to articulate the vision and steps required to implement a public transport system that integrates all modes into a seamless and high-quality network. The development of such an Ekurhuleni Integrated Rapid Public Transport Network (IRPTN) was deemed particularly crucial to meeting some of the City’s obligations in providing transport facilities and services to the people of the city.
The overall goal of the initiative is to improve the quality of life for the city’s residents through the provision of an integrated public transport network that is rapid, safe and secure, convenient, clean, affordable, and socially equitable.
The scoping study aimed to identify the actions required to:
Provide a full network covering the expanse of the Ekurhuleni Metropolitan Municipality (EMM) with appropriate services based on rail, road, and non-motorised options Assure actual implementation of the system within the necessary time frames Deliver a system of sufficiently high quality that will both attract existing car users and greatly enhance the travel experience of current captive public transport customers.
The findings of the IRPTN scoping report can be summarized as follows:
BRT Route selection was based on SPTN and demand for road-based services. Routes were adjusted to ensure maximum protection for existing and planned rail services. BRT routes also planned to serve changes in land use patterns of over the last four decades, areas that had grown and developed since the last implementation of rail infrastructure
The following routes were recommended for the development of trunk road services in project Phases 1 and 2 as can be seen in Figure 1.9.
Phase 1: runs from Ivory Park and Tembisa in the north to Germiston and from Katlehong in the South to Germiston via Alberton. The total length of this route is 44.55 km. Phase 2: runs from its origin in Kempton Park at its junction with the Phase 1 Route, through Kempton Park to OR Tambo IA and thence to Benoni via Boksburg North and 143 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 finally southwards through Boksburg towards Vosloorus. Route 2 has a length of 36.39 km. Phase 3: runs from OR Tambo IA to Germiston. Phase 4: runs from Kempton Park to Kwatsaduza via Benoni and Brakpan with a southerly spur to Germiston, intersection with the Phases 1 and 2 routes. Phase 5: runs from Daveyton to KwaThema
Figure 1.9 - Proposed Phases BRT network in Ekurhuleni
9.12 West Rand District Municipality DITP, 2009
The West Rand District municipality 2009 DITP was reviewed for the period 2010 to 2014 in order for the municipality to adhere to legislation. The Current Public Transport Record (CPTR) and Operating Licensing Strategy (OLS) for the region were due to budgetary limitations, restricted to origin-destination and corridor counts and did not allow for comprehensive area-wide coverage for deviation of commuter patterns. In addition to the above, it must also be noted that the Integrated Transport Plan did not cover Merafong City LM, the latter municipality which was re-demarcated into the area of jurisdiction of the West Rand District Municipality during 2009.
In order to adhere to the new regulations, a revised District Integrated Transport Plan was compiled for the West Rand during the period June 2009 – 2010 to include Merafong City LM and Local Transport Plans were also prepared for four local municipalities of Mogale City, Merafong City, Randfontein and Westonaria. No new CPTR data or OLS Strategy were compiled as these arrangements are being held in abeyance, pending the alignment thereof with the envisaged Public Passenger Strategic Network for the West Rand 144 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The DITP identifies public transport as a problem in the municipality, stating that Public transportation initiatives are not focused around a specific implementation plan. Public transport projects and public transport infrastructure are implemented on an ad-hoc basis. The DITP advocates the proclamation of a Primary Strategic Public Transport Network (PSPTN) for the West Rand District Municipality and urges the identification of pilot implementation corridors.
In addition to this, feeder systems connecting into the PSPTN are needed, and the need to proclaim a Secondary Strategic Public Transport Network (SSPTN) for the West Rand District Municipality is highlighted.
9.13 Sedibeng District Municipality IPTN Design Report and DITP
In July 2008 it was agreed by DOT and the GDRT that Integrated Rapid Public Transport Network (IRPTN) designs, carried out according to DOT Guidelines, would be completed for Sedibeng by 1 July 2009. The following principles were adopted in the IPTN design process for Sedibeng:
Where applicable, the existing heavy rail, Bus Rapid Transit (BRT) and Gautrain rapid rail systems were considered as critical components of the revised networks and input into the model. The services proposed for the BRT and Gautrain systems were not altered, and the revised road-based routes were integrated with these new services. A ‘clean slate’ approach was adopted and all existing bus and taxi services were not considered in the design process. There are a large number of bus and taxi services currently operating in Sedibeng. Early investigations found that it was extremely difficult to alter and change these routes on an individual basis and that it posed several risks: o By modifying the existing modes and routes, there was the risk of emphasizing and entrenching the status quo, which was not considered desirable; o The need for the integration of BRT and Gautrain services are not reflected in the existing routes and services; o The existing services do not reflect mode efficiencies, i.e. cost, capacity and travel distance efficiencies; and o The need to consider the cross-boundary movement of services and passengers was a key consideration in the revised networks.
A total of 26 routes have been identified, 3 of which are suitable for articulated buses, 17 of which are suitable for standard buses, 3 for minibuses and 3 for minibuses. The IPTN design report also stresses the strong cross-boundary passenger movement between Sedibeng and
145 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Joburg, as well as cross-boundary movements between Sedibeng and Ekurhuleni and West Rand. All of the 3 articulated bus routes provide cross boundary services. The timeframes associated with the implementation of the ITPN designs were in line with those proposed by the National Public Transport Action Plan. At time of writing, no network maps were available.
This current District Integrated Transport Plan (DITP) is the officially Council adopted Transport Plan for Sedibeng applicable to the planning period 2008 to 2013. The DITP stresses the necessity of the Municipality to support Gauteng Province with finalising the main public transport corridors for Gauteng (including Sedibeng) –Integrated Public Transport Network Design project.
9.14 Nkangala District Municipality CPTR
The 2008 Current Public Transport Records of Nkangala District Municipality highlights the significant cross-border movements of passengers from the District into the Gauteng Province. The major cross-border movements for Nkangala that needs to be noted are:
Major bus routes include the Moloto to Pretoria route (carrying about 35 000 passengers per weekday (one direction only) and Pankop to Hammanskraal route (carrying about 3 000 passengers per weekday (one direction only)); The highest occurrence of work trips across a district boundary was from Nkangala District Municipality to Gauteng (5.3% of all work trips in the province).
A total of 6.2% of all work trips originating in Mpumalanga is destined for Gauteng.
9.15 Current Realities
From the paragraphs above it is clear that an extensive amount of public transport planning work had been done over the past decade or so. However, some of the planning is already dated, has been over-taken by other planning initiatives and is therefore not that relevant anymore. (An example of such planning is the public transport planning for Gauteng contained in NATMAP, 2010).
An assessment of the public transport planning is given in general terms in the following number of paragraphs. This section is concluded with a discussion on public transport modal specific planning.
146 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.15.1 Planning Coordination
The planning of public transport networks and services are “spread” across a whole variety of government spheres, agencies and entities. Planning is also often done in modal “silos”, whereby:
High-speed rail planning is done by National DoT, Commuter and long-distance rail is done by PRASA, Gautrain rail and feeder bus services by the Gautrain Management Agency (GMA), Integrated Rapid Public Transport Networks (IRPTNs) or BRT by metropolitan authorities, Subsidised commuter bus services by the Gauteng Department of Roads and Transport, Subsidised scholar transport managed (but not really planned) by the Gauteng Department of Education, Municipal Bus Services by the municipal bus operators, and Mini-bus Taxis services by operators and associations.
Transportation planning done by the municipal sphere of government, such as the Integrated Development Plans (IDPs), Integrated Transport Plans (ITPs) and Integrated Public Transport Networks (IPTNs), is very much inward focussed. Public transport network and service proposals and projects proposed in most instances are limited to within local geographical boundaries. Very little attention is being given to travel across municipal boundaries, whereas a significant amount of passenger transport happens across both municipal and provincial boundaries within the greater City Region.
The latest Gauteng IPTN has to some extent attempted to address the matter of travel across local boundaries. However, due to a lack of effective planning coordination, some gaps and proper integration between networks and services still exists in many instances.
Post 1994 structures were established (mainly through the Technical Coordination Committee and its working groups), to facilitate better planning coordination and this taken further as part of the activities of the Gauteng Transport Management Agency (GTMA). However, since the Agency is not in existence any more, effective coordination in public transport across modes and government entities planning is lacking. In turn, this is hampering effective public transport integration.
The NLTA, 2009 makes provision for every municipality that has established an integrated public transport network or has significant passenger rail services in its area to establish 147 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Intermodal Planning Committees, with the aim of coordinating “public transport between the modes”. The City of Joburg is currently the only municipality in Gauteng that has established such a committee which meets on a 3-monthly basis. However, this committee largely only acts as a forum for sharing planning information, but it has very little power to “influence” planning decisions and processes.
9.15.2 Network Approach
Similar the planning of road networks, a network approach should be followed when planning public transport systems, adhering to inter alia the principles of network hierarchy and network continuity.
Firstly, the principle of network hierarchy talks to function of specific links or corridor in an integrated public transport network and the levels of mobility and accessibility required by passengers travelling along a specific network link or corridor. This is directly related to the “role of modes” consideration and the most appropriate public transport mode to be deployed along a certain network link or corridor. By way of example, an urban freeway provides a high level of mobility and through-put, as well as a low level of local access to private vehicles, whereas a metro rail type of system fulfils the same type of function from a public transport facility perspective, where access is only provided at stations. Similarly, a collector road provides a fairly low level of mobility and a high-level of local accessibility, which is comparable with the commuter bus or mini-bus taxi public transport modes, where stop spacing is fairly close.
Figure 1.10 illustrates the hierarchy and role of modes well from a public transport networks and services perspective.
148 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 1.10 – Hierarchy of Public Transport Modes
Most of the existing public transport plans for Gauteng accept the commuter rail system as the “back-bone” of the public transport system. However, given the evolution and the success of Bus Rapid Transit (BRT) throughout the world (and more specifically in the third world and developing city regions) in the last decade of the previous century, BRT was seen as the solution to meet most urban public transport system requirements. BRT was and is still in many quarters seen as the solution to meet most urban public transport system requirements. This was further reinforced by the national Public Transport Action Plan and the associated Public Transport Infrastructure and Systems Fund. Where BRT provides for a good balance between mobility and access with “medium” through-put in passenger volumes, BRT systems are only being envisaged as appropriate solutions, whereby rail or other types of commuter bus (i.e. express bus on separate right-of-way) may be more appropriate in certain instances.
149 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Thus, in terms of public transport planning done at the metropolitan government spheres in Gauteng identified Strategic Public Transport Networks (SPTNs) as part of their initial Integrated Transport Plans (ITPs). This evolved to Integrated Rapid Public Transport Networks (IRPTNs) during the refinement of certain sections thereof. This now means that the restructuring of public transport and the implementation of SPTNs is largely if not solely focussed on BRT, to the detriment of other modes. This is further aggravated by the planning of dedicated services, with the sole purpose of feeding BRT trunk lines, not being public transport services “in their own right” and bringing about further inefficiencies. If secondary and tertiary or lower networks were planned to the same level as BRT, roles for commuter bus and mini-bus taxi will be forthcoming.
Secondly, the principle of network continuity addresses the ability for passengers to travel throughout a city region and across borders, irrespective of the public transport service providers used and the government entity to which they are contracted. An assessment of existing public transport plans, and specifically the “inward looking nature” of most of the public transport planning done at a metropolitan level, shows that insufficient attention is being given to network continuity and the planning of services across municipal borders. This is to some extent negated by the existing of the commuter rail corridors and the subsidised commuter bus services, addressing the demand along pre-1994 high-density passenger demand corridors, associated with apartheid settlement strategies. Gaps exist in formal public transport network planning, in terms of the continuity of lower order network links serving the transport demand in new developmental areas and less dense passenger demand corridors. Due to the lack of formal planning in this respect, public transport networks are evolving informally through operations planning done by mainly mini-bus taxi operators.
9.15.3 Integration at Transit Nodes
Major opportunities are emerging, where significant improvements in public transport nodes, interchanges and facilities offer the potential to attract development and stimulate higher density development. Through effective integrated planning at public transport interchanges and precincts the following can be achieved:
Integration with other public transport modes is maximised, The reshaping and regenerating of the urban form in urban areas such as inner cities, Promotion of a more compact urban form and densification through integrating transport and land use planning, Promotion of local economic development especially in previously disadvantaged areas, and 150 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Increasing the development value of properties in and around transport facilities.
With the exception of for example the Gautrain stations (and specifically the Transit Orientated Development at its Sandton Station), planning of public transport networks in silo’s has resulted in less than optimal integration. The opportunities listed above are not fully exploited. Where current facilities could in many instances be termed “sinkholes” as they may devalue investments, such nodes have the potential to become “ant heaps” being attractive to investors because of the potential value-add on offer.
Integration with the private car is often also not pursued optimally during planning through the provision of adequate and attractive park-&-ride facilities.
The planning of public transport nodes in many instances do not extend much across the property boundaries on which such facilities are developed. This makes for the lack of non- motorised transport facilities or at best unsafe, unsecure pedestrian and cycling environments.
9.15.4 Planning Information
Reliable and up to date information on travel patterns and trends, user preferences and actual passenger volumes (i.e. satisfied demand) is essential as a basis for effective public transport planning at strategic, tactical and operational levels, such as;
the calibration of demand forecasting models, to be used for the testing of network development options; decisions on appropriateness of modes, operations and business planning of services, designs of service provision agreements, and scheduling and optimisation of services. Most of the existing data is either dated (i.e. household census information is only as recent as 2002) or the reliability thereof is in question. With specific reference to the Current Public Transport Records information, which formed a basis for all the ITPs, budget constraints limited the scope and extent of the collection.
9.15.5 Modal Planning
(a) IRPTNs
Integrated Rapid Public Transport Networks (IRPTNs) of metropolitan municipalities are in various, whereby;
151 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 City of Joburg has successfully implemented Phase 1A of its Rea Vaya BRT system and being busy planning Phase 1B, City of Tshwane has completed the operations planning for two trunk lines and a number of complementary lines in June 2012, and Ekurhuleni Metropolitan Municipality had completed a modal integration strategy in 2008 and building onto this a BRT scoping study was completed in 2012.
Both the District Municipalities of West Rand and Sedibeng had commenced with some high-level planning of primary strategic public transport networks with some elements of IRPTNs, but this has not gone much further than identifying a number of key corridors in the respective areas.
(b) Commuter Bus
Subsidised commuter bus services are managed by the GDRT in terms of kilometer- based contracts, which have all long expired and have been extended on a month-to-month basis since. The letting of new contracts have been delayed for many years, largely as a result of disagreements between organized labour and government on certain terms for contracting services.
The services operated in terms of the subsidised bus contracts still reflect the pe-1994 state to a large extent. In order to align the next generation of contracts to be let with the evolving public transport system and related requirements in Gauteng, the service will require significant restructuring and redesign.
In anticipation of and in preparation for the design of new contracts the Gauteng SPTN was developed in 2004. This was further refined by the development of the Gauteng IPTN in 2009. The IPTN focussed on the following areas:
City of Tshwane Metropolitan, West Rand District Municipality, City of Johannesburg Metropolitan Municipality, and Sedibeng District Municipality.
The IPTN should be viewed in the context of the Gauteng SPTN and followed the same principles as guided by the SPTN:
152 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Road-based public transport corridors should be located on arterials and main roads rather than freeways, with generators/attractors on both sides and ends of the route. This is to try to maximize the number of people who can access the SPTN by walking, as well as the potential for passenger turnover along the route. The SPTN should be kept as direct as possible to minimize travel times and maximize the potential for road-based public transport priority measures such as dedicated bus ways, public transport lanes, priority traffic signals, and so on. The SPTN should have integrated public transport facilities at all nodes to allow for transfers between modes. Public transport services should be provided by the appropriate mode for the demand A system of feeder and distribution routes serving the SPTN trunk routes to ensure maximum geographic and network coverage. Frequent and rapid peak and off-peak services between major origins and destinations on the SPTN provided by the appropriate mode for the corridor demand. Sufficient vehicle capacity to prevent overloading and long queues.
Currently the IPTN is being reviewed and expanded to cover the areas of Metsweding and Merafong.
From an assessment of the original IPTN of 2009 and the scope of the review and extension thereof currently being undertaken, it can be concluded this work will provide a fair basis for the design of new contracts for the provision of commuter bus services. However, more work may have to be done before contracts can be designed, which may inter alia include data collection on current passenger volumes, research to be done on fare structures, and costing and affordability to government of route network options in relation to available subsidy budgets.
(c) Municipal Bus
Municipal bus services in the CoT, CoJ and EMM municipal areas are planned by the respective municipal operators. With the exception of limited operational planning for the purpose of optimising services by making smaller route and timetable adjustments, very little other significant planning has happened in the past few years.
Major planning initiatives are not taking place, despite the fact that major restructuring of these services is required, to better meet the public transport needs of the evolving and developing cities. Where route networks often still support city forms of the 1970’s, with largely radial networks focussed on strong city central business districts, many
153 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 decentralised business and commercial nodes has developed since, as well as new areas added into metropolitan municipal boundaries, which are not well served. Municipal bus operations provide largely suburban type services and in most instances also only serve commuters and scholars in former “white” suburbs.
The lack of major restructuring may to some extent be “stalled” in anticipation the planning of IRPTNs and the relationship between the municipal bus operations and the evolving BRT systems.
(d) Scholar Bus
Dedicated scholar transport services are managed by the Gauteng Department of Education. However, talks are on-going regarding the transfer of the Scholar Transport Function to the GDRT.
Dedicated scholar transport routes and services are generally being planned by contracted scholar transport bus operators in cooperation with school principals and school parent bodies. This is being done in isolation of any other public transport services and is limited to operational planning.
(e) Mini-bus Taxi
Mini-bus taxi routes are generally planned by taxis associations and its members (i.e. taxi operators), as to maximise their market share and often in competition with other modes of public transport. Although taxi routes are reflected in municipal Current Public Transport Records (CPTRs), the municipal planning authorities have had very little input into the planning of these unscheduled services, with the exception of providing ranking and holding space, as well as en-route stops.
Taxi associations, their members, vehicles and routes are registered with Provincial Taxi Registrar and operations are regulated in terms of Operating Licences, issued by the Provincial Operating Licence Board.
154 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.16 Status Quo Analysis
9.16.1 IRPTNs
The only metropolitan municipality in Gauteng that has been successful in implementing their IRPTN planning is the City of Johannesburg. Phase 1A of their Rea Vaya BRT system has been in operation since 2010 and most of the infrastructure, facilities and stations for Phase 1B have been completed.
General passenger acceptance of the system has been fairly good and the patronage is growing. The general quality of the service and facilities is perceived to be of a good standard. However, the fare income is much lower than projected, which means the system has and will in the foreseeable future have a significant reliance on additional operational funding support (i.e. subsidy). This may to some extent be attributed to the Rea Vaya fare policy and the fact that the fares charged per kilometre are significantly lower than other public transport service in Gauteng being operated over similar distances. As a consequence, this will place some strain on the City’s ability to further operationalize and expand their system. If a large portion of this operational financial support is to be sourced from a national level, this may also impact on the restructuring and development of public transport elsewhere in the Province.
The question begs as to whether the almost exclusive focus on BRT as the mechanism for restructuring municipal road-based public transport should not be reassessed, given the high BRT development, transitional and (now apparent) operational costs. A more balanced approach with a wider modal focus, to possibly include express bus, dedicated public transport lanes, etc., may be more appropriate, efficient and a cost effective way to develop an integrated public transport network.
9.16.2 Commuter Bus
Subsidised commuter bus services are managed by the GDRT in terms of kilometer- based contracts, which have all long expired and have for a number of years been extended on a month-to-month basis. All contracts have been extended and will again expire in September 2012. The letting of new contracts have been delayed for many years, largely as a result of disagreements between organized labour and government on certain contracting terms. These short-term contracting arrangements have created some instability in the bus industry and have discouraged operators to invest in fleet and infrastructure. It is
155 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 anticipated that a directive will come from national DoT for further extension of 3-year extensions.
The services operated in terms of the current subsidized commuter contracts still largely reflect the pe-1994 state, with very little integration with other public transport services. In order to align the next generation of contracts to be let with the evolving public transport system in Gauteng, the services will require significant restructuring and redesign. Many of the services are not aligned with either the local or provincial IPTN designs. Duplications of services also exit with the BRT lines, which are already in operation.
The general quality of services provided in terms of the contract is reasonably acceptable and in many areas operators cannot “stay ahead” in providing enough service capacity to meet demand.
However, to promote integration and remove some of the inefficiencies and duplication form the public transport network of services in Gauteng, the restructuring, design and letting of new contracts should be done as soon as possible.
9.16.3 Municipal Bus
Municipal bus services in the CoT, CoJ and EMM municipal areas are operated by the respective municipal operators. With the exception of limited operational planning for the purpose of optimising services by making smaller route and timetable adjustments, very little other significant service restructuring has taken place over the past numbers of years.
Route networks often still support city forms of the 1970’s; with services being operated on largely radial networks focussed on strong city central business districts. Many decentralised business and commercial nodes has developed since, as well as new areas added into metropolitan municipal boundaries, which are not well served by these operators, whereas patronage has declined on their traditional routes.
The municipal bus operators provide largely suburban type services and in most instances also only serve commuters from former “white” suburbs. Large components of almost all these services offerings comprise of dedicated scholar services from within city suburbs to former Model C schools.
156 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 These services generally face sustainability and labour challenges (possible with the exception of the municipal operators in the Ekurhuleni area), as well as aging fleets, which largely impacts on the ability to provide reliable services of a good quality.
The City of Joburg had in 2011 completed an investigation into the organisational restructuring of its municipal operator, which may path the way to a more sustainable future for Joburg Metrobus.
However, major operational restructuring of these operators and their services has to some extent been “stalling”, in anticipation of the further development of IRPTNs and this providing clarity about the relationship between municipal bus operations and the evolving BRT systems. However, the general restructuring of public transport in the respective municipal areas and the development of IPTNs may over time offer new opportunities for these operators, possible in a “new organisational form”.
9.16.4 Learner Transport Services
Dedicated learner transport services, managed by the Gauteng Department of Education, are fulfilling a vital role in transporting learners in more peri-urban areas to schools. These are learners that do not have schools within a 4km walking-distance from their homes.
However, due to the “weak” contracting dispensation, which largely stems from the fact that transport and the management thereof is not closely related to the core functions and experience of the Gauteng Department of Education, these services are not very efficient. These services are largely being managed by GDE regional offices and school principals. The services are managed and monitored at a very high and “course” level, if at all. This in many instances results in poor service levels, with scholars often arriving late at school or not at all.
This situation is further aggravated by the fact that these services are 100% subsidised (i.e. free to the users) and that the rates being paid to contracted operators are unsustainably low. This leads to unacceptable vehicle ages and bad conditions thereof, as well as overloading at times. This is generally an undesirable situation from a road-safety perspective.
The urgent restructuring of these services and the contracting dispensation link to these types of services need to be considered. A more desirable dispensation will most probably
157 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 be, where the transfer the function and the funding is transferred to the GDRT as soon as possible.
9.17 Deduction
9.17.1 Management of the Public Transport Function
The Management of the public transport function across the Gauteng City Region is often inefficient and incoherent, mainly due to the following reasons; Loss of institutional memory, Uncoordinated institutional structures, Uncoordinated and separate modal focus, Uncoordinated and ”inward-looking” municipal focus, and Lack of seamless institutional and organisational arrangements.
Political processes resulted in frequent change in decision-makers. This is further aggravated by a high turn-over in senior technical officials in all spheres of Government, causing a loss in institutional memory. This has led to interruptions in planning and implementation of public transport networks and services, and in turn also resulted in work often being redone and revised unnecessarily. This hampers progress. The public transport environment needs more stability in the management of its systems.
The institutional arrangements for public transport are to some extent set out on a high level in the NLTA, 2009. However, it is debatable whether and to what extent these arrangements are fully appropriate to the Gauteng City Region, which spans various Metropolitan and District municipalities. It is clear from the status quo that gaps exist in the coordination and management of public transport. Some refinement is required to these statutory arrangements, to ensure more effective coordination and management.
Management of public transport is often done in modal silo’s, whereby Integrated Rapid Public Transport Networks (BRTs) and municipal bus services are managed by metropolitan authorities, subsidised commuter bus services by the GDRT and subsidised scholar transport by the Gauteng Department of Education. This uncoordinated and separate modal focus results in the sub-optimal deployment of resources with often the unintended consequence of duplication, as well as inter-modal and destructive competition.
In addition, the uncoordinated and ”inward-looking” approach of the various spheres of government, means that municipalities primarily focus on intra-municipality travel needs, with
158 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 fairly little attention being given to inter-municipality services and public transport network continuity across the Province.
From the above it is apparent that the lack of seamless institutional and organisational arrangements, which is required for the efficient management of transport in the City Region, can only be addressed through the establishment of new/additional institutional arrangements. The most effective manner to deal with this may be the establishment of a new entity, which should be tasked with the responsibility of coordination and management of public transport. In general the public transport system characteristics largely the transport arrangements of 30+ years ago, aligned to the pre-1994 political dispensation. Operations are fragmented and operators focus on maximising market share.
9.17.2 Sustainability and Affordability to Government
The sustainability and longer term affordability of the road-based public transport network is under pressure. This is emphasised by:
Underinvestment in public transport infrastructure, Aging and condition of rolling-stock, Overloading, Delays, Levels of passenger safety, and A general deterioration of the public transport system.
This can be attributed to a number of factors, which inter alia include:
Disaggregated funding streams, Ineffective regulation and en-route/corridor completion,
A disaggregated funding dispensation consisting of various sources is used to provide operational support and subsidy to public transport; namely:
Public Transport Operations Grant, Public Transport Infrastructure and Systems Fund, and Municipal budgets.
159 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The provisions of the Division of Revenue Act (DORA) provides for the Public Transport Operations Grant (PTOG) from Treasury, to fund subsidies for regional commuter bus services. The subsidies paid to private bus companies for the provision of these bus services are managed by the GDRT.
The City of Joburg pays the respective Rea Vaya operating companies, contracted to provide the bus rapid transport services, monthly operating fees. Although the original expectation was created that the Rea Vaya operational costs will largely be covered by the fare income, this has not been the recent experience. These fees are funded from a combination of sources, namely the municipal budget and the Public Transport Infrastructure and Systems (PTIS) fund. The latter was established by National Government as a grant to assist mainly with the development of public transport infrastructure and systems. The question may be asked whether this will be available as a source of operational funding support in the medium- to longer-term.
The funding of operational support to municipal bus operators is done from the budgets of the respective municipalities. Dedicated scholar transport services are subsidised by the Gauteng Province, through the GDE and the funding thereof is done through the provincial budgeting and MTEF processes, whereas the mini-bus taxi industry does not have any access to operational funding support from government.
The disaggregated funding dispensation described in the paragraphs above does not enhance integration, the sustainability of public transport systems and the affordability thereof to Government.
9.17.3 Affordability, Fares and Ticketing
The affordability of public transport remains a challenge to many travellers, specifically commuters and work-seekers in the previously disadvantaged areas. In many instances passengers cannot afford the full costs of the public transport service (the economic fare). In order for them to be mobile and be able to such services, subsidies are made available by government to make the fares more affordable.
The percentage of the economic fare that is subsidised, differs vastly across the various service offerings across Gauteng. It ranges from 100% for learners using dedicated, contracted transport services, to above 50% for passengers using subsidised commuter bus services and 0% for mini-bus taxi users. The fares and subsidy rates for subsidised commuter bus services are based on a determination made in the late 1980’s which is
160 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 escalated annually by inflation. Certain subsidised operators offer concessionary fares to certain categories of passengers (i.e. pensioners, learners, children etc.), which have a higher level of subsidisation than ordinary commuter services. It is important to note that mini-bus taxis are transporting in the order of 70% of commuters in Gauteng, meaning that the affordability of their transport is controlled by operators, without any government support. This has to be seen in the context of the fact that in many areas and on many routes, mini-bus taxi services are available as the only mode of public transport.
Where public transport services are subsidised, various subsidy allocation mechanisms are used. Current subsidy allocation mechanisms are structured in such a way that it virtually benefits only commuters. To promote public transport integration, a better alignment in subsidy allocation mechanisms across modes and services is required. It is therefore essential that a provincial-wide strategy for financial support to public transport be developed. Such a strategy should ideally also deal with the appropriate mechanisms for targeting specific categories of passengers, in order to enhance their affordability levels.
A comprehensive fare policy is critical to properly guide the setting of fares in the province. Such policies have to provide for a balance between affordability of transport to users, affordability of service offerings for Government, as well as longer-term sustainability (profitability for operators). Various operators follow different approaches towards fare setting and apply their own policies, depending on their mandate. The simplest approach is often followed by the taxi industry, where operators on routes where they compete with subsidised commuter bus services, “peg” their fare just below the bus cash fare. This is not a sustainable approach, as they are a non-subsidised mode, trying to compete with a subsidised mode.
Public transport fares in Gauteng differ significantly across various services and modes, if the passenger rate per kilometre are calculated and compared between different services and modes. In pursuit of integrated fares, a more unified fare policy will have to be developed, which must consider the nuances of all the different fares on the modes.
The type of ticketing used in public transport varies from paper tickets to smart cards, with most operators still excepting cash. The introduction of integrated ticketing, by means of an interoperable smartcard accepted for fare payment by most public transport operators, will go a long way to enhance passenger convenience.
161 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 9.17.4 Service Quality
The service quality of road-based public transport in general is not attractive to the car user and most travellers previously captive to any of these modes opted to use private cars the moment it becomes affordable to them. The general unattractiveness of road-based public transport services inter alia stems from;
Service availability (is the bus going to come and not breakdown along the route?), Service reliability (is the bus going to depart and arrive on time), Service frequency and intervals, especially outside the peak periods, Service operating periods (often only during peak periods with virtually no service during off-peak periods) Availability of seats and having to stand significant part of the journey, Crowding on-board of vehicles, Quality and age of vehicles, as well as quality of the “ride”, Accessibility for the mobility impaired (not just persons in wheelchairs, but also the elderly and person with other disabilities, Personal security, and Traffic safety considerations.
Generally, passenger satisfaction levels with respect to service quality are significantly higher, where contracts between authorities and operators exist for the provision of public transport services that include a “service performance regime”. These are where certain service quality aspects had been specified, are monitored and where operators are penalised for not achieving the service performance standards. Where such dispensations had been introduced, the experience in most instances and areas were a modal shift, often from one public transport mode to another.
9.17.5 Availability of Passenger Information
A major down-side of the current road-based public transport in Gauteng is in many instances the lack of, the quality of and/or the disaggregated nature of service information to the public at large (the Rea Vaya system is largely an exception in this regard). This often includes very basic information on inter alia; Routes, Timetables, and Fares.
162 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Were such information is available it is mostly mode or service specific and managed by the various operators internally. A key component or pillar of public transport integration is integrated information. This implies providing passengers with an integrated “one-stop” solution, whereby passenger information on various modes and services can be provided through one “centralised” mechanism or facility. This could take the form of a “call centre” or access to integrated data-bases, which could be made available on personal electronic devises, such as the cell-phone.
A key component is also the concept of “customer care”, whereby passengers can call a number for real-time service information or log complaints.
9.17.6 Facilities and Amenities
The lack of public transport facilities is a severe inadequacy on many parts of the road- based public transport network, especially in the previously disadvantaged areas (again the Rea Vaya system is an exception in this regard). This includes a range of facilities, such as;
Termini, Ranks, Holding areas, Stops.
Were facilities exist, many passenger amenities at larger nodes are lacking (i.e. toilets, shelters, etc.) or these amenities are not well maintained. This further leads to the unattractiveness of road-based public transport services in general, but specifically to travellers who have access to private cars. They find these facilities inconvenient and unsafe.
In most cases adequate, convenient and safe non-motorised access to public transport services are also lacking (“the last mile”), which aggravates the convenience, personal safety and security.
9.17.7 Basis for Contracting Operators
A range of contracting arrangements for the provision of the various public transport services and the basis for providing operational support (i.e. subsidy allocation mechanisms) are found in Gauteng.
163 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The privately owned operating companies providing the Rea Vaya BRT services are contracted by the City of Joburg on a “gross cost” basis. This means that fare revenue is collected by the City (or a separate agency appointed to do so on its behalf). The City uses this revenue, topped up by additional funds, to pay the operating companies for their services, on a rate per kilometre basis. The operating companies do not deal with fares and revenue management and do not take any risks related to patronage or fare revenue income.
In addition, privately owned bus operating companies, providing regional commuter bus services, are contracted by the GDRT on a “net cost” basis. Tickets are sold and fare revenue is collected, retained and managed by the respective operators themselves. The operating subsidies paid by the GDRT tops up the difference between the operating cost (i.e. economic fare) and the revenue from ticket sales. This payment mechanism is also based on output and passenger (“live”) kilometres. In this instance the operating companies do carry most of the patronage and fare revenue risks.
Because municipal bus services are generally operated by departments within municipalities, no contracts exist between these operators and the respective municipalities. In the case of some of the operators that have been corporatised, service level agreements may be in place. The subsidisation of these services is done on a deficit subsidy basis, whereby the difference between the annual operating costs and the fare box revenue is “made good” annually from the City budget.
Operators providing dedicated learner transport services are at present being contracted to provide such services by the GDE. The basis for payment for contracted dedicated scholar transport services is a rate per learner-kilometre. Again, in line with the final draft National Learner Transport Policy, 2009, a new basis for payment is being considered, which will most probably be on a rate per vehicle-kilometre. The level of subsidisation is 100%, as these services are being provided free of charge to the learners.
For the effective integration and management of road-based public transport services across the Gauteng City region, a strategy for arriving at a more common or shared basis for contracting public transport operators needs to be developed. The restructuring and rationalisation of the current public transport operations with the IPTN (including road and rail modes) is critical for an integrated system.
164 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 10 RAIL NETWORK AND SERVICES PLAN
10.1 Background
PRASA Rail is responsible for the substantial part of passenger rail transport services in Gauteng, which includes the Metrorail commuter rail services, as well as the inter-city passenger rail Shosholoza-Meyl services. A comprehensive railway network exists in Gauteng. Most of the older industrial areas, city CBDs, and low-income residential areas are well served by this railway network that has been developed over many decades.
The commuter rail network in Gauteng is supplemented by the modern Gautrain rapid rail services in the high-density corridor between Johannesburg and Tshwane, and between Sandton and OR Tambo International Airport (ORTIA).
In most metropolitan areas in South Africa rail transport plays an important role in providing mobility to especially low income people for their daily transport needs. While the market share of rail is unacceptably low in Gauteng, the existing rail passenger network does cover the province extensively in connecting most of the major activity/economic nodes with many of the low-income settlements and industrial areas, despite the fact that past spatial and transport infrastructure was planned and designed in terms of distorted apartheid land use policies.
The existence of remote settlements (dormitory suburbs) far away from the city centres, required rail transport to provide labour accessibility to the main areas of employment. There is significant potential to densify and develop TODs (Transit Oriented Developments) along the existing rail network as the rail system currently runs through large pockets of undeveloped land.
It is further acknowledged that the rail system and service performance requires a major transformation to ensure that it truly performs as the backbone of the public transport system in Gauteng within a fully functional integrated public transport system approach.
It will also need not to be isolated from an integrated multi-modal system, where various modes serve to feed to and distribute from the other services.
165 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 10.1.1 Hierarchy of Modes
Much has been written internationally on the requirement to select the most appropriate mode for any corridor. It is clear that it makes economic sense to select the most appropriate mode when Government intervention in the transport market is done, in order to ensure good value for money. It is clearly also wasteful to subsidise parallel services providing the same or similar services when both are not fully utilised.
Rail transport is not the best mode for all corridors, as it requires high volumes to make it feasible. There are a number of corridors (such as Nigel – Springs) where it would not have made sense to develop a new railway system, and the only reason why certain rail services are still operational is because of historic reasons.
Many attempts have been made to categorise the role of modes and to determine the most appropriate mode. The most recent and relevant for Gauteng is the work of the GTMA who proposed the model in 2009, as indicated in Figure 2.1.
These figures have to be used with circumspection, as externalities such as the fuel price, Rand exchange rate, passenger behaviour, etc. play a major role. The fare levels, peak intensities and way to interpret the passenger numbers also need to be addressed carefully.
Notwithstanding, it does provide an indication that there are different forms of rail transport (mono rail, light rail transit, metropolitan rail, regional rail and high speed rail) and that rail- based solutions have more of a mass transport characteristic than the road-based solutions.
10.2 State of Rail Planning in Gauteng
A comprehensive investigation has been done to obtain information on the state of planning of transport in Gauteng and all modes of transport. Table 2.1 gives an overview of the documents that have been obtained and assessed at a broad multi-modal level.
Historically, a substantial amount of planning has been done for the Gauteng region by the former SARCC and PRASA / PRASA Rail, as well as by the Gauteng Province and Municipal Planning Authorities.
166 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The most prominent and relevant of these studies arguably are the Vectura Public Transport Study undertaken in the early 1990’s in preparation of transforming the Roads Branch into the Gauteng Department of Public Transport Roads and Works, (now the Gauteng Department of Roads and Transport), and the Gauteng Rail Status Quo and Plan undertaken under the auspices of the Gauteng Rail Planning Coordination Committee (GRP) in the late 1990’s.
Table 2.1 – List of Rail Studies for Gauteng
Plan Title Completion Date Approval Status 1. National Passenger Rail Transport Plan 2006 Completed (Phase 1 and Phase 2) 2. GTMA – Rail Agenda for Gauteng 2009 Completed 3. PRASA Rail Master Plan 2012 Final Stages 4. PRASA Strategic Plan 2012 Draft 5. Gautrain Nodal Development Analysis 2012 Draft 6. Gautrain Expansions and Extensions 2012 Underway 7. Gauteng Transport Conference in May 2012 Completed 2012 8. Gauteng Transport Budget Speech by 2012 Completed the MEC 9. NPC National Development Plan 2030 2011 Completed and presented to Cabinet 10. National Transport Master Plan 2010 Draft 11. Gauteng PLTF 2010 Completed 12. Spatial Development Framework 2010/2011 Completed (Provincial, Metropolitan, and District Municipalities) 13. Integrated Development Plans 2009, 2010, 2011 Completed (Metropolitan and District Municipalities) 14. Integrated Transport Plans 2009, 2010, 2011 Completed (Metropolitan and District Municipalities) 15. PRASA Tshwane Regional Rail Plan 2006 Approved by Cabinet 16. PRASA Regional Plan Southern Gauteng 2006 Approved by Cabinet
The declaration of “Rail as the Backbone of the Public Transport System” as recorded for the Gauteng City Region Public Transport Conference held on 28 May 2012 is generally supported by most transport plans. This is mainly due to the mass transport characteristics of rail transport.
167 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The most prominent or relevant transport plans done recently, is the PRASA Rail Master Plan which is currently being considered for approval. At a much lower scale of detail, but also important, are the Gautrain investigations into capacity improvements and linkages with un-served areas.
10.2.1 Institutional Arrangements and Alignment Plans
The Gauteng Rail Planning Coordination Committee (GRP) was established and operated during the 1990’s to coordinate the planning of the Gauteng Provincial Department.
More recently, a Gauteng Provincial Rail Steering Committee was established as per the Memorandum of Agreement signed between the Province, Gautrain, PRASA and the respective planning authorities. These cooperative arrangements also resulted in joint project development between the Province, Municipalities and PRASA towards intermodal transport facilities.
PRASA welcomed the provincial initiative to create specific strategic planning and operational co-ordination forums with Gautrain to ensure alignment of future plans towards improved integration.
PRASA has maintained Rail Co-ordination and Liaison structures with all the transport planning authorities in Gauteng over the past 15 years.
The above planning and co-ordination structures have proven very valuable in aligning PRASA’s plans with ITP’s, IDP’s and IRPTN’s. PRASA is of the view that these structures will be able to serve as solid foundation to integrate rail planning into a future envisaged Transport Authority for the Gauteng Province.
10.2.2 Gauteng Transport Management Authority (GTMA)
The erstwhile GTMA which was subsequently dissolved, prepared the report “International best practices for rail, audit and analysis of Provincial/Rail & National/Municipal planning and strategies”. This report identified seven potential rail investment projects as indicated in Figure 2.1. It must be noted that the latest more-recent BRT planning was not incorporated in the identification of these additional potential rail corridors.
168 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 New Rail Link: Akasiaboom - Sandputs and Soutpan Road - M80, need to utilize appropriate modes, road public transport is overburdened due to rails inefficiency - link will reduce travel times significantly as a result of direct link to Pretoria CBD. Priority 2A New light rail link alongside motorways, M1/De Villiers Graaf Motorway, Golden Highway. Priority 2B New rail line - Vosloorus Triangle. Priority 2C New rail link: Orange Farm (linking onto the existing Vereeniging - Park rail lines, north of Sebokeng - though Evaton - linking north of Orange Farm), to facilitate intermodal interchanges - Priority project 2D New Rail Link: Isando - Tembisa New Rail Link: Orlando West - Soweto Highway - Johannesburg New Rail Link: Daveyton - Etwatwa - Van Rhyn
10.2.3 PRASA Long Distance Passenger Transport
The National Transport Master Plan (NATMAP) investigation by the Department of Transport focused largely on national priorities and identified a need to investigate significantly in rail transport. Much attention was given to freight logistics. The most public of the proposals pertaining to passenger rail transport was the High Speed Rail Links between:
Johannesburg and Durban, Johannesburg and Cape Town, and Johannesburg and Beit Bridge (on the Zimbabwe border)
It should be noted that the draft NATMAP document has not yet been approved.
169 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.1 - GTMA Rail Priority Projects
10.2.4 PRASA Planning Objectives
The Strategic Planning Objectives of PRASA in terms of the PRASA Rail Master Plan are the following:
Support economic growth and development in Gauteng Strengthen Gauteng’s role as a hub - transport system to support high density development Connecting economic and or growth nodes Provide transport which supports social activities to improve the quality of life
170 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Improve accessibility and connectivity to marginalised communities Develop public transport to promote tourism activities Enhance personal safety and security for passengers Promote effective integration between land use and transport Minimise the adverse impact of transport on the environment Improve strategic connectivity to other Provinces/other parts of Southern Africa Develop a modern, integrated, high quality, accessible, efficient, affordable, customer responsive public transport system Improve the resiliency and reliability of the public transport network
10.2.5 Approach and Key Aspects of the Planning
PRASA has done extensive strategy development and planning during the past few years. Most of this work has been included in the PRASA Rail Master Plan. This document contains a volume dealing with Gauteng.
PRASA’s technology assessments clearly indicate that the obsolete state of the current Metrorail technology, and the inability to enhance rail to its rightful role, will result in rail becoming an expensive sunken investment and insignificant capacity carrier compared to international standards, while occupying the position as high capacity mass mover from a policy expectation.
In moving forward, it will be critical that the rail transformation/modernization process is not only achieved, but accelerated, to ensure improved service delivery, and to facilitate the planned growth and development of Gauteng over the next 30-40 years as proposed by the GSDF and Provincial Growth Strategy.
The transportation strategy for the rail commuter system in Gauteng builds on the DOT and PRASA’s strategy for stabilization, rationalization, modernization and integration of rail commuter services with the Integrated Rapid Public Transport Networks of the Metro’s and broader provincial spatial framework.
The Rail Strategy and Plan for Gauteng Province that is currently being finalised will focus on short, medium and long term interventions which are aligned with the spatial, land-use and economic development/transformation framework of the Province, as well as with the IDP’s and ITP’s of the respective transport planning authorities.
171 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The document is very comprehensive and contains a very large amount of planning proposals, most of which are aimed at dealing with the investment backlog in rail transport that built up over the past three decades. The following are some of the key planning proposals in this document in Gauteng.
a) Planned Modernisation Projects in Gauteng
An amount of R10 billion has been budgeted in the MTEF to modernise rail transport in Gauteng. The most prominent of these are:
R3 billion for the upgrade and maintenance of existing rolling stock in Gauteng R4 billion for the re-signalling of the system and the implementation of centralised modern signalling control R4 billion for track, platform, station and electrical infrastructure rehabilitation as part of the corridor modernisation project for the Mabopane – Johannesburg – Naledi corridor. R900 million for the national speed gate and station management program, including CCTV, electronic display boards, alarms and new public address systems at 40 stations in Gauteng. R250 million for the station upgrades and station improvements of Mabopane and seven additional stations. Station modal integration projects in conjunction with Province and the local authorities at Stretford, Leralla, Vereeniging, Germiston and Roodepoort. Universal access pilot projects at 5 stations Corridor public works job creation program, for the cleaning, fencing and walling of stations on these corridors.
b) Planned Extensions
Figure 2.2 indicates the most prominent of the railway network extensions that are being proposed in Gauteng North. Figure 2.3 indicates the main rail service network extensions being proposed in Gauteng South.
172 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.2 – Proposed Rail Extensions in Gauteng North
Figure 2.3 – Proposed Rail Extensions in Gauteng South
173 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The PRASA Rail Master Plan also proposes the introduction of a Super Corridor which will be prioritised for its corridor modernisation project. Figure 2.4 shows the Super Corridor in Gauteng:
Figure 2.4 – PRASA Super Corridor in Gauteng
10.2.6 PRASA Long Distance Passenger Transport
The former South African Transport Services operated a multitude of inter-city rail services, serving all the major centres in the country. These services were mostly operated as a loss in the public interest, and were cross-subsidised from the profits made on the high density freight services.
South Africa has built an international reputation for excellent long-distance services, and brands like the Blue Train, Trans Karoo, Trans Natal, Drakensburg, Algoa Express, etc. were well-known internationally for their excellent service and value for money.
Transnet transferred these services and rolling stock to PRASA Rail.
PRASA has made the major assumption that its inter-city rail operations will not be sustainable under the current conditions and that it is important to determine the true cost of fulfilling its social mandate.
174 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Government Transport Policy requirements to provide services in commercially unviable routes and corridors come at a high cost as the provision of this service cannot be covered from internally generated cash.
The following have to be considered for the Long Distance Passenger Service:
Long haul passenger services (offered by Shosholoza Meyl) are critical from a transport policy objective in South Africa. There is an estimated 15 million passenger trips in the long distance market annually, with more than 50 percent road-based. According to the Automobile Association (AA), more than 14 000 people died in accidents in 2008, with more than 900 000 crashes, at a cost of about R56 billion to the economy or 3.5 percent of GDP compared to about 1 percent in the developed countries. A reduction on road trips, especially during peak periods could contribute in reducing road fatalities. For the year ending March 2011, Shosholoza Meyl (the long haul rail service) contributed a loss of R533 million to the PRASA Group. Subsidy from Government was about R366 million, and revenue about R250 million. Among the key operating costs is access and haulage of about R335 million paid to Transnet. This fee is almost the subsidy paid by Government for long distance passenger rail. While Transnet receives R335 million, the on-time arrival rate of the service is less than 30 percent for Shosholoza Meyl services, which Transnet has main control over. The dependency on Transnet for the service affects reliability and punctuality. This raises fundamental questions about the viability of the Shosholoza Meyl business under the current environment.
PRASA is currently considering the following available options for the Long Distance Passenger Service:
Discontinuation of services and selling back the business to Transnet which has apparently not met its commitment in terms of the sale agreement i.e. availing locomotives for Shosholoza Meyl services, prioritising long distance passenger rail in its operations, and reducing delays in the system to optimise travel time. Request an increased operational subsidy from government to offset the access and haulage fees and encourage long haul rail (especially regional services). This increase should be considered in line with the potential reduction of environmental damage and fatalities, when comparing with road usage.
175 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Renegotiation of the Sale of Business Agreement between Transnet and PRASA with the view of reducing access and haulage charges significantly to reflect the subsidised nature of passenger services which should be measured in terms of maintenance costs and real services. The current arbitrary market rate sought by Transnet for access and haulage services should be reviewed. PRASA is further suggesting the signing of a mandatory Service Level Agreement with penalties for failure by Transnet to prioritise Mainline Passenger Services on its lines.
Against this background, it is clear why no specific planning initiatives are being developed to expand and improve the service, which were previously viewed as an essential service aimed at unlocking the development potential of the rural areas.
10.2.7 Gautrain
The Gautrain Management Agency Planning Approach is clarified by expansion and extensions.
Expansions deal by improvements to the system and the services, largely to address the need for additional capacity. Extensions are aimed at spreading the area of influence of the Gautrain by linking it to other areas by means of a variety of transport links.
• Expansions • Extensions – Increase Capacity – For the longer term
– Additional Stations on – Extend where it is existing system needed
– Including additional – Do not duplicate
Rolling Stock – Consider Feeders – Improved Operations and Distributors by
– Improved Information other modes / – Improved Station technologies
Integration
The current focus on the expansions rather than extensions, although it is clear that medium and long-term planning has to be done.
176 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 With the development of the Gautrain Rapid Rail Link, it was identified at an early stage that such a railway system with linkages across the metropolitan municipal boundaries, rather than from the dormitory towns to the places of employment would take some time to facilitate changes in land-use development. It was realised that the current land-use densities did not promote the use of public transport, and that higher densities should be sought for this purpose.
It was also realised that the low densities would cause the railway system not to be feasible for “walk-access” passengers alone and therefore it would firstly be required to be well- integrated with the existing public transport services and secondly it is required to provide dedicated feeder and distribution services of a similar quality and frequency than that of the Gautrain services. Park-and-ride facilities were also seen to be essential.
The intention for the longer term was always that additional links to the Gautrain would be required to optimise the capability of the system and to boost its feasibility. Such new links would need to be one or more of the following:
Additional parking facilities at Gautrain Stations, Additional Dedicated Feeder and Distribution Services (bus or mini-bus taxi) Extensions of the Metrorail Services to link to more Gautrain Stations (currently Johannesburg Park Station, Pretoria Station, Rhodesfield Station and Hatfield Station, i.e. 40% of the Gautrain stations, have direct transfer access from Metrorail services operated by PRASA, and one other station to ORTIA). Linkages by means of BRT services to Gautrain services. A local east-west link at Sandton or Rosebank service may contribute towards better connectivity. Linkages by means of extensions of the Gautrain railway lines. The Gautrain has always been planned and designed to enable extensions from Hatfield Station towards the East / South East, from Rhodesfield Station towards East Rand Mall and further east, from Johannesburg Station towards the South or South West, and from Sandton Station towards the West. Potentially new railway lines (rapid rail or light rail transit) to serve Gauteng Potential linkage with a future high-speed rail link to Durban / Cape Town.
The GMA has not yet done any feasibility studies for such linkages, but has commenced with the identification of the most prominent nodes to be linked. In the interim, more attention is being given to additional parking capacity on the main park-and-ride stations.
177 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 a) Gautrain Development Node Study
The study that commenced recently and which is currently being finalised identified the most prominent development nodes in Gauteng and potential development nodes, as indicated in Figure 2.5.
This study found that the existing Gautrain is relatively well located to serve the existing development nodes in Gauteng, and is therefore strategically positioned to enable these nodes to grow to their full potential.
The study also found the most prominent nodes with best economic development potential where improved linkages with the Gautrain should be considered.
Figure 2.5 – Gautrain Development Nodes
178 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
The study found that the highest priority nodes where the next linkages with the Gautrain should be sought are in the areas identified Figure 2.6.
Figure 2.6 – Gautrain High Priority Nodes
179 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 b) Key Modal Transfer Facilities
In essence, each railway station acts as a modal transfer facility. It is, of course, not possible to develop a proper integrated multi-modal public transport system without adequate modal transfer facilities. Rail also relies on proper integration with other modes of transport.
Too often in the past, a taxi rank or bus terminus was constructed next to a railway station, but with little attention to providing a seamless transfer for passengers from one service to another. In a future multi-modal public transport system with proper seamless transfer between modes of transport, more attention needs to be given to integration, and proper facilities that provide short, comfortable, easy transfer facilities over paved areas and under roof from one mode to another. It is proposed to develop and maintain a hierarchy of transfer facilities, such as:
Transfer Facilities of International / National Significance o Johannesburg Station o Pretoria Station o OR Tambo International Airport o Gautrain Sandton Station
Transfer Facilities of Provincial Significance o Germiston Station o Kempton Park Station o Belle Ombre Station o Westgate Station o Faraday Station o Mabopane Station o New Canada Station o Oakmoor Station
Transfer Facilities of Local Significance o Figure 2.7 shows the busiest stations in Gauteng South o Figure 2.8 shows the busiest stations in Gauteng North
180 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 2.7 – Busiest Stations in Gauteng South
Figure 2.8 – Busiest Stations in Gauteng North
181 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 10.3 Current Realities / Status Quo of the Gauteng Rail System
10.3.1 PRASA Commuter Rail
The existing PRASA / Metrorail services were developed over many decades. Most of the main lines over which these services are operating were initially constructed in the first part of the previous century and were at that stage aimed at providing connectivity on a national basis. The suburban rail services in Gauteng (such as the Springs – Randfontein and Pretoria – Germiston – Johannesburg services were developed later (also before South Africa became a republic in 1961). New railway lines were linked to this spine after 1957 and 1961, many to support the apartheid land-use policies as the lower income people living in townships far from the CBDs had to be given affordable / low cost access to their places of employment. This led to the construction of lines such as:
the Soweto line, the Tembisa Line, the Attridgeville line, the Daveyton line, and the Mabopane line.
Other commuter rail services were established with new stations along existing railway lines, such as the Mamelodi services along the Pretoria – Denneboom – Eerste Fabrieke – Pienaarspoort line going towards Maputo.
Some services were withdrawn over time, the most notably are:
the Pretoria – Rayton – Bronkhorstspruit service, the Hammanskraal – Pretoria service, and the Alberton – Germiston service.
Such integrated public transport approach must also address and rationalize feeder services to rail stations, without which the rail system cannot achieve its full potential as rapid mass mover and back bone of the public transport system.
The current inadequate passenger rail service provision is a result of four decades of underinvestment in rail rolling stock, infrastructure and operations.
182 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The massive under-investment in rail in Gauteng has not only resulted in ageing and obsolete rail infrastructure and rolling stock, but also resulted in rail being unable to respond and expand appropriately to new growth and development nodes, such as the North- Western quadrant of Johannesburg and the rapid changing urban landscape of outlying areas of Ekurhuleni, Tshwane, Metsweding, West Rand and Sedibeng.
The public transport modal share for rail services by PRASA in Gauteng is currently under 10%, and declined from 17% in 2008/09.
This equates to 1,3 million daily Metrorail passengers in Gauteng, making up almost half of the national daily rail trip volumes in the entire country. The trend over the past number of years indicate rail passenger volumes decreasing by 25% in Gauteng since 2009, although a recovery increase of 10% has been recorded over the past year, with 256 million passenger trips for the 2011/12 financial year.
PRASA Rail’s Operational Effectiveness Program is proving to result in the desired impact on service delivery improvements, while the system is being modernized over the next 3 to 5 years.
Interventions through the Operational Effectiveness Program include:
Preventative and night time maintenance Improved communication with customers Response teams and capital interventions program to mange service failures Improved safety management, security and fare collection Improved train availability and scheduling Extended hours of services, performance management and training
Challenges affecting the performance of the rail commuter system include:
Obsolete rolling stock fleet as indicated in Figure 2.9 – Poor service availability, punctuality (as indicated in Figure 2.10) and capacity Obsolete signalling system affecting capacity, frequencies and performance and potentially also safety Ineffective maintenance regimes with ageing rolling stock fleet and availability of spares Poor reaction capabilities for service recovery within an obsolete system Ageing electrical infrastructure (sub stations) 183 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Ageing and failing perway (track) and substructures An open system with lack of fencing, ticketing and gate control systems, leading to vandalism and fare evasion Effectiveness of personal safety and security Accessibility and reach of the commuter system (station accessibility, lack of feeders/integration and lack of rail extensions to serve new settlement patterns and development areas) Lack of integrated land-use spatial and transportation planning
Figure 2.9 – Commuter Rail Rolling Stock Age Distribution
184 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.10 – Causes for Delay and Cancellations
Other problems are that the train services are often overcrowded in the high peak periods as indicated in Figure 2.11.
Figure 2.11 – Peak Period Overcrowding
The net result of these problems is that the PRASA passengers are generally highly unhappy with their service levels. The service is as a result mostly for the captive who can only afford low fares.
185 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 10.3.2 PRASA Long Distance Passenger Transport
Shosholoza Meyl owns over 900 rail coaches, of which 706 coaches are operational and 461 are actively used for passenger transport.
The fleet is ageing and 33% of the coaches are older than 30 years, while all coaches in service are older than 20 years.
In addition a total of 124 locomotives were transferred with this business from Transnet to PRASA, of which only 37 were operational. PRASA Rail has since increased this number to 57 operational locomotives by end of November 2011. The asset indicators are shown in Table 2.2.
Table 2.2 – Assets owned by PRASA and operated by Shosholoza Meyl
Stations Track Km Coaches Total Region PRASA TFR Total PRASA TFR PRASA Operated Owned Owned Used Owned Owned Owned On Premier 7 0 7 325 2894 3219 77 Class Tourist 12 36 48 325 5782 6107 159 Class Econom 46 49 95 169 9591 9760 675 y Class PRASA Rail, 2011
Shosholoza Meyl is materially reliant on Transnet Freight Rail for the provision of the railway track and support services such as train control to enable it to operate. Shosholoza Meyl serviced twenty-one routes in the past, covering 83 operational stations between major destinations in South Africa. This was done under the ownership of either PRASA or Transnet Freight Rail (TFR). It carried approximately over 4 million passengers per annum, many of whom were migrant workers travelling between the rural areas and the Metropolitan centres of South Africa, as well as migrant workers from neighbouring countries such as Mozambique, Malawi, Zimbabwe, Lesotho & Zambia. The sitter or economy class travellers contributed 87.5% of the total revenue of the business.
The due diligence exercise carried out prior to the Sale of Business Agreement with Transnet, indicated the need for an annual subsidy in excess of R1bn to operate the mainline passenger business. Funding for this service was capped at R500m in the first year and was progressively reduced in the MTEF allocation to PRASA.
186 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Following the 2010 FIFA Soccer World Cup, PRASA had to rationalize the service as the loss in excess of R500m could not be sustained. In addition the service levels from a timekeeping perspective remained poor (below 30% of trains on time at destinations) as a result of access problems related to Transnet, as well as unavailability of locomotives. This resulted in a drop of passengers to 1,5 million per annum.
As from 1 October 2011, a rationalized service covering only 7 routes of 38 trains per week and a further 2 trains per month on Premier Class to Durban was introduced. This was aimed at providing a reliable service linked to the available resources especially locomotives. During high peak periods such as December/January and April additional services are scheduled for seasonal demand.
10.3.3 Gautrain
The final phase of the Gautrain services commenced with operations on 7 June 2012, when the section between Rosebank and Johannesburg Park Station was opened to the public. The first phase of the Gautrain commenced with operations on 8 June 2010, shortly before the 2010 FIFA Soccer World Cup. Gautrain transported its 10 millionth passenger on 21 June 2012, shortly after the full system was operational.
The Gautrain has already significantly demonstrated that it has been successful in its objective to promote the use of public transport, as many of its users have never or seldom used public transport in the past. It was also successful in attracting car users and serves tourists as well. Figure 2.12 and Figure 2.13 shows an upward trend in the use of the Gautrain services, particularly after the major negative impact of the bus driver strike in February 2012.
187 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.12 – Gautrain Passenger Volumes
AUG 2011 SEP 2011 OCT 2011 NOV 2011 DEC 2011 JAN 2012 FEB 2012 MAR 2012 APR 2012 MAY 2012 (to date)
Since the section between Rosebank and Johannesburg Park Station was opened on 7 June 2012, there has been a further steady increase in the number of passengers on the Gautrain services. This is in line with the expectation of patronage on new passenger railway systems, which typically shows a significant ramping up during the first five years of operations. However, the Gautrain Management Agency will have to ensure that it can provide the necessary service capacity increases in this process.
The expectation also was that the Gauteng toll road system would have been introduced at this stage of the Gautrain development. Previous modelling showed that there will be a significant increase in Gautrain passengers once the toll system is introduced, on the condition that sufficient service capacity exists.
188 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.13 – Gautrain Passenger Volumes (Weekday and Weekends)
10.4 Rail Planning and Implementation Initiatives
10.4.1 PRASA Commuter Rail
PRASA’s stabilization strategy for the rail commuter system over the past three years included the planning and preparation for an aggressive rolling stock refurbishment program, together with selective station and infrastructure improvements that started in 2008/09 to prevent the rail commuter system from total collapse.
A total of 2 000 coaches at a cost of R7bn was overhauled or upgraded nationally, with 870 coaches completed for Gauteng (Johannesburg and Tshwane). Forty stations were upgraded with operational enhancements and SAPS facilities were created at eleven key stations. The 2010 World Cup preparations provided a further catalyst for major upgrading of six stations, three new stations, improved infrastructure at Nasrec, and providing improved customer communication system at various stations in Gauteng.
The critical priorities for PRASA over the next three to five years include the modernization of the existing passenger railway system and championing the implementation of new
189 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 passenger rail technology. The modernization of the signalling, telecommunication system, rolling stock and train operating systems will lay the foundation for a modern, efficient and sustainable rail transport system in Gauteng.
National Treasury has significantly increased capital allocations to PRASA for its infrastructure modernisation program starting in 2012, and totalling R25,9bn over the next 3 year MTEF period. The funding of the infrastructure modernisation program is specifically aimed at fully modernising the infrastructure in preparation of new rolling stock acquisition program. The acquisition program includes new rolling stock manufacturing facilities in South Africa, a specified local content of 65% and an investment of over R137bn over the next 20 years. A total of over 7000 coaches will be manufactured in South Africa. A total of 2484 new coaches and a further 600 coaches for new services are included in the Acquisition Program for Gauteng as illustrated in Figure 2.14. The first new trains are expected into system by 2015.
Figure 2.14 – PRASA New Fleet Distribution
The infrastructure investment allocation for the Gauteng rail network is in excess of R10bn over the next 3 years. The investment program includes:
R3bn for the upgrade of existing trains in Gauteng to ensure continuity of the service until the new trains are introduced into the system.
190 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 R4bn for the signalling modernization over the next 5 – 7 years. Work on Phase 1 of this project valued at R1bn has already started. The project will increase train safety and network capacity optimisation over the short term, and will lay the foundation for full digital signalling and automatic train protection in future. Corridor Modernisation project – complete remodelling of Mabopane - Johannesburg – Naledi corridor. 4bn earmarked for track, platform, station and electrical infrastructure rehabilitation New gate control systems, electronic display boards and CCTV cameras at major stations to improve access control and security. R900m has been allocated for installations in Gauteng over the next 3 years. New PA systems at 40 stations in Gauteng. Pretoria station completed. Station upgrade program: Mabopane (R260m) plus additional 7 station upgrade projects and 20 station improvement projects Station modal integration projects in conjunction with Province and authorities: Stretford, Leralla, Vereeniging, Germiston and Roodepoort 5 stations identified for Universal access pilot projects Corridor public works job creation program: Cleaning of corridors, fencing and walling of stations. Three corridors on the Gauteng rail network have been prioritised to spearhead modernisation in preparation of the new rolling stock. The corridors include: o Mabopane – Pretoria o Pretoria – Germiston – Johannesburg o Johannesburg – Soweto
The first new trains expected by 2015 will be deployed on these priority corridors and a total of over R4bn has been earmarked for the modernisation of track and electrical infrastructure, access to stations, station facilities and station upgrades. A number of these station upgrades include joint project development with Gauteng Provincial Government and local authorities to create fully integrated intermodal facilities at stations.
In order to prepare for increasing demand for rail commuter services, a capacity enhancement project with the doubling of lines, upgraded stations and building a new station on the Mamelodi – Greenview corridor, to the value of R460m, will be completed within the next 18 months. Planning and feasibility work have also commenced on the reintroduction of rail services on: o Re-introduction of Hammanskraal services: Line rehabilitation and 3 new stations – R800m 191 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 o Improved integration with Gautrain through Tshwane ring rail and City distribution networks o Daveyton rail extension (More than 50% of Ekurhuleni population reside in Daveyton) – R2,5bn o Bara link rail extension which includes capacity enhancements to transform Nasrec station as a major connectivity and feeder hub with rail, to serve areas of Ekhaya, Orlando, Bara, and Aeroton - R3bn o BRT and Park ‘n Ride possibilities already in existence
10.4.2 PRASA Long Distance Passenger Transport
PRASA is also planning to procure 20 new locomotives over the next three years for the mainline passenger services. This has been planned in support of the urgent priorities of PRASA to improve the current service, achieve service excellence, modernization and increase revenue. A budgeted cost of R502m has been included for the purchase of these locomotives over the 2012 MTEF period. This is done in support of Johannesburg – Queenstown, Johannesburg – Cape Town, Johannesburg – Nelspruit and Pretoria – Polokwane routes.
10.5 Gaps and Inconsistencies in Planning and Implementation
10.5.1 Rail integrated BRT planning
The most recent Ekurhuleni BRT planning is an example of an attempt to integrate rail and BRT integrated planning. It is an opinion that:
Existing and possible future rail as trunk routes should be considered as a given in planning the correct mode should be selected for a corridor to correspond to current and future passenger volumes and distance BRT trunk routes should not compete or duplicate rail or future corridors that should be rail The role of feeder and distribution services inclusive of BRT, Bus and Taxi should complement the holistically planned transport network and systems
The stepwise planning of the Ekurhuleni BRT planning is shown in the diagrams as Figure 2.15, commencing with:
192 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Rail BRT supporting and augmenting Feeder and distribution services
It is however clear that the Vosloorus Triangle proposed ring-rail is not considered as a future rail corridor, as proposed in the GTMA report, with the BRT Planning.
Similarly in Tshwane, it is not clear whether the Akasiaboom - Sandputs and Soutpan Road - M80 rail link was considered as a future rail corridor, as proposed in the GTMA report, with the BRT planning.
Mode specific planning in the Municipalities is not totally integrated with regards to appropriate technology (mode), integrated services, and cross-boundary coordination.
193 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 2.15 – Ekurhuleni Integrated Public Transport System Plan
Rail Network - 1km area coverage Rail Network - 1km area coverage
BRT Network - 1km area coverage
Rail Network - 1km area coverage
BRT Network - 1km area coverage
Feeder Network - 1km area coverage
194 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11 FREIGHT LOGISTICS TRANSPORT
11.1 Introduction
A fundamental prerequisite for growth is the expansion of trade. However, it is the transport linkages that enable the exploitation and development of natural and human resources. Therefore, a country or region that has an inefficient and ineffective transport sector, would find it extremely difficult, if not impossible, to trade competitively.
A region that is well equipped to receive, sort and rapidly deliver goods and services cheaply and effectively stands to profit considerably from these abilities. On the other hand, deficiencies in this regard severely retard competitiveness and as a result encourage the transfer of economic activity to more favourable locations.
By providing infrastructure, facilitating collaboration between government and the private sector and by means of appropriate regulation of the freight transport industry, the provincial government could play a considerable role in ensuring that Gauteng is an attractive location for establishing and continuing with sustainable business.
Transportation of freight is a vital element in planning for prosperity, albeit one that tends to have been superficially dealt with in transportation planning departments at all levels of government. The overarching objectives of all freight transport are by definition, the economic efficiency of the movement of goods so that freight transport policy and investment is primarily directed at creating conditions that support that objective. In South Africa a very large proportion of freight transport movement is provided by parastatal government monopoly organisations affiliated to railways, ports, pipelines, and air transport.
Figure 3.1 shows the importance of the Gauteng Province in the movement of freight throughout South Africa.
In compiling the ITMP25 for Gauteng, the Freight Logistics Plan (FLP) will form an integral part of the total planning process. This report deals with the status quo of freight logistics within Gauteng.
The aspects discussed in this report include: The Gauteng freight transport profile Planned infrastructure.
195 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.1 - Importance of Gauteng in the movement of freight throughout South Africa
Source: DOT presentation at the first Maputo Freight Logistics Forum Multilateral Stakeholders Meeting on 22 May 2007. Data is based on information contained in the DOT’s National Freight Logistics Strategy document.
11.2 Modal and Infrastructure overview
11.2.1 Introduction
The provision of sufficient economic infrastructure in Gauteng is critical for the local and national economy, as the province is a hub of economic activity and contributes more than half of all domestic tax collections.
The estimated overall land freight market in South Africa is approximately 1.6 billion tons p.a. (1 593 mt) with 177 million tons on rail and 1 416 mt on road. Nearly 89% (88.9%) of land freight in South Africa is transported by road and just more than 11% (11.1%) by rail. In terms of ton-km, a total of 377bn ton-km is travelled over land with road freight being responsible for 70% and rail for 30% of ton-kms travelled.
11.2.2 Road Freight
Table 3.1 reflects the Gauteng road network as it relates to the national network.
196 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 3.1 - Gauteng Road Network
National Provincial Local Total Network network (paved network + unpaved) Gauteng 588 6308 28830 35726 National 16197 223878 200106 440181 Gauteng 3.63 2.82 14.41 8.12 % Source: NATMAP
Although data on the share of each transport mode on a provincial basis is not freely available in the public domain, a rough estimate of Gauteng’s transport mode share can be derived by excluding sea transport and auxiliary transport activities from the national breakdown. As shown in Table 3.2, road freight transport is estimated to be the second largest transport mode in Gauteng, with a share of approximately 32.4% in the total transport sector.
Table 3.2 - Gauteng share of different transport modes
Gauteng share of transport Estimated share modes by income Rail 19.1% All land passengers 8.6% Road freight 32.6% Pipeline 1.3% Air transport 38.6% Total 100% Source: Economists.co.za
These income shares can be used to derive an estimate of the importance of the Gauteng road freight sector to both the provincial and national GDP. Gauteng road freight comprises only 0.6% of South African gross domestic product. However, Gauteng road freight makes up around about 1.8% of Gauteng’s GDP (and Gauteng in turn contributes nearly 35% of South African GDP).
Road freight operations in Gauteng consist of the terminal sections of six different freeway systems that feed into the urban industrial areas of the province. The Gauteng province is the centre of industrial activity in South Africa with the result that large flows of raw materials are received on the six major national routes which are the N3, N4 (east and west), N1 (north and south), N12, R21, and N14.
There are more than 100 registered industrial areas in Gauteng, many of which are very extensive and are major generators of road freight transport. These industrial areas use road freight transport for steel, cement, consumer-manufactured goods, heavy industrial
197 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 steel and concrete structures, ready-mix concrete, retail and wholesale distribution of foodstuff and meat and vegetables.
One feature of road freight operations in Gauteng is the extent to which bulk commodities such as steel, coal, cement, and bulk grains have moved from rail transport to road. The efficiency of road freight transport in Gauteng is increasingly being reduced because of the congestion on the main through routes in urban areas. In order to improve operational efficiency in the CBD there is a need for urgent reassessment of the accessibility of some industrial areas and in particular, the access to the City Deep container terminal in relation to the newer industrial areas which are increasingly being established at greater distances from the container terminal.
A feature of the management of road freight operations in the Gauteng area has been the inconsistent and ineffective control of overloading. Weighbridge locations are unsuitable and the levels of activity are generally incapable of restraining the practice of overloading. Increasing congestion is leading to conflict between light and heavy vehicles at peak periods so that accident rates involving heavy goods vehicles are increasing all over the province.
Due to the unavailability of reliable data of road freight volumes in Gauteng one needs to adopt a national perspective. Table 3.3 reflects the movement of road freight on national corridors.
As shown in Table 3.3, the major corridor freight movements by road are between Gauteng, Durban and Cape Town. The volumes on the N1 to the North of Gauteng have reduced due to the situation in Zimbabwe and the use of the N11 via Martin’s Drift for freight to northern Namibia, Zambia and the DRC. In the evaluation of freight movements on the identified corridor routes it is essential to bear in mind that there are elements of double counting that are unavoidable, for example, the tonnage shown on the N5 between Harrismith and Winburg may have been duplicated on the N3 at one end or the N1 south at the other, or both.
198 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 3.3 - Annual Road Freight on National Corridors (2007/08)
Tonnes P.A. Corridor Corridor Name (Millions)
1 N3/N11 Gauteng-Durban 41,5 2 N1 South/N12 Gauteng-Cape Town 12,7 3 N1 North Gauteng-Musina 9,8 4 N4 West Gauteng-Lobatse 2,3 5 N4 East Gauteng-Ressano Garcia 3,2 6 N7 Cape Town-Namibia 2,5 7 N2 South Cape Town – Port 3,3 Elizabeth 8 N2 North East London-Durban- 7,4 Pongola 9 N5 Winburg-Harrismith 6,7 10 N14 Gauteng-Upington 2,4 11 N6 East London-Bloemfontein 1,4 12 N9 George-Colesburg 1,8 13 N10 Britstown-Nakop 0,3 14 N17 Gauteng-Swaziland 3,0 15 N8 Thaba Nchu-Maseru 2,76 TOTAL 101,0 Source: National Transport Master Plan
Figure 3.2 illustrates the number of heavy vehicles moving to and from Gauteng on the road network. If the number of heavy vehicles growth at a rate of 3% per annum it implies that the number of heavy vehicles is more than double what we currently have on the road network. This has a direct impact on the volume capacity ratio of the roads and maintenance practices to follow. The strategy would rather be to channel the freight vehicles around the CBD on well-established freight roads or routes
199 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.2 - Heavy Vehicle Volumes on the Gauteng Road Network
Source: Adapted from 2011 CTO yearbook
Road Conditions in the province is indicated in Figure 3.3 is of utmost importance in the road freight industry given the impact on maintenance and repair costs, which adds unnecessary costs to the company, the consumer as well as to the cost of logistics in the province and the country.
The CSIR (2009) estimates that a change in road condition from good to bad could bring about an increase of 120.94% in the maintenance and repair cost of a haulier, resulting in an increase of almost 10% (9.97%) in logistics costs.
200 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.3 - Road Conditions in Gauteng Province
Source: A 20 Year Review of National and Provincial Roads In South Africa, 2008.
11.2.3 Rail Freight
Figure 3.4 shows the relative importance of rail freight from a Gauteng perspective. The figure reflects the core lines only.
Figure 3.4: Importance of Gauteng within Core Line Network
Source: Transnet National Infrastructure Plan, 2009
201 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.4 shows that most of the freight movements on the Gauteng core rail line network are focused on the port-rail (NATCOR) corridor.
11.2.4 Air Freight
OR Tambo airport is the largest airport in Gauteng and handles most of the airfreight in the South African economy with levels of about 350,000 tons p.a (NATMAP). The current desire freight lines or corridors that move airport traffic come through a number of roads. Key roads that generally carry airport destined cargo are currently dependant on the major freeway network, like the:
R21;
R24;
N12; and
N3.
Other routes that form part of the core road network that support freight movement to ORTIA, must be taken into account when looking at freight movement. Generally cargo comes from all over South Africa and gets consolidated/deconsolidate primarily at Isando, Sebenza, Jet Park, Pomona, etc. and the corridors might not be obvious but have an impact on traffic movement that ultimately gets to the airport. Access to the airfreight terminal is through the R21 via Voortrekker Road and at present this access is inadequate as it mixes with traffic that passes through on to the N3 to Durban or any other hub.
11.2.5 Pipelines
The transportation of liquids by pipeline is a major transportation undertaking in Gauteng. There are two main pipelines that supply the interior, via Gauteng:
The Refined Products Pipeline, a 300 mm line from Durban to Sasolburg (Coalbrook); The Crude oil line, a 400 mm pipeline that conveys crude oil from Durban's offshore mooring buoy to the Reef storage and inland refinery.
Pipelines in Gauteng Province emanate from Coalbrook (near Sasolburg) in the Free State and Secunda in Mpumalanga. The pipeline from Coalbrook has road and rail off-take points in Gauteng at Alrode, Langlaagte, Tarlton, Rustenburg, Pretoria West, Waltloo and Benoni. An additional line from Secunda joins this pipeline to the south of Johannesburg and also intersects with a second pipeline from Coalbrook to Witbank, which also passes through 202 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Gauteng. Approximately 3,6 billion litres of refined fuel is transported through Gauteng to various delivery points.
A third pipeline from Coalbrook supplies aviation fuel directly to Johannesburg International Airport. In 2006/07, this line transported 1,15 billion litres, which equates to approximately 866 000 tonnes. Products transported include, gas, aviation turbine fuel, crude oil, diesel, alcohol, and various grades of petrol. The pipelines from the coast currently move approximately 8,7 billion litres of refined products and crude oil per annum. The refined products line had the potential for expanding up until about the year 2007 whereas the crude oil line was already running at near capacity in 2005.
The presence of the pipelines in the province constitutes a major transportation asset, as the large volumes transported that would otherwise be moved by rail where possible, or by road, thereby increasing road usage and congestion. The location of the pipelines is shown in Figure 3.5.
Figure 3.5 - Location of Pipelines
Source: National Transport Master Plan
203 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11.3 Transport Trends
One of the biggest freight transport trends is related to the expected modal shift from road to rail. According to Transnet (2012) their Market Demand Strategy a strong growth in general freight is expected for the rail industry (refer to Figure 3.6).
Figure 3.6 indicates significant growth in various commodities which influences rail infrastructure requirements. The expected growth in containers and automotive demand will have a direct impact on the road and rail system in Gauteng. Fuel will largely move from long distance haulage to distribution from consolidation points. This growth will directly influence Gauteng due to the national linkages of the rail network.
Figure 3.6 - Expected Growth in Rail freight (2011 to 2019)
Source: Transnet (2012: 8)
Figure 3.7 indicates that the R38.5bn will be invested on the corridor between Gauteng and Durban to enable Transnet to transport the increase in import and export containers.
204 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.7: Transnet 7 year capital investment by region
Source: Transnet (2012: 15)
Figure 3.8 indicates that the largest component of the future Transnet investment is directed at rail infrastructure.
Figure 3.8 - Investment in Transnet Freight Rail (2011 to 2019)
Source: Transnet (2012: 6)
Air freight volumes are not expected to show significant increases in the short term. Figure 3.9 depicts the relative constant aircraft movements at OR Tambo International Airport. The bulk of air cargo is belly freight of passenger planes and as such it is deduced that growth rates will be relatively low.
205 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.9 - Aircraft Movement Statistics per financial Year for OR Tambo International
Source: ACSA (2012)
11.4 Logistics Costs
The State of Logistics survey was initiated which endeavoured to, inter alia, calculate the costs of logistics at a national level as a percentage of GDP. Figure 3.10 reflects the logistics costs for South Africa for the period 2003 to 20091. The cost of logistics is calculated and presented as a percentage of GDP. In 2009 the percentage was 13.5% which is the lowest of this period while the highest percentage was in 2007 when the fuel price was very high and contributed significantly to this high percentage.
Four logistics components are used to calculate these costs namely transportation costs, storage and ports costs, inventory carrying costs as well as management, admin and profit. The latter component is in fact a derivative. The transportation costs are clearly the largest component contributing to the country’s logistics costs (48% of the logistics cost of 2009). Two of the main reasons for this are, firstly, that the major economic activity in the country takes place in Gauteng which is in the centre of the country implying freight needs to be transported over large distances to the various ports. The internal logistics cost of the country is thus higher than what would normally be expected. In addition most freight is transported on road and over this period, from 2003 to 2009, the growth in freight has been mainly on road.
1 CSIR, 2010. 7th State of Logistics survey. 206 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.10 - Logistics Costs of South Africa
Total = + 9.8% Total = + 9.9% Total = +10.4% Total = +22.7% Total = + 6.9% Total = -4.6% Total = R194bn R213bn R235bn R259bn R317bn R339bn R323bn
15.4% 15.3% 15.2% 14.9% 15.9% 14.7% 13.5% of GDP of GDP of GDP of GDP of GDP of GDP of GDP 360 340 320 R63bn 18.6% -3.1% R61bn 300 R52bn +21.2% 280 16.5% 18.9% +36.8% 260 R57bn R38bn R52bn + 9.2% 16.8% R58bn 240 14.7% 16.4% + 2.3% +15.2% 17.9% 220 R33bn + 8.1% R29bn +13.8% 14.1% R48bn 200 R46bn + 4.3% R48bn +11.5% 13.6% 18.6% 14.3% R26bn R43bn +10.3% 14.5% + 1.6% R49bn 180 +17.9% 13.4% R40bn + 9.5% 18.7% 15.2% 160 R36bn + 9.9% 18.7% R39bn R36bn + 8.0% 15.2% + 2.4% 18.7% -9.2% 140 R34bn + 6.4% 15.5% Rand billion 120 R31bn + 9.6% 16.0% +25.2% 16.1% + 9.9% 100 + 10.2% R171bn + 9.4% R167bn 80 50.4% R155bn R110bn R121bn R133bn 52.6% 48.0% 60 R101bn 51.7% 51.5% 51.8% 51.6% 40 20 0 2003 2004 2005 2006 2007 2008 2009 Transport Storage and Ports Management, Admin & Profit Inventory carrying cost Source: CSIR (2010)
In a recent unpublished study (Simpson and Havenga, unpublished) the logistics costs per province were analysed and is indicated in Figures 3.11 and Figure 3.12.
Figure 3.11 - Logistics Costs per Province Broken Down into Cost Components
Source: Simpson & Havenga (unpublished)
207 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.12 - Logistics Costs as a Percentage of Provincial GDP
Source: Simpson & Havenga (unpublished)
It is deduced that although Gauteng has the second highest logistics cost, the logistics cost as percentage of provincial GDP is the lowest of all the provinces. According to Simpson and Havenga (unpublished) this is ascribed to the lower relative transport costs and a more mature tertiary sector. Gauteng does, however, have the highest inventory carrying cost.
11.5 Overloading in Gauteng
11.5.1 Introduction
Gauteng is essentially the hub of economic activity in South Africa and a large percentage of road freight enters and leaves the province. Because of the nature of the road network in Gauteng, there are numerous alternative routes. Overload control in most cases therefore have to take place on an area as well as a corridor basis. Although particular routes and corridors could be identified as the major heavy vehicle routes in Gauteng, heavy vehicle traffic patterns would change substantially as soon as overload control was implemented on certain routes.
Experience has shown that overload control on a single route is largely ineffective unless alternative routes are monitored as well. Typically, when a weighing exercise commences heavy truck drivers, with the aid of long distance radios and cellular phones, select alternative routes. This is done in order to avoid the operational weighbridge and implications associate therewith. In Gauteng, it is especially difficult to control all possible routes because of the large number of available routes in the province.
208 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 An analysis of fifteen years of overload data (1995 to 2009) has shown that approximately 18% of all vehicles weighed at static weighbridges in South Africa were overloaded, while approximately 4% was overloaded beyond the prosecution tolerances. The data for Gauteng shows similar percentages.
2011 data from the Heidelberg TCC shows that approximately 27% of the vehicles weighed at this TCC were overloaded, while approximately 5% was overloaded beyond the prosecution tolerances. The average overload per overloaded vehicle was approximately 640kg.
Weigh-in-Motion (WIM) data for six HSWIM sites on provincial roads in Gauteng for the period 2005 to 2008 showed a large variation in the percentage of overloaded heavy vehicles. The highest extent of overloading occurred on the R573 (Moloto Road, north-east of Pretoria), with approximately 30% of heavy vehicles overloaded in the north-bound direction and 15% in the south-bound direction, based on the data for the third quarter in 2008. The R25 south-bound, which links Bronkhorstspruit with the East Rand, is another road with a high extent of overloading of approximately 17 %, based on data for the third quarter of 2008.
11.5.2 Existing Weighbridges
There are currently 19 weighbridges in Gauteng. Two of these are operated by SANRAL, four are provincial weighbridges, twelve are municipal weighbridges and one is a private weighbridge.
The two weighbridges operated by SANRAL, namely the Heidelberg TCC on the N3 and the Donkerhoek TCC on the N4 are operated on a continuous basis. In excess of 150 000 vehicles are weighed at the Heidelberg TCC per annum, while in excess of 50 000 vehicles are weighed at the Donkerhoek TCC per annum.
The four provincial weighbridges are operated on an ad-hoc basis. Three of these were computerised in 2010, but very little weighing is currently taking place. The fourth provincial weighbridge is located at the Boekenhoutkloof Traffic Training College and is mostly used for training purposes.
The municipal weighbridges are all located at vehicle testing stations and are mostly used for tare weighing for vehicle registration purposes, although most of them could be used for law enforcement purposes as well.
209 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The private weighbridge is located just off the N1 at the Wallmansthal interchange north of Pretoria. This weighbridge is utilised by both provincial and metropolitan (Tshwane) traffic officers for overload law enforcement.
11.5.3 Gauteng Overload Control Strategy
An overload control strategy was prepared for the Gauteng Department of Transport and Public Works by the CSIR in 2000 and was updated in 2003. In this strategy seven major corridors for the movement of heavy vehicles were identified as indicated in Table 3.4. At the stage that the strategy was prepared, the nineteen current weighbridges were all in existence.
Table 3.4 - Gauteng Major Corridors for the Movement of Heavy Vehicles
Routes Locations N3/R23 Johannesburg – Durban N4/N12 Pretoria/East Rand/Jhb – Nelspruit/Maputo N1/R103 Pretoria/Johannesburg – Pietersburg/Beitbridge N4/R514 Pretoria/Johannesburg – Rustenburg/Botswana N12/N14/R501 Johannesburg – Potchefstroom/Kimberley/Namibia N1/R59 Johannesburg – Bloemfontein/Cape Town
11.5.4 Proposed overload control on the GFIP road network
A number of the weighbridges proposed in the Gauteng Overload Control Strategy are located on national routes now forming part of the GFIP. An investigation into overload control on the GFIP was undertaken on behalf of SANRAL. As part of this investigation, the conventional approach to inter-city overload control, with static weighbridges at strategically located TCCs was considered. Five different TCC options were investigated for the GFIP road network, but none of them was economically viable. This is mainly due to the many “escape routes” within the GFIP area, relatively short travel distances of less than 200km, the scarcity of available land and the high capital and operational costs.
An alternative approach, known as “Virtual Weigh Stations” (VWS) was also investigated and it was proposed as a more appropriate solution for overload control on the GFIP road network. A VMS is a weigh-in-motion system that provides vehicle records for enforcement, traffic surveillance and/or data collection in real time and provides a way to unobtrusively monitor heavy vehicle traffic. The system automatically weighs vehicles as they travel at normal speeds along a roadway, classifies them based on weight and axle spacing and determines when vehicles are in violation of regulations.
210 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The driver of such a vehicle can then be instructed to exit the freeway at the next safe location (technical shelters with access from the freeway). The vehicle will then be weighed on a mobile scale and, if found to be overloaded, directed to the nearest static weighbridge. A number of these technical shelters have been provided on the GFIP road network.
11.6 Freight Transport and Logistics Problem Areas
This section focuses only on the problem areas directly related to freight transport and logistics. General transport problems that also affect freight transportation, such as congestion, are not discussed in this section. Problem areas include:
Supply chain constraints Overloading Infrastructure requirements.
11.6.1 Supply Chain Constraints
The Supply chain foresight 2012 (Barloworld Logistics: 2012) identified the top five constraints to supply chain as experienced by industry and is indicated in Figure 3.13.
It is evident that the cost of transport features as the greatest supply chain constraint, while the efficiency of ports and harbours also serves as a significant constraint. Although these constraints apply to the country as a whole the significant role of the Gauteng economy implies that these factors are highly applicable to Gauteng.
Figure 3.13 - Top 5 Constraints to Supply Chain
Source: Barloworld Logistics (2012:6)
211 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11.6.2 Overloading
The main problem with overload control in Gauteng is the underutilization of existing weighbridges. Although not ideally located, the existing provincial and municipal weighbridges give reasonable cover of the road network in the province. However, these weighbridges are not fully utilised to do overload control on a regular basis. The municipal weighbridges in particular are not being used for overload control. The verification of the scales, which has to be done every six months, is also problematic. If the verification is not done at the required interval, the weighbridge cannot be used for overload law enforcement. Equipment breakdown can also result in weighbridges not being operational for lengthy periods, mainly as a result of the government procurement process.
Another challenge in Gauteng is the large number of available routes in the province, making it especially difficult to control all possible routes with conventional static weighbridges and alternatives should be investigated, such as the concept of Virtual Weigh Stations being implemented on the GFIP road network. This could also address the other problem with conventional static weighbridges, namely the high capital and operating costs.
The above problems are futher exacerbated by the fact that the last update of the Gauteng Overload Control Strategy was done in 2003 and the whole strategy needs to be reviewed. During such a review it would be of utmost importance that the proposed overload control on the GFIP road network be taken into consideration as this would have a major impact on the number and position of the static weighbridges and the WIM sites that would be required to adequately control overloading in Gauteng. Alternatives to conventional static weighbridges should be investigated as part of the strategy review.
11.6.3 Logistics Infrastructure Requirements
The Gauteng Freight Implementation Strategy proposed the development of a Strategic Freight Network and Nodes as reflected in Figure 3.14.
212 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.14 - Proposed Strategic Freight Network and Nodes
Source: Gauteng Freight Implementation Strategy, 2005
According to a study commissioned by Blue IQ (2010) which prioritised freight projects it was found that certain logistics hubs require further investigation due to their relative importance for Gauteng, namely:
Sentrarand Logistics Hub, OR Tambo Logistics Hub (existing), Chamdor Logistics Hub (new), City Deep (existing), Tamboekiesfontein (new) or Tambo Springs (new), and 213 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Tshwane Hub (new)
In addition it was found that certain road freight routes also required further investigation, namely:
Road PWV 17 Road PWV 5 Road PWV 18
This infrastructure is very expensive but the above study found that a 22,5% reduction in congestion caused by freight vehicles may be achieved by developing the entire logistics network.
In its National Infrastructure Plan Transnet proposes the development of the Gauteng Freight ring as well as a number of logistics hubs which are shown in Figure 3.15.
The blue line represents the ring rail while the red lines represent the commuter lines.
City Deep, an import and export container facility, operates close to capacity (±225 000 TEU’s in 2010) and due to its old infrastructure needs to be upgraded before a significant improvement in capacity can be achieved. Kaserne handles currently local container traffic but provides the opportunity of constructing a new terminal on the vacant land, but, due to the road and rail limitations as well as the associated industrial development around such a terminal the maximum number of containers which can be handled are limited to approximately one million TEU’s per annum. This constraint will accelerate the development of freight intermodal facilities outside the CBD (i.e. Tambo Springs, Sentrarand and Pyramid).
214 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.15 - Gauteng Freight ring and Freight Hubs (TFR perspective)
Source: Adapted from Google
11.7 Planned Infrastructure
Certain logistics infrastructure projects are being planned for Gauteng. These projects include:
Logistics hubs Weighbridges Rail infrastructure Air cargo infrastructure.
Current logistics hubs being considered for Gauteng include:
West Rand Logistics Hub Tambo Springs Hub Vaal Logistics Hub Tshwane Intermodal Freight Hub.
215 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11.7.1 West Rand Logistics Hub
Blue IQ Investment Holdings (Pty) Ltd conducted a feasibility study pertaining to the establishment of a logistics hub and related freight infrastructure in the jurisdiction of the West Rand District Municipality (WRDM) of Gauteng, South Africa. This study was a joint project by the Blue IQ, Gauteng Department of Roads and Transport, West Rand District Municipality and the Development Bank of Southern Africa (DBSA).
The West Rand Logistics Hub will be an intermodal (road and rail) logistics hub with a focus on general freight as well as containers. It is proposed to establish an Industrial Development Zone (IDZ) with the aim to support industrial development around the hub. Phase 1 of the development will be road based only, while phase 2 will provide a rail linkage to the facility. Facilities will include warehousing, truck stop and administration offices.
The principle objective of the study was to assess the feasibility of the development of a logistics hub in the West Rand.
Although the feasibility study was completed, project implementation is currently delayed. This is due to the fact that the selected site could not be obtained from the landowner concerned. There is a current initiative underway to identify an appropriate site which is owned by Government.
11.7.2 Tambo Springs Hub
The Tambo Springs Hub is a private initiative to establish a logistic hub close to the petrol port north of Heidelburg. The objective of the project is to provide an intermodal facility with warehousing for the Gauteng South region and to promote regional economic development. Project buy-in from relevant stakeholders, such as Government institutions, Transnet and business, are required prior to the commissioning of feasibility studies.
Various pre-feasibility studies have been concluded including land use planning/ town planning.
11.7.3 Vaal Logistics Hub
The Vaal Logistics Hub (VLH) is an initiative by the Sedibeng District Municipality, The Emfuleni Local Municipality and the North-West University. The VLH is an intermodal hub (road, rail and air) that will consist of a container depot, an IDZ, and an international airport. 216 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The objective of the project is to lower inland transport costs and to promote regional economic development. Project buy-in from relevant stakeholders, such as Transnet and business, are required prior to the commissioning of feasibility studies.
Relevant stakeholders (business, local government and academic institutions) are currently considering signing a memorandum of understanding.
11.7.4 Tshwane Intermodal Freight Hub
The area earmarked by the City of Tshwane can be developed as an intermodal freight hub with road and rail linkages; and an airport. The hub will be an intermodal hub that includes road, rail and also air modes of transport.
The freight hub has the objective to serve as a regional freight logistics hub for the Southern African region2. Land ownership remains one of the major issues. The project is intended to be implemented in three phases, namely: Inception phase – Land acquisition and civil works. Phase 1 – Truck stop, container terminal, aviation and warehousing. Phase 2 – Second phase of warehousing.
11.7.5 Weighbridges
The Gauteng Overload Control Strategy proposed the following thirteen additional weighbridges as reflected in Table 3.5.
Table 3.5 - Proposed New Weighbridges for Gauteng Weighbridge Route on and additional routes/roads covered Meredale N1; M1; R553; R82 Benoni N12; R23 Kliprivier R59; R550; D1073 Tembisa R21; M57; K27; P38/1 Akasia/Rosslyn R566; R80 Kempton Park M39; R25; D1511 Vanderbijlpark N1; R553; R54; R28; R57 Westonaria N12; R28 Bronkhorstspruit N4; K175; R25 Eikenhof R82; R550; D405 Randfontein R28; D93 Carletonville R559; D92; R501 Devon N17; R29; R550; P36/3
2 Presentation by T Nkoana at Blue Logistics Infrastructure Workshop on 28 October 2009.
217 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 None of these proposed weighbridges has been established to date. The Gauteng Overload Control Strategy also recommended that twenty-five HSWIM sites are required to provide an adequate indication of overloading trends in the Province. Currently there are seven permanent SANRAL HSWIM sites in Gauteng and six provincial HSWIM sites.
Additional HSWIM sites proposed in the strategy that have not been established yet are reflected in Table 3.6
Table 3.6 - Proposed New HSWIM Sites for Gauteng
Route Description R23 Benoni R59 Kliprivier R101 Bon Accord M39 near Chloorkop M1 Houghton M2 Benrose R553 Golden Highway R42 Heidelberg to Nigel N14 P126-1 N14 P158-2 R82 South of Eikenhof R51 Bapsfontein N4 West P89-1 Carletonville N14 West
11.7.6 Rail Infrastructure
According to Transnet (2009) Gauteng is the centre of most regional and port connections in South Africa. Due to complex flows and limited bypass routes the need for a freight ring was identified. Transnet stated (2009) that a freight ring has the potential to:
Facilitate uninterrupted flow of freight Provide a key link between hubs and terminals Provide dedicated freight routes segregated from PRASA routes.
Figure 3.16 indicates the Gauteng Freight ring (Blue lines). The red lines indicate the commuter lines. The Gauteng freight ring will separate freight and commuter activities to a large extent. The rail ring enters the Province from Durban and stretches from Vereeniging in the south through Pyramid in the north and then westwards towards Thabazimbi in the west. This ring is connected to Sentrarand and Pyramid South which are existing 218 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 marshalling yards. The rail ring is also connected to City Deep, the current import and export container facility
The proposed Gauteng intermodal terminals which are indicated in red will provide sufficient terminal capacity up to 2050. The phasing of these terminals is subject to demand and the supply to final destinations. Figure 3.17 gives an indication of the existing container terminals in Gauteng. These terminals are constrained by inadequate equipment, infrastructure and road access. Some of these terminals could be phased out in the near future and their existence will be determined on either demand and/or activities in and around the immediate precincts surrounding the terminals.
Figure 3.16 - Gauteng Rail Ring
Polokwane
Thabazimbi Pyramid
Botswana
Sentrarand
Kimberley
Bloemfontein KZN
Source: Google maps
219 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.17 - Existing Gauteng Terminals
In Figure 3.17 the blue areas represent the automotive terminals.
Figure 3.18 depicts the available rail capacity on the Gauteng ring. This capacity is subject to Transnet take-up of market share and Transnet growth strategy as illustrated in Figure 3.18.
220 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 3.18 - Rail Capacity on the Gauteng Ring
Source: Transnet NIP 2007
Based on the capacity analysis as indicated in Figure 3.18 the interventions as identified in Table 3.7 are required to provide sufficient capacity for the planned demand up to 2037.
Table 3.7 - Intervention on rail infrastructure
Source: Transnet NIP 2007
The intervention as indicated in Table 3.7 can be accelerated depending on market demand and supply. It is important that capacity is provided in time to support market growth and stimulation.
221 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 11.7.7 Air Cargo Infrastructure
Although the Tshwane Intermodal Freight Hub and the Vaal Logistics Hub are proposed air cargo hubs for Gauteng, the most significant air cargo operations remain at O.R. Tambo International Airport. Cargo operations at O.R. Tambo International have grown significantly over the last 40 years and air freight has reached such volumes that the airport is looking to establish a new cargo hub. Dubbed 'Midfield Cargo', the new facility will be located between the two runways and is viewed as a long-term solution to current and future capacity demand, as discussed in the airport's master plan. With O.R. Tambo handling some 300,000 tonnes of cargo in 2009 airport planners are looking to create new synergies in the handling of logistics and the new facility will allow the gateway to handle 1 million tonnes of cargo annually.
As per the national intention of consolidating ORTIA as the preferred hub for the region, the airport masterplan calls for the consolidation of all air freight activity in a cargo terminal in the so-called Midfield Terminal as indicated in Figure 3.19.
Figure 3.19 - Proposed Midfield Cargo facility
Source: ACSA 2006. O.R. Tambo International Airport Integration Report, Third Draft
An air freight study commissioned by ACSA has indicated the upward potential and confirmed the benefits of ultimately consolidating air cargo in this way. By being in the Midfield, a much better orientation, size and general layout for future cargo can be obtained. Such terminal would also be located centrally in the airport, thereby serving both the existing passenger terminal precinct as well as the future midfield passenger terminal. At the same time, the existing cargo precinct could see re-investment in general airport-
222 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 related commercial developments that integrate with Ekurhuleni’s ideas for Rhodesfield, to the west of the R21.
223 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12 ROAD NETWORK PLANNING
12.1 Investing in Infrastructure
The Government’s “New Growth Path” outlines an approach to accelerate growth and employment, focusing on job-creation targets and sector-based actions that will help to achieve them. Jobs drivers are identified as:
Continuing public investment in infrastructure, creating employment directly in construction, operation, maintenance and the production of inputs, and indirectly by improving efficiency across the economy. Targeting more labour-absorbing activities in the agricultural and mining value chains, manufacturing, construction and services. Promoting innovation through “green economy” initiatives. Supporting rural development and regional integration.
Government believes that prudent macroeconomic policy that takes into account global volatility and the need to sustain growth will support the New Growth Path. While many countries are tightening their fiscal belts, it is thought that South Africa’s macroeconomic approach affords government the space to grow expenditure at a moderate pace to support social and economic priorities. Public spending in support of social programmes has been strong and, if combined with more rapid job creation, will significantly increase inclusion and income equality.
As shown in Table 4.1 public-sector spending on infrastructure has increased from 4.6 per cent of GDP in 2006/07 to 9.8 per cent of GDP in 2010/11, and is expected to average 8.4 per cent of GDP over the forecast period, totalling R808.6 billion. Economic services make up 82.1% of infrastructure development over the medium term, of which transport and logistics investment, which covers transport network expansion and upgrades, continues to hover at 25% of the total investment.
224 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.1 - Public sector infrastructure expenditure and estimates by sector (R Million)
2010/11 2011/12 2012/13 2013/14 MTEF % of Revised Sector Medium Term estimates Total Total Estimate
228 657 216 181 219 380 228 507 664 067 82.1 Economic Services Energy 102 782 96 500 98 140 96 769 291 409 36.0 Water and sanitation 20 990 26 836 25 367 28 196 80 400 9.9 Transport and logistics 80 530 67 452 69 096 75 554 212 102 26.2 Other economic services 24 356 25 393 26 777 27 987 80 157 9.9 Social services 26 249 29 519 34 932 44 268 108 719 13.4 Health 8 546 10 256 15 114 20 624 45 993 5.7 Education 6 757 9 155 10 092 11 487 30 735 3.8 Community facilities 6 045 6 360 5 873 7 952 20 185 2.5 Other social services 4 902 3 749 3 853 4 205 11 806 1.5 Justice and protection 3 100 3 322 7 080 10 171 20 573 2.5 services Central government administrative and financial 2 104 3 827 7 946 3 474 15 248 1.9 services Total 260 109 252 850 269 337 286 420 808 608 100 Percentage of GDP 9.8 % 8.7 % 8.4 % 8.1 %
Source: Budget Review 2011
12.2 Principles and Departure Points
It is envisaged that the GDRT develops an Integrated Road Network that, inter alia:
Underpins and support growth corridors and nodes, Creates a hierarchy that provides mobility roads (Class 1 and Class 2) and roads providing accessibility (Class 4 and 5) with Class 3 roads that provided a balance between mobility and accessibility. Provides a road network that allows continuity of travel across the province; Provides for acceptable levels of service during peak hour travel i.e. LOS D or better; Provides for adequate levels of safety; Promote environmental sustainability through the modes and technologies deployed on the Network, Provides for heavy vehicles, private vehicles and public transport; Provides for non-motorised users on the Class 2 to 5 network; Provides priority measures for higher occupancy vehicles where appropriate; 225 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Provides a safe and reliable strategic road network system which would optimize the movement of freight and passengers; Manage congestion and focus on the promotion public transport through the efficient and effective use of existing and future freeway road space
12.3 The Gauteng Road Network
The total road network in Gauteng represents about 7.6% of the total South African road network which is about 448000 km excluding local streets. SANRAL is responsible for a road network of 15600 km (2.9%) of the total road network in South Africa and 14% of the surfaced network. The national roads under SANRAL’s jurisdiction comprises of both toll and non-toll roads.
The Gauteng Province has a total road network of about 34200 km of which 1.4% is national roads, 14.1% provincial roads and the remainder are local municipal road i.e., 84.5% of the total road network. Table 4.2 indicates the mix and split of roads in the Province.
Table 4.2 - Approximate extent of road networks in Gauteng
Road Authority Length (km) Network Split National Roads 470 1.4% Provincial Roads 4 830 14.1% Local Roads 28 885 84.5% TOTAL 34 185 100%
12.4 The Gauteng National Road Network
12.4.1 Background
The national road network in Gauteng, albeit a small percentage of the road network carries large traffic volumes and provides the mobility network and especially freight network for the Gauteng Province The national network is managed by the South African National Roads Agency. SANRAL is an independent, statutory company registered in terms of the Companies Act. The South African government, represented by the Minister of Transport, is the sole shareholder and owner of SANRAL.
SANRAL operates in terms of its founding legislation, The South African National Roads Agency Limited and National Roads Act (Act No. 7, 1998). It is governed by a Board of
226 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 eight people, six of whom are appointed by the Minister of Transport; the Chief Executive Officer, who is appointed by the Board; and a representative of the Minister of Finance.
SANRAL has a distinct mandate – to finance, improve, manage and maintain the national road network (the “economic arteries” of South Africa). SANRAL introduced and consolidated the concept of Public Private Partnerships that culminated in the internationally acclaimed Maputo Development Corridor, the N3 Corridor and the Platinum Corridor.
SANRAL has two primary sources of income. Non-toll roads are funded from allocations made by the National Treasury. Toll roads are funded from borrowings on the capital and money markets – bonds issued on the Bond Exchange of South Africa (BESA) in the name of the South African National Roads Agency Limited, or through the concession of roads to private sector consortia.
SANRAL manages assets worth in excess of R30 billion, without land values.
The SANRAL road network is shown in Figure 4.1, indicating the current SANRAL road network of 16 170 km, the strategic roads (2907 km) that will be incorporated to increase the national road network to 19 077 km.
The former Minister of Transport Mr Mr S Ndebele said that SANRAL’s mandate should be broadened and the organisation repositioned so that it could provide support to provinces where capacity remained a problem. “We cannot have as a country a good national road network whilst provincial and municipal roads remain in a sorry state,” he said. It is thus anticipated that SANRAL will further increase their road network with a further 13 806km of mostly strategic provincial roads to a total road network of 32 883 km.
227 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 4.1 - Proposed SANRAL Road Network
12.4.2 Gauteng Freeway Improvement Project
(a) Overview of the Project
The Gauteng Freeway Improvement Project (GFIP) comprises different phases to upgrade and implement new freeways of an ultimate 560km freeway network. The first phase, comprising the upgrading of 185km of the most congested freeways has been completed in 2012.
Apart from widening of the freeways, the GFIP project also ensured that bottlenecks at interchanges are resolved. For the first phase of the GFIP, 34 interchanges were significantly upgraded, including infamous interchanges such as the Allandale, Rivonia, William Nicol, Gillooly’s and Elands interchanges. The Albertina Sisulu Highway (R21), previously a provincial road has been incorporated into the GFIP and has been declared as a national road in April 2008.
Apart from the R21 the following other highways has been upgraded to minimum four lanes per direction: N12 between Gillooly’s and the border between Gauteng and Mpumalanga;
228 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 N1 between Golden Highway and Proefplaas IC; N4 between the Proefplaas IC and Swartkoppies; N3 between Heidelberg IC and Buccleugh Interchange; and N12 between Diepkloof IC and the Elands Interchange
With the planning of the Gauteng Freeway Improvement Project, SANRAL took other transport modes into consideration (the Gautrain, Metrorail and Bus Rapid Transport) and strived to create links with other transport modes to provide citizens with the choice of using public transportation or car-pooling that will alleviate congestion caused by single- passenger vehicles.
The project was approved by cabinet in 2007 after which SANRAL followed the Intent to Toll process. Amongst other requirements, SANRAL widely advertised the details of the project, the intent to toll, the proposed toll points, expected toll tariffs, upon which the public were given the opportunity to comment. The comments were considered by the Minister of Transport where after the related road sections were declared as toll roads.
Following the declaration of these freeway sections as toll roads, SANRAL could continue to raise funding from the capital markets and procure contractors to commence with construction.
Figure 4.2 indicates the extent of GFIP Phase 1. Figure 9.3 shows the further phases of the GFIP project.
229 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.2 - GFIP Phase 1
230 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.3 - GFIP Phase 1-3
All the roads listed in the further phases of the GFIP project have been highlighted in the various planning documents as priority routes and vital for the further development of the Gauteng Province. Considering the importance of the freeway mobility network, the following extract from SANRAL’s 2011 Annual Report with regard to the funding of the GFIP roads as a toll roads in important. The implications of the significant delay of the implementation of the further phases of the GFIP project has major implications for the Gauteng Province as both the GDRT and the Metropolitan, District and Local Councils relied on the GFIP network as the backbone mobility road network of the province.
231 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 It should further be considered that it takes at least 2-3 years to undertake the detail design of a section of a freeway and the Environmental Impact Study if the road reserve is available and even longer if sections of the road reserve still have to be expropriated. “Since the publishing of the toll tariffs there was a great deal of public debate on one of South Africa’s major transport infrastructure projects – the GFIP. The Gauteng project responds to the needs of a growing economy and a transforming society in our economic heartland. From its inception in 2005, the project was based on the “user-pay” principle. This approach is applied to several segments of the road network. The network design includes space for a dedicated high-occupancy vehicle lane.
12.5 The Gauteng Provincial Road Network
12.5.1 Extent of the Road Network
The provincial road network consists of 5,223km surfaced and 788km of unsurfaced roads. The network classes according to RIFSA can be seen in Table 4.3.
Table 4.3 - Network by RIFSA Class
Class Type of roads Length (km) % of network 1 Primary Distributor 274 7% 2 Regional Distributor 1 173 32% 3 District Distributor 1 031 28% 4 District Collector 926 25% 5 Access Road 1 89 5% No Data No Data 107 3% Total 3 700 100%
The current road lengths, by road type of provincial roads under jurisdiction of the Department, are shown in Table 4.4.
Table 4.4 - Network Length by Road Type
ROAD TYPE ROAD LENGTH (KM) SINGLE CARRIAGEWAY LENGTH (KM) Freeway Dual Carriageway 196 392 Freeway Single Carriageway 13 13 Dual Carriageway 396 792 High Standard Single Carriageway 715 715 Average Standard Single Carriageway 2 222 2,222 Low Standard Single Carriageway 158 158 Total 3 700 4 292
232 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The paved road network of GDRT has decreased in length due to the recent transfer of some roads to SANRAL. This includes the R21 from the Tshwane Metropolitan Municipality past OR Tambo International Airport.
12.5.2 Condition of the Road Network
The Gauteng Pavement Management System shows that about 80% of the total road network in Gauteng has a pavement structure older than 20 years, which is normally considered the design life of a pavement. In other words, 3100 km have already reached the end of their design life. In the 20 years since 1985, the proportion of substandard roads has increased from 4% to 24% and the proportion of those in acceptable or better condition has reduced from 96% to 76%. In order to maintain and preserve the provincial road network diligently, about 100km to 200 km of road (for a 40-year to 20-year life span target respectively) should be reconstructed or rehabilitated each year. Since 1990, the rate of repair/rehabilitation has decreased markedly, averaging only 22 km per year.
During the 2009 visual assessment the total length of the paved provincial network assessed was, 4092 km. This represents 95% of the paved carriageways shown on the RNMS as being under jurisdiction of GDRT. The assessment data, expressing the condition of the surfacing, the structural condition and functional condition through the degree (seriousness) and extent of occurrence of distresses, are used to calculate a single Visual Condition Index (VCI) for each visual segment. This index expresses the condition of the road segment as a percentage between 0% for very poor, to 100% for very good. The VCI is furthermore grouped into five condition categories that are used to describe the condition distribution of the visual segments in the road network. The categories adopted in GDRT (and the rest of South Africa) are: Very Good = 86% to 100% Good = 71% to 85% Fair = 51% to 70% Poor = 36% to 50% Very Poor = 0% to 35%
233 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 4.4, Figure 4.5, and Figure 4.6 shows the VCI for the road network, the road class and per area respectively.
Figure 4.4 - VCI Distribution of the Network (% Length and km) for 2009
Figure 4.5 - VCI per RISFSA Road Class (% Length) for 2009
234 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.6 - VCI per Area (% Length) for 2009
12.5.3 NATMAP Road Network Planning Priorities
The National Transport Master Plan identified the following key strategic road projects for the Gauteng province:
Strategy 1: Develop a link between Johannesburg and Rustenburg via Lanseria Airport and the N4 Platinum Corridor
The Lanseria Airport region is envisaged to become a significant mixed-use node in Johannesburg within the near future. This node will serve the entire north-western quadrant of Johannesburg and most likely be similar in size to Midrand. Due to the size and significance of this node, regional linkages will be of critical importance. These regional linkages will not only involve linkages to surrounding nodes, such as Midrand, Sandton and Centurion, but will also involve linkages to nodes further afield, such Brits and Rustenburg. This requires linking the Lanseria node to the N4 Platinum Corridor.
The current Oberon Road (R512) link will most probably be insufficient to harness the full potential of linking Lanseria to Rustenburg. The PWV3 alignment, planned by the provincial government, is ideally suited to link Johannesburg and Rustenburg via Lanseria Airport and the N4 Platinum Corridor. This will require national government to consider the PWV3 as an extension of the N4 corridor. This freeway between Lanseria and the N4 will have to be designed to cater for freight haulage, because it will link the commercial sector of Lanseria, the industrial sector of Brits and the mining sector of Rustenburg.
235 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Strategy 2: Provide a link between Sandton and the N4 Platinum Corridor
Additional linkages between the core economic region (Johannesburg, Tshwane and OR Tambo triangle) of Gauteng and the N4 Platinum Corridor will be necessary to support and supplement the current N1 linkage. The planned PWV9 freeway is of relevance and can be considered as an extension of the N4 corridor, linking Johannesburg to the N4 corridor. Linking Sandton to the N4 Platinum Corridor will also improve the linkages between former settlements of exclusion and the economic opportunities found within the core economic region of Gauteng. Constructing this long-awaited freeway will enable the settlements of Soshanguve and Winterveld to access employment opportunities in Centurion, Sandton and Fourways. Also, it will help integrated the larger Johannesburg-Tshwane urban conurbation.
Strategy 3: Link the N3 to the N4 Maputo Corridor through Ekurhuleni, specifically catering for freight haulage.
Consideration may be given to linking the N3 south of Heidelberg to the N4 Maputo corridor south of Roodeplaat Dam. This will create a linkage between the Durban harbour and the N4 corridor (to link to localities such as Brits and Rustenburg), bypassing the Johannesburg and Tshwane metropolitan areas. This link will also provide the strong industrial sector of Ekurhuleni to directly access to the N4 corridor. This will require this link to be designed for freight haulage. In particular, this freight route will pass the Sentrarand rail junction, which was earmarked by Transnet to become a future alternative container depot to City Deep. This freeway will facilitate road to rail transfer at Sentrarand. The proposed link between the N3 and the N4 freeway will also improve the linkage to former settlements of exclusion. The alignment of this road will pass the settlements of Kwa-Thema, Tshakane and Daveyton, located in the Ekurhuleni Municipality, and Mamelodi, located in the Tshwane Municipality. The planned PWV17 freeway alignment will be suited for the proposed link between the N3 and N4 freeway, as it links all the settlements and industrial areas mentioned above. Accepting the PWV17 as the appropriate link will require National government to consider the PWV17 to be an extension of the N4 corridor.
12.5.4 Provincial Road Network Planning
The most recent review of the Gauteng Strategic Road Network was undertaken in 2010.
The Gauteng Strategic Road Network (GSRN) 2010 Review has produced the following:
• The Strategic Road Network map 236 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 • An updated Transportation Demand Model (GTS 2000) • A Prioritization plan for Class 1, 2 and 3 roads • A review of Geometric Design Standards • A schedule of Planning Issues requiring upgrading or amendment
During the process, the following documents were consulted:
• Gauteng Strategic Road Network Review, Phases 1, 1a and 1b • Strategic Agenda for Transport, Gauteng • Intergovernmental Transport Charter • Gauteng Transport Study, GTS 2000 • Gauteng (Strategic) Integrated Public Transport Network (GSPTN) • Gauteng Spatial Development Plan (GSDP) • Growth and Development Strategy for Gauteng • 2010 TDM • Gauteng Roads Development Plan • Towards an Integrated Public Transport Strategy for Gauteng Province • Local Authority Integrated Transport Plans (ITP), Integrated Development Plans (IDP) and Strategic Development Frameworks (SDF) • Gauteng Road Design Manual and Typical Plans • National Transport Master Plan (NATMAP) • Transnet National Infrastructure Plan (TNIP) • Gauteng Strategic Secondary Road Network
Extensive consultation was also held with all relevant role-players including officials from:
• The Gauteng Provincial Departments o Roads and Transport o Agriculture and Rural Development o Economic Development • Limpopo Province • Northwest Province • Freestate Province • Mpumalanga Province • Johannesburg Metro • Tshwane Metro • Ekurhuleni Metro • West Rand District Council
237 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 • Sedibeng District Council • Metsweding District Council • Local Councils • SA National Roads Agency • Passenger Rail Association SA
The Strategic Road Network map of all national, provincial and municipal Class 1, 2 and 3 roads to a scale of 1:150 000 was developed through the following process:
• Review of previous work, including Phase 1 • Decision on which roads were considered strategic and hence qualify for inclusion on the map • Consultation with authorities • Production of an initial map • Modelling of the network to test compatibility and ability to serve existing and future land use and public transport • Testing of the roads for environmental acceptance • Required amendments to alignment or preliminary design of existing routes and conceptual alignments of new routes
A Prioritization plan was developed considering:
• An evaluation of the modelling; • A prioritization procedure taking into account economic importance, social values, national and provincial policies, public transport, commuter needs and traffic volumes; gave the top twenty Class 1, top thirty Class 2 and top forty Class 3 routes listed in Table 4.5, Table 4.6, and Table 4.7 respectively, and also indicated on Figure 4.8, Figure 4.9, and Figure 4.10 respectively.
238 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.5 - GSRN Top Twenty Class 1 Priority Roads
Route From To 1. PWV9 Southern N1 N14 2. PWV5 Eastern / Central PWV9 R21 3. N17 Western Soweto M1 Crownwood 4. PWV14 Entire M2 N12 5. PWV16 Eastern K133 N3 6. PWV9 Remainder N14 K16 7. PWV5 Central N12 PWV9 8. PWV15 Northern N12 R21 9. PWV13 Entire N3 PWV14 10. PWV2 Eastern N1 PWV17 11. PWV17 Northern PWV2 N4 12. PWV17 Central N4 PWV5 13. PWV5 Eastern R21 PWV17 14. PWV15 Southern N12 N3 15. PWV17 Central PWV5 N12 16. PWV1 and 8 PWV12a / N17 N14 17. PWV12a / N17 PWV1 PWV5 18. PWV6 N1 PWV17 19. PWV3 Eastern N3 R21 20. PWV3 Western N14 N1
239 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.8 - Gauteng SRN Class 1 Road Priorities
240 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.6 - GSRN Top Thirty Class 2 Priority Roads
Route From To 1. K57 K142 K158 2. K71 K103 North D49 3. K105 K220 K121 4. K145 K22 K34 5. K69 K34 K16 6. K71 N14 P206-1 (M1) 7. K111 Nellmapius PWV5 8. K60 K74 K46 9. K46 K60 N14 10. K60 K46 K73 11. K73 K71 North K60 12. K101 K38 K71 13. K109 K101 South K101 North 14. K43 K142 K122 15. K56 K101 K117 16. K60 K71 K105 17. K11 Old P42-1 K102 18. K139 K14 K16 19. K69 Rubenstein Atterbury 20. K54 PWV6 D964 21. K97 PWV2 K14 22. K121 K105 K68 23. K58 K71 K117 24. K56 K72 Cedar 25. K16 30th Avenue Baviaanspoort 26. K54 K52 K101 27. K216 PWV9 K95 28. K117 / K127 N17 K88 29. K115 K58 Terrace 30. K27 K46 K101
241 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.9 - Gauteng SRN Class 2 Road Priorities
242 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.7 - GSRN Top Forty Class 4 Priority Roads
Route From To
1. Upgrade D2150 Stretford Station K45
2. De Villebois Mareuil K151 K40
3. Portion of Midvaal Spine Road K164 K210
4. Main / New Canada Rd Main Reef Rd Soweto Highway
5. Wit Deep Rd Main Reef Rd Commissioner Street
6. Link Odendaal-Westlake Rd Main Reef Rd Vincent Rd
7. D162 / D665 K211 / K213 Homestead
8. Olievenhoutbosch Rd Botha Ave R21
9. Dualling Jan Smuts Ave 7th Ave Bompas Rd
10. North-south Class 3 Spine Rd Savannah City K158 / D786 K47
11. Olievenhoutbosch Rd Brakfontein Rd Nellmapius Drv
12. East-west Class 3 in Savannah City D2150 P1-1 / K57
13. East-west Class 3 in Klip River Housing Project D786 D766 / K2529
14. Trichardts Rd Kingfisher Rd Barry Marais Rd
15. K101 (Old Warmbaths Rd) K212 Tshwane Border
16. Kelvin-Northway Link Bowling Ave Marlboro Drv
17. D92 Welverdiend P61-1
18. Link N4 West to PWV9 DF Malan Drv PWV9
19. Samrand Rd Rooihuiskraal Rd K71
20. Thami Mnyele Brian Mazibuko West K105
21. Alexander Rd Henry Rd K16
22. Main Rd, Comptonville Golden Highway Columbine Ave
23. Andrew Mapheto / Rev RTJ Namane DM Morakane Axel
24. Pretoria Rd K109 K68
25. Spencer Rd Main Reef Rd Modise Street
26. Road D223 K34 K16
27. Zwane St Class 3 Link with Hendrik v Eck Blvd Zwane Street (Sharpville) K55
28. Ravenswood K90 K155
29. Trichardts Rd Ridge Paul Smit
243 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 30. Ascot Rd North of K174 & Portion of Kariba K174 Sharpville Street
31. D2377 K40 D670
32. Stanley / Knights Main Reef Rd Pretoria Rd
33. Bierman MC Botha Sontonga
34. Dely / Brooklyn Rds Lynwood Rd Lois
35. 8th St Vrededorp Brixton Rd Solomon Street
36. D1197 P1-1 / K57 D904
37. D37 / D2106 K14 K6
38. Class 3 Road in Ratanda K135 K174 / P25-1
39. Ndabeztha Vlakfontein Rd Modjadi
40. Lintvelt Ave Lavender Rd Wonderboom Airport
12.5.5 Gauteng Department of Roads and Transport – Current Road Projects
The current (2012/13) budget allocation of the GDRT is R4.36 billion, which includes R1.245 billion for infrastructure. The infrastructure budget is further allocated as follows:
• Maintenance R783 million • Construction R276 million • Design R72 million • Transport Branch R114 million
It can be seen that a relatively small amount is available for road upgrading and new roads. The road upgrading list as prioritised by the GDRT is shown in Table 4.8.
244 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.10 - Gauteng SRN Class 4 Road Priorities
245 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.8 - GDRT Road Priorities
No Project Description Funding Municipal Source Area 1 K71 (R55) K71 Between K103 (Wierda rd) and Laudium (doubling of DRT TMM existing road) (P66-1) 2 D2529 Surfacing of Cayman road as an access road to the Eye of Africa DRT Sedibeng Development 3 K46 K46 William Nicol: Doubling of road K46 from Fourways to PWV Dept / JMM 5 (Erling road) (P79-1) Developer 4 K46 K46:PWV 5 to Diepsloot/N14: Doubling of road Dept / JMM Developer 5 K15 (R512) Doubling of Adcock Str(R55) from Dobsonvile to Protea Glen. DRT JMM (Last section) (D524) 6 K72/P126-1 K72/P126-1: Construction of P126-1 N14 interchange including Mogale 3km approaches City 7 K142 Construction of road over rail to provide a link with Lenasia DRT / JMM JMM Protea Glen / PRASA 8 K133 (P4-1) Doubling of road K133 (P4-1) between road P58-1 (R554) and DRT EMM (R103) road P140-1 (Nigel road) 9 K97 (R101) Link between N4 to P1-3. Construction of (R101) northwards DRT TMM
10 P1-1 (K57) P1-1 (R82) Old Vereeniging road: Upgrading of road to new dual DRT Sedibeng (R82) carriage road from D766 (Eikenhof) to D1073 (Walkerville) 11 P1-1 K57 (R82) P1-1 (R82) Old Vereeniging road : Upgrading of road between DRT Sedibeng Walkerville (D1073) and De deur (K164) 12 K164 (R551) D473 (K164): Upgrading of the intersection at De Deur. (from DRT Sedibeng D904 to D905) Vereeniging 13 K148 / N3 Construction of interchange K148 / N3 and access to Tambo DRT / EMM Springs Developer 14 K154 (D1313) Upgrading of road K154 from a gravel road to a surfaced dual Developer Sedibeng carriageway road. Gauteng Highland (Eikenhof) 850m / Midvaal 15 K154 (D1313) Upgrading of road K154 from R59 toK57 (R82) Developer Sedibeng / Midvaal 16 K11 Construction of new road linking Meyerton to Sebokeng to link to Sedibeng industries 17 K60 (P70-1) Section between Megawatt Park and ( Kyalami Rd to Corporate JMM Park) Kyalami/N1 18 K60 Construction of a single carriageway between Rivonia Rd K73 JMM (M9) and Main Rd (PWV9) 19 K60 New road from P66-1 (R55) across N3 to D51 (Allandale road) DRT / JMM M39 SANRAL / 20 K60 Access Rd to Ivory Park and Tembisa between K56 (D51)and JMM Chapman Rd (K117) 21 K60 Access Rd to Ivory Park and Tembisa between Chapman RD JMM (K117) and K105 22 K101 Upgrade of interchange K101 (M39)(R101) (P1-1) and K58 JMM
23 P219-1 (K43) Upgrading of Klipspruit Valley Rd (M10 between N12 and JMM Nirvana Rd (Lenasia South) To improve the link between 24 K69 Upgrading and doubling of Hans Strijdom from the N4 to TMM Mamelodi to K54 25 K69 / K34 Construction of interchange Lynwood / Hans Strijdom () TMM
26 K198 Construction of new road from Leratong to Corlett St JMM (Witpoortjie) 27 K170 Construction of interchange at N1/19 and Golden High way, Access to Sebokeng and Evaton 28 K16 New Rd from Wattloo to Mamelodi (K69) TMM
29 K101 Doubling of exising road P1/2 from K54 (R101) to Lenchen Pra TMM Ave (Rooihuiskraal)
246 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 30 K101 Doubling of existing road P1/2 from N1 to road D795 (Midrand) JMM
31 K101 Doubling of excisting road between road 795 and New Rd JMM
32 K101 Doubling of existing road P1/1 (R101) from K103 (M10) to the TMM end of dual carriageway 1853 (Eeufees road) 33 K101 Doubling of Road P1-1 (R101) from M10 (K103) to N1 TMM
34 K103/K69 Doubling of existing road (Waterkloof Air Force Base Pta) K103 TMM (M10) From Kloofsig to R21 35 K122 New road south of Naturena from road K45 (Golden Highway)( Nance field) to P1/2 (Vereeniging road) 36 P91/1 Doubling of R91-1 (R25) Wikus to M57 (P58-1)
37 P3-6 (N12) Doubling of P3-6 and railway bridge from P41-1 (R501) to Provincial Border 38 P2-5 (K54) K54 (P2-5) From Tsamay road to K22 Zambezi Ave to Tsamay TMM (R513) Ave, from D713 to K54 Road rehab. 39 K102 Phase 4: New Construction (Hopewell St) from Maimane St to JMM 56th St. Dobsonville. 40 K102 Phase 5: New construction (Hopewell St) from 56th St. JMM Dobsonville to Roodepoort 41 K14 Upgrading of P2-5 (R513) Chris Hani to Cullinan TMM
42 P66-1 (K71) Doubling of road P66-1from N14 Diepsloot to Kyalami JMM R55 43 K77 Elizabeth road to K154 (Part of Highlands project) Sedibeng / Midvaal
12.6 Gauteng Local Municipality Road Networks
Figure 4.11 indicates the metropolitan, district and local municipality borders in Gauteng. The City of Tshwane includes the previous Metsweding District Municipality from 2011 and is now responsible for the municipal road planning, upgrading and maintenance in the area.
247 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.11 - Geographical contexts of metropolitan, district and local municipalities in Gauteng
12.6.1 Road Network City of Tshwane
The City of Tshwane Metropolitan Municipality (CTMM) has a well-developed road network, although many roads in the previously disadvantaged areas to the north are not paved. CTMM is also centrally situated on the national road network with direct links to Mozambique, Botswana and Namibia along the east-west N4 route, and with Zimbabwe along the south-north N1 route.
The CTMM is currently responsible for all Municipal Roads in Tshwane (a limited number of Class 2 roads, but mainly Class 3 and lower order roads).
There are 5209 km surfaced municipal roads (lane-kilometres) and 2231 km gravel roads in the CTMM. The surfaced road network consists of 18% primary roads, 13% secondary 248 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 roads, 19% are main tertiary roads and 49% are minor tertiary roads. The gravel road network consists of 4% secondary roads, 4% are main tertiary roads and the remainder is minor tertiary roads.
The main road network follows a radial system centred on the CBD of Pretoria, which is the dominant economic node. The strong urban decentralisation trend towards suburban nodes during the last few decades has created a demand for concentric roads. The greatest deficiency in the main road network is the lack of a continuous major ring road around the city, with supporting routes, to serve suburban nodes.
The N1 eastern by-pass, the N14 (Krugersdorp freeway) and the new N1/N4 Platinum toll route, form part of the ring road to the south, east and the north. The remaining missing link is the planned north-south PWV9 to the west, which could also forms the central mobility spine of the Mabopane-Centurion Development Corridor (MCDC).
The responsibility for the main road network is shared between South African National Roads Agency Limited (SANRAL), GDPTRW and the CTMM. The pace of growth and the lack of funds at metropolitan level resulted in the increased use of the national and provincial roads by local urban traffic. This situation is exacerbated by the negative impact on urban traffic of tolling the urban sections of the existing N1. This calls for a more integrated approach between the various spheres of government to the planning, management and funding of roads. These tolls are overloading some of the Tshwane roads whilst the Tshwane transport budget cannot cope with the imposed burden.
The existing road infrastructure is over-extended in parts of the city which are experiencing development pressure. This is particularly evident in areas like Olievenhoutbos, Irene/Highveld, Menlyn, Hatfield, Brooklyn and Zambezi/Montana.
Backlogs in regard to unpaved roads are significant, especially in the northern parts of Tshwane, such as Ga-Rankuwa, Mabopane, Soshanguve, Winterveld, Temba and Hammanskraal.
It is also worthwhile to mention that the overall structural index of CTMM surfaced roads has decreased since 1991 from 0,9 to 0,85 and the surfaced index from 0,75 to 0,72 over the same period due to a lack of funds for road maintenance. In other words, the quality of the roads has decreased in the said period.
249 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.6.2 City of Johannesburg
The road network of the City of Johannesburg can be seen in Figure 4.12 and comprises of 9247km roads, of which approximately 10% (922 km) are gravel. The Johannesburg Roads Agency is responsible for approximately 1800 traffic lights and malfunctioning is a common problem due to rain, power cuts and power distribution faults.
Figure 4.12 - City of Johannesburg Road Network
250 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The City of Johannesburg is divided into 11 regions. These regions can be seen in Figure 4.13. A summary of the road condition in each region is given in Table 4.9.
Figure 4.13 - City of Johannesburg Regions
251 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Table 4.9 - Summary of Road Condition
Region Very Poor Poor Average Good Very Good Total % per Total % per Total % per Total % per Total % per (km) Region (km) Region (km) Region (km) Region (km) Region Region 1 ------Region 2 5 5,6 21 23,6 49 55,0 10 11,3 4 4,5 Region 3 10 1,1 74 7,9 452 48,5 257 27,6 139 14,9 Region 4 6 4,3 15 10,8 73 52,5 32 23,0 13 9,4 Region 5 2 3,7 6 11,1 24 44,4 12 22,2 10 18,6 Region 6 10 1,9 30 5,6 120 22,4 235 43,9 140 26,2 Region 7 2 0,5 29 7,6 181 47,5 118 31,0 51 13,4 Region 8 1 0,8 11 9,0 61 50,0 38 31,2 11 9,0 Region 9 13 1,3 95 9,3 353 34,5 364 35,5 199 19,4 Region 10 6 2,0 29 9,9 67 22,8 132 44,9 60 20,4 Region 11 6 1,6 29 7,6 180 47,4 127 33,4 38 10,0 Total 61 1,6 339 8,6 1560 39,5 1325 33,5 665 16,8 Notes: At the time of compilation of the above data no information was available for Region 1 (Diepsloot). It is noted from the information presented above that Region 9 (Johannesburg South) has more kilometres of roads in a very poor and poor condition. Region 9, interestingly also includes more kilometres of roads in very good condition, although it will be noted that this is a relatively densified area within the City. On a percentage basis, Region 6 (Sandton/Rosebank) has a higher proportion of roads in a very good condition than any other region.
12.6.3 Ekurhuleni Metropolitan Municipality
Ekurhuleni Metropolitan Municipality (EMM) has some 8300 km of roads, including 6700 km of surfaced roads and 1600 km of gravel roads. The great length of roads in the EMM is largely the result of the extensive provincial road network of some 1310km.
EMM has the greatest length of freeway, 0.43 lane km per 1000 population compared with 0.29 in Johannesburg and 0.42 in Tshwane. Freeway and arterial road provision per square kilometre in EMM is comparable with both Johannesburg and Tshwane (0.46 lane km/km² of freeway and 1.05 lane km/km² of arterial road compared with 0.59 and 1.67 in Johannesburg and 0.37 and 1.09 in Tshwane). Considering the amount of vacant and rural land in the EMM, the foregoing indicates good road provision in the EMM with adequate spare capacity.
The extent and condition of the Municipal roads as reflected on the EMM Roads Management System are given in Table 4.10.
252 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.10 - Extent of the Municipal Road network
Road type Road Class Very Good Fair Poor Very Total good km km km poor length km km km Freeways Dual carriageway roads / Primary (P) 672.7 256.2 53.4 42.7 42.7 1067.7 streets Access roads Secondary (S) 609.3 222.5 48.4 29.0 58.0 967.2 Paved Other single carriageway Main Tertiary (T) 2775.7 1206.5 269.3 139.8 269.3 4660.6 and Tertiary (t) Sub Total (Paved) 4057.7 1685.2 371.1 211.5 370.0 6695.5
Normal urban Primary (P) and 0.4 0.0 4.9 0.0 1.0 6.3 Secondary (S)
Gravel Access roads Main Tertiary (T) 14.0 87.1 335.6 489.3 255.2 1181.2 and Tertiary (t) Sub Total (Unpaved) 14.4 87.1 340.5 489.3 256.2 1187.5 Total 4072.1 1772.3 711.6 700.8 626.2 7883.0
The extent of National and Provincial roads is estimated at 1310km (Metropolitan Spatial Development Framework, 2005). It should also be noted that the extent of gravel roads is considered to be underestimated in the above table, mainly due to the omission of roads in informal settlements and some outlying areas of the Metropole.
12.6.4 Sedibeng
The SDM comprises of three Local Municipalities (LMs) as indicated in Figure 4.14.
Emfuleni LM (commercial nodes are Vereeniging and Vanderbijlpark); Lesedi LM (commercial node is Heidelberg); and Midvaal LM (commercial node is Meyerton).
253 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.14 - Sedibeng Local Municipalities
The Sedibeng main road network can be seen in Figure 4.15. The following road linkages are considered the main north-south road links in support of the major nodes in Sedibeng:
National Route N1 – Linking Vanderbijlpark and the Free State with Johannesburg in the north; National Route N3 – Linking Johannesburg/Ekurhuleni in the North to Heidelberg and Mpumalanga towards the south; Provincial Route R59 – Linking Vereeniging with Meyerton and northwards towards Alberton in Ekurhuleni; Provincial Route R553 (Golden Highway) – Linking Vanderbijlpark through Sebokeng/Evaton towards Johannesburg in the north; Provincial Route R82 – Linking Vereeniging with De Deur and Walkerville towards Johannesburg in the north; Provincial Route R23 – Alternative to the N1 linking Benoni in the north to Balfour in the south; Provincial Route R51 – Linking Springs in the north to Balfour and Vaal Dam in the south; and
254 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Provincial Route R549 – Linking Heidelberg and Ratanda with Deneysville and the Vaal Dam.
The following road linkages are considered the main east-west road links in support of the major nodes in Sedibeng.
Provincial Route R42 – Main east-west linking Lochvaal in the southwest through Vanderbijlpark, Vereeniging, Heidelberg, and Nigel to Vischkuil/Endicott in the north-east towards Delmas; Provincial Route R29 - Linking Devon/Impumelelo with Vischkuil/Endicott and further west with Springs in Ekurhuleni; Provincial Route R54 - Linking Vereeniging and Vaal Marina towards the south; Provincial Route R551 - Prominent east-west link between Evaton/Sebokeng in the west and Meyerton towards the east, further along to Heidelberg within Lesedi Local Municipality, continuing further along the R42 National Route N1; Provincial Route R557- Linking Walkerville in the west with the Suikerbosrand Nature Reserve in the east; Provincial Route R550 - Linking Kliprivier with Nigel; and Provincial Route R557 - Linking Walkerville in the east with the Grassmere (N1) toll gate and Ennerdale.
255 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.15 - Existing Sedibeng Main Road Network
12.6.5 West Rand District Municipality
The West Rand District Municipality comprises of the four local municipalities i.e., Mogale City Local Municipality, Merafong City Local Municipality, Randfontein Local Municipality and Westonaria Local Municipality. Each Local Municipality is responsible for the upgrading and maintenance of its own road network. Table 4.11 and Table 4.12 indicate the extent of roads in the West Rand.
Table 4.11 - West Rand District Municipality Major Road Network
Kilometre Classification of Roads Paved Gravel Totals Class 1-3: Freeways (National Roads), Major arterials (Provincial) and Minor arterials 185.9 0 185.9 (Municipal) Class 4a: Collector roads (CBD’s, Municipal 156.2 6.6 162.8 roads) Class 4b: Collector roads (Residential areas, 159.1 34 193.1 municipal roads) Class 5: Access roads (municipal roads) 871.2 473.4 1344.6 TOTAL 1372.4 514 1886.4
256 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.12 - West Rand District Municipality Roads and Responsible Authority
Municipality Classification of Roads Randfontei Westonari Mogale Merafong Total n a National & Provincial Paved 101 63 22 287 473 National & Provincial Unpaved 0 0 0 110 110 Local Paved 596 333 258 324 1511 Local Unpaved 274 141 100 102 617 Total 971 537 380 823 2711
(a) Merafong City
There are two National and four Provincial roads providing mobility and access function to the local municipalities. These are as follows:
• N12 - The north-south route linking Gauteng and North West • N14 - Links Merafong City Local Municipality with North West Province, Mogale City LM and Tshwane • R501- Links Carletonville – Fochville – Parys(Free State) • R500 - Access from N12 and N14 to Carletonville • R559 - Links Local Municipality with Randfontein • R41 – Links Local Municipality with Randfontein
The main freight route, within the local municipality, includes the N12, N14, R500, and R501 which carries significant traffic of heavy vehicles per day in and out of Merafong City LM. Table 4.13 indicates the road condition in Merafong.
Table 4.13 - Merafong Road Conditions by Road
MERAFONG LOCAL MUNICIPALITY Township Length of Condition of Comments Roads Roads (m) Roads PAVED (m) UNPAVED (m) - - - Carltonville 141,765 0 141,765 Fair to Good Keep up maintenance Khutsong Fair to Poor Pave unpaved roads and maintenance 42,000 57,000 99,000 of SW and existing roads. Fochville 65,649 0 65,649 Good Keep up maintenance Kokosi Main road into Kokosi turn into a river once it starts raining. It needs to be 13,293 42,986 56,279 Fair to Poor redesign and constructed. Majority of roads are Gravel. Wedel 28,900 0 28,900 Fair Few storm water problem Greenspark 3,307 1,523 4,830 Fair Keep up maintenance Welverdien 28,904 0 28,904 Fair Keep up maintenance Total 323,818 101509 425,327
Merafong City Local Municipality comprises of Carletonville, Khutsong proper, Khutsong South, Fochville, Kokosi, Oberholzer, Wedela and Welverdiend. Carletonville, Welverdiend, 257 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Oberholzer and Fochville road conditions are fair to good paved roads. These roads will need maintenance to ensure that they do not deteriorate to the stage where they will need to be rehabilitated.
Khutsong Proper has a good road network on in main roads through the township. The rest of the area has bad and non-maintained gravel roads. In Khutsong Proper, there are road signs as well as speed calming measures. Road sign marking for school areas are visible. The majority of roads in Khutsong Proper and Khutsong South are gravel.
It is the correct time to update the 2002/3 PMS to confirm that the road condition have stayed the same or improved as a result of maintenance effort. It is however expected that the condition of roads have deteriorated as the local municipalities do not have enough funding to maintain the road network.
Table 4.14 reflects the Paved Road Condition as per Visual Condition Index (VCI) for all roads within the Merafong City and also indicates the road lengths within various ranges of the VCI.
Table 4.14 - Paved Condition of Merafong City Roads
Very Good Good Fair Poor Very Poor 14% 8% 38% 39% 0%
Based on the above table and from the inspections carried out by the consultants, the following can be reported:
It is urgent that the PMS be updated to reflect the current status as this helps in planning for projects and budgets. The road network is in a fairly good condition despite lack of continuous maintenance program due to inadequate funding. There are more poor roads in Kokosi Township compared to the neighbour Fochville due to the past apartheid government administration. Has a higher present of fair and poor roads. There are pockets of pot holes but these are being dealt with as funds become available.
258 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (b) Mogale City
There are two National and Provincial roads providing mobility and access function to the Mogale City Local municipalities. These are as follows:
• N14 - Links Mogale City with North West Province and Tshwane MM • R28 - Links Mogale City Local Municipality and Randfontein • M18 - Links with N14 • R563 - Links with N14 • M36 - Mobility with Krugersdorp • R24 - Links Mogale City with Rustenburg
The main freight route, within Mogale City, includes the N14, R28, and R24 which carries significant traffic of heavy vehicles per day in and out of Mogale City. Table 4.15 indicates the road condition in Mogale City.
Table 4.15 - Mogale City Road Conditions by Road Type
MOGALE CITY LOCAL MUNICIPALITY Mogale City Segment Length of Roads (km) Condition of Roads Comments Primary routes 215 93.6 Fair to Good Keep up maintenance Secondary routes 509 85.5 Fair to Good Keep up maintenance Main Tertiary routes 487 72.3 Fair to Good Keep up maintenance Tertiary routes 3,811 568.2 Fair to Poor Keep up maintenance Total 5,022 819.6
In spite of the length of the primary, secondary, main tertiary and tertiary routes that are under the jurisdiction of Mogale City Local Municipality, the 2010 Pavement Management System results show that, the Mogale City Local Municipality to keep the road network in a fair to good condition by instituting a strict maintenance regime policy.
Table 4.16 reflects the Paved Road Condition as per Visual Condition Index (VCI) for all roads within the Mogale City LM and also indicates the road lengths within various ranges of the VCI.
Table 4.16 - Paved Condition of Mogale City Roads
Very Good Good Fair Poor Very Poor 26% 35% 23% 12% 3%
Based on the above table and from the inspections we carried out, the following can be reported:
259 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 • The road network is in a fairly good condition despite lack of continuous maintenance program due to inadequate funding. • There are more roads in good and very good conditions in the Krugersdorp area compared to the Rietvallei due to the type of development. • Mogale City Local Municipality has a higher percentage of very good and good roads despite the unpaved roads problems around rural areas of the municipality. • There are pockets of poor roads and pot holes but these are being dealt with as funds become available.
(c) Randfontein
There is National and Provincial roads providing mobility and access function to the West Rand district municipalities. These are as follows:
• N14 – links Randfontein with Northwest and Tshwane MM • R28 – links Randfontein, Westonaria and Sedibeng LM in Gauteng • M13 – links Randfontein with Johannesburg through Soweto • R41 – links Randfontein to Northwest • R559 – links Randfontein with Southern Soweto
The main freight route, within Randfontein, includes the N14 and R28 which carries significant traffic of heavy vehicles per day in and out of Randfontein. Table 4.17 indicates the road condition in Randfontein.
South Africa has had an unusually rainy season in the 2008/09 year and thus the majority of the roads in Randfontein are in a state of very poor condition. There is a need to control the load on heavy vehicles as well as to create a road dedicated to heavy vehicles. This will be able to slow down the rapid rate of road deterioration. Randfontein Local Municipality needs to develop road maintenance and upgrading programme in order to minimise the further destruction of the road surface and structure.
Table 4.17 - Randfontein Road Conditions by Road Type
RANDFONTEIN LOCAL MUNICIPALITY CONDITION OF THE SURFACING CONDITION OF THE STRUCTURE Road Network Very Poor Very Very Poor Very Good Fair Good Fair Good Poor Good Poor Class 3: minor arterials 18% 22% 19% 19% 14% 41% 44% 4% 6% 5% Class 4a: Connector Roads (CBD 3% 27% 27% 18% 18% 1% 68% 23% 7% 0% areas) Class 4b: Connector Roads 33% 20% 19% 19% 1% 65% 29% 4% 1% 0% (Residential areas) Class 5: Access roads 27% 39% 9% 9% 1% 63% 35% 2% 0% 0% Total Network 26% 32% 14% 14% 4% 59% 35% 3% 1% 1%
260 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.18 reflects the Paved Road Condition as per Visual Condition Index (VCI) for all roads within the Randfontein LM and also indicates the road lengths within various ranges of the VCI.
Table 4.18 - Paved Condition of Randfontein Roads
Very Good Good Fair Poor Very Poor
26% 32% 24% 14% 4%
Based on the above table and from the inspections we carried out, the following can be reported.
• It is urgent that the PMS be updated to reflect the current status as this helps in planning for projects and budgets. • The road network is in a fairly good condition despite lack of continuous maintenance program due to inadequate funding. • There are more good roads in Randfontein than they are poor roads. • Randfontein has a higher percentage of very good and good roads despite the storm water problems around Toekomsrus Township • There are pockets of poor roads and pot holes but these are being dealt with as funds become available.
(d) Westonaria
There are two National and Provincial roads providing mobility and access function to the Westonaria Local municipalities. These are as follows):
• N12 - the east-west route linking Gauteng and the West Rand • R28 - links Westonaria and Randfontein
The main freight route, within Westonaria, includes the N12 and R28 which carries significant traffic of heavy vehicles per day in and out of Westonaria. Table 4.19 indicates the road condition in Westonaria.
261 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.19 - Westonaria Road Conditions by road type
WESTONARIA LOCAL MUNICIPALITY CONDITION OF THE SURFACING CONDITION OF THE STRUCTURE Road Network Very Poor Very Very Poor Very Good Fair Good Fair Good Poor Good Poor Class 3: minor arterials 44% 15% 31% 11% 0% 77% 21% 1% 0% 0% Class 4a: Connector Roads 0% 36% 33% 25% 6% 0% 81% 16% 3% 0% (CBD areas) Class 4b: Connector Roads 4% 37% 31% 19% 9% 4% 72% 22% 3% 0% (Residential areas) Class 5: Access roads 31% 39% 25% 5% 0% 74% 25% 0% 1% 0% Total Road Network 34% 34% 25% 6% 1% 75% 23% 1% 0% 1%
Although the road condition of the structure seems to be very good, without quick intervention, the condition could deteriorate. The unusual weather change in South Africa is also a factor that has impact on the road surface and structure in the district and Westonaria in particular. The uncontrolled movement of heavy vehicles and the lack of overloading control should be attended to.
Table 4.20 reflects the Paved Road Condition as per Visual Condition Index (VCI) for all roads within the Westonaria LM and also indicates the road lengths within various ranges of the VCI.
Table 4.20 - Paved Condition of Westonaria Roads
Very Good Good Fair Poor Very Poor 34% 34% 25% 6% 1%
Based on the above table and from the inspections we carried out, the following can be reported: It is urgent that the PMS be updated to reflect the current status as this helps in planning for projects and budgets. The road network is in a fairly good condition despite lack of continuous maintenance program due to inadequate funding. There are more good and poor roads in Bekkersdal Township compared to the Simunye Township due to the incomplete Bekkersdal Renewal Project (BRP) Westonaria has a higher percentage of very good and good roads despite the storm water problems around Simunye Township
There are pockets of poor roads and pot holes but these are being dealt with as funds become available.
262 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.7 Municipal Road Network Planning and Priorities
12.7.1 City of Tshwane
The areas where the Ward Committee meetings called for upgrading of the major roads are of interest. These were, without exception, in the affluent residential areas and followed two general patterns. In the north, demands for additional road capacity tend to be associated with those wards which are impacted by the building of major toll roads (N4 and N1). These include Weavind Park, Montana, Sinoville and Waverley to the east and the Orchards area to the North West. In the south the areas adjacent to the N1, including Rietvlei, Irene and Rooihuiskraal, called for major road upgrading.
There is only limited access to the north of Tshwane caused by the physical barrier, the Magalies Mountain. The accesses are indicated in Figure 4.16.
Figure 4.16 - Points of Access through the Magaliesberg
The total traffic on the nine roads (15 lanes) represents 83.5% (18500 Car Passenger Units-CPU) of the total road capacity (24200 PCUs). It is expected that the traffic demand will increase to 39800 PCUs (97%) within the next 15-20 years.
Given the expected demand and the possibility to increase the number of lanes across the mountain by 5 lanes per direction, the overall demand will exceed the supply within the next 10 to 15 years, as shown in Table 4.21.
263 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.21 - Existing and Future Capacity Utilisation
NORTHBOUND SOUTHBOUND 2004 Increase Future 2004 Increase Future Number of road links 9 1 10 9 1 10 Current/ Available lanes 14 6 20 15 5 20 AM Peak hour vehicles 12,100 5,600 17,700 18,500 18,000 36,500 Average lane utilisation 860 930 890 1,230 3,600 1,830 Equivalent Car Passenger units 13,200 6,200 19,400 20,200 19,600 39,800 Capacity 22,800 10,800 33,600 24,200 9,400 33,600 Percentage lane utilisation 57.9% 57.7% 83.5% 118.5%
Table 4.22 is a list of roads projects for the Province.
Table 4.22 - Projects of Provincial Responsibility
Project Name Est. Cost (Million) 1 New K97 link (N4 southwards) R 90.0 2 K14 link (part of area road network development for regional inter-modal facility, R 60.0 which includes the Paul Kruger Street Extension upgrading and re-alignment) 3 Upgrading of Rietvlei Dam Road (as K54) (R21 to Delmas Road) R 20.0 4 One carriageway of K54 (Garstfontein Road to Delmas Road) R 32.0 5 Upgrading of Rietvlei Dam Interchange (R21) R 20.0 6 Doubling of Old Johannesburg Road (K101, from Wawiel Interchange/Eeufees Rd to R 70.0 M31 in the south) 7 Second carriageway of Hans Strijdom East (K69) (from Atterbury Road to Genl Louis R 45.0 Botha Drive) 8 Second carriageway of Hans Strijdom East (K69) (from Lynnwood Road to R 50.0 Mamelodi) TOTAL R 387.00
Note: The PWV 9 is not included in this list, due to the cost estimate exceeding R1.2 billion (previous best estimate). It is a project of its own significance, and is very strongly emphasised in the City Development Strategy (CDS) as important for development in Tshwane. However it is also included in the Gauteng (Toll Freeway Improvement Scheme of SANRAL), and may thereby even become a national project.
The local roads projects included in the summary do not reflect the total backlog that needs to be addressed, but focuses on the more important projects within the areas. The approach to backlog eradication needs to be refined, particularly regarding minimum standards and packaging of projects in such a way as to make a noticeable, significant impact on an area at a time. Thus projects to improve local roads will gain in more
264 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 significance and specific budget allocation in due course. The spending on local roads is indicated in Table 4.23.
Table 4.23 - Summary of Local Road Projects per area
Cost Geographic Area (Million) Akasia R 4.55 Atteridgeville R 1.25 Ga-Rankuwa R 3.2 Mabopane R 48.40 Mamelodi R 29.95 Temba/Hammanskraal R 92.35 Soshanguve R 13.85
The current main road projects within CTMM address the construction of new links as well as upgrading the capacity of major roads. Projects on the capital budget include:
• Menlyn area road network, including a proposed interchange on the N1 at Garstfontein Road and major expansion of the existing Atterbury Road as well as cross-streets. (The scheme is developed in partnership with SANRAL and the local business community) • Extend Nelson Mandela Drive (From Edmond street to Soutpansberg Road) • Doubling of Simon Vermooten Road (between Alwyn Road and N4): To improve accessibility of Samcor Park/Waltloo to the freeway network. This upgrading is supportive of freight movements and an automotive facility. • Doubling of a portion of Stormvoël Road from Hans Coverdale to Simon Vermooten Extension • Extension of Derdepoort Avenue to link Stormvoel Road to Zambezi Drive via portion of existing Baviaanspoort Road • Improving of Hans Strijdom Drive West (P36 Delmas Road up to R21 interchange) • Doubling of Lynnwood Road (Rubida St to Hans Strijdom Drive) • Doubling of Church Street (East) over railway line
(a) Strategic Road Network
The Tshwane Strategic Road Network Plan is shown on Figure 4.17. It shows the current road network master plan indicating the existing and planned class 1, 2 and 3 road links. The planned road network also includes the important missing link to the west of the CBD,
265 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 which is the planned north-south PWV9 freeway, as well as the activity spine/street(s) for this corridor.
(b) Completion of the Tshwane Mobility Ring (PWV 9)
The extension of the PWV9 Freeway southwards to create the Western Bypass of Tshwane, will open up a North-South axis for the flow of people and goods. Such a developmental corridor will draw investors who would like to capitalize on the mostly untapped development potential of the western reaches of the City. This attractive location will be close to the capital core, and will be linked to its southern decentralized nodes and the Zone of Choice. At the same time it will complete the Tshwane Mobility Ring (N1, N4 West; PWV9 and N14).
The PWV9 mobility link has been planned to cater for between 5000 to 7000 vehicles per hour, with a cost benefit ratio of more than one (for all scenarios) and the annual economic benefit exceeds R1,2 billion (in 1999 Rand). The extension of the “Mabopane Freeway” across the Magaliesberg creating a link with the old N4 (PWV1), Atteridgeville and further south with Centurion, Midrand, Randburg and Sandton will unlock the Zone of Choice and give it better provincial-wide accessibility.
A major emphasis is at present being placed on enabling the construction of the link through Daspoortrand. A study has been initiated to implement tunnels rather than a massive cutting, as this is more environmentally acceptable (visual impact, severance of communities, noise etc.).
266 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.17 - CTMM Interim Strategic Road Network
(c) Planning Projects of a Strategic Nature
There are a number of strategic roads projects. The strategic planning projects include:
• K99 link - Zambezi Drive southwards across the Magaliesberg Mountain to link to the bulk of the area to the south. The alignment options include the road link going south- west (Frates Road and hence towards the CBD and Sunnyside) or south (Codonia Street and onwards to Hatfield). This is a very important link, as it provides only the third north-south option to cross the physical barrier of the mountain. Due to the high cost of this link including tunnelling options, the feasibility as a toll route is being investigated. • Olievenhoutbosch Road Activity spine (Development and construction of the East section and West section, since the central section already constructed as single carriageway). As indicated above, it is related to the N1 corridor.
267 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 • Proposed Rooihuiskraal Road interchange on N14 and regional linkages. An interchange on the N14 freeway at the current Rooihuiskraal Road crossing, as well as new link roads such as the proposed Lenchen Avenue Extension, will improve accessibility of the quadrants and possibly relieve pressure on the Old Johannesburg Road.
(d) Transport lead projects
The City of Tshwane has identified the following lead transport projects:
The K8
The improvement of the K8 and its further extension south of Wonderboom Airport via Third Road and Sakabuka Avenue to Moloto Road (K139), instead of bringing it into Zambesi Drive, needs to be considered seriously. This is necessary to act as a second east-west local spine: • ensure adequate mobility, • alleviate traffic on Zambesi Drive, • give impetus to the further development between Zambesi and the N4, and • reinforce the public transport network, by providing a road facility which could be developed in part as a high capacity public transport corridor
N4 - K97 Link to Rainbow Junction
The Zone of Choice will be further “opened up” and local access and mobility will be bettered by linking the Rainbow Junction Node with the new N4 toll road through the construction of the much needed K97. This link will also provide access from the N4 to Wonderboom Airport via Lindvelt Road.
K99 Link to the South (Dr Swanepoel Drive)
Similarly, the accessibility to and mobility within the Zone of Choice could be greatly improved by redeveloping Dr Swanepoel Drive, with a possible extension through the Magaliesberg to link up with Frates Avenue on the southern side of the mountain. However, the linkage to Frates will be a very expensive option and may not be viable in the short to medium term. It however lends itself to be developed as a metropolitan urban toll road. To this effect SANRAL has been requested to investigate such a possibility, taking into account that within Gauteng only SANRAL can currently develop toll roads.
268 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.7.2 City of Johannesburg
Salient findings in examining private (car) transport demands and current road network conditions regard are:
Both within and outside the N1/N3/N12 Ring Road, roads are operating at low levels of service and many road sections are operating at capacity or at over-capacity conditions in peak hours. In addition to the above there are many congestion “hot-spots” at intersections and interchanges. In recent years little progress has been made with regard to promoting public transport nor has emphasis been given to furthering road development, and as a result most of the existing mobility spines have major traffic problems. The City has 1780 traffic lights and malfunctioning is a common problem due to rain, power cuts and power distribution faults, and many do not have correct signal plans. The estimated cost of correcting traffic signal cable and power distribution faults is R0,5bn. In terms of the objectives of the SDF on-going attention needs to be given to the upgrading/surfacing of gravel roads and looking after the maintenance and rehabilitation of existing road infrastructure. As a consequence of the above and in association with other interventions, which will be of a capital intensive nature, there is the need to embark upon travel demand management. (In this regard current initiatives are identified in the main report.)
It is evident that regardless if one is talking about roads within or external to the N1/N3/N12 Ring Road system, operating conditions in peak hours are poor, the prevailing Level of Service (LoS) on average, being LoS D. Further examination of the data does however highlight that many road sections are running at capacity (i.e. LoS E) and many at over- capacity conditions (i.e. LoS F).
While the present work programme for the ITP has not progressed to the stage where there is a comprehensive data base available which would enable one to undertake a detailed assessment of interchange / intersection performance, the following information is relevant:
While there are a few exceptions, most interchanges are congested during peak hours. The demand to use the freeway / motorway system is such that there are long queues on roads which provide access to the freeway system and long queues on the off- ramps of the freeway system, many of these tailing back onto the freeway lanes
269 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 themselves. Both of this point to the fact that interchange capacity is a serious problem and that the capacity of interchanges is not consistent with that of neither the adjacent freeway nor the routes which provide access to the freeway network. While the existence of the freeway system improves accessibility and mobility, it also needs to be remembered that freeways present barriers which need to be crossed. Both in terms of cross access and access to the freeway system itself, various problems are evident, some of these being related to double loading (i.e. cross traffic and traffic accessing the freeway system being concentrated on one route) and the different access standards applied to the freeway system (i.e. access and interchange spacing requirements on the M1 & M2 as opposed to those on the N1 & N3). With respect to intersections, there are some 1820 traffic signal controlled intersections in the CoJ and problems with traffic lights receive substantial media attention.
Key interventions identified by the City of Johannesburg directly applicable on transport planning are the following: ) Kazerne Precinct o Construction of Vickers – Heidelberg link road o Upgrade of Maraisburg interchange City Deep Trade Port Precinct o Rosherville Rd extension to lower Germiston Rd o Bonsmara Rd Upgrade o Heidelberg Rd Upgrade o Lower Germiston Rd upgrade o Vickers-Heidelberg loop road o The Cleveland Road Link extending Cleveland Road through to Lower Germiston Road o The westward extension of Rosherville Road through to Vickers Road o Local upgrading of Lower Germiston Road in the vicinity of Jupiter Market Precinct o Heidelberg – Vickers loop service road o Vickers Rd upgrade o N17 on/off ramps Heriotdale Precinct o M2/Main Reef / Cleveland interchange upgrade George Goch Precinct o Vickers – Paullus Rd link Rosherville Precinct
270 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 o Cleveland Rd extension and N17 interchange Construction of the N17 and extension of the M2 westward; Construction of north-south linkages such as Nic Tolmey Road Extension, Westlake, Spencer and Cemetery Road Extension; Construction of the K102 linking the K15 on the west and north towards Roodepoort; and Development of transit-orientated focal points that provides inter-modal facilities at key points such as the Roodepoort Station. Construction of the K60 should be supported to serve as an alternative mobility corridor from Woodmead Drive to William Nicol Drive; Upgrading of William Nicol and Rivonia interchanges with N1 and the portion of William Nicol from Montecasino to the N1; Improve access onto Nasrec Road and Main Reef Road; Investigate dangerous Kingsway/University Road intersection and improve; Proposed access to University of Johannesburg at Twickenhan Avenue; Improve functioning of Artillery Road to improve access and parking during peak periods; Establish and promote strong east-west linkages with specific reference to: Traffic management in Gleneagles Road, Greenhill Road, Tana Road and Victory Road in support of east-west mobility links. Traffic management strategy and urban design for Sixth Street, including traffic calming; Explore connectivity links between Moira Street in Cosby and Hamilton Road in Coronationville; Develop Randburg Regional Node as a destination by altering mobility patterns to and through the Node: o Close Hendrik Verwoerd Drive between Selkirk and Jan Smuts Avenue. o Reopen Hill Street (between Kent Avenue and Pretoria Avenue) to vehicular traffic. o Upgrade Pretoria Avenue to facilitate public transport and pedestrian access. o Develop a new taxi rank on site bounded by Retail Avenue, Hill Street, Pretoria Avenue and Oak Avenue and integrate with the flagship SPTN. Improve road access from Riverlea to Main Routes such as the extension of N17, Nasrec Road; and Determine the alignment and implementation programme for proposed major arterials such as the PWV 3 and PWV 5; Construct the new Westlake Extension Road;
271 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Upgrade Randfontein Road and intersections with specific reference to passing lanes, pedestrian crossings, informal trade, signage and traffic and transport management (including taxi’s); Support main Reef Road as an economic corridor in the EWDC; Realign and upgrade the existing New Canada Road; Realign and upgrade Spencer Road; Upgrade and realign Dobsonville Road, with reference to the N17 and K102; Construction of N17, Golden Highway; Construction of north/south linkages to maximise integration with northern regions; Upgrading of K43 to improve accessibility; Construction of K102 linking the K15 on the west and north to Roodepoort Road; and Determine the alignment and programme proposed for the K122 Construct the proposed K60/k113 and PWV 3; Construct the proposed K60/K111/K113/K115/K232; Proposed interchange to be constructed at the intersection of Main Road and the N1 Highway; Undertake measures to improve mobility and relieve congestion on Woodmead Drive between the M1 interchange and Woodlands Drive; Upgrade and improve the following routes to increase linkages and integration thus reducing isolation of Alexandra: Vasco da Gama – Far East Bank, London Road, Grayston Drive/Watt Avenue/Roosevelt Road, Corlett Drive-Ninth Road, Wynberg – Canning Road; Upgrade the N3 interchanges at London Road and Marlboro Drive;
A Functional Road Hierarchy was developed for the City of Johannesburg for the Base Year and 5 and 10 Year Horizon, and as part of the study identified the priority roads projects in the City of Johannesburg for 2015 and 2020 which are indicated in Figure 4.18, and Figure 4.19.
272 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Figure 4.18 – COJ 2015 Priority Roads
273 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.19 – COJ 2020 Priority Roads
274 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.8 Ekurhuleni Metropolitan Municipality
Levels of service E and F on a road network indicate a high level of congestion. Only 7.2% of roads experience a level of service E and another 3.5% level of service F. The congestion index for all roads in Ekurhuleni is considerably lower than in either Johannesburg or Tshwane is indicated in Figure 4.20.
Figure 4.20 - Predicted Levels of Service (LOS) in 2010
The proposed capital expenditure budget for major roads infrastructure in Ekurhuleni is given in Table 4.24
275 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Table 4.24 - Ekurhuleni Metropolitan Municipality – Road Projects
Estimated Proposed Budget Years (2007 R million) Total Start Year 1 2 3 4 5 >5 Project Cost (R million) NEW ROADS INFRASTRUCTURE:
K115 (M59 Driefontein Rd/Lunik Drive extension) from K155 (Modderfontein Rd) to 38.4 2008 5.76 8 12 12.64 M16 Brabazon Rd K146 (Rivett-carnett St extension) from M7 71.76 2008 11.76 11 15 14 20 (Kliprivier Drive) to D817 K86 from K157 (M43 Atlas Rd) to P67-1 (R51 Putfontein Rd) - second phase by GDPTRW 74 2008 11 11 15 17 20
K89 (M61 Vereeniging Rd) from Delphinium 7.8 2010 7.8 St to Potgieter Rd K92 (M52 Van Buuren/North Reef) from M97 Nicol Rd to K113 (M37 A.G. de Witt Rd) 21.36 2010 3 18.36
K121 (Dann Road) from K105 (M57 Pretoria 34.62 2010 3.62 20 11 Rd) to Van Riebeek Rd K68 (Vermeulen St) from P67-1 (Du Randt 15.24 2010 2 13.24 Road) to Esselen St K117 from Tinney Rd to 0.8 km North 2.4 2011 2.4
K117/K127 from North Reef Rd to Webber 76.92 2011 8 40 28.92 Rd K132 (R554 Springs Rd extension) from Glamorgan Ave to M56 South Main Reef Rd 69.72 2012 40 29.72
K60 from M18 Andrew Mapheto Rd to K105 82.2 2012 40 42.2 (M57 Pretoria Rd)*
UPGRADING OF GRAVEL ROADS: (Including external funding)
Northern Region 757 2008 81 81 81 81 81 352 Southern Region 757 2008 81 81 81 81 81 352 Eastern Region 757 2008 81 81 81 81 81 352
PUBLIC TRANSPORT: HOV LANES
Tembisa - Kempton Park 85 2008 9 20 20 20 16
Katlehong – Germiston 85 2012 9 76
Vosloorus – Boksburg 80 2008 9 20 20 20 11
R23 from R554 Dalpark - Benoni 35 2012 5 30
Daveyton – Benoni 95 2008 9 20 20 20 26
TOTAL 3145.42 299 333 361 409 481 1263
276 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Here it is important to note that EMM is obliged to ensure SARTSM compliance of all road signs and traffic signal installations by 2010. The estimated cost of this work was sourced from a previous report “Development of a traffic signal control strategy for the Ekurhuleni Metropolitan Municipality” in 2005. Tenders have already been advertised for the execution of this work. The total annual capital expenditure resulting from these proposals amount to: • Year 1 R390 million • Year 2 R422 million • Year 3 R442 million • Year 4 R475 million • Year 5 R529 million The proposed road infrastructure construction programme as identified by the Ekurhuleni Metropolitan Municipality is given in Table 4.25. Table 4.25 - EMM proposed road infrastructure construction programme
Road From To By 2010 K115 * K155 Brabazon Rd K146 817 P72-1 K121 K105 van Riebeeck Rd K89 K133 K124 K124 K89 K125 K155 Kwartel Rd K119 K60 * A Mapheto K105 K89 Delphinium St Potgieter Rd K86 K157 P67-1 K132 Springs Rd South Main Reef Rd K105 * 781 K121 K92 Nicol Rd K113 K68 P67-1 K86 K68 Elm St K105 By 2015 K117 Tunney Rd 0.80 km north K117/K127 North Reef Rd Webber Rd By 2020 K27 R21 K151 K94 Elizabeth Rd Atlas Rd K161 Stone Rd Paul Kruger Highway K125 N3 Wits Rifles Rd K62 K27 K169 K169 P6-1 Geldenhuys Rd K163 Main Reef Rd Koot Rd By 2020 K113 Meyer St A G de Witt Rd K109 K27 P6-1 By 2025 K92 North Rand Rd Sarel Hattingh St K105 Andre Greyvenstein Av North Rand Rd Note: * - Assumes that section of road outside Ekurhuleni is constructed Roads with only a short section in Ekurhuleni were not included, e.g. K113, K111 277 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.9 West Rand District Municipality
12.9.1 Merafong City
This specific section for the Merafong City Local Municipality was not completed as the funding for implementation and maintenance was captured in their annual budget. Table 4.26 reflects the needs as indicated in the District IDP document for the period 2010/11.)
Table 4.26 - Merafong Local Municipality – Road Projects
PROJECT ESTIMATED BUDGEY SOURCE OF FUNDING Upgrading of existing roads R10 million Not reflected Upgrading of existing storm water R5 million Not reflected Construction of walkways R3 million Not reflected Khutsong 1,2,3 Construction of new road R10 million Not reflected Road bridge over rail R18 million Not reflected Rehabilitation of current services in old Khutsong R52 million needed as part of Not reflected Ext 2 and 3. Loading zones along taxi routes. resettlement plan Resealing of roads R6,8 million MIG grant Speed calming R500 000 MIG grant Construction of roads (Losberg Area) R6,5 million MIG Grant Kokosi Ext 5 Road Construction R50 000 000 MIG Kokosi Ext 6 Road Construction R25 500 000 MIG Wedela Road Construction R20 000 000 MIG Kokosi Ext 5 Ring Road Construction R1 000 000 MIG savings Construction of new taxi rank Wedela R5 386 159 MIG Construction of new taxi rank: Blybank R5 386 159 MIG Construction of new taxi rank: Kokosi R5 251 504 MIG
The following roads have been planned for the Merafong City LM by the provincial Gauteng Department of Public Transport Roads and Works (GDPTR&W) for the near future:
• K211 – Links Carletonville with N14 • K213 – Links Carletonville with Fochville • K140 – Links MCLM with to the East Merafong LM • PWV18 – Links Merafong City LM with North West and the City of Johannesburg • Metropolitan Municipality (CoJMM)
278 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.9.2 Mogale City
Table 4.27 reflects the road needs as indicated in the District IDP document for the period 2010/11:)
Table 4.27 - Mogale Local Municipality – Road Projects
PROJECT ESTIMATED BUDGET SOURCE OF FUNDING Road Construction: Kutlhanong Road Not reflected Own funding Rehabilitation / Rietvallei Ext 2 and Rangeview Ext 2 Construction of rural roads Not reflected MIG Access roads to Ethembalethu Village/ Rietfontein Not reflected MIG Village
The following roads have been planned for the Mogale City LM by the provincial Gauteng Department of Public Transport Road and Works for the near future:
• K74 – Links Mogale City with City of Johannesburg MM • K11– Links Mogale City with Randfontein LM • K17 – Links Mogale City with North West Province • K76 – Links Mogale City with North West Province • K15 – Links Mogale City with Soweto • PWV12A – Links Mogale City with City of Johannesburg and North West Province • K198 – Links Mogale City with City of Johannesburg MM and Randfontein LM
12.9.3 Randfontein
Table 4.28 reflects the needs as indicated in the District IDP document for the period 2010/11:
Table 4.28 - Randfontein Local Municipality – Road Projects
PROJECT ESTIMATED BUDGET SOURCE OF FUNDING Road Master Plan R 1,2 million Not reflected Rehabilitation of bridge structures R800 000 Not reflected Implementation of freight movement and R800 000 Not reflected overloading control Reconstruction/rehabilitation of primary roads and R700 million Not reflected arterials Construction of K11 by pass R55 million Not reflected Construction of road over rail and road bridge R85 million Not reflected (Arend Drive Extension)
279 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The following roads have been planned for the Westonaria LM by the provincial Gauteng Department of Public Transport Road and Works (GDPTR&W) for the near future.
• K11– Links Randfontein with Westonaria LM and Mogale City LM • K197 – Links Randfontein with Mogale City LM • K96 – Links Randfontein with PWV12A • K198 – Links Randfontein with City of Johannesburg MM • PWV1 – Links Randfontein with Mogale City LM and Westonaria LM. • PWV16 – Links Randfontein with City of Johannesburg MM
12.9.4 Westonaria
Table 4.29 reflects the needs as indicated in the District IDP document for the period 2010/11:
Table 4.29 - Randfontein Local Municipality – Road Projects
Estimated budget Source of Project Funding Simunye Internal Road upgrading and construction R 3 390 347 Not reflected Construction of new Taxi Rank in Westonaria R200 000 Not reflected Resurfacing of roads: Westonaria R500 000 Not reflected Walkways : Extension Simunye R200 000 Not reflected Walkways: Upgrading Westonaria CBD R100 000 Not reflected Walkways: Upgrading Glenharvie R400 000 Not reflected
The following roads have been planned for the Westonaria LM by the provincial Gauteng Department of Public Transport Road and Works (GDPTR&W) for the near future:
• K9 – Links Westonaria with K156 and PWV18 • K11– Links Westonaria with to the North Randfontein and to the South Sedibeng LM • K140 – Links Westonaria with to the West Westonaria LM • K170 – Links Westonaria with Sedibeng to the south • K142 – Links Westonaria with to the West Westonaria LM and to East Johannesburg MM • PWV1 – Links Westonaria with the rest of WRDM
12.10 Road Network Planning in Sedibeng District Municipality
The major strategic future roads in Midvaal are:
280 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 • PWV 13: A major north-south road running from Benoni and Boksburg through Midvaal linking up with the proposed PWV 22 in the south. • PWV 18: A major east-west road running along the northern boundary of Midvaal. This road will connect the East Rand and the West Rand and traverses the R59 freeway. • PWV 20: A major east-west road running through the south of Midvaal and traversing the R59 freeway.
The existing road network provides good connectivity between the north and south of Midvaal, but there is a lack of proper east-west connections at regional level. The most significant routes at a regional level include: The N1 national route running from Cape Town to Musina. The N3 national route between Durban and Johannesburg. This route runs through Midvaal in the east. The Golden Highway (R553) being a major north-south route which runs parallel to the N1 in the west of Sedibeng and past Sebokeng and Evaton. The R59 north-south route which links Alberton and Vereeniging and runs through the east of Midvaal past Meyerton. The R82 north-south route which links Johannesburg and Vereeniging via Walkerville and De Deur in the west of Midvaal. The K89 being a secondary route running parallel to the R59 linking Alberton and Vereeniging through Meyerton. This was the main route until the R59 freeway was constructed. The R42 being an east-west route which links Meyerton with Heidelberg and the N17 in Ekurhuleni. The R551 being an east-west route between the N1 and the Suikerbosrand Nature Reserve. This road merges with the R42 at the Nature Reserve. The R550 being an east-west link between the N3, R59 and R82. The R54 which links Vaal Marina in the south of Midvaal with the R82.
Route K89 runs more or less parallel to the R59 freeway and will thus in future act as an Activity Spine which will unlock the development potential of the land parallel to the east of the freeway in future. As this was originally the only road through the area, most of the land uses occurred along this road and front onto this road. Route K89 has lower mobility than the R59 freeway, but higher accessibility through more intersections and direct access at spacing intervals of about 600 metres. The upgrading of the current road to the standards of a K route will however have the effect that no direct access to land uses will be possible from this road in future. The construction of an additional lower order (third and fourth order) 281 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 road network around the corridor to supplement the K89 and provide direct access to land uses along the R59 freeway will thus be required.
Due to the high development pressure experienced in the area, there is currently an initiative underway to design a third and fourth order road network for the R59 Corridor and surroundings. This work is still in progress, and involves extensive discussions with representatives from GDPTRW.
The important principles relevant to the R59 Corridor illustrated in Figure 4.21, are:
• the fact that a third order route, parallel to the west of the R59 freeway, will be required in future in order to unlock the development potential of land to the west of the freeway (similar to K89 to the east of the freeway); • the need for local east-west crossings across the R59 freeway between the interchanges in order to separate regional and local traffic and to enhance interaction between future land uses to the east and the west of the freeway; • The westward extension of a third order road network from the R59 freeway in order to enhance future east-west movements.
Figure 4.21 - Sedibeng Road Master Plan
282 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.11 Road Network Realities Problems and Issues
Considering the evaluation of the planning documents and the current status of the road network in the Gauteng Province the following overall conclusions can be made:
The broad road network planning are in place In Gauteng and the Gauteng Strategic Road Network Plan provides structure to the development of the province The Strategic Road Network Plan has to a large extent been taken into account in the road master planning undertaken by both SANRAL, the Metropolitan and District/Local Municipalities i.e. there is a general cohesion with regard to road planning between the three spheres of Government The current road planning is an extremely valuable element to enable economic growth in Gauteng. Available road reserves may be utilised differently than originally anticipated i.e., emphasis on integrated transport corridors where public transport and non-motorised transport plays a more important role than private cars. Due to a lack of funding the Gauteng Department of Transport and the Metropolitan, District and Local municipalities implicitly rely on SANRAL to implement the mobility/freight backbone road network of which i.e. GFIP Phase 2 & 3 is the prioritised road network needed. Funding is a major constraint – SANRAL relies on toll financing to finance the Gauteng Freeway Improvement Scheme (Phase 1-3). The GDRT funding for the development of new roads and the upgrading of existing roads is limited at approximately R500 million per year with the bulk of their funding going towards road maintenance. Similarly the Metropolitan, District and Local Authorities again relies on both SANRAL and the Province to upgrade and provide the new higher order (Class 1 and 2) road infrastructure in their respective jurisdictions.
12.12 Catalytic Road Network Projects
12.12.1 Introduction
Considering the evaluation of the planning documents and the different priorities given to the sections of the road network by all tiers of government the following road projects has been identified as important projects that are catalytic in nature and that would unlock and stimulate growth and thus job opportunities in the Gauteng Province:
283 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 12.12.2 Tambo Springs Road Accessibility
The Cabinet has approved the Presidential Infrastructure Coordinating Commission's (PICC’s) second “Infrastructure Implementation Plan” report, which includes a framework outlining an integrated management and delivery system for the 17 Strategic Infrastructure Projects (SIPS) across all three spheres of government. Over the coming three years, some R845-billion has been budgeted for public infrastructure projects and the PICC, which is chaired by President Jacob Zuma, has been established to support the delivery of the projects.
The second SIP is an initiative to improve the movement of goods through the Durban-Free State-Gauteng logistics and industrial corridor by prioritising a range of rail and port improvements, supported significantly by a R300-billion investment programme by Transnet over the coming seven years.
The Tambo Springs Hub is one of the projects associated with the Durban-Free State- Gauteng Logistics and Industrial Corridor as one of the major freight hubs on the Gauteng side of the corridor. The following short term road projects are directly associated with Tambo Springs and is critical to provide the road accessibility to the Tambo Springs Freight Hub:
• Detail design of the K148/N3 interchange at a cost of R25m. • Construction of K148/N3 interchange will commence in year 2013 when detailed design is completed. • Detail design and EIA of K148, K146 and PWV15 – Cost of R60m.
The roads that are required to improve the accessibility to Tambo Springs and the proposed phasing are shown in Figure 4.22.
It can be seen that the construction of PWV 18 between the N3 and P156/2 (R59) is listed as Phase 3.
284 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.22 - Tambo Springs Proposed Road Network Upgrading
12.12.3 PWV 18
The Gauteng Spatial Development Framework (2010) highlights the need to create a concentric functional road link in the southern parts of Gauteng Province.
The purpose of this is to connect the emerging new node at Kagiso-Chamdor-Leratong to the proposed new activity node along the N1 south at Ennerdale/Grasmere; from where the disadvantaged communities of Orange Farm, Ennerdale and Evaton can have a functional link and access to the new activity node along route R59 at the Klip River/Waterval Business Node. This section also creates an effective east-west link between the N1 south and R59 freeways.
From the R59 at the Klip River Business Park the new link should extend northwards where it will serve the Kathlehong-Tokoza-Vosloorus communities, link to the N3 freeway, N17 and N12, and eventually link up with the emerging OR Tambo Aerotropolis in Ekurhuleni, and the R21 development corridor as indicated in Figure 4.23.
285 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Figure 4.23 - Gauteng Urban Structuring Initiatives
Apart from serving several large concentrations of disadvantaged communities, this link also connects several freeways/development corridors as well as a number of existing and emerging activity nodes located in the southern parts of Gauteng Province to one another, effectively enhancing the development potential of these areas.
It is envisaged that sections of routes PWV5 (south), PWV18, PWV13, and/or PWV17 could be considered to create this link.
The Gauteng Freight Implementation Strategy (GFIS) was developed to assess the state of freight in the province and develop an intervention strategy to ensure alignment of the provincial freight strategy with the national freight and logistics strategy.
The Freight Strategy identified key interventions areas that will address logistic inefficiencies in the logistic system. These interventions were preconditions to manage freight without constraining economic growth in the province. The interventions are also
286 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 informed by freight demand volumes which are expected to increase from 210 million tonnes to 415 million tonnes by 2020.
The PWV 18 is also seen as a crucial link from a freight point of view as the PWV18 between the N3 and the N1 is an east-west link, linking three major north-south corridors i.e., the N1, the R59 and the N3 and will thus improve accessibility from Tambo Springs to Vereenging/Van der Bijlpark via the R59 and to Klerksdorp/Potchefstroom via the N1.
It is thus recommended that the detail design of the PWV 18 be undertaken.
12.12.4 GFIP Phase 2
The need for the implementation of the proposed further phases of the GFIP road is essential to reduce the logistics cost of the province and to provide the road infrastructure required for the optimal functioning and growing of the province.
Irrespective of whether the freeway road network will be funded through Road User Charges or through the normal fiscus it is important that the detail planning and Environmental Impact Assessment of the following roads be undertaken to be able to start with construction when funding is available.
It is thus recommended that between the Provincial Government and SANRAL the detailed design and EIA of the following road links be undertaken, as listed in Table 4.30.
Table 4.30 - GFIP Phase 2 Road Network
Estimated Project GFIP – Phase 2 Road Description : detailed Km Costs (R million) PWV 9 North (R80/P159-1 to N14/P158-1) 29.41 4 118 2/3
PWV 9 South (from the N14/P158-1 to N1) 18.12 2 537 2
PWV 5 East (between PWV 9 and R21) 21.00 2 940 2
PWV 17 K54 to N4 4.00 560 2
K54 (R21 to PWV 17) 25.00 3 500 2
N17west N1 to Soweto (PWV 5) 15.30 2 142 2 N12( Rietfontein I/C to M2( PWV 14 11.75 1 645 2 Refinery Road I/C) TOTAL 124.58 17 442
287 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 13 NON-MOTORISED TRANSPORT
13.1 State of Planning
Non-Motorised Transport (NMT) addresses the transportation needs for pedestrians, bicycles, people with disabilities, prams, trolleys, etc.
Non-motorised transport planning in the past has received very little attention by the three spheres of government and was limited largely to the planning and provision of pedestrian facilities along the road network. However, society and the public sector is slowly awakening to the importance of this component of the transport system, which enhances local access, safety, as well as contributing to the development of a more sustainable urban environment.
The Department of Transport prepared the guidelines for Pedestrians and Bicycle Facilities in 2003. The DOT has for many years managed the Shova Kalula bicycle program with the respective Provinces and Municipalities, but the main focus of this program is rural areas. The DOT also prepared a Draft NMT Policy in 2008. Similarly, the Gauteng Department of Roads and Transport also prepared a NMT policy, and the City of Johannesburg, Ekurhuleni Metropolitan Municipality, and the City of Tshwane prepared their respective NMT Frameworks. The City of Tshwane as part of its BRT program developed a guideline for accessibility which addresses pedestrian, bicycle, and people with disabilities access management and infrastructure. The DOT together with PRASA also prepared an accessibility guideline for passenger rail. The DOT also carried out a feasibility study for the establishment of a bicycle manufacturing plant in South Africa, in order to optimise the Shova Kalula program.
The City of Joburg has taken the lead with its City Greening Initiative, with its Complete Streets and Streets Alive programmes, as well as the development of a cycling framework. The Gauteng Department of Transport is currently implementing sidewalk infrastructure in various areas around Gauteng. The City of Tshwane developed Pedestrians Safety Plans and NMT Master Plans for each of its planning regions, which also incorporated the Shova Kalula bicycle program of the DOT.
288 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 13.2 State of NMT
An assessment of the state of non-motorised transport revealed;
More than 23 per cent of the work force and 90 per cent of scholars (in some parts of the Province) walk to their final destinations. Many others are walking to public transport facilities (rail, bus, taxi) as part of their commuting trip according to the National Household Travel Survey, 2003; NMT road users comprise about 40 per cent of all road fatalities in South Africa, and large numbers of pedestrians are maimed for life, with Gauteng, KwaZulu-Natal and Western Cape provinces being the major problem areas, and; NMT casualties place a huge burden on the national and provincial fiscus, national health system, police and traffic administration, third party claims, etc.
A very significant portion of daily commuters walk to work and an even larger proportion of commuters walk to access public transport. This is often done under very unsafe, insecure and inconvenient conditions caused by the lack of good non-motorised transport (NMT) facilities and amenities. This explains the fact that 40% of road fatalities are of pedestrians. Although not such a significant mode of transport in Gauteng currently, the same goes for cyclists.
A number of non-motorised initiatives are being implemented in Gauteng, namely, City of Johannesburg’s “Streets Alive Programme” and cycling framework; the City of Tshwane’s NMT Master Plan, 2010; Gauteng NMT Policy Guidelines, 2005; and distributing bicycles such as Qhubeka and Shova Kalula. The “Streets Alive Programme” seeks to establish high quality pedestrian and cycling routes across Johannesburg to establish NMT as preferred mode for short distance trips; to increase the NMT modal split; to facilitate access to the City for marginalised and low income families; and to integrate NMT with other strategic public transportation initiatives such as Gautrain, Metrorail and BRT. The City of Tshwane’s Non-Motorised Master Plan identified various implementation projects for the provision of bicycle routes in terms of the Shova Kalula Bicycle Project. Many of these projects are located within marginalised areas. The Gauteng NMT Policy Guidelines pertain to the type of pedestrian and bicycle facilities to be provided along the various classes of urban and rural roads and streets in the province.
Qhubeka, which means ‘to move forward’, is a Corporate Social Investment Project backed by MTN that aims to help rural communities advance their lives by providing bicycles to children in return for work done to improve their environment and communities. It is funded 289 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 through bike sales, Corporate Social Development funds, corporate sponsors and donors, consulting, events, fund raisers, individual donors, and merchandise sales and sports team endorsement. The Shova Kalula (Ride Easy) programme was initiated by the Department of Transport. The primary focus is on providing scholars with bicycles.
However, the challenge remains to establish a coordinated approach toward NMT across the Gauteng City Region and integrating the above-mentioned NMT initiatives. Furthermore, the provision of NMT facilities and amenities are relatively inexpensive and can make a huge difference to the quality of life of most inhabitants of Gauteng, especially those living in previously disadvantaged communities.
This illustrates that NMT needs far more attention and prevalence in order to promote:
Liveable urban areas, Convenient local access, Safe neighbourhoods, and Sustainable development.
The current challenge among planning authorities is although plans, policies, and guidelines are in place, there is need for prioritisation of NMT, provision of budget, communication, and resources to manage the implementation. There is need for a concerted effort by the Province and the Municipalities to prioritise NMT.
290 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 14 AIRPORTS PLANNING
14.1 State of Planning
Table 6.1 is a list of reports addressing Airport Planning in the Province:
Table 6.1 – List of Airport Planning Reports
Plan Title Completion Approval Status Date 1 Department of Transport: Natmap 2010 Approved 2 National Airports development plan Draft / Confidential 3 National Airspace Master Plan 2000-2010 2000 Approved 4 ACSA 2011 Integrated Annual Report 2012 Annual Report 5 ACSA Aviation traffic Forecasts 2011 to Jan 2012 Confidential 2035 6 JIA Master plan Update 2005 2006 2006 Final report 7 ORT Integration report 2006 Third Draft 8 ACSA Cargo Strategy for JHb 2006 Final report International Airport 9 Evaluation of Cargo Business Models for May 2011 Final Report ORTIA Phase 1 10 OR Tambo International Airport: Mid Field No published terminal information 11 Lanseria International Airport: Detail 2011 Issued to call for design and tender documentation for new tenders runway 12 Lanseria Business Plan Strictly Confidential 13 Wonderboom Airport: EIA Development of 2007 Approved an residential Airpark 14 Wonderboom Airport: EIA to lengthen the 2007 Approved main runway construct a new control tower and develop 15 Wonderboom Airport: Development plan Approved
14.2 Current Transport Realities, Problems and Issues
Aviation in South Africa is regulated by the South African Civil Aviation Authority (SACAA) a fully owned state enterprise. The three larger international airports in South Africa, OR Tambo (Gauteng), Cape Town and the King Shaka International Airport (Durban) as well as a few regional airports (Port Elizabeth, East London, Braam Fischer (Bloemfontein), George, Upington and Kimberly) is owned and controlled by the Airports Company of South Africa (ACSA). ACSA is a semi state owned company and the major shareholder is
291 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 the Department of Transport. ACSA has been founded and is managed in terms of the Airports Company Act (Act no 44 of 1993).
14.2.1 O R Tambo International Airport
OR Tambo International Airport is the largest airport in Africa and connects Southern Africa with the World. The airport is of utmost importance for Southern Africa, South Africa and Gauteng. The airport has recently been upgraded and has a capacity of between 25 and 28 million passengers per annum (mppa). Current usage is in the order of 20 mppa and the split between domestic and international passengers’ movements is almost 50:50. In 2011, OR Tambo International Airport was rated 31st in the world in terms of quality of service and passenger experience. Depending on the growth in the South African economy the airport has adequate facilities to accommodate the predicted demand for the next 5 to 10 years. Current projects at the airport involve refurbishment of existing facilities and routine maintenance. ACSA envisage revitalizing the planning of the midfield terminal by mid- 2012. Approval for the development as well as the Environmental Impact Assessment should be completed by the end of 2014, the detail design by mid-2017 and the complex will be opened by the end of the decade. At that stage OR Tambo International Airport will consist of two fully fledged terminal complexes sharing the same runway system. The development of the midfield terminal will have an impact on the provision of road rail and public transport and should be integrated with the Gauteng integrated transport master plan. The Ekurhuleni Aerotropolis to be developed with its core the airport has been outlined by the State President his honorable Min. Jacob Zuma as one of the 17 Strategic Investment Projects in South Africa to stimulate future economic growth and employment creation. This has also been supported by the Premier of Gauteng Honourable Nomvula Mokonyane in her budget speech as well as the Executive Mayor of Ekurhuleni Clr. Mondli Gungubele.
14.2.2 Lanseria International Airport
Lanseria International Airport is the second busiest airport in Gauteng and the fourth busiest airport in South Africa. Scheduled flights from Lanseria are available to Cape Town and King Shaka (Durban). Lanseria also has mammoth facilities for Corporate and General Aviation. Lanseria is privately owned and processes approximately 2 million passengers per annum, of which 20% use the airport for cross border flights to neighboring countries. The development plan makes provision to develop a new 3 200 m long runway and extend the apron, terminal building and motor car parking. Provision is made in the airports master plan to upgrade the airport to accommodate up to five million passengers per annum. There is also a plan to develop a second Aerotropolis in association with the City of Joburg
292 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Metropolitan Municipality. The R512 (Malibongwe Drive) which provides access to the airport from the N14 has recently been upgraded. However, a more direct connection between the Airport and the Sandton/Fourways areas might be a large advantage to stimulate the usage of the airport. Both the project planning department at OR Tambo as well as airport management at Lanseria expressed their concern that the public transport between the two airports should be upgraded and mentioned their desire that the Gautrain bus network should be expanded to include Lanseria.
14.2.3 Wonderboom Airport
Wonderboom Airport is owned and managed by the City of Tshwane. The future planning for the airport is to enter into a private sector agreement to manage and develop the airport to the benefit of the residents in the City. Scheduled flights were introduced from the airport to Cape Town and Durban but the operator was liquidated. Based on discussions with Airport Management there is a need for these flights and they are busy with negotiations with other service providers to reinstate the service. The development plan for the airport is approximately 10 years old and has never been updated. They have also received a conditional environmental approval to lengthen their main runway to 2 700 m in 2007, but could not acquire the necessary funding to further investigate the issues raised by the environmental authorities. The City has also lodged a number of requests to reinstate the international designation of the airport after it has been withdrawn in 2000. The airport is experiencing a positive growth in aircraft movements and a number of new hangars have recently been developed at the airport. Accessibility to the airport is a major concern as the majority of airport users travel through a residential area to the airport. The City is currently upgrading Linveld Road and the connection of the airport with the N4 freeway is for the City and Province a priority but it is not included in the budget of any one of these authorities. Airport Management indicated that the main problem at Wonderboom Airport is that it is extremely difficult to manage the airport within the constraints of a local government dispensation.
14.2.4 Other Airports
The other two main civilian airports in Gauteng is Rand Airport in Germiston and Grand Central in Midrand. Both airports have terrain restrictions to be expanded to accommodate any larger aircraft.
A further issue to be investigated in the ITMP is the influence of an improvement in land based transport to aviation. Should a high speed rail link be constructed between Gauteng
293 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 and Durban it will have a major impact on the passenger and freight movements at the OR Tambo International Airport.
294 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 15 INTELLIGENT TRANSPORT SYSTEM (ITS)
15.1 Introduction
Internationally, ITS has evolved through a process that began in the 1960s, with the advent of integrated circuits and microprocessors, until the early 1990s when this technology was incorporated into land transportation. The term Intelligent Vehicle Highway Systems (IVHS) was coined at that time and this term was later changed to Intelligent Transportation Systems (ITS). In 1991 the USA Congress passed the Intermodal Surface Transportation Efficiency Act (ISTEA) and provided a sizeable commitment of funds for ITS planning, design and deployment which accelerated the ITS initiative within the USA. In 1996, the AZTech project was awarded a $7.5 million grant from the U.S. Department of Transport, as part of its $35.5 million ITS Model Deployment Initiative program, and this essentially became the first full scale ITS deployment initiative.
From a South African perspective, most of the ITS projects before 2001 were being undertaken by the Durban, Cape Town and Johannesburg Municipalities, in the form of Urban Traffic Control, managing a system of signalised intersections from a Traffic Management Centre (TMC).
On 11 Feb 2000 a South African ITS Committee was formed, comprising government representatives at local, metropolitan, provincial and national levels. This body was run under the COLTO structure, reporting to LTCC on recommendations regarding national ITS standards and protocols which were ultimately submitted to MINCOM for review and approval. LTCC was soon disbanded which saw the South African National Roads Agency (SANRAL), GDRT, Durban (eThekweni) & Cape Town Municipalities and leading Consultants establishing a national ITS forum, The South African Society for Intelligent Transport Systems (SASITS), in March 2001. This forum was subsequently renamed Intelligent Transport Society of SA (ITS SA) and took responsibility for managing the fledgling ITS industry.
This effectively signalled the launch of ITS in South Africa, however it was the 2010 Soccer World Cup that created the catalyst for ITS, with an injection of funding on an unprecedented scale that could actually sustain a local ITS industry.
A Request for Proposal was subsequently advertised by ITS SA, to undertake a Market Study of the ITS Industry in July 2010 but was aborted through lack of funding. The aim of this exercise was to provide strategic insight into the size, scope and direction of the local 295 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 ITS market but to date, no such study has been conducted on the status quo of ITS in South Africa.
15.2 State of ITS Planning in Gauteng
While there have been a number of draft ITS Strategy documents prepared only two have actually been implemented, Johannesburg Roads Agency (ITS Roadmap) and SANRAL National ITS Strategy. Table 7.1 lists these ITS Strategy documents.
Table 7.1 – ITS Planning in Gauteng
No. ITS STRATEGIC PLAN DATE 1. Johannesburg Roads Agency (ITS Roadmap) October 2006 2. SANRAL National ITS Strategy January 2010 3. Gauteng ITS Strategic Plan June 2010
15.3 Current Gauteng ITS Deployment
Table 7.2 indicates the implementation of ITS related projects by the various planning authorities in the Gauteng Province.
Table 7.2 – ITS Implementation in Gauteng
SANRAL Jo’burg Tshwane Gautrain
Variable Message Signs (VMS)
Urban Traffic Control (UTC)
Traffic Management Centre (TMC)
Closed Circuit TV (CCTV)
Freeway Management System (FMS)
Ramp metering
Automated traffic counting
Bus priority
Public transport trip information
Electronic Fare Collection (EFC) Advanced Public Transport
Management Systems (APTMS)
296 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012
Electronic enforcement
Data management
Licence plate recognition (ANPR)
Open Road Tolling (ORT)
15.4 Recent Flagship Gauteng ITS Projects
15.4.1 SANRAL Freeway Management System
This SANRAL initiative saw the first large scale deployment of ITS in Gauteng, with a central TMC located at Midrand. The project covered 200km of Gauteng freeways and deployed CCTV cameras, radar vehicle detection and variable message signs (VMS) to support incident management and provide en-route traveller information. In addition to these primary services, pilot deployments of ramp metering, innovative vehicle detection, and shoulder lane control were installed on the N1 highway.
15.4.2 Johannesburg BRT (Rea Vaya)
BRT is simply an idea of creating a rail-like performance using affordable road-based technologies, including median dedicated bus lanes, closed median stations with pre-board fare collection and fare verification and larger vehicles to better match supply to demand. When completed the BRT system will comprise a route covering 122kms from Lenasia in the South to Rivonia in the North) and 150 stations and use 1,200 busses.
The BRT uses cutting edge electronic payment technology and a bus scheduling system incorporating satellite tracking to improve the overall effectiveness of the system and provide a safe and reliable public transport service.
15.4.3 SANRAL ITS Design, Build, Operate & Maintain (DBOM)
A DBOM contract has been awarded to manage traffic by means of the use of ITS technologies in order to optimise the use of road infrastructure, including reducing delays and improving the safety of persons travelling on the freeways. This project covers Gauteng, KwaZulu-Natal and the Western Cape (as well as some of the functions currently centralised as the National ITS at the Gauteng TMC) and involves the deployment of all
297 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 currently available ITS technologies and associated knowledge transfer from the internationally recognised experts involved.
15.4.4 Gauteng Integrated Fare Management (IFM) Framework
In April 2011, Gauteng Provincial Department of Roads & Transport undertook the "Completion of Public Transport Systems Planning and Development of an Integrated & Interoperable Fare Management (IFM) Framework", which was the successor to a previous desktop study on IFM. This document is currently in draft form and will be finalised by July 2012.
This IFM Framework focussed on the integration of all aspects of electronic fare payment systems in Public Transport, particularly the requirement that these systems must comply with the recently gazetted DoT Regulations on Electronic Fare Collection.
Development of this framework required consultation and cooperation with key stakeholders, in order to understand their existing services and what measures would be required for them to be compliant with the DoT EFC Regulations and to ensure interoperability with other IFM related technologies that are currently being installed. These consultations facilitated the undertaking of Institutional Agreements with stakeholders and preparation of User Requirements.
298 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 16 SUSTAINABLE TRANSPORT AND GREEN SOLUTIONS
16.1 Status Quo Assessment
16.1.1 City of Tshwane BRT
Phase 1 of the Tshwane BRT is to be located between Akasia and Menlyn and from the CBD to Hatfield in January 2014 with future extensions including routes from Akasia to Kopanong and Menlyn to Mamelodi. Future Extensions (Phase 2-4) include services to Centurion, Atteridgeville, Mamelodi via Zambezi and Solomon Mahlangu Drive (Previously Hans Strijdom Drive).
(a) Findings
Integrating road transport with rail has a primary objective of moving large volumes of passengers from all walks of life – including learners, workers or business executives – in a safe, reliable and clean service. The Tshwane BRT aim to replace existing buses and taxis where services have traditionally been provided. This could entail buying out taxis operating licenses, these operators will be absorbed into the new BRT system. The current proposed target for “Transport Energy Efficiency” is a reduction of 15% by 2025, or more simplistically, a 15% reduction in fuel consumption in the Province. 15% reduction in fuel consumption can be calculated as follows; o 15% fuel saving = 0.98 million litres per day o 1.1 million people required to switch from private car to BRT o 2400 BRT busses required o 7200 job creation potential In order to re-orientate transportation in a “green” economy, transportation should be affordable, safe, and job-creating, promote short distance trips and be low in carbon emissions. Fuel consumption by bus is higher than by minibus taxi. The Bus Rapid Transport (BRT) system is likely to improve this significantly. The system will lead to a reduction of vehicles on the road thus contributing to the reduction in greenhouse gas emissions as well as fuel consumption. The use of the following Intelligent Transport Systems (ITS) will reduce travelling time and thus reduce emissions and fuel consumption:
299 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 o The BRT system will use modernised bus technologies, Wi-Fi, CCTV as well as real-time commuter information boards. o The system will use an integrated electronic fare collection system based on smart cards. o Busses will be tracked via CCTV and GPS monitoring, this will allow the operator to monitor bus schedules
(b) Recommendations
No applications / authorisations required in terms of NEMA or NWA seeing that the route will occur within the existing road network. Portions of the development are located in a historically built landscape which includes the Church Square Heritage Area and some other structures like the Heys Memorial Hall building, and the Aspasia Building/Zoo Café that are older than 60 years. Some of these buildings are of national, provincial or local heritage significance and an application for heritage authorisation will therefore be submitted to the Gauteng Heritage Authority (GHA) (the competent authority). Specialist studies conducted for the proposed CTMM BRT concluded that the proposed route will have an insignificant impact on the environment (fauna, flora and wetlands). A sensitivity map produced for the study area (indicating areas of higher ecological importance within and adjacent to the proposed development area) must be strictly adhered to and taken into considerations during the planning/pre-construction and construction phases. Local transport cannot work if it does not incorporate a good bus service that is accessible, affordable and attractive to a broad range of people across society. To shift transportation towards a low-carbon environment, the following strategic changes should be addressed: Promote a major shift from private to public transport Increase in quality, affordability and availability of public transport From an environmental point of view, one of the most important operational considerations is the impact of the vehicles chosen. At least the following factors should be considered: o Emission standards – range from Euro I to Euro VI and are dependent on fuel quality, engine technologies, emission-control technologies, inspection and maintenance programmes and driver training; o Fuel type – these can include standard diesel, clean diesel, compressed natural gas (CNG), liquid petroleum gas (LPG), bio-diesel and ethanol; and
300 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 o Noise levels – determined by fuel and propulsion systems, size of vehicle relative to engine size, dampening technologies and exhaust system, quality of road surface and maintenance practices.
(c) Critical Gaps
Although reduced, the system will still use fuel produced from coal and contribute to greenhouse gas emissions. Benefits to the environment are reduced if the system does not operate at full capacity.
16.1.2 City of Johannesburg BRT
Phase 1A of the approved BRT system has been completed and links Soweto (including Nasrec and Orlando stadium) to the inner city and Ellis Park. Phase 1A consist of 25.5 km of trunk infrastructure and approximately 27 stations and is anticipated to attract a patronage of approximately 69 300 daily commuters. Whilst the BRT stations and the public realm within the immediate vicinity of the BRT terminals and stations have been upgraded, the wider public realm will remain as is.
(a) Findings
Integrating road transport with rail, its primary objective is to move large volumes passengers from all walks of life – including learners, workers or business executives – in a safe, reliable and clean service. The Johannesburg BRT aim to replace existing buses and taxis where services have traditionally been provided. In order to re-orientate transportation in a “green” economy, transportation should be affordable, safe, and job-creating, promote short distance trips and be low in carbon emissions. Fuel consumption by bus is higher than by minibus taxi. The Bus Rapid Transport (BRT) system is likely to improve this significantly. The system will lead to a reduction of vehicles on the road thus contributing to the reduction in greenhouse gas emissions as well as fuel consumption. It will increase mobility and reduce congestion. It will reduce the cost of transport to business and workers thus making it more preferable to use than other modes of transport. It will enable transit-orientated development along key transport corridors. 301 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 The BRT system uses modernised bus technologies, including intelligent transport systems, Wi-Fi, CCTV as well as real-time commuter information boards.
It is estimated that this system would reduce CO2 emissions by 382 940 tons by 2013 and 1, 6 million tons by 2030.
(b) Recommendations
From an environmental point of view, one of the most important operational considerations is the impact of the vehicles chosen. At least the following factors should be considered: o Emission standards – range from Euro I to Euro VI and are dependent on fuel quality, engine technologies, emission-control technologies, inspection and maintenance programmes and driver training; o Fuel type – these can include standard diesel, clean diesel, compressed natural gas (CNG), liquid petroleum gas (LPG), bio-diesel and ethanol; o Noise levels – determined by fuel and propulsion systems, size of vehicle relative to engine size, dampening technologies and exhaust system, quality of road surface and maintenance practices; and
(c) Critical Gaps
Although reduced, the system will still use fuel produced from coal and contribute to greenhouse gas emissions. Benefits to the environment are reduced if the system does not operate at full capacity.
16.2 Non-Motorised Transport
16.2.1 Tshwane Precinct Master Planning – Beautification Project
The beautification project that forms part of the Tshwane Precinct Master Planning Project includes a concept design for the section of Paul Kruger Street between Scheiding Street and Church Square and could possibly be extended to include the corridor between Church Square and the Pretoria Zoo in Boom Street.
Current infrastructure is impeding pedestrian traffic flow such as road signage obstructing pedestrian movement. The existing four vehicle lanes will be reduced to two with the
302 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 present alignment of the BRT system in the Inner City to use the Paul Kruger Street corridor.
(a) Findings
This project has the potential to improve the community by allowing them to prosper in a safe and healthy environment. Complete transformation and regeneration of the inner city into a sustainable arena. Sustainable infrastructure design is not just about new infrastructure. It is about rehabilitation, reuse or optimisation of existing infrastructure, which is consistent with the principles of urban sustainability and global sustainable development.
(b) Recommendations
To shift transportation towards a low-carbon environment, the following strategic changes should be addressed: o City planning should shift from road-driven infrastructure development to rail, bicycle and pedestrian driven infrastructure development o Facilities such as work, home and schools must be brought closer to residential areas
(c) Critical Gaps
The socio-economic impacts of this proposed project is uncertain and specialist studies are required to determine impacts on local businesses and current road users. The contribution to the reduction in greenhouse gas emissions and fuel consumption will be minimal.
16.2.2 Gauteng Walking and Cycling on Roads and Streets
Focus is placed on pedestrian facilities along Class 2 roads to give access to public transport rather than to walk parallel to the road. Currently there are no to limited provision made for cyclists and pedestrians in the road cross section. Proposed walkways and cycle roads will create short distance strategic links within urban areas with cycle and pedestrian movement being separated, particularly along mobility routes. Cycle routes will make provision for commuter and sports cycling in road reserves of Class II roads. Class II and III
303 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 roads will not be used by learners and where the speed limit is 80km/h or higher, Class I, II, or III cycle roads will be implemented. Ten areas within the City of Johannesburg have been identified for the implementation of the project. These include; Soweto network (Area 1), Inner City network (Area 2), Alexandra/Wynberg and Sandton/Linbro Park (Area 3), Rosebank precinct (Area 4), University of JHB route (Area 5), Zandspruit/Cosmo priority route (Area 6), Diepsloot priority route (Area 7), Ivory Park route (Area 8), Orange farm (Area 9) and Braamfontein Spruit route (Area 10).
(a) Findings
Non-motorised transport infrastructure could alleviate congestion on Gauteng roads. The reduction in motorised vehicle use will noticeably reduce greenhouse gas emissions, fuel consumption and environmental degradation. As a result of the large speed differential between pedestrians/bicycles and motorised transport along the provincial road network, only pedestrian and bicycle paths, which separate pedestrian and bicycle traffic from the roadway, will have to be implemented along provincial routes. Road users require good facilities to encourage them to use other means than a car trip. However, good facilities are not enough; people have other reasons for taking a car instead of walking and cycling such as workplaces being located far from residential areas.
(b) Recommendations
Due to the distances travelled by vehicle road users, it is unlikely that road users will trade in their vehicles or public transport for bicycles. Although non-motorised road use will contribute to the alleviation of congestion on roads, the amount of users needed to reduce emissions and fuel consumption is unrealistically high and not sustainable. The development of an intensive marketing strategy on promoting walking and cycling would be needed to replace short vehicle trips.
(c) Critical Gaps
Pedestrian and bicycle safety is currently a serious problem in South Africa seeing that they are the most vulnerable road users and contribute significantly to road fatalities in the country.
304 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 Non-motorised road use planning would have to take into consideration the varying categories of road users namely cyclists (ranging from children, inexperienced to the experienced) and pedestrians (including children, the elderly and the disabled). A cross section of the road would have to incorporate the following: pedestrian sidewalks and walkways; bicycle lanes and ways; shared pedestrian and bicycle roads; pedestrian crossing facilities as well as supplementary measures such as road signs, lighting etc. This could pose a serious problem within the urban setting due to the limited space currently available.
16.2.3 Tshwane Non-Motorised Transport Master Plan – Shova Kalula Bicycle Project
The objectives of this project are to promote cycling as a low cost mobility solution to enhance rural accessibility and urban mobility. It will facilitate an enabling environment that will mainstream cycling and intermediate transport operations into the public transport system. (a) Findings
The vision of the Department is to maximize the use of non-motorized transport to enable communities to access social and economic opportunities at a cheaper cost. It could improve levels of mobility and accessibility by integrating rural, peri-urban and urban people into an effective transport system. It could facilitate an enabling environment that will mainstream bicycle transport into public transport system through the provision of an appropriate institutional support mechanism.
(b) Recommendations
Due to the distances travelled by vehicle road users, it is unlikely that road users will trade in their vehicles or public transport for bicycles. Although non-motorised road use will contribute to the alleviation of congestion on roads, the amount of users needed to reduce emissions and fuel consumption is unrealistically high and not sustainable. The development of an intensive marketing strategy on promoting walking and cycling would be needed to replace short vehicle trips.
305 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) Critical Gaps
It is estimated that bicycle volumes must be increased to between 500 and 1000 per community to make the necessary impact, and to make bicycle shops sustainable. Although there is a reduction in motorised transport, it will play an insignificant role in the reduction of greenhouse gas emissions and fuel consumption.
16.2.4 Intelligent Transport System Strategy
Intelligent Transport Systems (ITS) aim at reducing traffic congestion thus increases the efficiency of transportation infrastructure and decreasing travel time which will lead to a reduction in air pollution and fuel consumption. This includes technology used for electronic payment used in public transport (fares) as well as open road tolling (fees). It also plays a significant role in traffic management or control, freeway and arterial management, freight and overload control as well as parking management. The benefits of ITS for transport includes the reduction in traveller delay, travel time reliability, safety and security benefits, environmental benefits (reduction in emissions and fuel consumption) and community satisfaction. The Gauteng ITS Strategy will involve the planning, funding and deployment of ITS technology in order to ensure the optimal utilisation of the existing transportation network in the Province.
(a) Findings
Intelligent transport could contribute to the alleviation of traffic congestion thus reducing travelling times which decreases gas emissions and fuel consumption. ITS will contribute significantly in time and accident cost saving. Limited ITS implementation will have an insignificant contribution to emission/fuel saving as well as operating cost saving. Only implementation on a large scale would contribute to emission and fuel consumption reduction.
(b) Recommendations
If Intelligent Transport Systems are applied in an integrated program to the transport industry, it will positively impact on South Africa’s economic, environmental and social needs and objectives.
306 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012 (c) Critical Gaps
Not enough research has been done to determine the benefits and cost effectiveness of ITS. Lack of resources, funding, skills and expertise to implement the strategy. Lack of ownership of ITS function. Lack of understanding and/or appreciation of relevant technology required.
307 ITMP25 – 5-Year Transport Implementation Plan 2nd Draft July 2012