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White Paper on National Transport Policy
Department of Transport, Pretoria
20 August 1996
CONTENTS
FOREWORD
When I became Minister of Transport my first priority was
to produce a White Paper on National Transport Policy. I committed myself to a process of
reviewing national transport policy to ensure that this policy meets the needs of all our
people, within the constraints of our resources and within the changed environment in
South Africa. The process began early in 1995, and after extensive consultation with
stakeholders in working groups and plenary sessions the first phase culminated in March of
1996 with the release of a
Green
Paper. We have since received substantial and helpful feedback on that document.
Having noted the varied and often conflicting opinions of
the respondents, we have reviewed our proposals and crystallised our thoughts. Inevitably
we are unable to satisfy all views. In the final analysis Government has to take its own
decisions bearing in mind what serves the national interest. The result is this White
Paper which sets out the national Government's transport policy. It will provide a basis
for transport to play a more strategic role in social development and economic growth.
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We recognise that some policy changes cannot be implemented
overnight. In such cases we will, in discussion with the stakeholders affected, phase the
implementation over a transitional period in a planned manner, inter alia, to give time
for the development of a stable institutional capacity to manage the implementation.
In accordance with the Constitution of the RSA, powers and
responsibilities for transport are shared between the various levels of Government. The
policies described in this document are those of the national Government. I am confident
that provincial and local Governments, who have participated at all stages of this policy
review process, will adopt these policies as a broad framework within which they will
develop their own specific and more detailed policies.
I am grateful to everyone who has participated in the
policy formulation process
ACKNOWLEDGEMENTS
The policy review process has been as inclusive as
possible. Individuals and representatives of a large number of organisations have
participated in meetings of the Steering Committee, Working Groups, Plenaries, and
Workshops. These are listed in an annexure.
The
Green Paper on National Transport
Policy was released to the public on 7th March 1996, and comments invited by 30th
April. The organisations and individuals who had submitted comments by 31st May are listed
in an annexure.
In addition to the written comments received on the Green
Paper, a number of organisations made verbal representations to or had individual
discussions with the Minister.
The contributions of these organisations, and those of many
individuals, are acknowledged.
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INTRODUCTION
Transport plays a significant role in the social and
economic development of any country, and the Government has recognised transport as one of
its five main priority areas for socio-economic development. The effectiveness of the role
played by transport is to a large extent dictated by the soundness of transport policy and
the strategies utilised in implementing the policy.
Public policy cannot be static but must be dynamic in
nature. It must at all times be perceptive to the environment within which it operates.
Policy therefore needs to be reconsidered and if necessary revised on a continuing basis.
The last major analysis and formulation of transport policy
in South Africa took place in the mid 80's. Since then there have been many profound and
far reaching changes in the country and the time is opportune for a review of transport
policy.
Early in 1995 the Department of Transport embarked on a
project to review and revisit transport policy and formulate new policy where it has
become necessary to adjust to a changed environment. This policy making process involved,
as far as possible, all role players and the public at large in identifying issues,
generating policy options and discussing and accepting policy proposals.
The first phase of the policy process was to set up a
steering committee to guide the policy review study but not to make policy
recommendations. The steering committee that was established was fairly inclusive without
pretending to be fully representative. It included people from all key sectors of
transport and as far as possible was constituted to involve all interest groups involved
in the process.
A working group was established to develop an overarching
framework for national transport policy. It formulated a long-term vision for transport in
South Africa.
Six sectoral working groups involving a cross section of
the role players in the transport industry were established to analyse issues within
specific transport sectors. These working groups each dealt with separate elements of the
total transport policy process.
The reports of these separate working groups were submitted
to a plenary meeting which involved more than 300 people from across the entire spectrum
of transport, and which was held during July 1995. Various public seminars were also held
on the specific elements covered by particular working groups and an opportunity was
provided for the community as a whole to make their input into the proposals of the
working groups and the subsequent reports they produced. The working group addressing the
public passenger transport function carried out its activities cognisant of the work of
the National Taxi Task Team and their final report has been extensively discussed by, and
with, representatives of the Task Team.
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Following the first plenary meeting and the various public
seminars the working groups, taking cognisance of the input received and the issues and
problems identified, produced revised reports with policy proposals to address the issues
perceived as being problematic. Their contents were summarised into a draft Green Paper on
National Transport Policy, which was discussed at a second plenary meeting in February
1996, also attended by some 300 stakeholders. The Green Paper was then released to the
public in March 1996.
During April, May, and June a large number of comments was
received from interested parties across the entire transport sector. These were reviewed
at a work session in May, and a White Paper drafted. The draft White Paper was circulated
to key stakeholders in July, to allow for final comment, and as a basis for further
bilateral discussions.
The policies expressed in this White Paper are thus the
result of a broad public policy making process. Inevitably, however, public policy while
taking into account many and various conflicting viewpoints on specific issues, has to
enunciate government's views on what will best serve the overall national interest. This
White Paper on National Transport Policy will therefore not satisfy all interests on all
matters. Nevertheless it is apparent from the comments received on the Green Paper and the
Draft White Paper that there is broad acceptance of the policy directions set out in this
White Paper.
Two other processes ran in parallel with this policy review
process. These were the deliberations of the National Taxi Task Team, and the Task Team on
the Restructuring of State Owned Enterprises. A National Framework Agreement is being
negotiated between Government and Labour to inform the restructuring process. The policy
review process which culminated in this White Paper formulated broad policy, and did not
address tactical issues which are the concern of the two task teams. It did, however, take
cognisance of the deliberations of the task teams, and kept them informed of its own work.
When the policies expressed in this White Paper are implemented, they will form the
framework for the implementation of the recommendations of the National Taxi Task Team and
the Task Team on the Restructuring of State Owned Enterprises.
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POLICY GOALS AND OBJECTIVES
The broad goal of transport is the smooth and efficient
interaction that allows society and the economy to assume their preferred form. To play
this role, policies in the transport sector must be outward looking, shaped by the needs
of society in general, of the users or customers of transport, and of the economy that
transport has to support. Transport can also play a leadership role, for example in acting
as a catalyst for development or in correcting spatial distortions. It follows from these
that the priorities in providing and using the transport system should be consistent with
those that have been set for the country as a whole. These priorities are summed up in the
elements of the Reconstruction and Development Programme, namely meeting basic needs,
growing the economy, developing human resources, and democratising the state and society.
Vision
The vision for South African transport is of a system which
will:
"Provide safe, reliable, effective, efficient, and
fully integrated transport operations and infrastructure which will best meet the needs of
freight and passenger customers at improving levels of service and cost in a fashion which
supports government strategies for economic and social development whilst being
environmentally and economically sustainable".
Goals
A key ingredient to future success will be the sharing of
this vision by all the key role players, backed by co-ordinated and integrated planning
and decision making. This requires the formulation of broad goals, and translating them
into specific measurable objectives relating to particular modes of transport.
In order to progress towards this vision, the broad goals
of the National Government's transport policy are:
To support the goals of the
Reconstruction and Development
Programme for meeting basic needs, growing the economy, developing human resources,
and democratising decision making
The South African transportation system is inadequate to
meet the basic accessibility needs (to work, health care, schools, shops) in many
developing rural and urban areas. Small scale and subsistence farmers in many rural areas
find it difficult to transport products and other commodities to and from markets. In
accordance with the objectives of the RDP, these needs will be identified and addressed in
an accelerated manner to the extent that resources permit.
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Scarce resources will be mobilised to best meet the needs
of those passengers and industries who need them most, and which are in the best interests
of society. In order to meet basic accessibility needs the transport services offered must
be affordable to the user, and this will be a goal of transport planning, subject to the
constraints of the financial affordability of the provision of the services.
Needed skills and technologies will be identified,
including defining current levels and methods for achieving those needed in the future,
such as training and education through a variety of mechanisms.
Fair and acceptable labour practices, workers' rights, job
creation and security, sound working conditions, health and safety, and welfare benefits
of employees in the industry will be promoted, and where appropriate regulated.
In order to broaden economic participation in transport
service provision, the Department of Transport will identify how ownership and
participation, including jobs, organization, and bidding processes, influence
participation in the various transportation sectors and how these will be enhanced through
the proposed policies. The Department of Transport will carry out its functions in a way
which promotes small, medium, and micro enterprises.
Public participation in decision making on important
transport issues, including the formulation of policy and the planning of major projects,
will be encouraged.
To enable customers requiring transport for people or
goods to access the transport system in ways which best satisfy their chosen criteria.
A key focus of the policy will be on meeting customer
needs.
The needs of the community and customers will be determined
and provided for by a transparent, consultative, coordinated and accountable process,
based on comprehensive information.
Responsive to inputs from customers, key customer groups
will be identified, and assessments made of their individual needs and how these can best
be met. These will include the users of passenger transport services, for commuting,
educational, business, tourism, and private purposes, in the urban, rural, regional, and
international environment, by all modes. Special customer groups will include the poor,
and the disabled. The key customer groups will also include persons sending goods, which
could be high bulk goods like coal and minerals, manufactured products, perishables, or
those goods which have specialised requirements like hazardous materials, in all
environments, by any mode.
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The transport system will aim to minimise the constraints
to the mobility of passengers and goods, maximising speed and service, while allowing
customers the choice of transport mode or combination of transport modes where it is
economically and financially viable to offer a choice of modes. This demands a flexible
transport system and transport planning process which can respond to customer
requirements, while providing on-line information to the user to allow choices to be made.
It also requires infrastructure to be tailored to the needs of the transport operators and
end customers.
To improve the safety, security, reliability, quality,
and speed of transporting goods and people
The safety, security, and quality of service of some modes
of transport are currently unacceptable. The government is committed to a concentrated and
integrated effort to bring them into line with international best practice. Particular
attention will be paid to road safety.
To improve South Africa's competitiveness and that of
its transport infrastructure and operations through greater effectiveness and efficiency
to better meet the needs of different customer groups, both locally and globally
A key goal is to build southern Africa's competitiveness in
international trade by ensuring that the region's competitive advantages can be accessed
and marketed. The transport element of the cost of agricultural products, raw materials,
and manufactured goods can be a significant and deterring proportion of the final cost of
both exports and imports.
This will require a decrease in transport costs for a given
level of service, or increase in quality of service for a given level of cost, or where
possible, both an increase in service and a decrease in cost. For passengers this means
the cost of transport should represent a declining, and low, percentage of disposable
income; while for goods transport costs should represent a declining percentage of total
cost of goods sold (for the same level of service).
It is Government's view that these goals can best be met by
ensuring competition in the provision of infrastructure and operations.
Current levels of competition, the platforms on which such
competition occurs, the sufficiency or insufficiency of competition, the presence of any
monopolies, and policies necessary to regulate monopolies (such as the control of tariffs)
or optimise competition without prejudice to the parties involved will be identified.
Diesel fuel is a significant element of the input costs of
public passenger and freight transport. Reducing the price of diesel will make the economy
more competitive by lowering the input costs of the transport modes which contribute most
significantly to economic development. The introduction of a significant differential
between the price of diesel and petrol fuels in line with world practice will be
considered in consultation with the Liquid Fuels Task Group and the Departments of Mineral
and Energy Affairs and of Finance.
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To invest in infrastructure or transport systems in ways
which satisfy social, economic, or strategic investment criteria.
Transport infrastructure costs generally represent only a
small proportion of total transport costs, which include the costs of infrastructure,
operation, and externalities.
Given the long-term nature of investments in transport
infrastructure and systems, South Africa must build a strong financial base for the
creation, maintenance and upgrading of transport infrastructure. There will be targeted
investment to build infrastructure in the right places and of the right kind which serves
the needs of the society and the economy.
There is generally a conflict between providing higher
levels of service and minimising infrastructure costs - both the high-level infrastructure
needed for the efficient functioning of the economy, and the infrastructure required for
social development. It will not be possible to satisfy all demands, and tough choices will
have to be made.
Investments will be made after analysis of the return on
such investment (ROI). Long-term investment decisions will be based on sound and explicit
criteria aimed at optimising the use of scarce resources. These resources are not only
financial, but also human and material resources. Investment decisions will be taken
against a set of criteria which include lifetime cost, economic, social, and other returns
on the investment to the country; returns to the transport system itself; and returns to
the customer of the investment decision. Financial, legislative, organisational and other
investment criteria should be met. Specific indicators should be associated with each, as
well as information on who will make the investment, what the expected time horizon is,
and sources of finance.
Currently Government also subsidises certain transport
operations for specific purposes. Where Government finds it desirable to continue to make
grants or pay subsidies to achieve elements of its transport goals, it will do so in a
manner which ensures transparency.
To achieve the above objectives in a manner which is
economically and environmentally sustainable, and minimises negative side effects.
The provision of transportation infrastructure and the
operation of the transportation system have the potential for causing damage to the
physical and social environment, inter alia through atmospheric or noise pollution,
ecologic damage, and severance. Government is cognisant of these dangers, both in regard
to the detrimental effect on our own environment, and in regard to international sanctions
which could adversely affect the export of South African goods. The Department of
Transport is committed to an integrated environmental management approach in the provision
of transport. Potential environmental issues will be identified and addressed, taking into
consideration the costs and benefits associated with alternatives. These costs and
benefits will be quantified in both economic and sustainability terms. The Department of
Transport will liaise with the Departments of Environmental Affairs and Tourism, Water
Affairs and Forestry, and Mineral and Energy Affairs in this regard.
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The South African transportation system is heavily
dependent on non-renewable energy sources. Government will make responsible choices, and
minimise unnecessary travel, although it will not take steps to cut fuel usage in a manner
which harms the economy. Differentials between the prices of diesel, and of unleaded and
leaded petrol, will be addressed as a means of encouraging the use of more efficient and
less environmentally harmful fuels. The Department of Transport will liaise with the
Departments of Mineral and Energy Affairs and of Finance in this regard.
Environmental sustainability will be a key measure in
investment decisions. Investments in infrastructure which will not build economic
efficiency or where infrastructure is unsustainable will be discouraged. Investments in
infrastructure which promote energy efficiency, and the least consumption of resources,
will be favoured.
Strategies to attain these goals
Strategies for implementing these goals will be discussed
in following sections. Two key thrusts to achieve these goals, namely the promotion of
integration and intermodalism, however, deserve mention at this stage.
Assurance of modal, spatial, institutional and planning
integration is critical to transportation policy. Depending on the decision to be made,
the appropriate government departments, private sector, and consumers will be integrated
in the decision-making process through appropriate fora. The transport sector will
participate with other sectors in broader policy-making and decisions which affect the
demand for transport. The roles and responsibilities of the key stakeholders and service
providers will be clearly agreed. This will enable government regulation to be kept to a
minimum, while the private sector will be able to build and operate within a competitive
environment, be socially and environmentally responsible and self-regulating, and will be
world-class transporters and transport service providers.
Intermodal co-ordination, co-operation and sharing of
information will be encouraged in both infrastructure provision and operations to optimise
customer service, reduce duplication, reduce destructive competition, minimise total
costs, and maximise social and economic return on investment. While there are preferred
roles for the various transport modes, often in an hierarchical framework, and there are
benefits to be gained by the use of the most appropriate mode, or of multiple modes with
effective interchanges between them, it is not the intention of government to dictate such
mode choices. In promoting intermodalism the Government intends to level playing fields
and eliminate constraints or disincentives resulting in inefficiencies, including the use
of inappropriate modes. A key driver of reducing costs of transport is capacity
utilisation. As such, a goal of infrastructure and modal planning will be to optimise
capacity utilisation and to achieve a level of integration between modes. Government will
not however force the use of particular modes simply to utilise existing spare capacity,
and customer service criteria (cost, timeliness, reliability, security etc) will be the
determining factor in mode choice. In principle, intermodalism will be fostered by
incentives, and not regulation.
A goal of the transport system is to create a fully
integrated transport and information system which permits seamless, efficient, and
transparent passenger and freight logistics in South Africa, regionally, and globally.
South Africa's export focus will be supported by developing the seamless integration of
goods transport into regional and global transport patterns.
A strong, focused, professional Department of Transport
will play a leading role in co-ordinating transport policy, and developing and
implementing strategies. This it will do in close co-operation with other government
departments, other levels of government, and other stakeholders. There will be closer
co-operation between transport and land-use planning. Appropriate service delivery
mechanisms for the provision of infrastructure and operations will as far as possible be
carried out through the use of agencies outside of government.
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POLICY PRINCIPLES
This is a national policy document. It makes reference to
various roles, functions, and activities of government. In some cases these relate only to
national government, but in other cases they are, in accordance with the Constitution of
the RSA, the concurrent responsibility of the national, provincial, and local levels of
government.
In striving to meet the objectives defined in the previous
section, the national government will be guided by the following broad principles:
The role of government
In the past, Government's dominant role has been as a
regulator of bureaucratic detail, a provider of infrastructure, and a transport operator,
but it has been weak in policy formulation and in strategic planning. Government intends
to reverse this legacy, and to focus on policy and strategy formulation which are its
prime role, and substantive regulation which is its responsibility, with a reduced direct
involvement in operations and in the provision of infrastructure and services, to allow
for a more competitive environment. Government will emphasise strategic planning and bring
together key players in broader national strategies which could not be achieved by any
single player. Government will retain the regulatory role to ensure unbiased regulation of
safety and quality in general, to control market access for transport operators where this
is necessary, and to prohibit excessive tariffs in the case of monopolies. This will need
a national Government machine which is smaller, more focused and more skilled, and which
can regulate more complex relationships with operators. The shift will affect all levels
of Government - local, metropolitan, provincial, and national, and it implies a major
restructuring of our transport parastatal sector.
Institutional principles
Public policy making is carried out at various levels of
government. The cascading nature of public policy leads to national government policy
generally being broad in nature and providing the reference framework within which more
detailed policy is made at provincial and local authority level. Because of this,
transport institutional policy needs to address arrangements for the relationships between
various levels of government, as well as the structure for non government, or statutory
transport bodies.
Inter-governmental matters
In addition to the exclusive responsibilities of the
National Government in regard to certain functional areas of transport, it has certain
joint responsibilities with various other governments.
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Regional
The National Government will co-ordinate the relations
between South Africa and neighbouring countries, and consult with the provinces where
appropriate. Since South Africa became a member of the Southern African Development
Community (SADC) in August 1994, the Department of Transport has been actively involved in
the activities of the Southern African Transport and Communications Commission (SATCC).
Integrated transportation systems are required to link the
South African economy with that of the region. The focus will be on harmonisation, and
support of the SADC-SATCC Protocol on Transport, Communications, and Meteorology which
seeks to advance the common regional economic and social prosperity through a process of
regional integration. The protocol highlights the fact that the transport sector has a
regional and global character and as such seeks to promote integration and co-operation in
transport matters between member states.
National-Provincial
Schedule 4 of the Constitution of the RSA dated May 1996
lists Functional Areas of Concurrent National and Provincial Legislative Competence. These
include, inter alia:
- Airports other than international and national
- Environment
- Public transport
- Road traffic regulation
- Tourism
- Trade
- Urban and rural development
- Vehicle licensing
- and certain local government matters:
- Municipal airports
- Municipal public transport
- Harbours
Shared responsibility items are a matter for negotiation
and agreement between the National and Provincial Governments. Clarity on many of these
items have already been achieved in the Constitutional Transformation Process for the
Transport Sector. Where it is in the national interest to have uniformity, the National
Government will play a major role. Where flexibility is required, or where there are
reasons for different approaches in the different provinces, a joint approach may be
appropriate, with the provinces legislating and implementing as appropriate. An example of
this joint approach is the case of road traffic legislation where an overarching central
Road Traffic Act will legislate and regulate matters of nation-wide concern, whilst
separate provincial Road Traffic Acts will legislate and regulate matters of specific
provincial concern, within the framework of the overarching Act.
To promote integration and co-ordination of policy and
activities between the national and provincial authorities a co-ordinating structure
termed the "Ministerial Conference of Ministers of Transport" (MINCOM) has been
established.
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The process of interaction with the provinces on the
allocation of powers and functions to the most appropriate level, and to establish
mechanisms for co-ordination and cohesion to promote the strategic and functional
interests of transport is currently in progress. In some circumstances, for example where
capacity has yet to be established, it may be desirable to phase the devolution process in
consultation with the provinces concerned. An example of such a circumstance is the case
of commuter rail transport.
Provincial-local
In terms of the RSA Constitution the National Government is
not directly concerned with the relationship between provincial and local governments. 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.
Non-government and statutory bodies
Various non-governmental statutory bodies play key roles in
the South African transport system. These include the Transnet Group (Spoornet, Autonet,
Portnet, Petronet, and South African Airways), the South African Rail Commuter Corporation
(SARCC), Metrorail, the Airports Company (ACL), the Air Traffic and Navigation Services
Company (ATNS), Sun Air, Transkei Airways Corporation, and the South African Roads Board
(SARB). Their institutional positions are currently under review as part of the process of
restructuring state assets, and proposals for structural institutional and ownership
arrangements have been recommended to Cabinet by a task team on restructuring of State
Owned Enterprises. A National Framework Agreement is being negotiated between Government
and Labour which will inform the restructuring process.
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Arms-length commercial institutions
Certain elements of Government's current activities in
service provision and operations could be undertaken more efficiently and cost-effectively
in specialised environments, giving higher levels of service to consumers which would be
paid for by direct or indirect user charges. This could be done through professionally
managed arms-length agencies functioning according to commercial principles, with
government retaining the responsibility of ensuring that minimum standards are maintained,
and that essential services are provided. This approach will be considered in cases where
"economic infrastructure" is concerned, where skills are required which
government departments have difficulty in retaining, and where within the current legal,
financial, and institutional framework Government has difficulty in operating as it does
at the present. Three areas have been identified in which there is potential for applying
this approach, which could be extended to other areas later:
- the provision and maintenance of a primary national road
network
- the provision of maritime survey and safety services, and
- aviation safety.
Implementing, regulating and advisory bodies
Within the transport sector there exist various regulatory
and advisory bodies, for example the National Transport Commission (NTC), an independent
Regulating Committee for the Airports Company and the ATNS Company, and Road
Transportation Boards. Consideration will be given to the establishment of a Maritime
Safety Agency, an Aviation Safety Agency, and a Roads Agency for primary roads, to allow
for more professional focused service provision in these three areas. Policy proposals in
respect of some of these are dealt with in the specific function areas in this White
Paper. The Transport Advisory Council (TAC) has been disbanded as it is felt that the very
important input to the Minister and the Department of Transport from private sector
interest groups would best be effected through direct representations from the specific
groups.
Financing principles
Financing approaches do not have to be consistent across
the whole spectrum of infrastructure and operations. Internal consistency will however be
sought. Distinction will be made between:
Elements of "economic" infrastructure and
operations which provide a measurable economic or financial return.
This category includes "economic" infrastructure
(primary roads, railways, ports, airports, and pipelines), where the principle of user
charging or cost recovery from direct users will be applied as far as possible.
In the case of roads this may take the form of a fuel levy,
which is a surrogate user charge, and where viable or appropriate, tolling which is a
direct user charge.
This category also includes all freight transport
operations, and financially viable passenger transport operations. These should be
operated on commercial principles. There should be no Government subsidy of these elements
of operations.
Government will strive to prevent any actions of the state
from distorting pricing.
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Elements of infrastructure and operations which cannot
or should not be paid for by the user, but which provide social benefits.
Government is fully cognisant of its responsibility to play
a leading role in the provision of socially necessary infrastructure, and to ensure the
provision of operations and services to provide mobility and accessibility. It will
contribute to the financing of services which are socially necessary, in a transparent
manner. This could be in the form of appropriations, grants or subsidies to achieve an
equitable distribution of resources, or as an incentive to provide services which are
desirable in a broader social context, such as to promote public transport. In the longer
term Government will seek a reduction in the cost to the state of the subsidisation of
transport operations, predicated on a more effective and efficient public transport system
being developed.
The high costs, inefficiencies, the high and often
unrealistic expectations, and the limited financial resources of Government, mean that it
is unlikely that it will be possible to meet all demands in respect of transport services.
Government will strive to level playing fields, and will
promote competition where appropriate.
Transport authorities are concerned that the current
funding for such services are both inadequate and variable, and will continue their
efforts to secure adequate and consistent funding.
The management, regulation, and control of operations.
The management, regulation, or control of elements of the
transport system may result in financial income (for example charges for inspections, or
fines) or in non-monetary benefits (for example the reduction of casualties, or preventing
the abuse of monopoly power). It is proposed that a more direct linkage be established
between the tangible and intangible benefits of these activities and defraying the costs
of such management, regulation, and control.
This includes the management of the road traffic system to
promote safety, security, and a higher level of service. In this case a closer
relationship between expenditure and the revenue generated (eg the revenues from traffic
law enforcement, or insurance) should be established.
Government will strive to be consistent in applying these
principles, although recognises that they may not all be applicable in all cases. Where it
has to deviate, it will strive to make the financing transparent. In particular, all
subsidies will be made transparent.
In all cases of Government financing, the return on
investment (whether financial, economic, or social) of monetary and other resources must
be justifiable.
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Principles of regulation
Regulation is basically a form of intervention by
Government, and the intention is to regulate only where it is essential. Government will
apply different forms of regulation to ensure that its vision and objectives are realised
- for example if it needs to regulate to ensure that desired services which would not be
financially viable are provided. The form of regulation will differ according to
circumstances:
Regulation of specific services provided under contract:
This is the highest form of regulation, in which the authority specifies in detail the
service to be provided, and can impose a variety of sanctions if this is not met. This
category includes commuter rail services, and tendered public transport services by bus or
taxi.
Regulation of monopolies: Government has a role in
controlling tariffs, and in setting service and safety standards. Examples of this
category are the state airports, the ports, and road and rail concessions.
Regulation of the operations of competing operators:
The role of Government will be that of ensuring level playing fields, and regulation for
safety, leaving the operator as much freedom as possible to provide customer service as
demanded in a competitive environment. In the case of freight transport, regulation will
be in the form of the regulation of the quality (including safety) of the service, and not
economic or entry regulation. In the case of road-based public passenger transport,
Government proposes a form of regulated competition, which requires that operators
function in a competitive environment, but in a manner which complies with the objectives
of Government.
Regulation by contract: This is not an abdication of
responsibility by Government, but involves establishing a formal contract with an operator
to abide by an agreed set of rules. Instead of investigating and proving individual
contraventions, regulation and enforcement by Government involves establishing whether the
contract has been adhered to.
Human Resource Development
The human resource needs of the transport sector are
multidisciplinary in nature. Neither the public nor private sectors possess the people,
skills, or technological knowledge to fully implement this policy framework, manage the
system envisaged, and so achieve the vision for transport.
Government will move towards a culture where labour is seen
as a resource and not merely as a cost of production. It will strive to promote good
labour relations. Fair, humane, and acceptable labour practices, workers' rights, job
creation and security, sound working conditions, health and safety, and welfare benefits
of employees in the industry will be promoted, and where appropriate regulated.
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Government will assume some responsibility for capacity
enhancement and improving the human resource pool in the transport sector. It will do this
in accordance with the National Qualifications Framework, and in particular by:
Promoting tertiary education in the transportation
disciplines, at South African universities and technikons, and forging partnerships
internationally to provide more scholarships,
Promoting training and skills development, where relevant
through Industry Training Boards.
Government however does not accept sole responsibility for
human resource development, and looks to the private sector to assist in meeting the
challenge.
Government will support research into, development of, and
implementation of appropriate and innovative technologies to meet present needs, as well
as to keep pace with the rapid development of advanced transportation and information
technologies internationally. Towards this end it will continue its support of Centres of
Development in specific aspects of transport.
POLICY STATEMENTS
The policy of government in accordance with these
objectives and principles, is set out on the following pages, grouped into the following
six areas:
Infrastructure
- Transport infrastructure (all modes)
Operation and Control
- Land passenger transport
- Land freight transport
- Civil aviation
- Maritime transport
- Road traffic and safety
In each of these areas, the mission and strategic
objectives for the function are set out, the key issues are highlighted, and policies for
addressing these issues are stated.
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TRANSPORT INFRASTRUCTURE
Transport infrastructure comprises all physical elements
upon which transport operations take place. It includes roads, railways, airports,
harbours, pipelines, interchange facilities, and the associated dedicated power and
communications systems. Transport infrastructure represents a significant proportion of
Government's total financial investment in fixed assets, and as such needs to be well
managed.
The adequacy or inadequacy of transport infrastructure can
have a significant enhancing or inhibiting effect on social and economic development.
Vision
As part of the overall long-term vision for the South
African transport system, transport infrastructure will
- be in place for South Africa to be a hub of transport within
the SADC region
- be promoting sustainable economic development by removing
constraints on latent demand in development corridors at local, provincial, national and
regional level and be providing the catalyst for private investment,
- be structured to encourage public passenger transport and to
discourage excessive private passenger transport in urban areas,
- allow for seamless intermodalism,
- be financed through a combination of user charges and
private/public sector investments,
- provide adequate accessibility together with safety and
security within the constraints of social affordability,
- incorporate technological advances which promote and enhance
the role of transport in the economy and development, and
- be structured to ensure environmental sustainability and
internationally accepted standards.
Mission
The mission for transport infrastructure is:
"To provide an integrated, well-managed, viable and
sustainable transport infrastructure meeting national and regional goals into the 21st
century, in order to establish a coherent base to promote accessibility and the safe,
reliable, effective and efficient movement of people, goods and services"
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Strategic objectives
The strategic objectives for transport infrastructure to
achieve this are to:
- Establish sound intermodal co-ordinating structures,
- Maintain and develop the transportation infrastructure
system, and prioritise its development in terms of sustainable economic and development
needs,
- Foster a sound financial base for transportation
infrastructure,
- Aid the promotion of a strong, diverse, efficient and
competitive transportation industry within the limits of sustainable transport
infrastructure,
- Promote environmental protection and resource conservation,
- Enhance the competitiveness of South African industry and
the quality of life of its citizens by providing protection of consumers, safety and
security, and meeting accessibility, reliability and mobility needs by providing transport
infrastructure to serve the purpose,
- Ensure that the transport needs of the country's disabled
population are taken into account when new infrastructure is planned and designed, and
- Advance human resource development in the provision of
transportation infrastructure.
POLICY STATEMENTS
Establish co-ordinating structures
Issue
The responsibility for infrastructure used by different
transport modes is fragmented between different government departments and parastatals and
also between different levels of government. The absence of a structure or mechanism for
the co-ordination of the strategic planning for this infrastructure can lead, and has led,
to "mis-matches" in infrastructure provision, inefficiencies in operation, and
duplication of facilities with consequent sub-optimal utilisation. The country, with its
scarce financial resources, cannot afford such a situation and it is necessary to bring
together public sector bodies (at all levels) and private sector interests (including the
construction industry) in an attempt to optimise resource usage as well as the transport
infrastructure system. This structure will need to be cascading in nature to address
infrastructure needs at the three levels of government as well as integrating the various
elements of transport planning and infrastructure. Effective infrastructure databases at
all levels are essential elements of such structures.
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Policy
A process with appropriate structures to co-ordinate
planning to meet identified needs will be established to adequately respond to these
needs.
At the national level, the Department of Transport (DoT)
will establish a forum to improve the co-ordination of infrastructure planning for all
modes of transport. The MINCOM structure will promote co-ordination across national and
provincial functions, whilst structures will be developed to provide for co-ordination
between DoT and Transnet. Provinces will be encouraged to develop and participate in
structures for provincial/local authority co-ordination.
As a basis for co-ordinated planning, comprehensive
infrastructure databases will be established at all levels.
Maintain and develop the transportation infrastructure
system, and prioritise its development in terms of needs
Issue
A fundamental consideration in reviewing the policy on
transport infrastructure is its appropriate "size". This requires an answer to
the question of how much infrastructure, and what type of infrastructure, the country
needs. There is a need for the redefinition of national networks, linked to local economic
activity and demographics, and also southern African networks.
Policy
A more sustainable approach to the provision of transport
infrastructure is required, shifting from accommodative, supply-focused transport
approaches to a more balanced approach including pro-active land use and transport demand
management as part of the policy package. A strategy on long term and integrated planning
consistent with the needs of the country will be developed. The Department of Transport
will play a more prominent role in initiating relevant decision-making processes and
forums on urban and rural development and land use.
National transportation infrastructure networks will be
established, in conjunction with provincial and local government, as well as southern
African countries. The primary roads network will be defined.
Selected ports and airports will be elevated to the status
of "hubs" in keeping with international trends, and properly equipped to
maximise South Africa's participation in the global economy. These will be identified on
the basis of their strategic positions and their economic and financial viability, in
consultation with the relevant stakeholders.
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In some cases, where transport is able to act as a leading
sector in the stimulation of economic development, the government will take the lead in
establishing necessary transport infrastructure and promoting the participation of other
public and private sector institutions in order to facilitate and accelerate the
development process. The development corridor approach, which involves national,
provincial and local activities, will be adopted wherever possible, but in a rational
manner to ensure efficient and sustainable agglomeration of activities.
Decisions on infrastructure investment will be made on the
basis of multiple criterion evaluation, to best meet the sometimes conflicting policy
goals and objectives.
A comprehensive management information system, based on
indicators and models that enable demand to be quantified, and which will make requisite
data available to planners, will be developed, in order to promote an integrated transport
management approach.
The international development of advanced technologies will
be monitored and those technologies deemed to be appropriate will be incorporated into the
transport infrastructure and operational system.
Foster a sound financial base for transportation
infrastructure
Issue
It will not be possible to achieve the mission for
transport infrastructure without appropriate funding sources. In general, current funding
levels are inadequate for:
- new infrastructure, covering the whole spectrum of
infrastructure from a national level to a local level
- the maintenance of the existing infrastructure
- the upgrading of the existing infrastructure where there are
capacity constraints or unacceptable service levels
- intermodal facilities
Current fiscal constraints are holding back the development
of certain critical infrastructure.
Policy
Continued attention will be given to justifying greater
appropriations from the Exchequer for transport infrastructure, and where appropriate and
possible, infrastructure will be funded through user charges and/or investments by the
private sector. In addition, attention will be given to seeking and developing new sources
for financing of transport infrastructure.
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Subject to market discipline, the necessary funding for the
establishment and maintenance of transport infrastructure will be arranged through an
appropriate model:
Public ownership and operation by state departments. The
conventional approach, while still a viable option for socially necessary infrastructure,
is decreasing in application for higher order infrastructure because of proven efficiency
gains from less bureaucratic and more commercial approaches.
Public ownership and operation by a state enterprise or
agency, such as the Airports Company (ACL) or the proposed Roads Agency. This model has
been found to increase efficiency in infrastructure provision and maintenance. Concessions
for private financing, construction, and operation, such as the Build-Operate-Transfer
(BOT) agreements concluded for some major national roads, represent a method for
addressing fiscal constraints within such a model.
Private ownership and private operation. This model
involves the transfer (sale) of ownership and responsibility for performance to the
private sector. It could be applicable to forms of infrastructure where completely free
market forces dictate levels of service and investment, but is unlikely to find
application in South Africa in the near future.
Joint ventures between the public and private sectors.
Since the various types of infrastructure differ in their
suitability and economic viability for cost recovery through user charging and/or direct
recovery of investments by the private sector, distinction will be made between:
- Infrastructure for social access, requiring government
funding or "subsidy"
- infrastructure suitable for indirect user charging, e.g.
fuel levies, license fees, tax on fares
- infrastructure suitable for private sector investment, e.g.
toll roads
Promote a strong, diverse, efficient and competitive
industry
Issue
Diversity and keen intermodal competition which are
essential to an effective transportation system are not features of the South African
transport system. Government policy will promote equal competitive opportunities among the
transportation modes and encourage co-operation among modes to enable each mode to realise
its inherent advantages.
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Policy
The strategic value of state ownership of the various types
of infrastructure will be re-assessed. In certain instances, it may be undesirable for the
roles of provider and regulator (player and referee) to be embodied in a single
institution. In these instances ownership and regulation of transport infrastructure
should be separated, whether state owned or privatised.
A Cabinet task team is currently investigating ownership
and institutional structures in respect of transport assets and the recommendations of
this task team will be expeditiously implemented.
Regulatory structures will be established, where they are
appropriate but do not exist. Infrastructure will be regulated where monopoly situations
could occur.
Promote environmental protection and resource
conservation
Issue
South Africa, in line with the developed world, will have
to adapt her economic growth policies to the requirements of environmentally sustainable
development. Apart from any other considerations, this will be necessary to assure
continued survival in the global economy.
From the relationship "economic growth depends on
transport operations depends on transport infrastructure", it follows that
infrastructure should be provided and used in a way that is consistent with
sustainability.
Policy
Planning for the provision of infrastructure will take
place within an integrated environmental management approach, and will include inter alia
the performance of environmental impact assessments (EIAs). Among the issues to be
considered are environmental impacts, energy conservation, the transport of hazardous
materials, and the conservation of scarce infrastructure construction materials.
Enhance the quality of life of all citizens of South
Africa
Issue
In accordance with the overall goals expressed in this
White Paper, the provision of infrastructure must contribute to the enhancement of the
quality of life of all citizens.
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Policy
Performance indicators will be developed for different
types of infrastructure and levels of service to measure the extent to which "quality
of life" issues are being met in the provision of transport infrastructure and to
adapt where necessary. Inventories of requirements and indicators will be compiled to
allow progress to be monitored on a regular basis.
Clear guidelines on acceptable, equitable and efficient
public involvement processes will be established.
The disabled population has often been overlooked in the
design of transport facilities. To improve quality of life the mobility needs of the
disabled population will be integrated in the design of new infrastructure, especially in
urban areas and in public transport interchange facilities.
The provision of safe and adequate lay-by and overnight
facilities for long-distance drivers on primary roads will be promoted.
Advance human resource development in the provision of
transportation infrastructure
Issue
Throughout the transport sector, the current situation is
that there is a lack of demographic representation in senior positions; there is a lack of
gender equality; there is a lack of staff members with disabilities; line departments and
parastatals do not seem to be adequately engaged in training; there is a lack of
competency recognition and lack of clear career paths. In addition, although money has
been made available for training, more direction in its application is required.
Policy
Affirmative Action in the transport infrastructure
provision sphere will be accelerated and monitored at all levels of government.
Training needs for provision, maintenance and operation in
transport will be identified and quantified and matched where applicable with skills
provision through avenues such as Centres of Development, universities, technikons and
technology transfer centres and formal construction contracts (e.g. technical, managerial
and business skills).
The establishment of small, medium, and micro enterprises
(SMMEs) addressing infrastructure provision and maintenance will be encouraged. Potential
barriers to entry, such as contract documentation and specifications will be removed by
the establishment of documentation and conditions appropriate to small enterprises (where
applicable, labour intensive construction methods). Large contracts will be managed from a
human resource development point of view, i.e. skills transfer conditions for the
establishment and advancement of small enterprises as an entry into the formal contracting
sector.
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INFRASTRUCTURE POLICY FOR THE VARIOUS MODES
The ensuing chapters of this White Paper set out policy for
the various modes of transport. These include policies for both infrastructure and
operations. For ease of reference the key infrastructure aspects of these policies are
summarised below.
Roads
Efficiency in the provision, maintenance, and operation of
the primary economic road infrastructure network will be facilitated by the establishment
of a professionally managed Roads Agency, with a Board of Control consisting mainly of
users from the private sector. The primary road network should preferably be financed
through a dedicated levy on fuel and toll charges. Innovative ways of securing finance for
the development of road infrastructure will be explored. These include
Build-Operate-Transfer (BOT) or Fund-Rehabilitate-Operate-Maintain (FROM) contracts which
enable Government to obtain financing from private sources rather than spending taxpayers'
money.
Other rural and inter-city and urban road infrastructure
will be the responsibility of provincial and local authorities, and be funded from a
variety of tax sources.
Increased attention will be given to the provision and
maintenance of the lowest order roads, both in rural and in urban areas.
Railways
Rail is seen as an essential long-term component of the
network for both freight and passenger transport. The provision and maintenance of rail
infrastructure for bulk and general cargo freight transport, and for inter-city passenger
transport, will be determined by market needs and commercial viability. The national
transport authority will own the commuter rail infrastructure, rolling stock and land
associated with rail reserves, until the provincial or metropolitan transport authorities
are able to take over this responsibility. Any further provision of rail infrastructure
for commuter transport will be determined by a combination of market needs and social
considerations
Airports
The continuation of the Airports Company to provide and
manage infrastructure at the nine State Airports is confirmed at this stage.
South Africa also has many smaller airports, many of which
are not viable, or duplicate others close by. A separate policy on airports is being
drafted to provide direction on the need for, development, and management of these smaller
airports.
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Seaports
A port authority (or authorities) with specific
responsibilities for the maintenance and development of port infrastructure will be
established. Since it will be a monopoly, the port authority will be regulated by an
independent regulator. The port authority will involve key role players in its strategic
planning, for example the metropolitan government of a city with a large port.
The port authority will be independent of any port
operating entity (or entities). The principle of competition within a port will be
supported.
Pipelines
A network of liquid and gas pipelines will be developed
based on needs, which will be operated as a utility and regulated by Government.
LAND PASSENGER TRANSPORT
The Land Passenger Transport Policy encompasses all forms
of public and private passenger movement on land, including the travel modes rail, bus,
minibus-taxi, metered taxi, light delivery vehicles, private motor cars, motor cycles and
bicycles as well as pedestrian movement.
The Policy covers all passenger movements from short
distance urban transport to long distance inter-city, rural, and cross-border transport.
Passenger transport is a generic term used to describe both
public and private modes of travel for all purposes, whether commuting or other
business-related travel, shopping, tourism, recreational and casual travel.
The policy includes principles on institutional,
administrative, management, (including law enforcement), financial and planning and
regulatory components. It encompasses planning including integrated land use/transport and
multi-modal planning as well as transport operations. The policy is intended to provide
guiding principles for all functional levels, from national through provincial to local
government authorities. Included in the policy framework are related fields including
human resource development, energy and the environment, transport business development at
all scales, information and the marketing of passenger transport policies and services.
The framework also encompasses the safety and security of passenger transport users.
Many of the recommendations of the National Taxi Task Team
(NTTT) have been incorporated.
Mission
The mission for land passenger transport is guided by the
RSA Constitution, the objectives of the RDP and the development policies of the Government
of National Unity (GNU). In observing national development principles, the policy is
mindful of the principle of subsidiarity, which is the exercising of devolved power at the
lowest competent level of government. Devolved transport powers and functions may either
be exercised exclusively or concurrently with a higher level of government. Where
functions are devolved exclusively to a lower level of government, the policies expressed
in this White Paper are the policies which the Department of Transport will follow in a
supportive role.
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In accordance with these guiding principles, the mission of
the Department of Transport in respect of land passenger transport is to provide
leadership in:
"The promotion of a safe, reliable, effective,
efficient, co-ordinated, integrated, and environmentally friendly land passenger transport
system in South African urban and rural areas, and the southern African region, managed in
an accountable manner to ensure that people experience improving levels of mobility and
accessibility".
Strategic objectives
The strategic objectives for land passenger transport are:
Funding
- To ensure sustainable and dedicated funding for passenger
transport infrastructure, operations, and law enforcement
Spatial
- To encourage more efficient urban land use structures,
correcting spatial imbalances and reducing travel distances and times for commuting to a
limit of about 40 km or one hour in each direction
- To promote the use of public transport over private car
travel, with the goal of achieving a ratio of 80:20 between public transport and private
car usage
- To promote rural development that will improve access to
opportunities by ensuring that rural workers are housed in close proximity to their work
locations and services, thereby reducing the need to travel
Customer-based
- To ensure that passenger transport services address user
needs, including those of commuters, pensioners, the aged, scholars, the disabled,
tourists, and long distance passengers
- To improve accessibility and mobility, limiting walking
distances to less than about one kilometre in urban areas
- To provide an appropriate and affordable standard of
accessibility to work, commercial and social services in rural areas
- To ensure that public transport is affordable, with
commuters spending less than about 10 percent of disposable income on transport
- To promote safe and secure, reliable and sustainable
passenger transport
- To provide readily-accessible information for the assistance
of passenger transport users
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Planning and Regulatory
- 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
- To encourage, promote and plan for the use of non-motorised
transport where appropriate
- To provide for the registration of all public transport
operators as formalised commercial entities, bound by the regulations pertaining to their
permission to operate
- To replace operator permits with permissions (authorities)
issued in terms of approved passenger transport plans
- To promote and implement a system of regulated competition
for public transport routes or networks based on permissions or tendered contracts
Operational
- To empower and assist disadvantaged operators to participate
meaningfully in the land passenger transport system
- To ensure that operations become economically viable,
requiring the minimum financial support
- To foster a stable investment environment in the public
transport industry
- To encourage a professional approach to the management and
operation of land passenger transport
- To foster manpower and human resources development
- To ensure that transport modes are integrated in respect of
scheduling, routes and ticketing systems
- To promote acceptable and fair labour practices in the
transport industry
- To ensure that land passenger transport operations are more
environmentally sensitive and sustainable, and are energy efficient
- To promote strong, diverse, efficient and competitive
long-distance passenger transport and charter sectors within the limits of the sustainable
transport infrastructure, and to enhance the quality of such services through the
provision of safe, secure, reliable and cost-competitive systems.
[ Top ]
POLICY STATEMENTS
Land use and spatial development in support of land
passenger transport
Issue
Land use and transport development are not integrated owing
to a fragmentation of responsibilities for the administration, planning and regulation of
the various aspects of land use, infrastructure, operations and regulations. This
fragmentation and the legacy of apartheid policies has led to low density development,
spatially dislocated settlements and urban sprawl, resulting in inordinately long
commuting distances and times, low occupancy levels, high transport costs and low cost
recovery. The current housing approach which supports single units on single plots will
not achieve the densities required, and conflicts between housing and transport policies
need to be resolved.
Policy
The following spatial development principles will support
passenger transport policy:
- land use development proposals must be subject to a land
use/transport policy framework within an agreed development planning process;
- the effective functioning of cities and industrial areas
must be enhanced through integrated planning of land use, transport infrastructure,
transport operations and bulk services.
Policy actions necessary to provide for urban restructuring
(densification) and efficient land use/transport interaction which will be promoted by
Government include:
- establishment of structures (all tiers of government) which
facilitate integrated planning of infrastructure, operations and land use in a
co-ordinated manner;
- regulation of land use development at local level so that
development approval is subject to conformity with integrated land use/transport plans;
- land use frameworks, guidelines and policies to channel
development, particularly employment activities, into public transport corridors and
nodes.
- development priority will be given to infilling,
densification, mixed land use and the promotion of development corridors and nodes;
- containment of urban sprawl and suburbanisation beyond the
urban limits will be addressed through provincial spatial development plans;
- decentralisation which disperses employment activities must
be discouraged, except in specific cases where it is favourable in terms of decreasing
total transport costs and travel times on the basis of an integrated land use plan;
- unrestrained car usage and subsidised car parking will be
contained through the application of policy instruments which could include strict parking
policies, access restrictions for private cars, higher licence fees, road pricing or area
licensing. Restraint on private car usage will however not be implemented independently of
improvements in the quality of public transport.
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Institutional structures
Issue
Schedule 4 of the Constitution of the RSA of May 1996 has
allocated to the national and provincial governments concurrent responsibility for public
transport and road traffic regulation, and for municipal public transport. The Local
Government Transition Act, 1993, specifies the powers and duties of Transitional
Metropolitan and Local Councils and includes the following functions:
- metropolitan co-ordination, land usage and transport
planning;
- arterial metropolitan roads and stormwater drainage;
- public passenger transport services; and
- traffic matters.
No comprehensive enabling legislation currently exists for
land passenger transport. Although the Constitutional Transformation Process (CTP) agreed
by MINCOM has clarified the relationships between the various levels of government, and
broad agreement has been reached on the division of functions between national and
provincial government, further clarification of the exercise of specific powers and
functions is required. The CTP agreement governs relationships affected by the assignment
of existing legislation to provinces and may be affected by new over-arching land
passenger legislation. The allocations of powers and responsibilities in respect of public
transport between the provincial and local authorities is a matter for decision by
individual provinces.
Policy
The principle of subsidiarity and devolution of public
passenger transport functions, powers and duties to the lowest appropriate level of
government is confirmed.
A single over-arching Land Passenger Transport Act will be
compiled at national level, clarifying the relationships between levels of government, and
further defining concurrent and exclusive powers. This Act will specify the allocation and
execution of national, provincial, and local passenger transport powers and functions.
Central Government
National functions will be as follows:
- macro passenger transport policy;
- norms and standards;
- strategic planning;
- transport research and studies;
- funding of some infrastructure projects in the national
interest;
- demonstration projects;
- aspects of transport-related training;
- international road passenger transport agreements and
regulations in collaboration with the relevant provinces;
- some inter-provincial passenger transport matters.
A Cross-Border Permit Board will be responsible for the
issuing of all permits for international operations. The National Transport Commission
(NTC) will deal with appeals.
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Provincial Government
Broadly speaking, original financial and executive powers
will be given to the lower tier transport authorities, and the provinces will be
responsible for co-ordination. Outside metropolitan, district and local transport areas,
the provincial transport department will be fully responsible for ensuring the provision
of rural transport infrastructure, facilities and services. Provincial functions and
responsibilities include:
- administration of long distance passenger transport in
consultation with other provinces;
- developing provincial land passenger transport policy and
legislation;
- delimitation and designation of passenger transport areas
and transport authorities;
- setting provincial norms and standards;
- co-ordination of passenger transport among lower level
authorities;
- implementation, monitoring and revision of provincial
passenger transport policy;
- approval of transport plans;
- ensuring and, where appropriate, undertaking the planning,
design, construction, maintenance and funding of public transport operations and
infrastructure;
- ensuring the provision of public transport services;
- provision of transport funding including subsidisation;
- co-ordination of land use and transport planning at
provincial level;
- advising the provincial Development Tribunals to ensure that
policies in the provincial and local transport and spatial development frameworks are
reflected in development decisions; and
- law enforcement.
Provincial Permit Boards will be responsible for the
issuing of permits at the request of the provincial passenger transport department or
metropolitan passenger transport authorities, services or local councils. In the case of
domestic inter-provincial operations, it is proposed that a single permit be issued by the
Provincial Permit Board in which the application is lodged, and that the onus will be on
that Board to obtain the consent of the other Boards affected.
Metropolitan structures
In line with the Constitution of the RSA and the
Transitional Local Government Act, 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.
Services, district and local structures
Outside of metropolitan areas, services, district and local
councils, or provincial authorities, will act as transport authorities. They will have the
same powers and functions as metropolitan authorities to do planning and implementation of
infrastructure and operations. Provincial transport departments will be responsible for
co-ordination in respect of services, district and local structures and, in particular,
rural bodies which have little or no competence to administer the function.
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Framework for provision of services
Issue
There is no statutory requirement to issue permits in terms
of passenger transport plans in some cases leading to unbalanced supply, inefficient,
uneconomical and unsafe public transport services.
Insufficient and ineffective transport law enforcement
leads to non-compliance with the conditions of permits.
Deficit subsidy systems may lead to inefficient services.
Policy
Government recognises public passenger transport as a basic
need, but wishes to ensure that it is provided efficiently so that public resources are
used in an optimal manner.
The public passenger transport system in South Africa will
be based on regulated competition Where public transport services require government
funding support, for example for welfare, or traffic management, or strategic reasons,
competition will take the form of tendered contracts (competition on routes or networks
will then be precluded);
Where public transport can be rendered as profitable
commercial services, on-the-road competition will be encouraged, with competition
being regulated through the issuing of permissions based on capacity management in terms
of the supply policies of the provincial or local passenger transport plans . (For
example, this will apply to inter-city coach services, certain long-distance minibus-taxi
services and viable short-distance urban services.);
Charter services will be fully competitive with the
granting of permissions being based solely on compliance with safety and traffic
regulations.. The regulation will be in the form of a permission, contract or concession
awarded in terms of a passenger transport plan and supported by strict law enforcement.
Permission is the authority to operate a route or
network with no subsidy.
Contract is the authority to operate a route or
network at a tendered contract price.
Concession is the authority to operate a rail line
or network at an agreed price.
There will be a fundamental shift away from monopolistic
situations. There will also be a shift away from systems which target commuters only
towards one which benefits all passengers.
Permission is the authority to operate a route or a
combination of routes or a network. A permission will be awarded in terms of a passenger
transport plan and supported by strict law enforcement.
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In the case of contracts, in order to ensure that there is
fair competition between competing tenderers, all public transport operators should:
- operate on business principles with financial ringfencing,
- have no unfair access to financial resources other than on a
commercial basis,
- operate as independent legal entities, and
- be liable for taxation.
In the case of current public or parastatal operators,
compliance with these requirements will be phased in, in the sequence set out above.
Successful tenderers, when awarded a contract, will
automatically be awarded a permission to operate. Permissions for unsubsidised services
will also be awarded only to registered operators on the basis of a passenger transport
plan. Contracts shall only be awarded by the transport authority to a recognised route
entity, co-operative, association, close corporation, company or a legal person, and
should be based on a passenger transport plan.
Rail operations will be based on operating and maintenance
concessions, awarded by transport authorities, based on a transport plan with ownership of
infrastructure and rolling stock being retained by transport authorities.
The following are the main implications of regulated
competition for public transport modes:
Minibus taxis: regulated competition will mean that
the minibus taxi industry will have to be formalised and measures introduced to enhance
its economic viability. Minibus-taxis could form legally registered businesses, for
example, co-operatives or companies, or be registered associations. These will have to
operate in terms of permissions to operate on a route or network. Permissions will be
granted by the provincial permit board. The number of permissions granted on a route or
network will be determined by need (demand) estimated in terms of the passenger transport
plan. Minibus-taxi businesses may also compete for the awarding of contracts by transport
authorities. As far as possible in terms of the transport plan, the determination of
routes/networks will be based on existing operations (including both legal and pirate
operators). Financial and technical assistance will be offered to minibus-taxis to enable
them to obtain permissions and/or contracts and to improve their economic viability.
Minibus-taxi businesses may apply for permissions and/or contracts either on their own or
in partnership with bus operators.
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Bus operations: may obtain permission to operate
from the provincial permit board. They may also compete for tendered contracts which will
be awarded by a transport authority. Contracts will be awarded only to bus companies which
operate on business principles with ringfencing of finances and no unfair access to
financial resources except on a commercial basis, operate as independent legal entities,
and are liable for taxation. Existing permits on subsidised routes will have to be
translated into interim contracts for a period before competing for tendered contracts.
Rail passenger transport: the national transport
authority will own the commuter rail infrastructure, rolling stock and land associated
with rail reserves until the provincial or metropolitan transport authorities are in a
position to take over this responsibility. Steps will be taken to utilise rail reserves in
accordance with transport plans and spatial development frameworks. Operating and
maintenance concessions will then be awarded by the transport authorities, initially at
national, and later at provincial or metropolitan level. The current deficit financing
system will be abolished and replaced with a concession system which will ensure more
efficient and effective use of funds. Concessioning the operation of rail services on a
competitive basis (whether to the public or private sector) will help cut fare evasion and
improve services, because the money made or lost will impact directly on the operator. The
transport authorities will determine fare levels based on a common cost structure and
taking account of the fares of other modes.
All transport operators will be encouraged and
empowered to bid for contracts and concessions. The entry of smaller operators will be
facilitated by various means, which may include partitioning contracts into parcels of
differing size, encouraging bids by co-operatives comprising small, medium and micro
enterprises (SMMEs), encouraging or requiring big operators to bid in association with
smaller operators, or making provision for subcontracting or franchising.
In implementing this principle of regulated competition,
particularly in the case of contracts and concessions, Government will seek to maximise
the stability and job security of employees in the public passenger transport industry.
Funding
Issue
Urban and particularly public transport have experienced
low priority in national funding, apart from the subsidisation of rail and bus services.
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Specific funding issues which have arisen include the
following:
- the absence of dedicated funding sources for passenger
transport;
- inadequate funds to ensure the implementation of long-term
plans;
- the funding of public transport operations through multiple
sources and channels;
- the imbalance between spending on infrastructure and
operations.
Policy
To augment funds transferred from national level, fiscal
powers for provincial and local governments in respect of their functional
responsibilities will be sought.
The application of funds to transport improvements should
be self-sustaining and replicable. To encourage this, the users of urban transport
facilities should pay for all or most of the costs incurred within the limits of
affordability. Where subsidies are required for welfare considerations or to promote
public transport they will be applied through mechanisms which provide incentives for
efficiency.
Funding will, however, be channelled through a single
authority is to ensure that transport operations do not receive funds from more than one
authority for offering the same service. A single authority therefore needs to co-ordinate
the funds that any one operator receives for rendering passenger services.
Transport authorities, in consultation with communities,
must define passenger transport needs at affordable fare levels in order to identify and
target recipients of mobility support. Having identified the mobility needs of communities
in order to determine the demand for state supported services, transport authorities
should define routes and/or networks for tendered contracts.
Minibus and other SMME transport operators will be
encouraged to compete for the award of contracts by transport authorities. Assistance will
be offered to disadvantaged operators to enable them to participate in the system.
Transport authorities will apply alternative support
mechanisms aimed at cost reduction for current minibus operators.
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Supporting policies
Monitoring of performance
Government will specify key performance indicators in
respect of the strategic objectives. The indicators will facilitate monitoring of the
progress of provinces and local authorities in implementing the mission for land passenger
transport.
Government will ensure the development of information
systems compatible between the different levels of government.
Human resource development
All levels of government must be responsible for
identifying needs in establishing priorities and programmes to build expertise on an
ongoing basis.
Education and training facilities must be established to
promote human resource development in land passenger transport. Initially, existing
education and training facilities must be deployed to meeting training needs. All role
players should be given the opportunity to gain access to such facilities.
Small, medium, and micro enterprises
Empowerment of SMMEs through training courses should
receive priority.
Integration of SMMEs into the formal public transport
system should be addressed pro-actively and in a structured manner by all levels of
government and will be a priority in the transitional restructuring of the passenger
transport industry.
Special categories of passenger
The approach to passenger transport should shift priority
from private to public transport and within the latter sector from the provision of
primarily peak period commuter services to a fully fledged public transport system
catering for a wide range of passengers.
The needs of special categories of passengers should be
identified by the responsible transport authorities, especially at metropolitan and local
level, and these should be addressed in their passenger transport plans.
The disabled population constitutes a significant minority
in the South African population, which is often overlooked. Attention will be given to the
design of public transport vehicles so that they do not pose barriers to persons with
disabilities. Incentives to the minibus taxi and paratransit modes to cater for the needs
of persons with disabilities will be considered.
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Energy efficiency and environment
The use of more energy efficient and less pollutant modes
of transport will be promoted. A greater energy awareness will be fostered in both
planners and users of the land passenger through public awareness programmes, differential
fuel prices, etc. In this regard, close co-operation between the Departments of Mineral
and Energy Affairs and of Finance and the Department of Transport is essential.
Rural passenger transport
The need to give attention to rural passenger transport is
recognised. Accordingly, a national investigation should be undertaken to develop a
guideline and framework of principles for rural passenger transport policy. Different
principles should be investigated including "mobile service centres", minimum
accessibility standards, rural settlement patterns, integration of urban and rural areas
and integrated freight and passenger services. The framework should be developed by
national government in collaboration with provincial ministers.
Comprehensive integrated planning
It is essential for land passenger transport planning to be
carried out in an integrated fashion covering all modes. This planning should be done at
as low a level as possible and by the relevant transport authority. Independent planning
by modal operators, should be discouraged since the passenger transport plan should be
comprehensive and cover all modes and the spatial integration of land use activities.
The planning endeavour should, at the least, address the
strategic objectives of the Department of Transport.
LAND FREIGHT TRANSPORT
Land freight transport as a focus area of transport policy
embraces both domestic and international conveyance of goods by road and rail and is
concerned with: the quality of service to the satisfaction of customers and users
(including cost, reliability and timeous delivery); seamless, intermodal operations;
optimised use of capacity and management of operations; protection of its infrastructure;
and minimized impact on the environment and natural resources.
Mission
The mission for Land Freight Transport is:
"To provide safe, reliable, effective, efficient
and fully integrated land freight transport operations and infrastructure which best meets
the needs of customers at improving levels of service at an equitable cost in a fashion
which supports government strategies for economic and social development while being
environmentally and economically sustainable".
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Strategic objectives
The strategic objectives for Land Freight Transport in
order to fulfil this mission are to:
- Develop a comprehensive land freight transport information
system
- Promote the provision of seamless intermodal services
- Optimise current capacity and maintain and develop the land
freight transportation system
- Prioritise issues in terms of sustainable economic and
development needs
- Find a practical and reasonable solution that leads to an
equitable distribution of infrastructure capital, management, operating and maintenance
costs
- Promote a strong, diverse, efficient and competitive
transport industry within the limits of sustainable transport infrastructure
- Promote environmental protection and resource conservation,
with specific reference to all aspects of transporting hazardous substances and goods
- Enhance the quality of freight transport services by
providing transport customers with a safe, secure, reliable and cost-competitive system
- Advance human resource development and expand participation
in the freight industry through the creation and growth of entrepreneurial opportunities,
training and skills development
- Optimise road transport law enforcement
POLICY STATEMENTS
Regulation
Policy
The existing policy of economic deregulation of land
freight transport within South Africa is reaffirmed, subject to strict and effective
regulation in respect of traffic quality and safety matters. Operator fitness will be
controlled through the implementation of the Road Transport Quality System (RTQS), which
will include operator licenses.
Infrastructure capital, operating and maintenance costs
Issue
The key issue regarding level playing fields between the
transport modes is equity in the recovery of infrastructure provision, management,
operation, and maintenance costs. An equitable distribution of infrastructure cost
recovery (capital, management, operating and maintenance) will make a positive
contribution to reducing artificial modal shifts and distorted tariff structures created
by cross-subsidisation.
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Policy
Government will strive to level the playing fields to
enable fair competition between the various land transport modes.
A monitoring system will be established, and specific and
regular cost recovery studies will be undertaken to determine and equitably allocate costs
for the provision, management, operation, and maintenance of all freight transport
infrastructure (including road, rail, port, and airport).
Road traffic law enforcement
Issue
Effective law enforcement is essential to ensuring
equitable competition in road transport. It will also assist in ensuring equity between
the road mode and the rail mode (which is effectively self-enforcing) and thus lay a
better foundation for intermodal co-operation and interaction. Current road traffic law
enforcement relating to various aspects of freight transport is deficient. The Road
Transport Quality System (RTQS) is regarded as too complicated and has not yet been fully
implemented.
This critical issue is dealt with comprehensively in the
section on Road Traffic and Safety Policy.
Seamless intermodal services
Issue
Importers, exporters and the local business community need
seamless intermodal services if the key thrusts of the national transport policy are to be
met.
Policy
Government will encourage integration, intermodalism, and
partnerships between the modes, provided this does not result in monopolies. Government
will not enforce intermodalism artificially, but will facilitate intermodalism where
possible by supporting the development of intermodal interchange infrastructure, and by
supporting the establishment of information systems.
There will be a national approach to a total freight
transportation system, involving government, customers and users, owners and operators
working together. Modal, spatial and institutional integration must be encouraged. To
remain customer focused, the freight transport system must be responsive to changes in
customer demands, logistical developments and market forces.
Policies will be supportive of small and medium business,
and will ensure operators without control over all elements in the logistic chain, are not
disadvantaged.
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Co-ordination
Issue
Within South Africa's borders, there is currently
insufficient co-ordination between authorities and operators to optimally achieve the road
freight policy goals.
In the regional context, increasing volumes of freight are
being moved by road and rail across South Africa's border to and from neighbouring
countries in the southern African region. This has brought with it a host of new problems.
There is an urgent need to harmonise vehicle specifications; road user charges; transport
and traffic legislation; clearing procedures at ports and border posts and other relevant
aspects. The present situation frequently prejudices South African road transport
operators in particular and land freight in general.
Policy
In order to promote co-ordination and interactive
participation in the establishment of an acceptable, effective land freight transportation
system, a formal consultative forum between government, public and private sectors,
operators, stakeholders and users will be established.
In view of the major role of Transnet in freight transport,
a close, interactive and formal working relationship will be established between the
Department of Transport, the Department of Public Enterprises and Transnet to promote
coordinated planning, management and operations with regard to land freight transport.
Government will work through regional transport structures
including SATCC and Corridor Working Groups to ensure effective road transport law
enforcement and management of cross-border routes to ensure compliance with legislation
and promote equitable competition in road transport. It will pursue a harmonised road
freight transport system in Sub-Saharan Africa. It will work with the Department of
Customs and Excise to facilitate trade and freight movements across borders and at ports
and airports.
Transportation of hazardous substances
Issue
While classification systems for hazardous cargoes have
been implemented, there is no comprehensive integrated system for the control of the
movement of hazardous substances and for response to incidents.
Policy
Strict government regulations will be imposed to control
the transportation of hazardous materials and substances, so as to reduce the chances of
disasters occurring, and to place measures in place to deal with incidents immediately and
effectively.
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Small, medium, and micro enterprises
Issue
The road freight industry is currently dominated by large
operators. High capital costs of modern road freight vehicles, the high level of service
expectations of customers, and compliance with the road transport quality system (RTQS)
make it difficult for small operators to enter the industry.
Policy
The RTQS will be simplified, but quality standards will not
be relaxed.
The DoT will promote the entry of SMMEs to the road freight
sector, inter alia through formalisation of small operators, training in business
management, operator, driver and vehicle requirements, compliance with quality and safety
regulation, and identification of suitable niche markets.
CIVIL AVIATION
Aviation policy can be divided into two distinct areas,
namely, domestic policy and international policy. The reason for this division is that the
government has full power of decision over domestic policies, whereas it has to consult or
negotiate with other governments on international policies.
Domestic policies include policies on air transport,
aviation safety, airports and airspace.
International policies focus on international air transport
and relationships with international organisations and other governments or groups of
governments.
South African aviation policy has been extensively reviewed
and revised over the last five to six years. This, to a large extent, coincides with the
political changes that have occurred in the country. A policy framework for domestic
aviation, international aviation and for former State airports and air traffic and
navigation services is therefore already in existence. This framework was reviewed and
specific issues of concern were addressed during the review process.
Mission
"To maintain a competitive civil aviation
environment which ensures safety in accordance with international standards and enables
the provision of services in a reliable and efficient manner at improving levels of
service and cost while contributing to the social and economic development of South Africa
and the region".
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Strategic objectives
Civil aviation should promote the national interests of
South Africa in general, and facilitate and enhance the expansion of trade and tourism, in
particular
- Civil aviation policies should promote the development of an
efficient and productive aviation industry which is capable of competing both domestically
and internationally
- Economic decisions should, as far as possible, be subject to
general competitive principles applicable to all industries, with a view to maximising
consumer choice and needs satisfaction
- User interests are of prime concern, and aviation policies
should therefore serve the needs of passengers and other consumers
- Civil aviation policies should enhance the provision of
safe, reliable and efficient services
- Civil aviation should contribute to the development of human
resources, the meeting of basic needs, broadening participation in the economy and the
goals and objectives of the RDP, in general
- Control over the civil aviation industry should be
maintained within a well-defined regulatory framework that can cater for changing needs
and circumstances and ensure the provision of orderly, safe and reliable services
- Sovereignty of airspace should be retained and should
continue to be vested in the State
- Civil aviation policies should encourage participation in
the aviation industry by creating an environment where investors can realise adequate
returns on their investments
- International relations with other countries, groups of
countries and international organisations involved in aviation, should be promoted
- Any detrimental impact of civil aviation on the environment
should be minimised.
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POLICY STATEMENTS
Domestic air transport
Background
Over the past six years, South Africa has revised and
implemented its current domestic air transport policy. The salient feature of the current
policy is that it is based on the principle of open competition. The market was totally
deregulated economically, in 1991.
The current domestic air transport policy is based on four
basic principles, namely:
- Safety is of paramount importance, which means that the
quality of operators regarding those aspects which affect operational safety should be
enhanced
- Economic decisions should, subject to the general controls
over economic activity applicable to all industries, be left to competitive forces to
resolve
- Users' interests and views should specifically be taken into
consideration
- All participants in the domestic air transport market should
be treated equally before the law, meaning that operators should be subject to the same
rules.
The independent Air Service Licensing Council (ASLC) is
responsible for the licensing of domestic air service operators. There are five entry
criteria, none of which are economic in nature:
- The applicant's ability to provide a safe and reliable
service
- The applicant's adherence to the prescribed requirements for
insurance
- The requirement that 75% of the service be owned by South
Africans
- The requirement that, excepting with prior approval, South
African aircraft are to be used in providing the air service; and
- That the air service would actively and effectively be under
the control and management of the applicant.
- The Department of Transport's role is to ensure that an
applicant is able to provide a safe and reliable air service. This role is fulfilled by
issuing an operating certificate to a licensee every year.
Issue
The appropriateness of current policy within the new
political and economic environment needs to be reconsidered
The measure of overlapping of functions between the ASLC
and the International Air Services Council (IASC) on "safety" and reliability.
The recent demise of airlines in the domestic air transport
industry
Ownership of the three airlines owned by government as
parastatals. The issues are, inter alia: Should the State own airlines in a
competitive environment? Should State-owned airlines compete against one another? Does
this comply with the aim of a level playing field?
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Policy
The existing policy in respect of domestic air transport is
confirmed. The principles on which the domestic air transport policy are based will
continue to be:
- safety of paramount importance
- market driven services
- users' interests and
- equal treatment.
The Department of Transport and ASLC, in consultation with
stakeholders, will continue to refine the details of the policy, as and when necessary,
within the framework of the accepted principles. In addition, in order to reduce the
likelihood of future disruptions of services, the ASLC will strengthen financial entry
requirements for domestic services.
In order to meet the principle of equal treatment of all
participants in the market, which could be jeopardised by the State ownership of airlines,
the State will reduce its direct involvement in the provision of air services in what is
meant to be a deregulated and openly competitive environment. The Department of Transport
will inform the process on the restructuring of State assets in the transport sector, of
the policy guidelines on competition and equal treatment, with the request to consider
their implications on the proposed action plan.
Aviation safety
Background
The Department of Transport is responsible for aviation
safety. This includes the regulation of, and control over, pilot and other personnel
licensing, aircraft airworthiness and licensing, air navigation rules and rules of the
air, investigation of aircraft accidents and incidents, and so forth.
Policy
The Department of Transport will continue with the
application of its current aviation safety policies within the broad framework set by
ICAO, and will revise the current aviation regulations with a view to ensuring their
consistency with the ICAO framework.
Institutional arrangements
Issue
A lack of resources (personnel and funds) hampers the Civil
Aviation Authority (CAA) in carrying out safety and related functions effectively and
efficiently. This may well lead to the deterioration of our air services which in turn,
could affect international trade and tourism.
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Policy
The CAA will be restructured with a view to ensuring that
it fulfils its role and functions efficiently and effectively. Government will consider:
- the possibility of creating an independent authority
- various ways of funding the activities of the restructured
CAA or making it financially self sufficient
- the possibility of separating the function of investigation
of accidents and incidents from the restructured CAA and
- the establishment of an aviation court.
Airports and airspace
Background
As a result of the commercialisation of the former State
airports and the provision of air traffic and navigation services, and the provision in
Schedule 4 of the Constitution that certain airports are a concurrent national and
provincial function, the question arises as to what role national and provincial
governments should play in respect of airports. Various provinces have expressed interest
in constructing provincial airports. The question is therefore whether these initiatives
should be coordinated at provincial or national level.
The speed of modern aircraft, cost of air navigation
infrastructure and procedures associated with the control of air traffic, dictate a
seamless airspace with as much centralisation of control of the airspace as possible.
Globally, the need for more efficient management of airspace has been recognised, and
planning is being conducted around the potential of Future Air Navigation Systems (FANS),
including new requirements on communications, navigation, and surveillance and air traffic
management (CNS/ATM), which will allow the most efficient flight trajectories. A further
question is how to divide, assign and control airspace for various users. Management of
our airspace must, therefore, be conducted in a manner whereby the safest, most efficient
service can be provided to the benefit of all users, and in the interest of the State and
general public.
The former State airports and air traffic and navigation
services were commercialised in 1993 by transferring the responsibility for the operation
and management of the relevant infrastructure and services, from the Department of
Transport, to two companies, namely, the Airports Company Limited (ACL) and the Air
Traffic and Navigation Services Company Limited (ATNS). A Regulating Committee was
established to oversee the conduct of the companies. Specifically, the regulator is tasked
with striking a balance between the commercial interests of the shareholder (i.e. a fair
return on his investment), the need to conduct business efficiently and the needs of the
companies' clients and the general public - this is often referred to as a surrogate
market.
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Policy
A national policy on airports and airspace management will
be formulated.
All stakeholders, including the local authority, will be
consulted in the planning of airports.
South Africa will support and co-operate with ICAO in the
implementation of CNS/ATM.
The economic regulatory regime in terms of which tariffs
and levels of service for the core services rendered by the ACL and ATNS are regulated by
an independent Regulating Committee, is confirmed.
Strategies to attract foreign capital, technology and
management skills to ACL will be explored. ACL does not have to remain fully State-owned.
The ATNS will remain a fully State-owned public utility
operating with a focus on providing quality services and be able to recover the costs of
its operation and provide for expansion.
International air transport
Issues
The continued appropriateness of the current policy aiming
at the liberalisation of the international air transport market which was implemented in
1992.
The deregulation of international air freight services. The
current international air transport policy provides that certain categories of air freight
services be allowed without any economic control, and that other categories in turn, be
economically regulated. The enforcement of these policies poses a problem, in that certain
foreign carriers could by-pass the provisions of the policy and gain advantage over South
African carriers, resulting in a disadvantage to the country and its air carriers.
The provision of non-scheduled air transport services on
scheduled routes. The question of allowing non-scheduled services to operate on scheduled
routes is one which mainly entails the criteria that should apply for allowing these
services. Certain recommendations relating to the implementation of the current policy in
respect of non-scheduled services have not been implemented as was originally intended.
World trends in airline co-operation and their effect on
South Africa's policies. One of the major trends in global aviation is the co-operation
between airlines, in various ways, in order to become global competitors. Such
co-operation includes alliances, equity exchanges, code-sharing, franchising, branding and
a host of other forms. The most prominent of these is code-sharing. These forms of
co-operation potentially conflict with regulating regimes, could be anti-competitive and
could potentially, not be in the interest of the users.
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Policy
The following broad objectives will continue to be the
principles of the international air transport policy as set out in the International
Aviation Policy Document and International Air Services Act, namely:
- to encourage competition in the market place;
- to safeguard, where necessary, national interests;
- to encourage South African participation in the market.
The international air freight market will be deregulated as
far as South African airlines are concerned.
The current regulatory provisions regarding foreign cargo
airlines will be retained, and the deregulation of services by foreign operators to South
Africa will only be considered by the Government if reciprocity exists.
The Department of Transport, in consultation with
stakeholders, will evaluate its current policy in respect of non-scheduled services and
the implementation thereof, with a view to ensuring its compatibility with the broad
policy framework.
The Department of Transport, in consultation with
stakeholders, will formulate a policy on airline co-operation in general, and code-sharing
in particular, within a framework of promoting competition and co-operation.
International relations
Issue
South Africa is, and will become, a member of various
international organisations or groupings of countries. In most cases such organisations
have specified the goals and objectives they wish to attain, or have specific policy
guidelines for members. One example is SADC's creation of a regional air transport
authority, SARATA. The proposal is, inter alia, that SARATA negotiate traffic
rights with third countries for, and on behalf, of SADC and its member States. Another
example is the Declaration of Yamoussoukro, in terms of which African countries agreed to
work towards co-operating on the provision of air services.
Policy
Government will support international co-operation in
principle, within the framework of the strategic objectives of the international air
transport policy.
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Industry promotion
Policy
The aviation industry should promote itself to the various
levels of government and to the general public, with purpose of creating an awareness of
the value of civil aviation as a contributor to the economy of the country and the region,
and also, to expose the industry in all its facets to the community in order to promote
the recruitment, training and integration of persons of all communities.
Training
Policy
The Department of Transport will liaise and work with other
relevant government departments, and other stakeholders, towards the establishment of a
training accreditation system for aviation in the broadest sense, with the aim of
achieving a standard approach to education and training in this industry. The Department
of Transport will also, in partnership with the industry, participate in programmes aimed
at the training of persons for the industry.
MARITIME TRANSPORT
Maritime transport encompasses all forms of transport by
sea, intermodal links and inland ports but has certain fundamental differences from other
modes of transport. First, it caters almost entirely for the freight market, and offers no
significant passenger carrying ability. Second, as it operates in an international
environment, it is subject to considerable competition and economic pressure from foreign
competitors.
This policy review addresses maritime transport issues
relating to economic principles, trades and cargoes, ship financing and registration, the
operation of ships, ports, safety at sea, employment & training, and administration.
Mission
The mission of maritime transport policy is:
"To encourage and support the SA maritime transport
industry in a manner which underpins the four fundamental objectives of the RDP, gives
effect to the overall vision of transport and in so doing which:
Develops a maritime awareness in South Africa;
assists in the creation and fostering of an economic
environment for the Maritime Transport Industry which will allow it to compete on at least
an equal basis with the maritime carriers of other nations and South African land-based
carriers;
ensures safety of life and property at sea and the
prevention of pollution of the sea by ships;
ensures fair labour practices such as, employee rights,
job creation and security with acceptable standards of employee health, welfare and safety
in the maritime industry; and
contributes to the release of the full potential of the
maritime industry in South Africa and to the modernisation of shipping administration in
South Africa".
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Strategic objectives
The strategic objectives of maritime transport policy are:
- To facilitate and enhance the expansion of international
trade and tourism in general, and exports in particular
- To ensure that economic decisions are, as far as possible,
left to market forces, subject to general competitive principles applicable to all
industries, with the view to maximising consumer choice, need satisfaction and job
creation
- To promote the development of an efficient and productive
South African maritime industry capable of competing on international markets
- To maintain control over maritime services within a well
defined regulatory framework that is flexible enough to cater for changing needs and
circumstances and to ensure orderly, safe and reliable maritime transport services
- To promote international relations with other countries and
international organisations involved in maritime activities.
- To ensure cost effective and efficient shipping operation.
POLICY STATEMENTS
Economic principles
Policy
Maritime transport policy should attempt to foster and
maintain a competitive climate wherever appropriate and the Government will avoid
protectionist maritime practices and maintain an "open ports" policy.
Government recognises the South African shipping industry
as a fully-fledged exporter of services whose activities considerably strengthen the South
African balance of payments.
Government recognises the strategic importance of the South
African shipping industry and the external benefits it bestows on the wider economy.
Trades and cargoes
Issue
Without trade there can be no cargo. Without cargo there
cannot be a healthy shipping industry. Shipping is essential for the promotion and
preservation of fixed trade links between trading nations.
Terms of trade exercise considerable influence over the
benefit the country receives from the maritime industry. Buying Free on Board (FOB) and
selling Cost, Insurance, and Freight (CIF) allows the trader to nominate the carrier.
While South African cargo interests are encouraged to nominate South African carriers to
carry their cargo, any attempt to statutorily stipulate terms of trade would constitute an
unwarranted interference in trade.
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Policy
Government is committed to the promotion and continued
development of regular shipping services (and related infrastructural requirements)
between South Africa and its major trading partners within a well-defined regulatory
framework.
Commercial decisions will as far as possible be left to
market forces to be resolved and accordingly, subject to general economic principles
applicable to all industries, cargo interests should be free from interference in freight
negotiations.
Government will promote an interdepartmental initiative to
educate exporters of SA goods on the advantages of shipping their cargoes on SA vessels or
on CIF terms. This process should be an on-going and pro-active educational, support and
public relations exercise and should apply equally to importers buying FOB.
Ship financing , registration and the Fiscus
Issue
South Africa needs a modern ships register which is
efficient, which balances the interests of the nation, shipowners and seafarers in an
internationally acceptable manner, and which accords with principles of international law
relating to the necessity of a "genuine link" between the state of registry and
the shipowner. The register should be attractive to both local and foreign investors, but
in no way a "flag of convenience".
Policy
Government will promote interdepartmental and private
initiatives to ensure that administrative, fiscal and legal inhibitors to the development
of the SA register and its ancillary services are removed.
Fiscal aspects affecting shipping will be reappraised on an
interdepartmental basis with a view to initiating change where appropriate. These aspects
include income tax paid by seamen, shipowners and operators, exchange controls, and
duties, and a review of the ranking of claims under the Admiralty Jurisdiction Regulation
Act in line with international practice and conventions..
The operation of ships
Issue
South African shipowners do not enjoy the same competitive
advantages as many foreign carriers.
Both local and foreign owned vessels on the international
trades to and from South Africa are free to carry South African coastal cargo, but those
on international trades have the advantages of fuel at the international price, of
seafarers being exempt from income tax, of no import duties payable on ships spares, and,
in the case of many, of operation in low or no income tax regimes.
The industry has an enforced reliance on monopolistic
supply of port services by Portnet. This adversely affects the competitive position of
coastal carriage especially.
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Policy
The disincentives facing coastal shipping in relation to
other transport modes and foreign competition will be addressed at an interdepartmental
level and removed where appropriate.
Cabotage options will be monitored in the light of changing
international cabotage practices and attitudes. The introduction of cabotage protection
legislation on an African continental or Southern African regional basis will be
investigated.
South Africa will strive to increase its share of liner
shipping, and will monitor its options in relation to the UNCTAD Code in the future.
In order to promote the growth of South African shipping
interests in the dry bulk sector, research will be undertaken to establish how other
nations have successfully increased their market share in the shipment of bulk products
and to seek acceptable ways of emulating this.
The scope for bilateral shipping agreements which will
enable South African shipping interests to access markets which are currently inaccessible
will be explored.
Bilateral shipping or taxation agreements will be
negotiated with countries which levy freight taxes on non-resident shipowners so as to
eliminate or reduce foreign taxes.
Safety at sea and administration
Issue
A cohesive, co-ordinated and effective policy giving due
cognisance to internationally accepted principles of safety of life and property at sea as
well as to particular requirements of the South African coastline and the trades which ply
its waters, is a prerequisite to ensuring safe and orderly maritime transport.
There exists in international law and practice, a procedure
of Port State Control (PSC) by which a state may conduct limited safety inspections of all
vessels calling at its ports. PSC has demonstrably reduced the incidence of substandard
ships calling at ports where it is rigorously enforced. Further measures such as mandatory
ship reporting, are now legally enforceable under international law.
SAs full membership of the International Maritime
Organisation, and the development of international maritime controls such as improved flag
state vessel safety requirements and PSC, have however imposed greatly increased
obligations and burdens on the Chief Directorate: Shipping. The department is inadequately
staffed to cope with this burden.
There is an unsatisfactory overlap of departmental
jurisdictions relating to oil pollution at sea and to the investigation of maritime
casualties.
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Many SA maritime regulations are outdated and require
updating or repeal. Most require re-examination in the light of the Constitution of the
RSA. There are many international conventions which require examination to assess the
advisability of SA acceding to them.
The provision of a satisfactory well-prepared and
well-equipped salvage service and marine pollution reaction service for the South African
coastline is strategically necessary, and cannot be left to be funded entirely by the
private sector.
Policy
Government will improve the performance of Port State
Control as an effective means of deterring substandard ships and their owners from calling
at SA ports.
The resources of the Chief Directorate: Shipping will be
increased to enable it to deal satisfactorily with all maritime matters, including PSC and
the revision of legislation, to which end attention will be given to the creation of a
Maritime Safety Authority as an option.
Government will consider the creation of a statutory
National Navigation Authority under the auspices of the Department of Transport.
Although Government participation in salvage, directly or
indirectly will be discouraged as being a disincentive to the investment of the private
sector in the industry, the State will stimulate investment from the private sector in the
tug and salvage industry.
Port operations and administration
Issue
Ports play a crucial and strategic role in the facilitation
of seaborne trade. Ports are strategic assets serving the nation as a whole. The real
estate of South African ports is currently owned by Transnet Limited. The port authority
function is delegated to Portnet, an operating arm of Transnet, and services within the
ports are provided either by Portnet or by private enterprise. At present, Portnet
provides the majority of services. There is at present no external port regulatory and
monitoring authority. Portnet (through Transnet) enjoys a natural and legally structured
monopoly and acts also as its own regulator. Within its quasi-government though legal
corporate structure, Portnet also operates in direct competition with private operators
offering various services within SA ports.
The vagaries of international shipping, the profound
changes flowing from the displacement of breakbulk cargoes by containerisation, and trade
sanctions, have left a legacy in SAs ports characterised by a predominance of casual dock
labour over an ever dwindling permanent dock labour force. Any re-structuring of ownership
or operation of SA ports will need to take the interests of organised and unorganised dock
labour into account.
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Policy
A port authority (or authorities) with specific
responsibilities for the maintenance and development of port infrastructure will be
established.
Although the intention is that an independent port
authority (or authorities) be established at national level, there is no reason why a port
authority should not be devolved to provincial or metropolitan levels.
The port authority will have the function of administering
the port infrastructures, ensuring the long-term development of the ports to meet the
needs of the economy, regulating the operations in the ports by controlling tariffs and
service standards where this is necessary in a monopolistic situation, and providing, on a
cost recovery basis, essential port services not willingly taken on by private enterprise.
Since it will itself be a monopoly, the port authority will
be regulated by an independent regulator.
The port authority will be independent of any port
operating entity (or entities).
In order to promote low costs, high level of service, and
shipper choice in the port operations, a competitive environment will be created by
enabling private enterprise to offer port services.
All stakeholders, including all levels of government, will
be consulted in the planning of ports.
Employment
Issue
SA seafarers are currently not given the same protections
and rights in labour law as workers employed on land.
The SA shipping industry is currently experiencing a
shortage of skilled and adequately certificated SA seafarers, particularly in the deck and
engine room officer ranks. This problem is exacerbated by the presently fragmented
approach to training and development, and the declining resources available to
institutions.
Economic liberalisation in the ports, coupled with the
vagaries of shipping and cargo movements and consequent sharply variable labour
requirements have in the last twenty years led to wage competition particularly in
stevedoring and other parts of the cargo handling industry. This has in turn led to the
replacement of permanently employed dockers by casual workers.
The majority of workers in port cargo-handling operations
are unskilled with a high level of illiteracy, thereby limiting their ability and the
industry to adapt to technological change and improve efficiency and levels of service.
[ Top ]
Policy
The Department of Transport will liaise with other
Departments of Government to promote:
- The amendment of labour legislation to ensure that seafarers
employed by SA owners and operators are afforded the same rights and protections as other
workers,
- Correct management of any restructuring of employment in
ports,
- Involvement of labour in all developments affecting
employment, and
- The re-structuring of employment to ensure that the variable
labour requirement of port service providers are sourced from a common pool at equal unit
cost in order to reverse the casualisation of port employment and to improve working
conditions and efficiency of service.
The crisis of skills and basic education in the maritime
labour market will be urgently addressed through a concerted programme of education and
training to meet the growing demand for seafarers, and to improve the skills base of
existing employees in the industry.
Education and training must comply with domestic and
international standards as defined and required in the SA Qualifications Authority Act and
the STCW convention. Whilst Government, through the DoT will continue to act as the
competent authority administering the certification of seafarers in terms of the STCW,
Government will also work with and support the Maritime Industry Training Board in its
functions:
- as the competent standard setting and accreditation body for
training and education in the maritime industry, other than seafarers, under the SAQA Act;
- as a facilitator of education and training to ensure that
the training and education needs of employees and the industry are met; and
- as a sponsor of maritime training and education.
Government will also assist the MITB in its efforts to
arrive at appropriate and effective financing mechanisms which require minimum wastage of
resources on administration and enforcement.
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ROAD TRAFFIC AND SAFETY
Road traffic as a focus area of transport policy is
concerned with the quality of road vehicles (including motorised and non-motorised
vehicles); drivers of vehicles; operators of vehicles; pedestrians; road traffic
operations; the road environment; and interaction in the traffic network (including the
mutual interaction between road users and the interaction between road users, the road
infrastructure, and the road environment).
The concept "road traffic quality" encompasses
traffic safety; traffic discipline; the protection of the road infrastructure and the
environment; administrative order in road traffic; and economic order in road traffic.
The "functional areas of road traffic management"
are: road traffic control (law enforcement); adjudication of traffic offences; enhancement
of road user knowledge, skills and attitudes; incident management; road traffic
engineering (including transport and traffic engineering, traffic operations management,
and road vehicle engineering); and support functions (including traffic legislation,
information management, licensing and registration, and road traffic related research and
development).
Mission
The mission to be fulfilled by institutions and persons
involved in road traffic is:
"To ensure an acceptable level of quality in road
traffic, with the emphasis on road safety, on the South African urban and rural road
network".
The acceptable level of quality and road traffic related
needs are to be determined by the community. It will be determined and provided for by a
transparent, consultative, and accountable process.
Strategic objectives
The strategic objective in road traffic is to promote and
implement efficient, integrated, and co-ordinated road traffic management systems in the
country, involving the role-players in all functional areas of road traffic management.
The aim is:
- To improve road traffic safety
- To enhance road traffic discipline
- To protect the expensive capital investment in the road
system
- To enhance administrative and economic order in the field of
road traffic and transport
Specific objectives will be set for each of these aims.
Performance indicators will be established, and the achievement of these objectives will
be monitored by the relevant co-ordinating bodies.
[ Top ]
POLICY STATEMENTS
Road traffic safety
Issue
The unacceptable traffic conditions on South African roads,
and especially the high accident and casualty rates, must not continue.
Road traffic safety is not a function in itself, but rather
the result of the efficient and harmonious operation of road and traffic related
management systems, functions, and activities developed and implemented with the purpose
of improving quality in road traffic.
After a critical review of the situation and the manner in
which road traffic safety is currently managed, it is evident that a stronger approach
will be needed to effect a more drastic improvement in road user discipline and reduce
collisions.
Policy
The road traffic and safety management systems currently
being applied will be replaced with a new approach. In view of the urgency of addressing
this problem, support from other countries with records of success in this area will be
sought.
Through a consultative approach between the Department of
Transport and the provincial authorities, an integrated road traffic quality management
and monitoring approach will be introduced, which will address, inter alia:
- Road traffic control
- Legislation and adjudication
- Training, education, and communication
- Road traffic administration and information systems
- Road and traffic engineering.
Funding of road traffic management
Issue
The critical shortage in funds is the most fundamental
problem of road traffic management in South Africa. The unavailability of funds is
incongruent with the importance and priority that should be attached to traffic
management. Historically, the emphasis in road funding was heavily biased towards the
provision and maintenance of the road infrastructure. This bias needs to be rectified.
Policy
The respective roles and responsibilities of national.
Provincial and local governments in financing traffic management should be clearly
demarcated.
A balanced funding policy in road traffic will be
introduced. Spending priorities in the road and road traffic environment will continuously
be re-evaluated in view of traffic quality related road user needs, the adverse economic
impact of inadequate levels of road traffic management, and the expected benefits of
increased spending on traffic management.
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Existing funding, budgeting and prioritising procedures
will be adapted to ensure an increased availability of funds for traffic management
purposes. Reliable procedures for determining the minimum and optimum requirements in
respect of road traffic management resources will be developed and applied.
Additional and innovative funding strategies for traffic
management functions will be investigated and introduced. This will include the allocation
of a percentage of the roads budget for traffic control purposes. The introduction of a
traffic management levy to vehicle licence fees and fuel sales will be investigated. Steps
will be taken to strengthen the MMF, including the utilisation of money from the Fund to
manage road accident risk. The desirability of apportioning traffic fines and bails to
road traffic management funds instead of fines accruing to individual authorities and
general state or provincial revenue funds will be explored. For this purpose, dedicated
national and provincial road traffic management funds will be considered.
Road traffic control
Issue
Traffic control (law enforcement) is a priority of traffic
management, due to a severe breakdown in discipline on the roads, which in turn leads to
unsafe conditions, damage to the road infrastructure, etc. The lack of discipline can only
be rectified through strong proactive and reactive control actions. The effectiveness of
the traffic control function must be improved substantially.
Some specific problems of traffic control have arisen in
the road freight sector since the deregulation of road freight transport and the
democratisation of the industry, and there has been a significant growth in traffic
related transgressions and disobedience. Of particular concern is the overloading of heavy
vehicles.
Policy
A simplified Road Transport Quality System (RTQS) will be
enunciated and fully implemented as a matter of urgency. The emphasis of RTQS on operator
fitness and operator liability is reaffirmed, and operator compliance with the RTQS will
be stressed. Programmes to control speed, alcohol and drugs related offences, and the
overloading of vehicles will receive special attention.
The autonomy of the provincial and local governments with
regard to traffic control, as well as the need for regional, provincial, national and
international co-ordination and harmonisation, and for mutual support between traffic
services, are emphasised. On the national level, co-ordination and harmonisation in
traffic control will be achieved through the MINCOM/COLTO consultative structure.
Provinces should facilitate the establishment of liaison structures between the
provincial, metropolitan, regional and local levels of government. On the international
level, the co-ordination and harmonisation is the responsibility of the national
Department of Transport, and will be achieved through the structures established for this
purpose.
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Due to the specialised nature of road traffic control as a
transport function, traffic departments should not be merged with the SA Police Service,
but should gradually take over the traffic control functions of the SAPS, especially the
function of investigating accidents. The principle that traffic control is primarily a
transport and traffic function, will not be violated, and the existing emphasis placed by
traffic departments on road traffic matters will not be reduced. Traffic control should
remain a function managed in terms of transport and traffic legislation and policy.
Regarding areas of mutual interest, the legislation and policies controlling the various
functions should be harmonised, on the national, provincial and local levels. The
necessary negotiations with the SA Police Services and the Ministry of Safety and Security
will be conducted by the Department of Transport in conjunction with the provinces.
The problems resulting from the lack of trained traffic
personnel and enforcement equipment will be addressed through support for the introduction
of special highly trained enforcement task teams, special programmes to build the capacity
of traffic control services in disadvantaged communities, introducing community based
traffic control services, improving the level of co-operation between traffic authorities
and the public, and engendering a spirit of voluntary compliance with the law among road
users.
The level of professionalism and the image of the traffic
control profession will be enhanced. This will be done through the introduction of a
traffic academy for advanced training of traffic officers on the tertiary level; the
continuous re-evaluation of training standards; the improvement of career development
possibilities of traffic officers and their conditions of employment; and the introduction
of a professional body responsible for maintaining standards and of a professional code of
practice.
A national performance incentive scheme for traffic
authorities, with performance incentive funds linked to the achievement of certain preset
standards and the achievement of certain targets, will be introduced under the auspices of
the appropriate consultative structure.
Adjudication of traffic offences
Issue
Traffic control is incomplete without the finalisation of
prosecutions in courts or through administrative sanction. The effective co-operation
between the traffic control and adjudication functions is therefore an essential component
of traffic management. In general, there is a positive relationship between traffic
departments and the judiciary. However, a number of notable problems are being experienced
with regard to the co-operation between traffic control and the adjudication function.
These problems are perceived to contribute to a lack of respect for the law, prevailing
among a large percentage of South African drivers. Innovative and realistic solutions to
these problems, that will honour true legal principles while not compromising the
effectiveness of traffic control in achieving its goals, are essential. For example, it
has been proposed that criminal offences under the Road Traffic Act be categorised and
included in an administrative system of law enforcement which will effectively
decriminalise the bulk of road traffic offences. This would allow the authorities
concerned to exercise satisfactory control without having to rely primarily on the
criminal sanction, which would be reserved for the more serious offences.
[ Top ]
Policy
The Department of Transport will liaise with the Department
of Justice in regard to the following policy proposals:
- The decriminalisation of certain traffic offences to ensure
that the process of adjudicating traffic offences will be brief, strict and decisive. The
feasibility of decriminalising all traffic offences except reckless, negligent and
inconsiderate driving, will be investigated.
- Standardisation of the requirements set by Attorneys-General
in respect of the utilisation of technological aids in traffic control.
In respect of non-decriminalised offences, support from the
judiciary to overcome problems experienced with the prosecution of operators; the
standardisation of fines and other arrangements made by the judiciary; the possible
introduction of dedicated special traffic courts as a general procedure; and the
introduction of the compulsory attendance of traffic schools as a form of sanction.
[ Top ]
Improvement of road user knowledge, skills and attitudes
Issue
A solution of road traffic problems can only be reached if
the need to focus on the human aspects of road traffic is fully recognised. The
improvement of road user knowledge, skills and attitudes as a road traffic management
function is targeted as a priority, due to the inadequate emphasis of this function in the
past, and in view of the extreme importance of this function in achieving acceptable
levels of road traffic quality.
Policy
All categories of road users will continuously be exposed
to a purposeful programme targeted at enhancing their knowledge, skills and attitudes, at
promoting their voluntary compliance with the law, and at developing community ownership
and participation in enhancing road traffic quality.
Road user knowledge, skills and attitudes will be enhanced
by a comprehensive approach, including formal education within a formal educational
setting, non-formal education in non-educational organisations, and informal education
where media such as radio television, posters, pamphlets, etc are used.
Traffic control (law enforcement) programmes will be
supported by well researched promotional and motivational programmes, so as to create the
necessary public understanding of their responsibilities, public understanding of the
reasons for the existence of the law, and public acceptance and support for their control
activities; to increase public awareness of the control programmes; and to enhance the
effectiveness of the programmes.
Resources will be made available for the enhancement of
road user knowledge, skills and attitudes.
Road traffic administration and information systems
Issue
Insufficient road traffic related management information is
currently available. In order to manage road traffic matters effectively and efficiently,
current and reliable information in respect of vehicles, their owners, operators, drivers,
accident, offences, convictions, etc. is required. Information management, and
specifically the finalisation of the National Traffic Information System (NaTIS) as well
as other supporting systems have been identified as being of critical importance.
Traffic information required for planning, monitoring and
control purposes, should be available to management at all levels (local, provincial and
national) according to their functions and needs.
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Policy
NaTIS will be made fully operational as soon as possible.
The Department of Transport will continue liaising with the
provinces to achieve compatibility of all information systems (including the non-NaTIS
systems), and the provinces should attend to this issue in their own areas. Standardised
databases for road traffic aspects not covered by NaTIS will be made available to all of
the relevant authorities.
Incident management
Issue
Incident management, including the rendering of medical
rescue services after accidents occurred, need to be enhanced. The development,
implementation and operation of incident management plans, would improve the effectiveness
and efficiency of the services rendered, and minimise reaction times. Specific attention
requires to be given to the procedures for the management of incidents where hazardous
substances are involved, and the necessary emergency systems to deal with the various
types of hazardous material, must be developed. The co-ordination and co-operation between
the various parties concerned with providing road traffic related emergency services is
inadequate.
Policy
Existing guidelines on the content of an incident
management plan should be used by road traffic authorities.
Government will implement an incident management system on
all national roads.
The engineering discipline
Background
The engineering discipline as a road traffic function
involves transport and traffic engineering, operations management, and road vehicle
engineering.
Policy
Government is cognisant of the need to apply sound
engineering in the quest to improve traffic safety, and traffic safety will be addressed
in a balanced manner embracing the Engineering, Education, and Enforcement functions.
In the area of transport and traffic engineering, road
traffic quality (with the emphasis on safety) will be made an important theme in all
phases of providing the road infrastructure, namely the planning, design, construction,
in-service and evaluation phases. National guidelines on these and other relevant aspects
not yet adequately addressed in existing standards, will be developed.
[ Top ]
Traffic operations management will ensure road traffic
quality and the orderly flow of traffic at acceptable levels of service. Guidelines on the
uniform use of traffic engineering control devices will be developed as a joint effort
between the three levels of government. Road authorities should annually conduct a traffic
quality audit of the road networks under their control, consisting of a systematic
evaluation of all traffic quality and service level related aspects of the network.
Existing vehicle roadworthy standards in the SABS 047 will
be enforced. Roadside testing of the compliance of vehicles with critical roadworthy
requirements will be increased.
International harmonisation of road traffic policy
Issue
Since the recent normalisation of the relationship between
South Africa and the other African countries, the trade and tourism links between South
Africa and these countries have been expanded tremendously. The result is a significant
growth in road traffic volumes between the relevant countries, and a growing need for
harmonisation of policies and legislation.
Policy
Government will support the formulation and implementation
of the SADC Transport and Communications Protocol. Every opportunity will be taken to base
policies and standards on international norms, particularly those of the United Nations.
Traffic Legislation
Traffic legislation will be co-ordinated and harmonised
under the guidance of the MINCOM/COLTO consultative structure, in accordance with the
relevant agreements between the provinces and the national Department of Transport. The
Department of Transport will take the necessary steps to ensure the road traffic laws will
be harmonised in the Southern African region.
Traffic laws should be effective in achieving order on the
roads, but should at the same time be practical, cost effective, oriented towards real
road user needs, and easy to implement. Specific emphasis will be placed on the full
implementation and enforcement of the RTQS.
Road Traffic Research
Guidance on research needs with regard to road traffic will
be sought from the MINCOM/COLTO consultative structure, and the funding process for
research will in future not only be focused on the execution of research projects but also
on the implementation of the findings and the evaluation of their impact.
[ Top ]
THE WAY AHEAD
After approval of this White Paper, the resulting policies
will provide a framework for the future actions of the Department of Transport.
Those elements of the new policy which require only
administrative action will be implemented immediately.
Those elements of the new policy which require major
changes from existing practice may not be implementable immediately. In such cases, in
discussion with the stakeholders affected, the implementation will be phased over a
transitional period in a planned manner, inter alia to give time for the development of a
stable institutional capacity to manage the implementation.
In the case of policy elements requiring new or amended
legislation appropriate bills and regulations to implement the policy decisions will be
prepared for submission to Parliament in a subsequent session.
The White Paper also provides a framework within which
other transport institutions - government, statutory and private - should tailor their
individual policies and strategies.
In the longer term, specific goals, strategies, and action
plans to proactively lead the South African transport system into the desired vision of
the future will be developed through the Department of Transport's "Vision 2020"
project.
LIST OF ABBREVIATIONS
ACL Airports Company
AFCAC African Civil Aviation Council
ASLC Air Service Licensing Council
ATNS Air Traffic and Navigational Services Company
BOT A build, operate and transfer contract
CAA Civil Aviation Authority
CIF Cost, Insurance, and Freight
COASA Coach Operators Association of South Africa
COF Certificate of Fitness
COLTO Committee of Land Transport Officials
CNS/ATM Communications, navigation and
surveillance/air traffic management
CTP Constitutional Transformation Process
DMEA Department of Mineral and Energy Affairs
DoT Department of Transport (National)
DTI Department of Trade and Industry
ECA Economic Commission for Africa
EIA Environmental Impact Assessment
FANS Future Air Navigation Systems
FOB Free on Board
FROM A fund, rehabilitate, operate, and maintain
contract
GIS Geographic Information System
GNU Government of National Unity
IASC International Air Services Council
ICAO International Civil Aviation Organisation
LRTB Local Road Transportation Board
LTA Local Transport Authority
LTCC Land Transport Co-ordinating Committee
MINCOM Ministerial Conference of Ministers of
Transport
MITB Maritime Industry Training Board
MMF Multilateral Motor Insurance Fund
MTA Metropolitan Transport Authority
NaTIS National Traffic Information System
NQF National Qualifications Framework
NTC National Transport Commission
NTTT National Taxi Task Team
OECD Organisation for Economic Co-operation and
Development
PrDP Professional Driver Permit
PSC Port State Control
RDP Reconstruction and Development Programme
ROI Return on Investment
RTQS Road Transport Quality System
SAA South African Airways
SABOA South African Bus Operators Association
SABS South African Bureau of Standards
SACO South African Commuters Organisation
SADC Southern African Development Community
SAPS South African Police Service
SAQA South African Qualifications Authority
SARATA Southern African Regional Air Transport
Authority
SARB South African Roads Board
SARCC South African Rail Commuter Corporation
SATCC Southern African Transport and Communications
Commission
SMME Small, medium, and micro enterprises
STCW Standards of Training, Certification &
Watchkeeping
TAC Transport Advisory Council
Transnet Transnet Limited, with operational
divisions of Autonet, Petronet, Portnet, SAA, and Spoornet
UNCTAD United Nations Conference on Trade and
Development
[ Top ]
EXPLANATIONS OF TERMINOLOGY
Concession - is the authority and contract to
operate a road, rail line, or network at an agreed price. It could be awarded to either
the public or private sector.
Contract - is an agreement between an
authority and an operator regarding the delivery of a service at an agreed price.
Framework - is an outline or skeleton which
provides the structure and form around which a plan or policy or strategy is constructed.
Goal - a goal is an idealised end-state of
the system or a desired direction of the evolution of the system.
Integrated plans - plans which encompass a
system which includes land use, spatial development, infrastructure, services and the
finance thereof.
Intermodal transportation - is the concept of
transporting freight in such a way that all the parts and facets of the transportation
process, including information exchange, are efficiently linked and coordinated, offering
flexibility, irrespective of the particular transport mode or modes used. It is not just
the infrastructure, vehicles, rolling stock or equipment involved, but the management and
operation processes. The true advantage of intermodalism is the ability to logistically
and effectively link two or more modes of transportation for the benefit of customers and
users.
Issue - an issue arises in a national,
district or local community when there are conflicting goals and objectives (desires or
perceptions) within the community.
Land passenger transport - is a generic term
which describes the movement of people by land-based travel modes, including movement by
motorised and non-motorised modes, and on foot. It encompasses both urban and rural
passenger travel, for any purpose, by both private and public travel modes.
Land passenger transport planning
- is a
comprehensive and integrated process for generating a plan relating to the regulation and
management of transport infrastructure (roads, rail, stations, terminals and public
transport facilities) and for regulating public transport operations/services and the use
of infrastructure by both operators of public transport and private travellers. Because of
the spatial relationship between human and economic activities, resulting in the demand
for travel, it is essential that an integrated passenger transport plan should be
developed in the context of a land use plan which is supportive of efficient land
passenger transport.
[ Top ]
Logistics - is the process of planning,
implementing, and controlling the efficient, cost-effective flow and storage of raw
materials, in-process inventory, finished goods, and related information from point of
origin to point of consumption for the purpose of conforming to customer requirements
Objective - an objective is a target, the
attainment of which will help towards reaching a stated goal.
Passenger transport - is a generic term which
describes the movement of people by any travel mode, including movement by motorised and
non-motorised modes, and on foot. It encompasses inter-city, urban and rural passenger
travel, for any purpose, by air, sea and over land and by both private and public travel
modes.
Permission - the authority to operate a
public transport route or network without subsidy.
Permit - the current authority or licence to
operate a public transport service in terms of the Road Transportation Act (1976).
Plans and planning - a plan is a product of
the process of planning which is an organised method by which things are to be done. In
the transport context, a plan is a vision of the desired future condition, a set of
objectives to achieve the vision, policies to regulate the transport system, strategies,
actions and projects to implement the plan and a financial statement and budget.
Policy - a policy is an adopted framework or
basis for the action needed to overcome identified problems and achieve stated goals and
objectives.
Problem - a problem is an unfulfilled or
unattained goal or objective.
Public transport - is the conveyance of
people or freight for reward by any travel mode whether car, metered taxi, minibus-taxi,
bus, tram and light and heavy rail.
Seamless transport services - a user-friendly
service from origin to destination which is not disrupted by time-consuming or costly
transfers between unco-ordinated modes or carriers, or by compliance with non-integrated
formalities at border crossings
Strategy - a strategy is a plan or programme
of action to be taken in terms of a policy. Such action may often take the form of a
series of projects.
Subsidiarity - is the exercising of devolved
power at the lowest competent level of government.
Tendered contract - the authority to operate
a public transport route or network at tendered contract rates.
Vision - a vision is a commonly-shared
foresight of future conditions.
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PARTICIPANTS IN THE REVIEW PROCESS
The policy review process has been as inclusive as
possible. Individuals and representatives of the following organisations have participated
in meetings of the Steering Committee, Working Groups, Plenaries, and Workshops:
Aero Club of South Africa
Aerospace Industry Training Board
African Consulting Engineers Inc
Africon Engineering International (Pty) Ltd
Air Traffic and Navigation Systems Company (ATNS)
Air Service Licensing Council (ASLC)
Aircraft Owners and Pilots Association
Airline Pilots Association of South Africa
Airlines Association of Southern Africa (AASA)
Airports Company Limited (ACL)
Amalgamated National Commuters Organisation
Association of Motorcycle Importers and Distributors
Association of Marine Underwriters in SA
Automobile Association of SA (AA)
BKS Incorporated
Board of Airline Representatives
Chartered Institute of Transport in Southern Africa (CITSA)
City of Cape Town City Planner's Department
City Engineer, Bloemfontein
City Engineer's Department, Pretoria
City of Durban Traffic and Transportation Department
Coach Operators Association of Southern Africa (COASA)
[ Top ]
Colas
Commercial Airways (Pty) Ltd (COMAIR)
Commercial Aviation Association of Southern Africa (CAASA)
Consilium Legis CC
Consumer Council
CSIR Division of Roads and Transport Technology
Deloitte and Touche
Department of Environmental Affairs & Tourism
Department of Public Transport and Roads, Gauteng
Department of Public Transport, Free State
Department of Public Transport, Northern Province
Department of Public Works and Roads, Free State
Department of Public Works, Roads, and Transport,
Mpumalanga
Department of Transport and Public Works, Western Cape
Department of Transport, Eastern Cape
Department of Transport, KwaZulu-Natal
Department of Transport, National
Department of Transport, Northern Cape
Department of Transport and Aviation, Northwest Province
Development Bank of Southern Africa
Drive Alive
Durban Physical Environment Service Unit
Durban Transport
Fischer and Associates
Freight Forwarders Association
Golden Arrow Bus Services (Pty) Ltd
Greater Johannesburg Transitional Metropolitan Council,
Metropolitan Planning
Institute of Traffic Officers of Southern Africa
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Johannesburg Metropolitan Action Group
Maritime Industry Training Board
Maritime Law Association
Max Braun and Associates
MECs for Roads, Transport, Public Transport, and/or Public
Works of the Provinces
Metrorail
Monitor Company Africa
Motor Transport Workers Union (SA)
Municipal Health & Allied Workers Union
National Association of Automobile Manufacturers of South
Africa
National Association of Automotive Component and Allied
Manufacturers
National Environmental Accessibility Programme
National Association of Bus Operators
National Black Consumers Union
National Federated Chambers of Commerce (NAFCOC)
National Federated Transport Organizations
National Taxi Task Team (NTTT)
National Transport Forum (NTF)
Ninham Shand Incorporated
Office of the Attorney General
Office for Public Enterprises
Organised Taxi Industry
Parliamentary Portfolio Committee on Transport
Peninsula Technikon, Department of Civil Engineering
Randse Afrikaanse Universiteit, Department of Transport
Economics
Road Freight Association (RFA)
Robertson and Hitchins
Safmarine
Senate Select Committee on Transport
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South African Airways (SAA)
South African Association of Consulting Engineers (SAACE)
South African Bitumen and Tar Association (SABITA)
South African Black Taxi Association (SABTA)
South African Bureau of Standards (SABS)
South
African Chamber of Business (SACOB)
South African Commuters Organisation (SACO)
South African Deep-Sea Trawling Industry Association
South African Federation of Civil Engineering Contractors
(SAFCEC)
South African Inshore Fishing Industry Association (Pty)
Ltd
South African Institute of Driving Instructors
South African Institution of Civil Engineers (SAICE)
South African Long Distance Taxi Association (SALDTA)
South African Metered Taxi Association
South African National Civic Organisations (SANCO)
South African Navy, Chief of Naval Staff Operations
South African Rail Commuter Corporation Ltd (SARCC)
South African Railway and Harbours Workers Union (SARHWU)
South African Road Federation (SARF)
South African Roads Board (SARB)
South African Taxi Drivers' Union
Southern African Aviation Safety Council (SAASCo)
Southern African Bus Operators Association (SABOA)
Southern African Transport and Telecommunications
Commission (SATCC)
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Stewart Scott Incorporated
Technikon Pretoria, Faculty of Engineering
Technikon M L Sultan
Thebe Investments/SA Express
Tolcon
Toll Highway Development Company (Pty) Ltd
Transnet (Petronet, Portnet, Spoornet)
Transport and General Workers Union (T&GWU)
Transport Consultative Committee (TCC)
Trencor
Trawler and Line Fisherman's Union
TRC Africa (Pty) Ltd
Unicorn Lines (Pty) Ltd
Unitrans
University of Cape Town, Institute of Marine Law
University of Durban-Westville, Department of Civil
Engineering
University of Natal, Economic Research Unit
University of Natal, Geography Department
University of Pretoria, Department of Civil Engineering
University of South Africa, Department of Transport
Economics
University of Stellenbosch, Department of Civil Engineering
University of Stellenbosch, Institute for Futures Research
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COMMENTS ON THE GREEN PAPER
The
Green Paper on National Transport
Policy was released to the public on 7th March 1996, and comments invited by 30th
April. Comments were received from:
Afrikaanse Handelsinstituut (AHI)
Air Traffic and Navigation Services Company Limited (ATNS)
Alfred County Railway
Association of Shipping Lines; Association of Ships Agents
and Brokers of Southern Africa
Automobile Association of South Africa (AA)
Beek, C Z A
Bus Division of Dorbyl Limited (BUSAF)
Cape Metropolitan Council
Chamber of Mines of South Africa
City of Cape Town City Planner's Department
City of Durban Traffic and Transportation Department
Clark, Peter
Coach Operators Association of Southern Africa (COASA)
Department of Constitutional Development
Department of Environmental Affairs and Tourism
Department of Foreign Affairs
Department of Health
Department of Home Affairs
Department of Mineral and Energy Affairs
Department of Public Transport and Roads, Gauteng
Department of Transport and Public Works, Western Cape
Department of Welfare
Development Bank of Southern Africa (DBSA)
Durban Transport
East London Metropolitan Transport Advisory Board
Floor, B C
Golden Arrow Bus Services (Pty) Ltd
Greater Johannesburg Transitional Metropolitan Council
Ian Morton and Associates
KwaZulu-Natal Taxi Task Team
Midrand Transport Association
Ministry of Agriculture
Morris, Pauline
Motor Transport Workers Union (SA)
National Association of Automobile Manufacturers of South
Africa (NAAMSA)
National Taxi Task Team (NTTT)
Nimmo, John
Pedal Power Foundation of Southern Africa
Policy Research Corporation NV, Antwerpen
Port Elizabeth City Engineer's Department
Potchefstroom Transport Forum
Road Freight Association (RFA)
Road Transport Industry Education and Training Board
(RTIETB)
Royal Holloway University of London
SAFSHIP
SAFTAINER
Selepe, Godfrey, ANC Policy Department
Shell and BP South African Petroleum Refineries (Pty) Ltd
Society of Master Mariners of South Africa
South African Agricultural Union
South African Bureau of Standards
South African Chamber of Business (SACOB)
South African Commuters Organisation (SACO)
South African Federal Council on Disability
South African Institution of Civil Engineers
South African Insurance Association
South African Rail Commuter Corporation Ltd (SARCC)
South African Railway and Harbours Workers Union (SARHWU)
South African Road Federation (SARF)
South African Shipowners Association
South African Shippers Council
Southern African Bus Operators Association (SABOA)
Sowman, R
Transnet (Petronet, Portnet, Spoornet)
Transport and General Workers Union (T&GWU)
Transport Consultative Committee (TCC)
Transport 2000 SA
Transportation Technology Development Task Group
University of Natal Department of Civil Engineering
University of Pretoria Department of Civil Engineering
Western Services Council (Gauteng)
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Last modified: 23 April 2008 12:54:26. |
