Gon 3119

STAATSKOERANT, 3 Maart 2023 No.
48176 3
General Notices • Algemene Kennisgewings
DEPARTMENT OF TRANSPORT
NO. 3119 3 March 2023

National Land Transport Strategic Framework (2023 -
2028)
PUBLICATION FOR COMMENTS: NATIONAL LAND TRANSPORT STRATEGIC

FRAMEWORK (2023 -2028)
National Land Transport Strategic Framework (2023 -2028) is hereby published for
public comments.
Any interested persons are requested to submit written comments in connection with
the National Land Transport Strategic Framework (2023 -2028), within 30 days from
the date of publication of this notice in the Government Gazette.
All comments should be posted to the Director-General of the Department of Transport

for the attention of Ms E. Neluvhalani:
Department of Transport
Private Bag x 193
Pretoria 0001
Or alternatively Email to: NLTSF@dot.gov.za Tel: (012) 309-3304
This gazette is also available free online at www.gpwonline.co.za

4 No. 48176 GOVERNMENT GAZETTE, 3 March 2023
NATIONAL LAND TRANSPORT

STRATEGIC FRAMEWORK
2023 - 2028

STAATSKOERANT, 3 Maart 2023 No. 48176 5
National Land Transport Strategic Framework (2023 -2028)

EXECUTIVE SUMMARY
This National Land Transport Strategic Framework (NLTSF) is a legal requirement in terms of the
National Land Transport Act, 2009, NLTA, (Act, No.5 of 2009), section 34. The NLTA empowers
the Minister to prepare a National Land Transport Strategic Framework (NLTSF) every five-years.
It embodies the overarching, national five-year (2023 to 2028) land transport strategy, which
gives guidance on transport planning and land transport delivery by the national government,
provinces in the development of Provincial Land Transport Frameworks (PLTFs) and municipalities
in the development of the respective Integrated Transport Plans (ITPs) for the five-year period.
Besides the legislative requirements; the recent developments in the transport environment
internationally; regionally (Africa); at national, provincial and local levels as well as the new
strategic objective of the current administration, dictates the proposed review and update of the
NLTSF. The Public Transport Strategy and the Action Plan, the approval of the National
Development Plan (NDP) by government, National Learner Transport Policy, National Rail Policy
White Paper 2022, Master Plan 2050 (NATMAP 2050), including the strategic imperatives of the
current administration that might have an impact on the development of the NLTSF five-year
horizon and many other developments in the transport environment needed to be considered in
the review and update of the Framework.
Nationally there are Constitutional implications for transport planning, which affect the right to
safety, equality, dignity, and freedom of movement. The NLTSF sets out strategic priorities to
apply transport planning in achieving social, health, economic and environmental outcomes. The
identified strategic priorities and outcomes link the Framework to the NDP, NATMAP, provincial
and municipal transport and spatial planning (SDF’s, CITP, Bulk Infrastructure Master Plans and
DDM’s at Local Government level).
The purpose of the NLTSF is:
• To serve as a five-year framework for integrated land use transport planning
• To serve as an enabler of land use and transport planning aspects as guided by the National
Development Plan (NDP) 2030
• To provide the guiding principles that integrates various modes of land transport within
the planning context of the NDP and support wider relevant national legislation and policy
• To provide clarity and certainty about the transport planning priorities to enable effective
decision-making about programmes and initiatives at all levels of government
• To align transport to sustainable development., and universal accessibility.
• To enhance coordination between the various spheres of government.
The NLTSF is a framework for Transport Planning; effectively for all spheres of government. It sets
the overarching goals, vision, and objectives for each element of the transport system which would
be reflected in the Provincial Land Transport Frameworks (PLTFs) and Integrated Transport Plans
(ITPs), and which must align with the NLTSF. The success in achieving these objectives depends
on the implementation of the transport programmes and projects that emanate from the respective
PLTFs and ITPs reflected through the Key Performance Areas as defined in the NLTSF.
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 i

The overall vision of the NLTSF is to create:
An integrated and efficient land transport system supporting a thriving economy that
promotes sustainable economic growth, provides safe and accessible mobility options,
socially includes all communities and preserves the environment.
“The National Land Transport Strategic Framework must serve to guide land transport planning
country wide and must not derogate from the constitutional planning functions of provinces and
municipalities.”
An efficient, effective, integrated, universally accessible and sustainable transport system is one
of the most critical factors for the performance of the South African economy, its growth and the
creation of the employment and wealth necessary to help overcome the significant social
challenges. An efficient transport system will further benefit export and transit links within the
SADC region.
The NLTSF defines the strategies and policy intent of the Department of Transport relevant to key
priority areas in land transport over the next five-year period to achieve the vision. While not being
prescriptive and detailed, it is sufficiently flexible in that stakeholders are expected to adopt the
relevant intentions and guidance of the NLTSF and apply it to local needs and circumstances.
The functional areas that are covered include the following:
1) Integrated Land Use and Transport Planning
2) Urban Transport and Smart cities
3) Universal accessibility
4) Rural Transport
5) Public Transport
6) Non-Motorised Transport
7) Learner Transport
8) Freight Transport
9) Transport Infrastructure
10) Cross-Border Transport
11) Transport safety and security
12) Institutional management
13) Funding
A vision, strategic intent and key performance areas have been developed for each functional area.
Key performance indicators (KPIs) are provided to measure the effectiveness of the NLTSF, ensure
accountability by the DoT and the planning authorities, and monitor value for money.
Proper monitoring and review of the KPIs will ensure a balanced view at the national, provincial,
regional and local levels of the critical role of transport services in reducing poverty, facilitating
growth and contributing to achievement of key development targets and sustainability. The DoT
established the National Transport Forum (NTF), which will assist the effectiveness of the NLTSF
through all spheres of government.
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 ii

Funding for transport infrastructure and operations for new development, management and
maintenance of the transport system is a prerequisite to achieving the goals and vision of the
NLTSF.
The NLTSF requires that transport schemes including public transport investments should follow a
rigorous formal appraisal that covers the full range of impacts of improved public transport
systems and prioritise projects in accordance with the overarching goals of the NLTSF. All
transport schemes and major Integrated Public Transport Networks (IPTN) project interventions
must be supported by a strong socio-economic case for investment., and by institutional
commitment from municipalities with their associated provinces.
The NLTSF aims to establish a legacy beyond 2028 based on the principle of sustainability,
universal accessibility and prioritising facets of the transport system that would create a firm
foundation for the development of an integrated efficient transport system.
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 iii

TABLE OF CONTENTS
Page
EXECUTIVE SUMMARY i
TABLE OF CONTENTS i
LIST OF FIGURES iii
LIST OF ABBREVIATION iv
INTRODUCTION 1
1.1 Purpose of the NLTSF 2
1.2 The role of the Department of Transport 2
1.3 Supporting current policy direction 3
1.4 Structure of the document 3
POLICY CONTEXT FOR THE NLTSF 5

2.1 National Development Plan 2030 5
2.2 Medium Term Strategic Framework 6
2.3 The National Spatial Development Framework
(NSDF) and Its Implication On Transport 7
2.4 Environmental protection and sustainability 8
2.5 DoT Revised Strategic Plan 2020/21 – 2024/25 10
2.6 National Transport Master Plan 2050 11
2.7 NLTSF 2017 12
2.8 Other strategies and policies 12
CURRENT REALITIES 14
3.1 Background 14
3.2 Key challenges 14
3.3 Summary of the current realities in the transport industry 30
NLTSF VISION 32
4.1 Land Transport Vision 32
4.2 Department of Transport’s position on
sustainability and universally accessibility 33
4.3 NLTSF overarching goals 35
4.4 Reviewed functional areas for the NLTSF 39
THE STRATEGIC FRAMEWORK 41

5.1 Integrated Land Use and Transport Planning 42
5.2 Urban transport and Smart Cities 43
5.3 Universal Accessibility 46
5.4 Rural Transport 48
5.5 Public transport 49
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 i

5.6 Non-motorised transport 52

5.7 Learner transport 53
5.8 Freight transport 54
5.9 Transport infrastructure 56
5.10 Cross-border transport 57
5.11 Transport safety and security 58
5.12 Institutional management 62
5.13 Funding 65
HOW WILL THE FRAMEWORK BE DELIVERED? 67

6.1 Development of programmes 67
REVIEW, MONITORING AND EVALUATION 69
REFERENCES 74
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 ii

LIST OF FIGURES
Figure 1 Structure of the NLTSF .......................................................................... 4
Figure 2 Dimensions of sustainability as defined in the NTF ....................................33
Figure 3 Land transport strategic philosophy ........................................................41
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 iii

LIST OF ABBREVIATION
AARTO- Administrative Adjudication of Road Traffic Offenses Act
BBBEE – Broad-Based Black Economic Empowerment
BMA – Border Management Authority
BRT – Bus Rapid Transit System
CCTC – Central Communications Transport Centre
CITP – Comprehensive Integrated Transport Plan
COGTA – Cooperative Governance and Traditional Affairs
COTO – Committee of Transport Officials
CPTED – Crime Prevention Through Environmental Design
CPTR – Current Public Transport Register
CSIR – Council for Scientific and Industrial Research
DBE – Department of Basic Education
DBSA – Development Bank of Southern Africa
DDM – District Development Model
DFFE – Department of Forestry, Fisheries and the Environment
DMC – Disaster Management Centre
DOA – Decade of Action
DORA – Division of Revenue Act
DoT – Department of Transport of South Africa
GIS – Geographic Information System
GHG – Greenhouse Gas
GVA – Growth Value Add
HOV – High Occupancy Vehicle
ICC – International Chamber of Commerce
IDP – Integrated Development Plans
IGR – Inter-Government Relations
IPTN – Integrated Public Transport Network
ISRTS – Integrated Sustainable Rural Transport Strategy
ITF – International Transport Forum
ITP – Integrated Transport Plan
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 iv

ITS – Intelligent Transport Systems
LUM – Land Use Management
MBT – Mini-Bus Taxis
MCCCC – Municipal Central Communications Centre
MTEF – Medium Term Expenditure Framework
Natis –National Administration Traffic Information System
NATMAP – National Transport Masterplan 2050
NDP – The National Development Plan
NEF- National Empowerment Fund
NFLS – National Freight Logistics Strategy
NHTS – National Household Travel Survey
NIDC – National Inter–Departmental Committee
NLTA – National Land Transport Act
NLTSF – National Land Transport Strategic Framework
NLTIS – National Land Transport Information System
NMT – Non-Motorised Transport
NPC – National Planning Commission
NPTR – National Public Transport Regulator
NSDF – National Spatial Development Framework
NRSS – National Road Safety Strategy
NRTR – National Road Traffic Regulations
NTF – National Transport Forum
OLAS – Operating Licence Administration System
OLS – Operational Licence Strategy
OSBP – One Stop Border Posts
PICC – Presidential Infrastructure Coordinating Committee
PLTF – Provincial Land Transport Framework
PRE – Provincial Regulatory Entity
PRASA – Passenger Rail Agency of South Africa
PT – Public Transport
PTNG - Public Transport Network Grant
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 v

PTOG – Public Transport Operations Grant
RAI – Rural Access Index
RAMS – Road Access Management System
RSR – Railway Safety Regulator
RTI – Rural Transport Infrastructure
RTS – Rural Transport Services
RTQS – Road Transport Quality System
SADC – Southern African Development Community
SANRAL – South African National Roads Agency Limited
SARS – South African Revenue Services
SOV – Single-Occupancy Vehicle
SPLUMA – Spatial Planning and Land Use Management Act
Stats SA - Statistics South Africa
TAT – Transport Appeals Tribunal
TDM – Transport Demand Management
TER –Transport Economic Regulator
TMH – Technical Manual for Highways
TRF - Taxi Relief Fund
TRH – Technical Recommendations for Highways
TSM – Transport Supply Management
TOD – Transit Oriented Development
UDAP- Universal Design Access Plan
UNFCCC – United Nations Framework Convention on Climate Change
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 vi

INTRODUCTION
The National Land Transport Act, 2009, (NLTA) empowers the Minister of Transport to prepare
a National Land Transport Strategic Framework (NLTSF) at five-year intervals, to guide the
constitutional objectives of land transport planning countrywide, without detracting from the
constitutional planning functions of provinces and municipalities.
This document sets out the National Land Transport Strategic Framework (NLTSF) for South
Africa over the next five years. This version of the NLTSF supersedes the version published in
2017. The National Land Transport Strategic Framework, is a legal requirement in terms of
Section 34 of the National Land Transport Act, 2009 (NLTA), (Act, No. 5 of 2009) aimed at
guiding land transport planning countrywide.
Transport is essential for many aspects of daily life. It provides opportunities for people to gain
access to jobs, business opportunities, leisure and social activities as well as vital services,
social, education and health. Furthermore, transport connects businesses with customers and
suppliers. Transport networks are essential arteries of a vibrant economy., and a catalyst for
development and economic growth. However, transport activities can also have profound
effects on our environment, communities, social and personal wellbeing. The NLTSF seeks to
provide a strategic framework that will guide planning decisions for all modes of land transport
including integration with airports and harbours.
The NLTSF further seeks to create a transport sector which is resilient, responsive and be
adaptive to any unplanned scenario e.g. COVID-19, climate-related disasters, and etc, that
could affect the transport industry. It aims to create a transport industry which is customer
focused, supporting mobility and access to amenities; as a service, and as a supplier of services.
Also, as an and of enabler of training and development initiatives.
The strategic drivers as defined in the National Development Plan 2030 are job creation,
poverty alleviation, and reduced inequality, Hence the need to improve access to employment,
education and leisure, efficient movement of goods and; whilst minimising the negative impact
on the environment, and promoting social inclusion. The NLTSF sets out strategic priorities to
apply transport planning in achieving our social, health, safety and security, economic,
environmental, safety and security outcomes.
Therefore, a number of overarching goals have been developed against which all transport
planning considerations should be weighed:
• Consider the District Development Model approach
• Planning and investment should support economic development
• Ensure well integrated land use and transport planning decision-making
• Promote social inclusion and universal accessibility
• Improve safety and security for all transport users, including persons with special
needs.
• Reduce the impact of transport greenhouse gas (GHG) emissions on the environment
• Promote sustainable, integrated transport modes
Department of Transport – National Land Transport Strategic Framework 2023 - 2028 1

The NLTSF defines the strategies and policy intent of the Department of Transport relevant to
key priority areas in land transport over the next five-year period. The NLTSF confirms the
broad overarching strategies relevant to land transport planning in South Africa applicable to a
wide variety of functional areas. Whilst the NLTSF describes what needs to be done, it is
sufficiently flexible in that stakeholders are expected to adopt the relevant intentions and
guidance of the NLTSF and apply it to local needs and circumstances.
1.1 Purpose of the NLTSF

The NLTA, Act 5 of 2009, defines the NLTSF as a Strategic Framework that informs integrated
transport planning countrywide. The Framework should therefore:
• Define National Objectives and Policy Statements that give direction to transport on a
National scale;
• Encourage the coordination and integration of transport nationally;
• Form the basis for the preparation of the Provincial Land Transport Frameworks (PLTFs)
and Integrated Transport Plans (ITPs); and
• Provide a reporting mechanism on the progress of the respective transport plans and
projects through the KPIs in the NLTSF.
• Include institutional mechanisms to ensure implementation of transport plans in line

with the Constitutional objectives
Translating these legislative prescriptions into policy terminology, the purpose of the NLTSF
is to:
• Serve as a five-year framework for integrated land use and transport planning
• Serve as an enabler of land use and transport planning aspects as guided by the
National Development Plan (NDP) 2030
• Provide the guiding principles that integrates various modes of land transport within
the planning context of the NDP and support wider relevant national legislation and
policy
• Provide clarity and certainty about the transport planning priorities to enable effective
decision-making about programmes and initiatives at all levels of government
• Align transport to sustainable and universally accessible development
1.2 The role of the Department of Transport

The Department of Transport’s mandate is to maximize the contribution of transport to the
economic and social development goals of our country by providing fully integrated transport
operations and infrastructure.
The main roles of the Department of Transport and its public entities are:
• Policy and strategy formulation in all functional areas covering civil aviation or air
transport, maritime transport, public transport as well as rail and road transport; and
non-motorised transport;
• Substantive regulation in functional areas where the DoT has legislative competence;

• Implementation in functional areas where the DoT has exclusive legislative

competence;
• Leadership, coordination and liaison in all functional areas;
• Capacity building in all functional areas;
• Skills development in all functional areas;
• Monitoring, evaluation and oversight in all functional areas; and
• Stimulating investment, research and development across all modes.
The DoT is responsible for developing transport policy in South Africa while provinces and local
government are responsible for executing policy mandates. This is achieved by means of
provincial legislation and regulation, policy and guidelines, by-laws, strategies and
implementation plans. The provinces prepare PLTFs, monitor and support the district and local
government and coordinate and approve both district and municipal plans. Metropolitan and
District Municipalities prepare Comprehensive Integrated Transport Plans (CITPs) and Local
Municipalities prepare Local ITPs, and are required to fund and implement an integrated
transport system. The development of the PLTFs and ITPs is aligned to the prescripts of the
minimum requirements as outlined in the regulations. The NLTA maintains a plan driven system
based on the PLTFs and ITPs of municipalities. The National Land Transport Amendment Bill
upon approval will address e-hailing services.
1.3 Supporting current policy direction

The recent development in the transport environment at national, provincial and local level as
well as the new strategic objective of the current administration are significant, given the
continuous changing transport environment. These adjustments have been reflected in this
Framework to ensure that its content remains relevant and valid, while considering strategic
developments within the transport policy and strategy environment.
The NLTSF specifies the strategic priorities and outcomes that links the Framework to the NDP,
0NATMAP 2050, provincial transport and spatial planning, and broader strategies and plans at
Local Government level.
1.4 Structure of the document

Figure 1(below) shows the process in preparing the Framework. The Framework ensures
that:
• a clear vision of the integrated transport system that is desired, is defined with
supporting objectives;
• the three spheres of Government and other stakeholders collaborate to develop an

integrated transport system;
• Progress is measured through key performance indicators in the monitoring and

evaluation program by the Department of Transport.
The policy framework and the current realities in transport inform the vision and key
priorities for Transport in South Africa for the period 2023-2028. The NLTSF is a framework
for Transport Planning effectively for all spheres of Government and sets the overarching
goals, vision, and objectives for each element of the transport system which would be
reflected in the PLTFs and ITPs. The success in achieving these objectives depends on the

implementation of the transport programmes and projects that emanate from the
respective PLTFs and ITPs reflected through the Key Performance Areas defined in the
NLTSF.
NLTSF
NLTSF Status
Current realities Policy Content
Quo
Future Vision
Overarching goals Strategy Priorities
Delivering the Framework Programmes Review and Monitor
Figure 1 Structure of the NLTSF
The document is set out in the following parts:
Chapter two outlines the legislative and policy context for the NLTSF, relevant statutory
powers and responsibilities for the three spheres of Government in context of Transport
Planning;
Chapter three reflects on current realities and challenges and derives the key priority areas
to focus on during the 2023-2028 period;
Chapter four outlines the vision, objectives and outcomes that the Framework seeks to
achieve. It further provides some overarching goals and sets out how long-term outcomes are
grouped in order to focus transport planning
Chapter five outlines the key strategic transport elements with the vision, strategic intent and
objectives for each element.
Chapter six outlines the action plan to achieve implementation through the NLTSF, and
Chapter seven- explains how the Framework will be reviewed, monitored and how progress
is evaluated.

POLICY CONTEXT FOR THE NLTSF
The revised White Paper on National Transport Policy,2021, vision is to provide safe, accessible,
reliable, effective, efficient, environmentally sustainable and fully integrated transport
operations and infrastructure that will best meet the needs of passengers, pedestrians and
freight customers, improving levels of services at a -cost and in a fashion that supports
government strategies for economic and social development; whilst being environmentally and
economically sustainable.
The philosophy adopted in developing the NLTSF started with the broader policy framework
and strategic intentions of these policies. The NLTSF specifies the outcomes and strategic
priorities that links the Framework to the NDP, the MTSF, NSDF, DOT Strategic Plan, NATMAP
2050, and broader strategies and plans.
2.1 National Development Plan 2030

The National Development Plan (2030) is regarded as the highest level of policy, capturing
government’s overall strategic objectives and should therefore guide any decision-making in
South Africa (National Planning Commission, 2011). The Plan sets out a multidimensional
framework to bring about a virtuous cycle of development, with progress in one area supporting
advances in others. Given the complex nature of development, the Plan defined six interlinked
priorities:
• Uniting all South Africans around a common programme to achieve prosperity and
equity;
• Promoting active citizenry to strengthen development, democracy and accountability;
• Bringing about faster economic growth, higher investment and greater labour
absorption;
• Focusing on key capabilities of people and the state;
• Building a capable and developmental state; and
• Encouraging strong leadership throughout society to work together to solve problems.
To enable inclusive sustainable development, the NDP defined a number of strategic aims in
“writing a new story for South Africa”:
• Creating jobs and livelihoods;
• Expanding infrastructure;
• Transitioning to a low-carbon economy;
• Overcoming barriers that prevent participation in society;
• Transforming urban and rural spaces;
• Informing education and training;
• Providing quality health care;
• Building a capable state;
• Fighting corruption and enhancing accountability; and

• Transforming society and uniting the nation.
As a follow on to NDP, government developed the Medium-Term Strategic Framework (MTSF)

2019-2024 to help prioritise projects and programmes in South Africa that would work towards
achieving the aspirations of the NDP.
The NDP acknowledges the increasing living costs, and intends to address the drivers of the
cost of living. Improving the standard of living includes amongst others, better access to public
transport, reducing costs of public transport by creating more compact and universally
accessible, safe neighbourhoods and communities; education and skills development, health
care, housing in close proximity to basic services. The NDP acknowledges that Government
faltered by promoting employment and building houses further from job opportunities.
As a result, the NDP in its entirety recommends several transportation related interventions to
improve the quality of life for all citizens, whilst addressing job creation, poverty reduction, and
inequality through those proposed interventions.
2.2 Medium Term Strategic Framework

The Medium-Term Strategic Framework (MTSF) 2019-2024 is the 5-year implementation plan
for the NDP. It sets out the package of interventions and programmes that will advance the
seven priorities adopted by Government. The MTSF also sets out the actions Government will
take and targets to be achieved. It further provides a framework for other plans of national,
provincial and local government.
The aim of the MTSF is to ensure policy coherence, alignment and coordination across
government plans as well as alignment with budgeting processes.
The MTSF 2019-2024 is built on the three foundational pillars: a strong and inclusive economy,
capable South Africans and a capable developmental state. There is a need to move with speed
as we focus on planning and implementation. It is the era of Khawuleza (MTSF 2019-2024).
The Strategic Framework has therefore prioritised integrated development planning which also
encompass the District Development Model (DDM) and effective implementation of the
interventions
The three pillars set out above underpin the seven priorities of the MTSF. These priorities will
be achieved through the joint efforts of government, the private sector and civil society, and
are as follows:
Priority 1: A capable, ethical and developmental state
Priority 2: Economic transformation and job creation
Priority 3: Education skills and health
Priority 4: Consolidating the social wage through reliable and quality basic services
Priority 5: Spatial integration, human settlements and local government
Priority 6: Social cohesion and safe communities
Priority 7: A better Africa and world

It is worth noting that many priorities in the NDP are not about new policies and programmes
but rather, giving effect to existing laws and policies and improving the implementation process.
Policy uncertainty and organisational instability have sometimes impeded progress. The policy
consistency provided by the NDP, and taken forward through the election manifesto of the
governing party and the MTSF, allows greater impetus to be given to implementation. It also
allows new programmes, legislation and regulations to be assessed against long-term goals
and priorities.
2.3 THE NATIONAL SPATIAL DEVELOPMENT FRAMEWORK

(NSDF) AND ITS IMPLICATION ON TRANSPORT
Transport and land use are inextricably linked. A relationship exists between land use
development and in many respects, land use development is unlocked by the provision of high-
quality integrated transport infrastructure and services. The main objective of land use planning
is to ensure that economic development is stimulated and that spatial location of activities,
people and amenities, in turn have a positive impact on the local, regional and national
economy.
The role of institutions governing both transport and land use is important in achieving the land
use planning outlined above. Ineffective institutions, or institutions that fail to correctly plan
with Constitutional objectives will not succeed. The institutional structures described in the
NLTA at national, provincial and municipal level must ensure that Constitutional objectives are
upheld.
The future spatial vision (2022) of South Africa is guided by the recently approved National
Spatial Development Framework (2023). The NSDF is a central instrument which should inform
the review and update of the NLTSF which is a subservient framework.
Proactive integration of land use and transport planning is a core function of the municipality.
For example, new housing and commercial developments require Traffic Impact Assessment
Studies. Historically, traffic impact assessment studies provided greater emphasis on single
occupancy vehicles and less focus on public transport, and the developer was obligated to
provide part of the road infrastructure, while the Municipality is supposed to address mass
transit operations and infrastructure. This has resulted in the lack of provision for walking and
cycling, dangerous roads and poorly planned communities, with highly restricted access to
amenities.
In order to give spatial expression to the National Spatial Development Vision and support the
shifts that need to be made, a series of National Spatial Development Levers were developed.
These levers include:
1. Urban Areas and Regions
2. National Development Corridors
3. Productive Rural Regions
4. National Spatial Social Service Provisioning Model
5. National Ecological Infrastructure System
6. National Transport and Communication Infrastructure Network

The NSDF views a well-functioning and well managed National Transport and Connectivity
Infrastructure Network as key in ensuring: (a) The safe and efficient movement transport of
people (b) The rapid and reliable flow of information and communication (c) The efficient
transport of goods, and (d) The provision of services and the ability to participate and interact
in the global economy as crucial to the Spatial Development and Economic life of a country
As a result, the NSDF conclude that with regard to Transport and Communication Infrastructure
Networks, amongst others seeks to ensure investment in maintaining, strengthening and
expanding connectivity to ensure the creation of a solid transport and communications network
between urban areas and regions, such regions, with a focus on (1) ensuring the roll-out and
continuous upgrading of broadband access to all South Africans, and (2) prioritising rail over
road infrastructure, (3) ensuring the continuous maintenance of Transport and Communication
Infrastructure Networks.
a) More people focused infrastructure investment, such as (1) upgrading infrastructure

networks in major urban areas and towns that support sustainable and universally
accessible transport use;, to accommodate far higher densities and intensities, (2)
installing, de-segregating and maintaining infrastructure networks in former township
areas at scale, so as to develop these previously neglected areas into high quality urban
living spaces, and (3) developing universally accessible, quality public spaces,
pedestrians walkways and efficient, affordable and safe public transport networks for
use by all;
b) More upgrading of ageing urban municipal services infrastructure and large-scale

investment of municipal infrastructure in regional development anchors and rural
services centres; and
c) More investment in enabling and catalytic infrastructure required for (1) Renewable
energy-generation, storage and distribution, (2) smallholder farming and agro-
processing, (3) tourism, culture and entertainment led economic growth, and (4)
innovation and knowledge-creation, packaging and transfer.
2.4 Environmental protection and sustainability

The overall strategic approach for the country’s climate change response is guided by the
National Development Plan (NDP) (Vision 2030). The NDP proposes moving towards a low
carbon economy. Different sectors of society have roles to play in fulfilling Vision 2030. The
DoT’s objective in supporting the transition to a low carbon economy is to ‘increase the
contribution of transport to environmental protection.
The Department of Transport is committed to making a significant impact in reducing Green-

House Gas (GHG) emissions, by enabling the transport sector to contribute its fair share to the
national effort to combat climate change in a balanced fashion, considering the DoT and the
sector’s primary responsibility of socio-economic development. Therefore, government through
the Department of Transport has developed the Green Transport Strategy (GTS), which aims
to minimise the adverse impacts of transport on the environment, while addressing current and
future transport demands. The Strategy promotes green mobility to ensure that the transport
sector supports the achievement of green economic growth targets and the protection of the
environment.

Decarbonising transport is a significant challenge, as it is one of the major sectors where

emissions are well above their 1990 levels, and have continued to increase at about 33% over
the same period.
Emissions from the transport sector in South Africa account for 13,3 % the country’s total
Green House Gas (GHG) emissions. A majority of transport-related GHG emissions are from
road transport which is currently accounting for 95,7% of transport emissions. This places the
transport sector second in the energy sector in terms of emissions volume. These figures
represent direct emissions only, principally consisting of tailpipe emissions. If indirect GHG
emissions associated with the transport sector were to be included, such as GHG emissions
associated with fuel refineries and electricity generation for transport, these figures would be
substantially higher.
Climate change, linked with energy consumption and security of supply of fuel, is considered
one of the most serious and pressing threats to sustainable development, with adverse impacts
expected on human health, food security, economic activity, natural resources, physical
infrastructure and the environment. The international political response to climate change
began with the adoption of the United Nations Framework Convention on Climate Change
(UNFCCC) in 1992. Accordingly, South Africa has committed to taking concrete measures to
mitigate climate change, through economy-wide measures that include the transport sector.
Changing these problems requires a change in focus, and a far greater emphasis on walking
and cycling, which would automatically reduce the amount of carbon consumed. However, the
spatial inequalities already developed must be actively overcome in order for the move to a
low-carbon economy to be successful. The Department of Transport is cognisant of the effects
that transportation activity has on the environment, as such these are some of the interventions
that have been put in place to address these concerns:
• Developing a Transport Sector Strategy on Climate Change and Environmental

Protection, which was achieved through the cabinet approved Green Transport Strategy
(2018 - 2050)
• Supporting green technology with an emphasis on efficient vehicle technologies, as well

as promoting the uptake of electric vehicles as well as promoting the shift towards
cleaner propulsion fuels such as Hydrogen, Compressed Natural Gas, hydrogen and
higher quality of fuel available in the country (Euro VI).
• Developing an integrated, efficient and effective public transport system, with a far
greater emphasis on the promotion of walking and cycling; which is universally
accessible
• Encourage a shift towards sustainable transport modes, that will support the
decarbonisation of the transport sector,
• Addressing congestion mitigation and improving air quality caused by transport

activities, which requires a revised approach to planning road transport networks.
• Create awareness programmes into Climate Change and Green Technologies related to
Transport
• Develop Infrastructure to support Green Technologies like Electro Mobility in Public

Transport and mobility on Main Economic Corridors.
The Department of Transport is determined to secure positive change through planning for and
ensuring cohesive interaction of social, economic and environmental improvements.

Transport policies can contribute to a sustainable future by supporting a strong and prosperous
economy and helping to promote safe healthy living. The impact of transport on the social,
economic and environmental fabric of our nation is fully recognised.
The NLTSF therefore acknowledges its role as enabler in bringing about economic growth,
spatial integration, environmental protection and social wellbeing of all living in South Africa
through land transport. Therefore sustainability - and the three key aspects of sustainability,
namely the environment, the economy and society as a whole – is the underlying thread
connecting this framework and subsequent planning.
2.5 DoT Revised Strategic Plan 2020/21 – 2024/25

The Strategic Plan and accompanying Annual Performance Plans of the Department of Transport
are aligned to the approved Medium-Term Strategic Framework (MTSF) of Government and
also articulate the long-term vision of the National Development Plan 2030. To that effect, the
table below shows a schematic illustration of the alignment between MTSF pillars, apex
priorities of the 6th Administration and the strategic focus areas of the DoT.
Table 1: Strategic focus of the DoT.areas

MTSF Pillars Apex Priorities DoT Strategic Focus Areas
1. Achieving a More • Priority 1: A Capable, • Governance - Greater
Capable State Ethical and Developmental Efficiency, Effectiveness and
State Accountability
• Priority 6: Social Cohesion • Safety (and Security) as an
and Community Safety Enabler of Service Delivery
• Priority 7: A Better Africa • Building a Maritime Nation,
and World Elevating the Oceans
Economy
• Environmental Protection –
Recovering and Maintaining
Healthy Natural Environment
2. Driving a Strong and • Priority 2: Economic • Infrastructure Build that
Inclusive Economy Transformation and Job Stimulates Economic Growth
Creation and Job Creation
• Building a Maritime Nation,
Elevating the Oceans
Economy
• Accelerating Transformation
Towards Greater Economic
Participation
• Priority 5: Spatial • Public Transport that Enables
Integration, Human Social Emancipation and an
Settlements and Local Economy that Works.
Government
3. Building and • Priority 1: A Capable, • Governance - Greater
Strengthening Ethical and Developmental Efficiency, Effectiveness and
Capabilities of South State Accountability
Africans • Priority 3: Education, Skills • Improved Efficiency and
and Health Effectiveness of Support
Services
Source: DoT Strategic Plan/ APP 2020/21 – 2024/25

The Department identified fundamental priority areas to focus on during the 2020 - 2025 MTSF
period as follows:
1. Safety and Security as enabler of service delivery.
2. Public Transport that enables social emancipation and an economy that works
3. Infrastructure build that stimulates economic growth and job creation
4. Building a Maritime nation, elevating the ocean economy
5. Accelerating transformation towards greater economic participation
6. Innovation that advances efficiencies and supports and continuous improvement model
7. Environmental protection aimed at recovering and maintaining a healthy natural

environment.
8. Governance with the focus on greater efficiency, effectiveness and accountability
2.6 National Transport Master Plan 2050

The primary driver of the National Transport Master Plan (NATMAP 2050), by the Department
of Transport, is “to develop a dynamic long-term and sustainable land use multi-modal
transportation systems framework for the development of infrastructure facilities, interchange
terminal facilities and service delivery that is demand responsive to national / provincial/ district
and /or any socio-economic growth strategies, and / or any sectorial integrated spatial
development plans”.
The NATMAP 2050 defined a number of overarching objectives to support its strategic intent,
including the following:
• Maximizing utilisation of existing infrastructure facilities;
• Development of future infrastructure facilities and improve operations;
• Development of an up to date and accurate central land use / transportation Data Bank
- Geographic information system (GIS);
• Promoting effectiveness and efficiency of maritime Transport;
• Integrating multi-modal public passenger transportation;
• Determining the economic role of transport; and
• Integration of transport and land use development.
The NLTSF is aligned with the overarching objectives of NATMAP 2050.

2.7 NLTSF 2017

Looking ahead and defining the purpose and role of the NLTSF it was necessary to reflect on
the 2017 NLTSF and consider the changing transport landscape. The 2017 NLTSF contained
strategies for 12 functional areas with outputs and actions on how to achieve those outputs:
1) Integrated Land Use and Transport Planning
2) Urban transport and Smart Cities
3) Rural transport
4) Public transport
5) Non-Motorised transport
6) Learner transport
7) Freight transport
8) Transport infrastructure
9) Cross-border transport
10) Transport safety and Security
11) Institutional management
12) Funding
Having consulted widely, the 2017 NLTSF functional areas were retained, however a new one;
universal accessibility was added. The updated NLTSF has been developed as an interactive
framework and guiding reference in order to give strategic direction on transport planning, how
it links to the development and land transport delivery by national, provinces and
municipalities.
2.8 Other strategies and policies

The NLTSF needs to be compatible and supportive of a wide range of other strategies and
policies relevant to transport including those highlighted below. The NLTSF has been developed
by taking account of the policies and strategies contained in the following strategy and policy
documents, but not limited to:
• National Learner Transport Policy (2015)

• National Land Transport Amendment Bill. (2016).
• National Household Survey: StatsSA. (2020)
• National Household Travel Survey: StatsSA. (2013).
• A rural transport strategy (2016).
• White Paper on National Transport Policy. (2021).
• Green Transport Strategy for South Africa. (2018-2050).
• White Paper on National Rail Policy. (2022).
• National Spatial Development Framework. (2022).
• Medium-TermStrategic Framework. (2019-2024).

• Integrated Urban Development Framework. (2016).

• National Transport Master Plan. (2022).
• Revised Strategic Plan. (2022).
• National Road Safety Strategy. (2016-2030).
• Decade of Action for Road Safety. (2021-2030).
• National Land Transport Act (2009)
• Department of Transport Moving South Africa (1998);
• National Freight Logistics Strategy (2005);
• Road Freight Strategy for South Africa, Department of Transport (2017)
• Transnet Long-term Planning Framework (2012);
• Non-Motorised Transport (NMT) Policy (2012), and the NMT Guidelines, 2014;
• Spatial Planning and Land Use Management Act (2013);
• Strategy and Action Plan (2007);
• Implementation strategy to guide the provision of accessible public transport in South
Africa (2009);
• Action Plan to guide the provision of accessible public transport systems in South
Africa, (2009);
• National Spatial Development Perspective (2006);
• A guide to the national planning framework (2009);
• Rural Transport Strategy of South Africa (RTSSA) (2016);
• Road Infrastructure Strategic Framework for South Africa (2006);
• United Nations Convention on the Rights of Persons with Disability, 2007,
• White Paper on the Rights of Persons with Disabilities, 2016
• The United Nations Framework Convention on Climate Change (1994);
• The Paris Agreement (2015);
• Green Transport Strategy (2018);
• Change Response Policy (2011);
• National Strategy for Sustainable Development (2011)
• Rural transport strategy (2016);
• National Spatial Development Framework (2022);
• Medium Term Strategic Framework (2019-2024);
• Trading Economics (2021)

CURRENT REALITIES
This chapter defines current trends, the context and realities as well as the challenges and
issues faced in transport. In order to guide the focus of the NLTSF, it was important to
understand the current realities, and challenges, define the gaps and current challenges to
inform the way forward for the 2023-2028 period.
3.1 Background
An efficient, effective, accessible reliable and sustainable transport system is one of the most
critical factors for the performance of the South African economy, its growth and the creation
of the employment and wealth necessary to help overcome the significant social challenges.
Investment in all aspects of transport to increase capacity and improve operational and
organisational efficiency has to be continuous and, in many cases, absorb a significant amount
of public sector funds. All too often inadequate investment provision is made and insufficient
attention given to improving ongoing managerial and organisational inefficiencies.
Government is faced with many challenges when it takes a view of the current transport sector
to see whether it is fit for purpose to meet the requirements imposed upon it by the present
and more importantly the anticipated growth in our economy. The distances between
population centres and the dependency on transport, means that there is a critical reliance on
securing efficient, reliable and cost-effective networks. The transport industry is highlighted
by the current administration as a key contributor to South Africa’s competitiveness in global
markets and plans were unveiled to spend billions to improve the country’s roads, railways and
ports.
However, South Africa faces a number of challenges in its transport industry as well as its
spatial disposition that delays ambitions in meeting the aspirations outlined in the Department
of Transport Strategic Plan, the NDP and NATMAP 2050. This chapter explores these factors in
creating a better understanding about where we are starting from in terms of:
• National transport trends that have occurred over the past decade demonstrating how
transport policies in South Africa have an impact (positive / negative)
• The current realities in transport South Africa
• The challenges facing the South African transport industry
Looking forward there is need to view transport holistically as an integrated system and not in
terms of each mode independently. The challenge is to unlock value in the wider economy
through investing selectively and creatively in sustainable schemes that help to realise South
Africa’s potential as a globally competitive trading nation.
3.2 Key challenges

Against the background of the current realities, the following key challenges facing the South
African transport industry have been summarised:

South Africa’s spatial disposition
South Africa’s spatial disposition is a direct consequence of its past inequalities. More than two
decades after democracy the country has a mixed picture - the witting creation of deeply
divided communities characterised by social and economic inequality, segregated land use
patterns, great disparities in levels of education, the inadequate and the inefficient provision of
transport infrastructure to serve the needs of all its people and inequitable access to labour
and economic markets.
The low-income people in South Africa according to NHTS 2020; Nationally, about half of the
households in South Africa had a monthly expenditure on public transport of R500 or less
(49%). The high cost of mobility and the constraint it places on the lower income earners limits
their ability to access healthcare, social and economic opportunities. Mobility has a profound
effect on poverty where incidence of low mobility and unaffordable public transport would
restrict entire households from economic opportunities.
The MTSF clearly states that the structure of urban and metropolitan areas, which are
characterised by fragmented residential settlement patterns, underdeveloped business areas in
townships and long travel times between home and work are some of the critical spatial
challenges in South Africa. The NHTS shows that the average journey time for all modes of
transport is one hour and the proportion of people travelling for over one hour has increased.
In addition, over 50% of the population walk for more than 90 minutes to the closest health
care facility. This raises the cost of living, limits the scope for shift work and makes it difficult
for the unemployed to seek work. It also increases service delivery costs and constrains
business development. The physical remoteness and low population densities of both urban and
rural areas impacts the ability of transport to support national economic and social development
objectives.
The challenge within the context of transport is to empower the transport industry to help
reverse some of the negatives of spatial segregation, whilst dealing with the urban planning
problems that caused it. Transport plays a fundamental and game changing role in bringing
about a more integrated society. Spatial integration is required to address spatial fragmentation
and urban sprawl.
Government’s approach to development through the District Development Model (DDM) where
the focus is bringing economic development opportunities from a district point. A plan that
seeks to develop the whole district is put in place. The one plan is focused on integrated and
better located residential development, investment in public transport networks, support for
economic development and job creation and stronger collaboration between municipalities,
local business chambers and civil society stakeholders.
In summary, spatial distortion divides and/or prevents inclusive development and liveable
communities, resulting in physical remoteness and low population densities, adversely affecting
travel cost, in turn giving rise to poor accessibility. The lack of employment opportunities in
rural areas is the main cause for migration to urban areas. The continuous spread of informal
settlements on the periphery of the urban fibre is a big challenge to Urban Planners to achieve
integrated planning. Urban Road networks have deteriorated due to immense potholes in urban
areas and provincial roads. This led to poor public opinion on capacity of the state to meet key
service delivery challenges.

Transport impact on the environment
Section 24 of the Bill of Rights calls for Citizen’s rights to an environment that is not harmful
to their health and wellbeing. Land-based transport must therefore be planned and
implemented such that it minimises its harmful impact on the environment. Also, Sections 9
and 10 of the Constitution outline equality and dignity, emphasising that land-based transport
includes all groups of South African society, however categorised. According to the White Paper
on National Climate Change Response Policy (NCCRP); 2011, Greenhouse gas emissions have
increased rapidly in recent years relative to the previous. Given the developing nature of the
South African economy, it is expected that emissions will grow as development goals are
pursued. The sectors that generate the most carbon dioxide emissions are production activities
that use large quantities of coal or electricity and the transportation sector.
South Africa communicated its Nationally Determined Contribution (NDC) to the United Nations
Framework Convention on Climate Change (UNFCCC) with a mitigation target range for 2025
to be 398- 510 and for 2030 to 350-420 Metric tons of carbon dioxide equivalent (Mt CO2-eq).
Transport is one of the major sectors identified to bring significant change in ensuring that the
NDC target is met. Any transport related policies and measures should therefore aim for a
transition to a low-carbon economy.
Integrated transport planning
Land use and transport planning has institutionally and historically been considered inter-
dependently. Over the past few decades this has changed with more emphasis on integrating
land use and transport planning. It is however seen that transportation follows development,
responding to accessibility needs created by land use decisions outside of transport authority’s
control. At the same time, local planning authorities increasingly separated commercial,
employment, social and residential areas, increasing the need for travel over longer distances.
South African cities are structurally fragmented and have many areas which lead to social and
economic exclusion. This has resulted in long travel times and distances for many commuters
situated in township areas. Current land use planning contributes further to urban sprawl since
new housing developments are planned on land which is still on the periphery of the new
municipal areas and far from urban centres, economic opportunities and transport networks.
The current reality however is that transport planning in South Africa is uncoordinated and
occurs in modal and sectorial silos. There is also a lack of consistency between transport and
land use planning practice. This means many transport projects that can derive increased
economies of scale and efficiencies from integration are being implemented and planned in
isolation. The disjointedness between transport and land use planning is, for example,
demonstrated where spatial planning policy has resulted in low settlement density and or
spatial segregation which are not supported by appropriate accessibility options or public
transport provision, for example, where cheap land is bought on the outskirts of urban areas
for mass low cost housing purposes, without providing adequate accessibility and mobility
options, thereby perpetuating marginalisation.

Zoned property, road and rail reserves are not adequately protected, resulting in illegal land
invasion/occupation. For example, properties zoned for schools that are not developed are
illegally occupied, resulting in the school being developed further away from the community,
and learners have to travel further. Such fragmentation, results in higher transportation costs
across the board, increasing subsidies, lack of opportunities to access employment, increased
poverty and reduced economic productivity Municipalities are mandated to prepare Public
Transport Plans (PTPs) to address rationalisation of public transport services and Operating
Licence Strategies (OLS) incorporating potential new routes. The Municipality could then
provide a municipal public transport service or outsource the service to an approved operator,
restricting the number of routes according to the Operating Licence Strategy, thereby
preventing oversupply of services, and potential violence and fatalities. All new contracted
public transport services will be a function of municipalities, and provinces if need be will enter
into contracts with municipalities to perform such services on behalf of municipalities.
Whilst it is a legal requirement that all major cities prepare and implement Integrated
Development Plans (IDP’s) and ITPs, a basic review suggests that very often plans are simply
produced to fulfil statutory compliance with little action or follow through in terms of
implementation.
Urban transport and Smart Cities
South Africa is experiencing rapid growth of urban areas mainly due to migration from the rural
areas to the cities. According to the National Household Travel Survey (2013), over 35% of
South Africa’s people live in cities with a population above 1 million; South Africa’s population
has grown from 40 million in 1994 to 59.39 million in 2021. 21 million people (about 40% of
the national population) live in the five largest cities in South Africa. The large urban
concentrations are the economic heart of the country. More than 57% of GVA (Growth Value
Add - a measure of economic concentration, employment and productivity) is centred in these
five cities (Tshwane, Ekurhuleni, Johannesburg, eThekwini and Cape Town), with Gauteng
accounting for 35% total GVA.
The development of peripheral residential areas disadvantages urban dwellers resulting in long
travel distances and inefficient public transport service. The uncontrolled development of
informal settlements on the periphery of cities poses a huge challenge to integrated planning.
Lack of understanding of the property market in the public sector create huge challenges in
creating an investor friendly environment in the development state.
The transport system is fragmented, inefficient and not coping well with rapid urbanisation.
Effective, efficient and inclusive urban transport systems are a prerequisite for economic
development and for social equity and cohesion. Maintaining mobility and accessibility by all
modes in appropriate locations will ensure social connectivity and economic growth. As the
transport system grows it is likely to add additional inefficiency in transport cost resulting in
severe economic constraints and eventually social breakdown. Urban Transport development
is a key focus area for the National Land Transport Strategy Framework. The emphasis needs
to be on building on the recent upswing in investment focusing on initial roll-out of quality
public transport to set out and implement a comprehensive sustainable urban transport
strategy focused on appropriate public transport and NMT development.
South Africa, similar to many other developing countries and emerging economies, is
experiencing a rapid increase in demand for motorised travel, essentially following the same
path as developed nations. Continued high rates of population growth, rapid urbanisation and
the aspiration towards consumerism are causing transport needs and demands to expand.

Against the background of low-quality public transport options, the emerging middle class
aspire to the use of private motor vehicles while many of the poor remain stranded. Attempting
to meet all transport demand through a pro-private motor vehicle approach is massively costly,
inequitable, and unsustainable and, as has been conclusively proven, impossible worldwide.
Cities throughout the developed world have moved through a 40-year phase of mass
motorisation. Traffic speeds, which initially increased, have dropped significantly and
consistently through most of this phase and the majority of cities have reached critical levels
of peak traffic. Most governments now realise that solutions to improving urban transport
conditions do not lie in providing for unabated motor vehicle growth.
The evidence is undisputable; attempting to cater for increased volumes of traffic whilst
maintaining or increasing current average speeds of motorised traffic requires massive
investments and guarantees ever worsening emissions, fossil fuel dependence, spatial
dislocation and severance whilst not offering any assurance of sustained speed improvements.
In metropolitan areas only one third of passengers are using formal bus and rail services, with
the mini-bus taxi sector transporting two thirds. The strategy is to progressively upgrade and
formalise most or all urban public transport operations as currently implied by the DoT’s Public
Transport Strategy.
If all urban public transport was formalised to an enhanced quality on the basis of current
spatial structures the annual shortfall could total well over R20bn per annum, a yearly sum
considering South Africa’s fiscal constraints is probably excessive. Therefore, substantial
increases in operational funding will need to be matched by major increases in productivity and
cost recovery.
The success and financial feasibility of all planned Integrated Public Transport Networks (IPTN))
interventions rely on increasing urban densities, mix use development and increasing the modal
share of public transport among choice users. The range of strategies and measures to ensure
these outcomes, are fundamental to achieving better operational cost recovery in future
systems. Without doubt, substantial public transport investments are vital, yet this investment
will not significantly improve the urban economy or public transport effectiveness unless equal
attention is placed on spatial development densification.
Universal accessibility
One of the strategic objectives for Land Passenger Transport that is presented within the White
Paper on National Transport Policy, 2021, is to: “To promote safe and secure, reliable and
sustainable public transport that addresses user needs” and in line with the NLTA, is accessible
to every passenger. Identified passenger groups include “commuters, learners, persons with
disabilities, pensioners, elderly people, children, pregnant women, persons accompanying
children, tourists and long-distance passengers”.
Notwithstanding the policy intention, universal design of and universal access to Public
Transport, is very poor across the entire range of modes. Unless the different functional areas
in the NLTSF acknowledge their responsibility for universal access implementation, the
problems with segregation in South African cities will remain. Nevertheless, the policy tools are
now in place for the first time, to enable the situation to change.

Universal design and universal access are defined in the national White Paper on the Rights of
Persons with Disabilities, 2016. To assist with implementation, Government Gazette 40174,
2016 requires universal access to be included in integrated transport planning, using a Travel
Chain approach. The travel chain is explained in the Accessible Public Transport Strategy (DoT,
2009) and must be used in upgrading existing public transport as well as in new transport
systems. It is notable that the Consumer Protection Act, 2008 and the Road Traffic Act
amendment 2009, both require mainstream public transport services to be accessible, in line
with the NLTA.
Currently most metropolitan municipalities are at various stages of initial implementation of

accessible public transport. Government Gazette 45328, 2021 requires that service providers
implement accessible transport through the development of a Universal Design Access Plan
(UDAP) which includes reasonable accommodation. There are also different initiatives at
municipal level to invest in NMT infrastructure. The Department is working across branches to
introduces national technical requirements (NTRs) to introduce new universal design standards
under the NLTA which must be nationally applied, through which to speed up the
implementation of universally accessible transport.
Rural transport
According to the World Bank Trading Economics (2021) 1rural areas account for about 32.5%
of South Africa’s population. A central legacy of apartheid is the persistence of dense rural
settlements with limited economic opportunities in the former “homeland” areas, which have
particularly high rates of unemployment.
The remoteness from major economic hubs and low population densities often means that the
provision of public transport infrastructure and services in remote areas is financially unviable.
The result is the isolation of rural communities with limited mobility options, which in turn
results in the inability to access economic opportunities in the formal labour market. This
contributes to perpetuated poverty. The implementation of rural transport is hampered by a
lack of prioritised funding and technical or managerial capacity to oversee the roll-out of
projects at district level. Rural Transport includes the following components:
• Rural Transport Infrastructure (RTI) – Includes all transport related infrastructure,

ranging from proclaimed district or feeder roads, to village-level roads and non-
motorised infrastructure such as tracks, trails, paths and footbridges, most of which
are often not proclaimed or registered.
• Rural Transport Services (RTS) – Includes services provided by operators of all modes
of motorised and non-motorised transport and private users (e.g. head loading, private
vehicular transport, intermediate transport, animal-drawn carts, etc.).
• Integrated Public Transport Networks (IPTN) – Relates to the provision of improved

universal accessibility and mobility by integrating public transport services between
modes. Rural IPTN’s also aim to promote integration of transport infrastructure among
modes.
1
Trading Economics (2021)

Government places the need to improve rural infrastructure and service centres as a key
strategic priority in the MTSF. The trends identified around travel modes and patterns from the
NHTS for show that Statistics South Africa 2020. The use patterns of public transport have
changed between 2013 and 2020, with general decreases in the percentage of households who
used taxis (80.2%, to 67.6% to buses 19.5% to 16.6%) and trains (12.9% to 3.2%).
• Since 2013, there has been an increase in the percentage of workers who walked all
the way to work. The increase was more significant in rural areas where it increased
from 31% to 31%. This represents a 3%-point increase.
• One in five workers walked all the way to work in South Africa. The majority (39.2%)
of those who walked all the way to work were from rural areas.
• The proportion of learners who walk all the way to their educational institution
decreased from 64,1% in 2013 to 59.4% in 2020.
Compared to 2013, rural households are the only subgroup that have seen a significant
decrease in access time to selected services, even though rural travellers still need more time
than their urban and metropolitan counterparts. Over time, households living in rural areas had
better access to public transport and had reduced travel times when compared to in 2020.
Public Transport
The trends identified around travel modes and patterns from the NHTS for 2013 and 2020 and
Statistics South Africa, 2020 show that:
• The majority (more than 60%) of public transport users, particularly in urban areas,
travel by mini-bus taxis;
• The BRT systems and Gautrain are currently transporting less than 1% of the travelling
population in their respective cities;
• In 2020, about 52.1% of the population lived within a five-minute walk to public
transport but this is 4% lower than in 2003 showing a negative trend.
• The number of people living more than 15 minutes from a public transport stop has
increased between 2003 and 2011 which implies accessibility has reduced in the past
decade.
The problems with apartheid spatial planning have been described, and notably little
improvement has been made over the last 30 years; in fact, the figures above suggest a
worsening situation.
Additionally, the fragmented nature of institutional governance over public transport resulted
in South Africa not achieving one urban transport system, but rather a fragmented transport
system in urban areas. As a result, public transport in South Africa is inefficient and not
sufficiently customer focused with poor levels of accessibility, affordability, reliability,
predictability, comfort and safety, with the exception of Gautrain and BRT.
Currently in South Africa, there is no transport legislation to regulate the deployment of the
new technological initiatives like Autonomous Vehicles (AVs), Electric Vehicles (Evs) etc.
However, as part of the technological development in the transport industry the NLTA Bill will
provide provision on the regulation of the e-hailing services, and other technological
developments in the sector.

The scope of public transport encompasses sustainable forms of transport including non-
motorised transport (NMT) in South Africa’s urban and rural contexts. The lack of integration
between PT and NMT counteracts the full benefit that these efficient modes offer, including
universal accessibility, support of economic growth and effective mass mobility. There is an
expressed need for better linkage between both modes in a more focused and systematic way.
This means NMT is now recognised and accepted nationally as a form of transport.
The majority (81.4%) of learners either walk (59.4%) or use public transport (22%) to access
institutions of learning. These statistics demonstrate the role of public transport and NMT in
being a significant mode of travel by learners (opposed to the use of the private car).The
Minibus taxi industry is one of the dominant public mode of transport in RSA, with an increase
from 9.8 million to 11.4 million (NHTS, 2020), hence the DoT in partnership with the National
Empowerment Fund (NEF) has established Taxi Relief Fund System to assist qualifying taxi
operators who were operating during the COVID-19 hard Lock- down.
PRASA recognises some fundamental issues affecting the delivery of rail service and, if these
are successfully addressed, the level and quality of service that can be provided will be
transformed, strengthening rail’s role in the local transport network, such as:
• improving the levels of universal accessibility, safety, security, resilience, reliability and
efficiency of the network
• connecting current and new economic or growth nodes (including major airports, ports
and industrial development zones)
• supporting the main economic development corridors
• improving access to amenities and connectivity to marginalised communities
• promoting better integration between land use planning and railway development to
promote densification and sustainable development and to play to rail’s strength in
supporting high volumes of travel
• developing rail as the high-volume backbone of each province’s integrated transport

network, thereby contributing to the development of a modern, integrated, high
quality, affordable and customer focused public transport system
• PRASA National Rail Plan seeks to improve the service provided to the travelling public
and to capitalize on the opportunity provided by planned Government investment in
new rolling stock, new signalling, stations and three pilot Modernisation Corridors
demonstrating the impact of an integrated approach to investment on rail corridors.
A variety of regulations already exist in the South African urban transport setting, including the
registration of public vehicles and the RTQS safety standards. One area stands out, however,
as needing more effective regulation is the mini-bus taxi industry. The roots of the taxi industry
are in the informal sector, and it has continuously been a primary source of empowerment
opportunities for historically disadvantaged segments of the population. Part of the legacy of
the apartheid past is therefore an industry with no effective regulatory structure, yet one that
also now carries the majority of urban mass transport trips in South Africa.
The Revised Taxi Recapitalisation Programme (RTRP) was implemented in 2019, it seeks to
continue to form a key pillar of the national programme to improve public transport, focused
on two pillars of improving the safety of passengers using the taxi mode, and the transformation
and empowerment of the Mini and Minibus taxi industry.

Current public transport planning also does not sufficiently integrate feeder services, and the
move to a corridor approach will create even more need to do this properly. Very few customers
make intermodal transfers, in part because the system is not planned or physically laid out on
a basis that encourages or permits such transfers. Creating an integrated public transport
network means that existing modes such as minibus taxis must be ungraded and integrated
into the network, using current and new service delivery models.
In summary, whilst new public transport systems have been introduced and been able to
demonstrate success; existing public transport is not sufficiently customer focused and
inefficient with poor levels of reliability, predictability, universal accessibility comfort and safety.
It does not reflect the world class aspiration of the NDP 2030. The fragmented nature of
institutional governance over public transport is also not helpful. The implementation of IPTNS
has demonstrated that Quality Bus Services as well as BRT, and a better focus on walking and
cycling, can start to make a difference.
Non-Motorised Transport
Non-Motorised Transport is any means of transportation not supported by a motor, which is a

fundamental enabler to lowering emissions in the transport sector. This includes cycling,
walking, skateboard, wheelchairs and making use of animal-drawn carts or hand-pushed
trolleys. Most people use a mix of motorised transport and (NMT) to travel. Non-motorised
transport is a mode of transport in its own right and in many instances, it is either the only
available mode or transport and/or the most affordable one. The following statistics from the
2020 National Household Travel survey (NHTS) (Statistics South Africa, 2020) are relevant to
non-motorised travel:
• In South Africa 26.3% of people use walking as their main mode of commuting to work
and 1.3% use cycling;
• In rural areas 39.2% of people walk all the way to places of work, while the national
percentage is 20,3% and this translates into a total of 2.7 million workers walking all
the way to work. Across provinces the highest percentage of workers who walk to work
are in Gauteng (21%), and Kwa-Zulu Natal (14%).
• 12.3% of people with lowest monthly income walk to work, but this has reduced from
42.4 % in 2013. This is significant and highlights the need to better understand the
importance of and provision for NMT in South Africa.
• Non-motorised transport is of particular importance for travelling to school or other

educational institutions. A significantly high number of commuters and Learners walk
to work and school respectively. The 2020 household survey shows that 59.4% of
Learners walk to school and 70.4% Learners in rural areas walk to school.
• Walking as a main mode to access educational institutions is also prevalent at 69.9%

using walking as the main mode of transport and in provinces such as the Free State
and Limpopo walk all the way to institutional institutions.
Transport is also a critical factor in urban spatial planning. The historical focus on providing and
maintaining infrastructure to support the private car has led to unsustainable and inequitable
outcomes. The spatial footprint of the private car is many times greater than that of public or
non-motorised transport (NMT). If properly planned, cycling and pedestrian networks can act
as a feeder to public transport. This approach is already being undertaken in cities
implementing IPTNs.

Due to the bicycle being a low-cost form of mobility, it has the potential to aid in bringing about
equity and greater accessibility for people who cannot afford public transportation or the
purchasing of a motor vehicle. In many semi-rural areas in South Africa, people use bicycles
as key mode of transport to generate income by ferrying goods for various informal and small
businesses. Cycling and walking aid in providing a minimum level of mobility that is required
for economic and social participation.
A shift towards NMT will have a multitude of benefits for the transport system (socio-economic,
environmental, safety, health, convenience, affordability, reducing congestion and transport
relates emission, etc.). Therefore, it is important that cities and municipalities do not only
provide mainstream NMT considerations in planning, provide safe NMT infrastructure but also
develop programmes that will attract new cyclists and pedestrians.
Learner transport
In the past; the absence of a national policy on learner transport resulted in fragmented
provision of learner transport services administered by the Provincial Departments of Education
and Department of Transport. The first national learner transport policy was approved by
Cabinet in 2015, which endeavours to address the challenges of accessibility and safety of
learners2.
Learner Transport is the joint responsibility of the Department of Transport and the Department
of Basic Education. Consequently, the amount of funding made available for learner transport
varies and is generally insufficient to meet the existing need. The operationalization and
management of learner transport has also taken different forms in the various provinces.
Learners have difficulty accessing educational institutions due to the inadequacy of learner
transport and insufficient schools in areas where they live. The ability of learners to access
learner transport has remained a significant challenge. This is compounded by the long
distances they have to travel to get to school, threats to the safety and security and the cost
of transport. The 2020 NHTS shows that walking remains the most commonly used form of
transport among learners, with 10,1 million (59.4%) of learners walking to places of education
and of those 73.3% walk up to 30 minutes. Between the years of 2013 and 2020, the NHTS
identified a decrease in walking to places of education. The provinces with a high proportion of
learners walked for longer than 60 minutes are KwaZulu-Natal (8.7%) and, to a lesser extent,
the Eastern Cape (7.6%) and Limpopo (5.3%) Province.
The number of deaths of child pedestrians on the roads; who get killed while walking long
distances to and from schools; those that get killed in vehicles that are not roadworthy and
those whose grades are affected by exhaustion for taking long walks to school is a major
concern. The Taxi Recapitalisation Programme (TRP), the review report has recommended that
Learner Transport vehicles be considered for scrapping as at the moment the scrapping process
excludes learner transport vehicles. This step would assist in addressing the challenges of
learner transport vehicles getting involved in accidents because they are too old and un-
roadworthy.
2
National Learner Transport Policy, 2015

A new National policy on Learner transport was issued in 20153 to provide a uniform framework
and an enabling environment for government and other stakeholders to address learner
transport challenges. The aim of the policy is to provide an institutional framework to facilitate
the provision of learner transport in order to ensure that learner transport is rendered in an
appropriate and coordinated manner. In this regard, it is recommended that a national
interdepartmental committee (NIDC) and provincial joint planning committees will be
established. The institutional arrangement will strengthen oversight and integrated reporting
on the implementation of the Policy.
The target group for subsidised transport is learners who attend grade R to 1212 and live in
areas where they do not have access to public transport services and have to walk long
distances to school.
Cross-Border Transport
South Africa’s borders are critical points for facilitating the unimpeded movement of goods and
people; however, there are currently severe bottlenecks in commercial supply chains and
journeys of cross-border travellers. These capacity constraints cause excessive delays of goods
which in turn increases the cost of freight. These delays also impact passenger transport. The
role of rail in relieving some of the strain has not been realised due to the serious incapacity of
the freight rail sector, despite national government policy to the contrary.
The NSDF identified the need to consolidate nodal development to support inter-development
corridors and trade with SADC which includes (1) a focus on SADC Corridors and Regional (2)
improving efficiencies at border and port facilities on these routes to handle greater
international and regional trade flow.
Funding is not adequate for the strategic projects identified at borders which could benefit the
country and cross-border operations have limited productivity having a knock-on effect on
supply chain management and the regional economy.
The performance of the cross-border transport system along the regional corridors depends to
a large extend on the following factors:
• Quality and competitiveness of transport and logistics services;
• Capacity and condition of public infrastructure used by these services; and
• Domestic, bilateral, and multilateral policies and regulation of these services and trade.
3
National Learner Transport Policy, 2015

The latter issue of policies and regulation is of particular importance in cross-border transport
as it relates to border crossing procedures for both import and export trade and transit
shipments. In general, transport and logistics services are seldom of primary concern because
this function is mostly the responsibility of the private sector. The exception occurs where
government is heavily involved in providing these services e.g., rail transport services, or there
are significant constraints on market access. In terms of infrastructure, the problem is usually
poor condition, insufficient capacity or lack of physical integration. The latter is common at all
border posts, but can be addressed through "One Stop Border Post" (OSBP) initiatives.
Currently, there are six priority Border Posts being considered for the OSBP initiatives which
are: Beitbridge border connecting South Africa and Zimbabwe; Lebombo connecting with
Mozambique; Maseru and Ficksburg that connects with Lesotho; Oshoek connecting with
Eswatini; and Kopfontein connects with Botswana.
Problems for commuters across boarders has not been properly addressed, including cross-
border travellers with disabilities. Facilities at border posts, including reasonable
accommodation in passport and customers control, remain inadequate.
Freight Transport
Freight Logistics forms a very important element of the economic growth in the country, the
SADC, the African Continent and the Global Village. The South African freight industry is
dominated by strong competition between the main land modes, road and rail. This problem is
exacerbated by the distance of the strategic freight corridor between Durban and Gauteng
being primarily road focused. The result is a serious imbalance of 87% of the freight by weight
moved by road, and only 13% moved by rail. This results in underutilised rail infrastructure
and intermodal facilities with excessive pressure on road infrastructure to carry freight that
could be on rail.
Freight movement by road has a significant impact on the national road network and results in
high transport cost in the logistics value chain. This prevents South Africa from being
competitive in the global market and attracting sufficient international investment in supporting
economic growth.
South Africa’s borders are critical points for facilitating the unimpeded movement of goods and
people. However, there are currently bottlenecks in commercial supply chains and journeys of
cross-border travellers. The capacity constraints especially at border posts causes excessive
delays of goods (and to passengers), this in turn increases the cost of freight particularly due
to standing charges exerted on operators/customers. There are positive indications of progress
towards increasing capacity with some busy crossings now operating 24 hours a day.
The lack of movement of freight from road to rail creates pressure on the roads environment
to expand the width of roads, which in turn causes social divisions between communities on
either side, and creates universal access problems. This is a particular barrier on provincial
roads which are not motorways.
In summary, freight movement by road has a significant impact on the national road network
and results in high transport cost in the logistics value chain. This impacts South Africa’s
competitiveness in the global market and attracting sufficient international investment in
supporting economic growth.

Transport Infrastructure
South Africa has missed a generation of capital investment in roads, rail, ports, electricity,
water and sanitation, public transport and housing. To grow faster and in a more inclusive
manner, the country needs a higher level of capital spending in general and public investment
in particular4. The NDP calls for a gross fixed capital formation of about 30% of GDP by 2030
to see a sustained impact on growth and household services. The NDP calls for effective,
reliable, economical and smooth-flowing transport corridors.
Roads and railways are intended to be facilitators of connectivity and mobility – enablers of
economic growth. However; roads particularly have become bottlenecks due to congestion and
pavement damage by excess axle loads of trucks.
The South African network has a total length of -+750 000 km of road network, of which an
estimated 17.6% of the network comprises of public roads which are not formally gazetted by
the Authority (un-proclaimed gravel roads) (SANRAL, 2014). of the proclaimed road network,
25.5% is paved and 74.5% is gravel roads.
The road network is characterised by wide disparity in condition, among the different
categories. In 2013, SANRAL recorded that 26% of municipal and provincial roads were in a
poor to very poor condition and 38% in a good to very good condition (SANRAL, 2014). The
management and maintenance of roads is relatively average in Provincial and Municipal
departments while the SANRAL operations meets/exceeds world standards with 48% of the
SANRAL network in good to very good condition (SANRAL, 2014). Although national roads
exceed some world standards, close to 80% of the national road network has exceeded its 20-
year structure design lifespan and as such, highlights the critical need for effective and
appropriate maintenance. An urban planning-based problem remains the lack of integration of
national roads within local municipalities causing divisions that should not be present, which is
not in line with world standards
The implementation of road infrastructure in Provinces and Municipalities is generally

constrained by the lack of a functional Road Asset Management System (RAMS), and
engineering expertise for planning, management and implementation of projects.
Provinces are required to demonstrate road maintenance plans and budget applications based
on RAMS. Municipalities are also required to motivate road projects through RAMS and COGTA
has the authority over it SANRAL is currently assisting some provinces and municipalities with
data collection and pavement management. However, there is need for progressive data
collection and subsequent planning, management and implementation road projects at
provincial and municipal government.
Rail infrastructure is in poor condition and in urgent need of modernisation and its capacity is
limited by aging infrastructure and rolling stock, theft and poor maintenance. Typical rail
operations are slow, unreliable and delayed by inadequate handling facilities at intermodal hubs
which further exacerbate this situation.
The road and rail infrastructure are generally under-maintained with a lack of strategic focus
and prioritised funding, neither the road or rail environment have dealt with the barriers created
by planning and standards implemented in these two respective areas, which results in
universal inaccessibility of NMT and rail services.
4 National Development Plan, 2011


The NSDF identified the need to prioritise rail investment over road for economic, ecological
and efficiency reasons. While the need exists to maintain and strengthen National Development
Corridors.
Pedestrian and cycling facilities are not mandatory infrastructure with new developments. There
are retrofitting provisions through IPTN projects the cost of putting right the problems created
by the implementation of non-aligned standards that do not support walking and cycling is not
cost-effective and, in many cases, simply unaffordable.
In summary, rail and rural road infrastructure in particular have been neglected and under-
maintained. This is in part due to the transport industry competing for funding from the fiscus
with other government/public sector services and funding allocated to key priority areas. , and
also the outcome of a lack of aligned planning with associated institutional problems. The high
price of fuel makes rail transport more attractive. To achieve the objectives of electro – mobility
recharging infrastructure along the main transport corridors will be essential.
Transport safety and Security
Road Safety
More than 12,500 people lost their lives on South African Roads during 2021. The country’s
fatality rate of 26 deaths per 100, 000 is among the highest in the world and contrast sharply
with a rate of around five deaths per 100, 000. However not all road users are at the same
level of risk when using South African Roads. Pedestrians are the most vulnerable.
South Africa has committed to and is participating in the United Nation’s campaign “Decade of
Action for Road Safety 2021-2030”. The key focus areas of the Strategy forming part of this
campaign are the “4Es” - enforcement, education, engineering, and evaluation. This approach
is recognised as the ‘World’s Best Practice2’ in driving road safety improvements. Where
thoroughly applied a decline in crashes and significant improvements in statistics are shown.
For example, Sweden, France, and Australia have shown reductions of over 50% in crash rates.
Upon joining this initiative, the goal set by South Africa was to, by 2015, reduce road fatalities
by 50% over the five-year period 2011 to 2015. This has not been achieved with only a nominal
reduction in fatalities over the period. Given that the application of the 4Es approach as adopted
by the National Road Safety Strategy has been internationally proven to result in significant
improvements the only assumption that can be drawn is that it has not been effectively applied
in South Africa.
Thus, road safety remains a key challenge faced by the South African society and the
Department of Transport. The implementation of the highly digital and futuristic Administrative
Adjudication of Road Traffic Offenses Act (AARTO) system that aims at automated road
infringement 4IR technology which intends to transform the industry.
Railway Safety

The Railway Safety Regulator (RSR) is the designated authority regarding all Rail Safety
incidents and provides support to the Police Services in the case of security-related incidents.
The RSR’s 2021/22 Annual State of Safety Report indicates that the number of operational
incidents reported increased by 2%. This was from 2 024 occurrences reported during the
2020/21 reporting period to 2 060 in the 2021/22 reporting period. Since the year 2010 to 31
March 2022, 46 270 negative operational occurrences have been reported and recorded by the
RSR. South Africa compares favourably with the international data when it comes to rail safety.
However, there is still a drive to improve these statistics.
Key issues regarding the safety of the general public are the non-adherence to safe driving
practices at level crossings and the accessing of the rail reserve / crossing of rail lines in
uncontrolled areas by pedestrians.
The Railway Safety Bill once promulgated into an Act, seeks to improve the regulatory
framework regulating railway safety in the Republic of South Africa in order to improve the
safety of passengers and freight. It further seeks to place the emphasis and focus on railway
safety and to recognise operator’s role in managing and implementing safety measures, with
the RSR promoting safety and ensuring compliance with such measures.
Transport Security
Security of people on the transport system is becoming a serious concern with the number of
instances of direct crime such as hijackings, robberies, muggings, gender-based violence,
sexual harassment, crimes against women and girls in public transport, and other public
transport related violence, road rage, industrial action, etc. A further concern is the disruption
to transport operations and closing of roads and rail routes due to industrial action and service
delivery protests. This can be partially attributed to the high unemployment rate, in turn
created by the lack of transformation in spatial planning
According to the Railway Safety Regulator State of Safety Report (2021/22), there was a
decrease in the number of recorded security-related incidents on rail – The number of theft of
assets recorded in 2021/22 is 6% lower compared to the 2020/21 reporting period, but 51%
higher since 2010/11. Malicious damage (vandalism) contributed a total of 17% (1 320
incidents) to the total security-related incidents recorded during the 2021/22 reporting period.
The number of malicious damage incidents recorded in 2021/22 is 8% lower compared to the
2020/21 reporting period, but 8% higher since 2010/11. Personal safety related incidents
reported amounted to only 283 which is understated as not all incidents are reported.
Institutional arrangements
An effective well managed transport system includes coherent policies, unified urban and
transport planning responsibilities, sound structure of the public transport industry and
appropriate regulatory and supervisory framework and transportation information management
enabling transportation providers to make better decisions.
There is a general lack of implementation of existing regulations and policy with regulatory
funding not being spent where required. This is recognised in the NDP which states that
government needs not only to better coordinate collaborative investment by businesses, and
provincial and local government into key infrastructure projects, realise the desired efficiencies,
improve infrastructure delivery, and contribute to economic growth and employment creation.
It recognises that it is not about new policies and programmes but rather about giving effect
to existing laws and policies and improving their implementation.

The many layers of governance (across national, provincial and municipal spheres) are not
conducive to integrated planning and implementation. Further, there is a general lack of
proactive involvement and coordination between the public sector and private sector, labour,
and other stakeholders, resulting in unnecessary delays in project development and service
delivery.
The less than optimal management of public transport services for example exacerbate
operational inefficiency and high cost/subsidy for public transport. Transport sector decision-
making and the associated control over budgets is extremely fragmented. Planning
responsibility lies primarily with municipalities, commuter rail services are a national function
managed by PRASA, provinces are responsible for the contracting of subsidised bus services
and the regulation of operating licences (mostly mini-bus taxis and tourism transport), and
since the promulgation of the National Land Transport Act in 2009 the twelve largest
municipalities have been made responsible for implementing new bus rapid transit services.
No single institution has effective overall responsibility for achieving an integrated transport
system; resulting in a tendency for investment decisions and service delivery to be driven by
the interests of service suppliers rather than by an integrated, user driven approach. A widely
agreed policy intention since the 1996 White Paper on Transport Policy, confirmed by the
National Land Transport Act 2009, has been to make metropolitan and larger city governments
the locus of responsibility for public transport, integrating with its land use planning
responsibilities. However, apart from the transfer to these municipalities of conditional grants
for implementing bus rapid transit projects, little progress has been made in assigning
regulatory functions or expanding responsibilities in managing subsidised rail and bus
contracts. The harsh reality is that not all Municipalities have the requisite capacity to plan and
operate railways in a manner that enables a seamless integrated service that transverses
municipal boundaries.
The National Rail Policy White Paper, 2022 acknowledge the importance of devolving Public
Transport to the lowest level of government. For that reason, that National Rail Policy requires
the development and approval of a Devolution Strategy for commuter rail to guide the
assignment of commuter rail functions to the municipality sphere of government.
Central to the issue of devolution is the requisite capacity to deliver. It is therefore necessary
that this matter be given a focused attention through a framework between the DoT and SALGA
aimed at ensuring that there is adequate capacity for cities to manage rail function within the
broader ambit of an Integrated Transport Plan.
Similarly, law enforcement is fragmented between the three spheres of government, resulting
in inconsistent application of the road traffic regulations, such as overload control, public
transport operating licences, etc.
Making metropolitan and large city governments the locus of responsibility for urban transport
including all public transport necessarily creates financial risks for these authorities. Thus,
assignment of responsibility needs to be accompanied by appropriate mechanisms to effectively
manage such risks. Achieving better institutional alignment between provinces, municipalities
and PRASA in a manner that makes metropolitan government the key locus for decision-making
in line with the National Land Transport Act 2009 would facilitate better integration between
different types of public transport, enabling optimal matching of transport types to demand
patterns. However, improving institutional alignment will require addressing the special
circumstances of Gauteng, which contains three adjacent metropolitan areas which need to
coordinate their transport approaches.

The integration of functions to a dedicated sphere of government may determine an integrated

transport system, operational efficiency, economies of scale, and increased funding.
Perhaps the most substantial short-term obstacle to achieving the policy objectives of the
transport system is the lack of institutional and management capacity, especially at the local
level. The uneven capacity of local government is a major constraint to effective and efficient
service delivery. Municipalities operate in varying socio-economic circumstances and diverse
levels of capacity. This manifest itself in the realm of land use and transport planning,
negotiating, tendering and contract management, and setting and promulgating regulations.
An opportunity remains in the NLTA to utilise the National Public Transport Regulator, and to
increase the responsibilities of the Regulator on passenger issues. This would enable to the
Department of Transport to play a coordination role in solving problems and enable the
enforcement of standards where these were not properly introduced.
Funding
Current funding instruments available to the national, provincial and local transport authorities
includes funds allocated through the Division of Revenue Act (DORA) comprising the Equitable
share and Conditional Grants such as Provincial Road Maintenance Grant, Public Transport
Network Grant, Public Transport Operations Grant, and Municipal Infrastructure Grant. User
pay fees are generated through toll fees, vehicle license fees, fuel levies, carbon tax from
vehicle sales; private sector bulk services contributions, parking, cross-border fees, etc. The
financial markets contribute to transport funding such as Foreign Direct Investment mainly for
Public Private Partnership projects, issuing of bonds, loans, etc.
The institutional fragmentation in transport has also led to a multiplicity of authorities tasked
with one or other element of the total transport system, resulting in inefficiencies. Another
challenge is that the different components of the system are optimising against their own
internal objectives often at the expense of the total transport system objectives. This is in the
main due to the absence of a system level approach to investment in transport infrastructure.
The South African Government should plan towards providing sustainable infrastructure for
electro – mobility and green energies to transform the transport land landscape away from a
fuel-based system.
Generally, funding is not aligned with policy objectives. The transport vision calls for an
integrated, efficient, reliable, affordable, etc., transport system. This requires exorbitant levels
of infrastructure and operational funding over a long period of time. The current policy and
fragmented transport systems are not feasible and not sustainable. The integrated transport
system must be affordable to both the authorities and the customer.
3.3 Summary of the current realities in the transport

industry
The immediate challenges faced by the transport sector that are constraining policy objectives
have defined the key priority areas or thrusts to be focused on in the next five years. The
fundamental challenges to the progress and roll-out of the national strategies are:
• Public transport integration, safety, universal accessibility, and efficiency remains a

constant challenge despite the amount of money on the IPTN program and subsidies;
investment such as upgrading commuter rail rolling stock and Bus Rapid Transit or

quality bus, without upgrading existing public transport within the integrated public
transport system;
• Motorised private transport, the exorbitant amount spent on the private car, relative to
the fraction of the population that the car service, continues to be unjustified;
• 87% of freight by weight is moved by road and 13% by rail reflecting a significant
imbalance in the freight transport system; the cost of freight logistics is increasing
where transport costs is the most signification component; the lack of ability to
implement road-to-rail in line with government policy, coupled with cross-border
operations (border control) limits productivity with a significant impact on the logistics
value chain and the economy;
• South Africa’s road fatalities and traffic accidents levels are among the worst in the
world and show no significant reduced trend, indicating that the road safety strategy
to date is not yielding effective results;
• With the exception of the national road network, the road and rail infrastructure are
generally under-maintained and a lack of strategic management and maintenance
system, and subsequently funding;
• The provision of pedestrian and cycling facilities are still not mandatory for new
developments;
• Land use planning priorities and interventions to ensure increased universally

accessible densification and targeted growth along core corridors are not happening at
a fast-enough pace. Decision-making is not as yet properly integrated with urban
transport plans, and there is no systematic focus on walking and cycling. A lack of
strategy and programme implementation for transport funding for transport
operations and infrastructure; and
• A lack of institutional and management capacity is one of the most substantial

short-term obstacles in achieving the policy objectives for transport.

NLTSF VISION
The policy framework within which the NLTSF operates is set out in Section 3 and the challenges
identified in Section 4 serve to construct and condition the overall land transport vision for the
Department for Transport. In order to achieve this, some key overarching strategic intentions
were identified.
South Africa’s transport policy intentions are comprehensive and address the strategic drivers
such as sustainability, economic development, job creation and poverty alleviation, inequality,
etc. The transport policy framework also demonstrates strategic intent, while the planning,
funding and execution of transport plans and projects are relatively incongruent. The Transport
Policy framework emphasis customer focus, while the recent transport statistics indicate
perpetual inefficiency and infrastructure degradation.
4.1 Land Transport Vision

The vision for land transport to improve transport services and infrastructure is often driven or
influenced by other strategies as indicated in the Introduction and Chapter 3. The NLTSF will
help to enable the implementation of those strategies. Inevitably, therefore, the vision does
not prescribe specific outcomes, but guiding principles which can be responsive to other
strategies as they emerge.
The overall vision of the Department for Transport in the context of the policy framework within
which the NLTSF operates and current national imperatives are to create:
An integrated and efficient transport system supporting

a thriving economy that promotes sustainable economic
growth, supports a healthier life style, provides safe and
accessible mobility options, socially includes all
communities and preserves the environment
The following are key strategic objectives over the next five years:
• a much-improved sustainable public transport system with better and safer access to
amenities, more frequent and better-quality services and facilities to an agreed
standard;
• A universally accessible transport system, using any mode of transport;
• significant reduction in road fatalities;
• greater mobility options for those who do not have a car;
• safer and easier cycling and walking;
• better infrastructure, links and interchange with other means of transport;
• an improved and better maintained road and rail network;
• improved journey time reliability on all modes;

• different travel patterns and transport usage and, where appropriate, reduced need to
travel by motor vehicles from having achieved an integrated land use and transport
system;
• a transport system that is consistent with the real needs of people living in different
parts of South Africa and with differing abilities to afford travel;
• a transport system that charges the traveller a fair reflection of the costs of making a
journey;
• a transport system that supports focused funding of transport priorities;
• developed sufficient institutional human capital to drive the vision of transport; and
• A transport response that supports rural transport development.
To achieve the bold vision for transport a number of objectives were developed. The objectives
are aimed at supporting the wider vision of sustainability. The objectives aim to set an exciting
new focus for transport and helps demonstrate clearly the case for supporting and investing in
land transport.
4.2 Department of Transport’s position on sustainability

and universally accessibility
In general, sustainability encompasses a holistic consideration of economic, social, and
environmental progress—usually referred to as sustainability dimensions—with a long-term

perspective. Figure 2 below illustrates the integration of the environment, society, culture,
and the economy in order to develop a sustainable transport system in South Africa.
Figure 2 Dimensions of sustainability as defined in the NTF
The National Transport Forum (2014) defines sustainable transport as transport that:

• Meets the needs of the present generation without compromising the ability of the
future generations to meet their transport needs;
• Meets the basic access and development needs of individuals, companies and society;
• Is affordable, operates fairly and efficiently, offers a choice of transport mode, and
supports a competitive economy, as well as balanced regional development;
• Is transport that is reliable, predictable and safe for all users; and
• Limits emissions and waste within the planet’s ability to absorb them and uses
renewable resources at or below their rates of generation.
Sustainable development applied to transport systems requires the promotion of linkages

between environmental protection, economic efficiency and social progress. Under the
environmental dimension, the objective consists of understanding the reciprocal influences of
the physical environment and the practices of the industry and all aspects of the transport
industry to address those environmental issues. Under the economic dimension, the objective
consists of orienting progress in the sense of economic efficiency. Transport must therefore be
cost-effective and capable of adapting to changing demands. Under the social dimension, the
objective consists of upgrading standards of living and quality of life.
Sustainable transport is essentially the capacity to support the mobility needs of people,
freight and information in a manner that is least damaging to the environment. The focus must
strongly be on walking rather than taking public transport within reasonable walking distances.
This then requires substantial change to development as well as transport planning.
Sustainable development applied to transport systems requires the promotion of linkages
between environmental protection, economic efficiency, infrastructure and social progress.
Under the environmental dimension, the objective consists of understanding the reciprocal
influences of the physical environment and the practices of the industry and all aspects of the
transport industry to address those environmental issues. Under the economic dimension,
coupled with infrastructure; the objective consists of orienting progress in the sense of
economic efficiency. Transport must therefore be cost-effective and capable of adapting to
changing demands. Under the social dimension, the objective consists of upgrading standards
of living and quality of life by providing decent and affordable NMT and public transport
environments.
The Green Transport Strategy (GTS) is informed by the fundamental and substantive principles
of sustainable development articulated in the National Strategy for Sustainable Development,
as approved by the Cabinet in 2011. The substantive principles are based on the following
sustainable development principles that are already enshrined in South African law and that
underscore a systems approach to achieving sustainable development:
• Natural resources must be used sustainably;
• Socio-economic systems are embedded in and dependent on ecosystems; and
• Basic human needs must be met to ensure that the resources necessary for long-term
survival are not destroyed for short-term gain.
The fundamental principles of Sustainable Development can also be related to the following
fundamental human rights that are guaranteed in the Constitution of the Republic of South
Africa:
• Human dignity and social equity

• Justice and fairness
• Democratic governance
• A healthy and safe environment
In the context of the GTS, this creates the following imperatives - to:
• reduce environmentally harmful emissions from the transport sector;
• reduce the impact of transport infrastructure on the environment;
• ensure integrated transport systems provide equitable access to economic

opportunities for all South Africans and support economic growth and development;
and,
• ensure that the provision of transport services and infrastructure includes using
resources sustainably
The Department of Transport is equally determined to secure positive change through planning
for and ensuring cohesive interaction of social, economic and environmental improvements.
The approach accords with the NDP, the priorities of the MTSF and the National Transport
Forum vision. This means working to five shared principles viz.:
• Work to achieve an efficient, competitive, responsive and universally accessible

economic infrastructure network;
• enhancing vibrant, equitable and sustainable rural communities;
• achieve sustainable human settlements and improved quality of household life;
• promote a people-focuses responsive, accountable, effective and efficient local

government; and
• protect and enhance our environmental assets and natural resources
Transport policies such as the Green Transport Strategy can contribute significantly to a
sustainable future such as to create awareness campaigns for green energies and electro –
mobility solutions, and by helping to promote healthy living and supporting a strong and
prosperous economy. Transport has a significant impact on the social, economic and
environmental fabric of the nation and the DoT aligns its vision to realise a dynamic, multi-
modal sustainable transport system for South Africa.
4.3 NLTSF overarching goals

The value of transport is generally underestimated. Transport is a catalyst for economic
development, job creation, social development, and general quality of life. The transport
portfolio requires greater attention in all spheres of Government and the private sector.
A number of objectives or overarching goals were classified to support the wider vision of
sustainability described above. The objectives support each other, for example, promoting
better integration between land use planning and transport planning to encourage densification
will create the high volumes of travel required to justify certain large public transport
investments. These overarching goals for transport are:
• District Development Model’s (4.3.7)
• Integrate land use and transport planning (4.3.3)


• Promote social inclusion and accessibility (4.3.5)
• Improve transport safety and security (4.3.6)
• Reduce transport impact on the environment (4.3.2)
• Promote sustainable transport modes (4.3.4)
• Promote introduction of green energies in transport (4.3.2)
Support economic development
Transport is a key enabler in any successful economy in that it provides the means of moving
people and goods. An ineffective and inefficient transport system stifles economic growth in
that the access to opportunities may well be restricted and that mobility may be costly from a
financial, social, and/or environmental perspective. As an example, congestion drives up fuel
consumption, increases emissions and is extremely time consuming.
Improved access to employment and education also contributes to the country’s long-term
prosperity. Poor access is one of the major barriers facing the unemployed; more especially in
rural South Africa.
The NLTSF aims to enable economic growth, development, and job creation by connecting
current and new nodes as development corridors and by making better use of and maintaining
the transport system, comprising:
• economic development corridors;
• regional economic competitiveness;
• efficiency in transport operations
• upgrading and maintenance of transport infrastructure;
The benefits are:
• Reduced travelling costs;
• Reduced need for building vast car parks on valuable land in the city centres that could
have otherwise been used as highly priced office or retail space;
• Reduced reliance on rapidly decreasing oil supplies;
• Reduced reliance on imported fuels;
• Job creation;
• Increased property value in and around the core business areas and adjacent to public
transport stations;
• Improved integration between various sectors;
• Community development and upliftment;
• Improved living standards; and
• Tourism.

Reduce the impact of transport on the environment
Transport has a significant role to play in adapting to the impacts of climate change. The NDP
vision is that South Africa’s transition to an environmentally sustainable, climate change
resilient, low-carbon economy and just society will be well under way by 2030.
Rising concentrations of greenhouse gases are recognised to be causing global climate change.
Transport, through the use of fossil fuels, is one of the top three sources that produce
greenhouse gases, and accounts for 13,3% of GHG emissions in South Africa according to the
2017 GHG Inventory Report for South Africa.
Reducing emissions from the transport sector is a key element of achieving a sustainable
transport system. However, transport is a significant driver of economic growth and social
wellbeing. So, given the growing demand for transport, the reduction of emissions poses a
particular challenge.
Effective reduction of emissions requires a multifaceted approach which may incorporate both
a reduction in the need to travel and through the use of technologies some of which may
already be available. An integrated planning approach is thus key to reducing emissions (as
well as energy usage).
Emissions can be reduced by making smart choices, as individuals, about what, when and how
to drive. The Department of Transport has begun its implementation of the Green Transport
Strategy in order to address the inherent effects that transportation has on the environment
as well as its transport’s contribution to climate change and/or air pollution. The key variables
through which to influence pollution levels/air quality are:
• The over reliance of petroleum-based fuels;
• Single car usage as the predominant form of travel;
• The number of trips and distance travelled;
• Land use (densification) and travel demand management
• Congestion and traffic management;
• Using public transport and NMT as a predominant mode of transport;
• Improving the fuel efficiency of vehicles and promoting the uptake of cleaner and
efficient vehicle technologies, such as electric vehicles; and
• Supporting the reduction in greenhouse gases and other emissions associated with
transportation activities.
The Department is also cognisant that, while vehicle efficiency and low carbon fuels have an
important role to play in reducing transport emissions, building a resilient low carbon transport
system requires systemic changes in order to shift from the current situation of low-density
human settlements in which the private car is the primary form of transport. Integrated
transport planning that actively addresses the spatial planning implications of land use decisions
is best achieved through cooperation between all affected departments in all spheres of
Government.

Integrate land use and transport planning
Better integration between land use planning and transport planning offers by far the biggest
impact to the impact that transport has on the environment and sustainability. It can do so by
encouraging densification and sustainable development, by creating local clusters of economic
activity that require less mobility and by developing multi-modal logistic chains to cut wasteful
and unnecessary trips. Some of the principles would include:
• Supporting compact community development and land use intensification that will
support high volumes of travel required for public transport;
• Providing efficient land use and traffic and public transport law enforcement;
Efficient transport information management to enable data driven planning by developing

a central land use / transportation data bank using GIS.
Promote sustainable transport modes
The DoT aims to encourage the change in transport by shifting to more energy efficient modes
or routes—such as shifting from road to rail; or shifting passengers from private vehicles to
public transport and non-motorised modes.
Ensuring sustainable access – especially by public transport, walking and cycling – is an integral
element of planning new services and facilities.
Further, investment in sustainable modes of transport such as new designs of public transport
vehicles can be expensive, but the benefits are much greater and can help towards achieving
long-term economic sustainability.
Promote social inclusion and accessibility
Transport plays a central role in our daily lives. Availability and accessibility of transport
influence where people live and work, leisure options, and opportunities to socialise. The
success of the Department’s equality and social justice agenda depends to a significant degree
on the effectiveness of the transport system. Good access to public transport is essential to
increase the life chances of the most disadvantaged and people living in deprived communities.
Where services and facilities cannot be provided in the immediate locality, transport services
can contribute to social justice by:
• Helping more people into jobs and creating better jobs and skills
• Improving health and providing access to social services
• Reducing air and noise pollution from transport
• Developing strong and safe communities
Improve transport safety and security
Perceptions of safety are an important factor in how people use the transport system. Feelings
of vulnerability can encourage captive public transport to shift to private car when they can
afford it and it can deter car-users from switching to public transport. A safe and secure public
transport system can benefit society by:
• Reduced accident rates, particularly for vulnerable road users, as well as improved
perceived safety for all modes of transport;

• Work to eliminate traffic-related fatalities, and address concerns of personal safety and
security;
• Public transport operators to derives methods to improve security on vehicles and at

stations; and
• Enable people of all ages and abilities to travel efficiently and safely;
District Development Model (DDM)
The District Development Model (DDM) is an operational model for improving Cooperative
Governance aimed at building a capable, ethical Developmental State. It embodies an approach
by which the three spheres of government and state entities work in unison in an impact-
oriented way, and where there is higher performance and accountability for coherent service
delivery and development outcomes. It is a method of government operating in unison focusing
on the municipal district and metropolitan spaces as the impact areas of joint planning,
budgeting and implementation.
This method refers to all three spheres of government, sector departments and state entities
operating like a single unit in relation to achieving developmental objectives and outcomes in
these district and metropolitan spaces over a multiyear period and over multi-term electoral
cycles.
Although each sphere, sector or entity has its distinct constitutional powers, functions and
responsibilities, they cooperate and undertake collaborative planning, budgeting and
implementation processes converging efforts at the district/metropolitan level.
This joint work is expressed through the formulation and implementation of a “One Plan” which
is a long-term strategic framework guiding investment and delivery in each district and
metropolitan space.
4.4 Reviewed functional areas for the NLTSF

The NLTSF was developed as a guiding reference to give strategic direction to transport
planning at all spheres of government. Having consulted stakeholders widely, the 2017 NLTSF
functional areas were retained with only one additional to the list being Universal Accessibility.
The following functional areas were adopted:
• Integrated Land Use and Transport Planning
• Urban Transport and Smart cities
• Universal Accessibility
• Rural Transport
• Public Transport
• Non-Motorised Transport
• Learner Transport
• Freight Transport
• Transport Infrastructure
• Cross-Border Transport

• Transport Safety and Security
• Institutional Management
• Funding

THE STRATEGIC FRAMEWORK
The Strategic Framework describes what is required to realise the vision and overarching
objectives for land transport in South Africa considering current challenges and what can be
achieved over the next five years. The intent behind the approach of developing the framework
is driven by the need for an appropriate affordable transport system that supports access to
opportunities while considering sustainability, social aspects and the environment.
Sustainability - and the three key aspects of sustainability, namely the environment, the
economy and society as a whole - has therefore been the underlying thread connecting this
framework. The goal of sustainable transportation is to ensure that environment; social and
economic considerations are factored into decisions affecting transportation activity. For
economic growth and social equity reasons it is vital to establish efficient transport systems to
meet growing demand as sustainably as possible. These would include a transport system that
consumes less energy, reduce pollution, have a minimal impact on the environment and provide
equity of access for people and goods5.
Figure 3 Land transport strategic philosophy
Figure 3 describes the philosophy in deriving the framework. The broader policy framework
and intents informed the vision and key priorities for land transport in South Africa.
The NDP vision is that South Africa’s transition to an environmentally sustainable, climate
change resilient, low-carbon economy and just society will be well under way by 2030. As a
follow on to NDP, government developed the Medium-Term Strategic Framework (MTSF) to
help prioritise projects and programmes in South Africa that would work towards achieving the
aspirations of the NDP.

This Chapter outlines the vision, strategic intent and key performance areas for each key
strategic element that were identified as the renewed focus of the NLTSF. The success in
implementing the transport programmes and projects that emanate from the respective PLTFs
and ITPs are reflected through the key performance areas defined in the NLTSF.
5.1 Integrated Land Use and Transport Planning
Vision
Transport infrastructure and operations form an integral part of land use planning and are
designed, planned and managed in an integrated manner to prioritise densification, promote
public transport over private transport, improve local accessibility and lower the carbon impact.
Strategic Intent
A key strategy of the NLTSF is to encourage efficient land and transport planning to enable
better decision-making and positive outcomes. Transport projects can and should derive
increased economies of scale and efficiencies from integration and coordinated planning
The DoT and Provincial Government do not have full control over land use; however, they can
choose to spend resources in areas where local governments are focusing on effective land use
planning. It will not be sufficient for transport planning authorities to present plans which show
the potential for structural change. Planning guidelines require spatial development plans to be
integrated with the ITP and the IPTN and that the implementation of these plans be closely
monitored to ensure compliance. There need for guarantees in place that corridor densities will
increase in parallel with IPTN roll-out and that service distances will be limited to defined urban
edges. In so doing the costs of IPTNs can be contained and a positive cycle of densification and
increasingly efficient public transport can take hold.
Fundamental to long-term solutions will be the integration of public transport and land use
planning to achieve a change in the spatial layout of the cities. This includes changing land use
so as to shorten travel distances, creating bi-directional passenger flows throughout the day,
and reducing the high differential between peak and off-peak demand. The implementation of
plans and strategies to support the densification of the cities in specific nodal areas and along
identified corridors will assist in reducing the costs of public transport.
While solutions are needed to address the access needs of low-income residents in poorly
located, distant areas, transport subsidies should be applied in ways that help drive the
restructuring of urban form rather than accommodate and subsidise further sprawl which will
lead to demands for further increases in subsidies.
Objectives
The key objective of this strategic element is to ensure that macro transport sector planning is
integrated and coordinated with all land use to facilitate multi-modalism on an ongoing basis.
Transport’s multidisciplinary nature necessitates a comprehensive, intermodal approach and
integrated transport planning is therefore a positive way towards more sustainable transport
systems.

Integrated transport planning considers transport system interdependencies, interactions

between transport and land use, transport safety, traffic congestion, parking, travel demand
management and accessibility. Collectively, integrated transport planning will help to identify
and prioritise transport infrastructure and service improvements to meet community needs as
well as government objectives.
The minimum requirements for the preparation of PLTFs and ITPs need to be updated with the
necessary guiding principles around land use and transport integration to clarify growth and
development goals and guide DoT investment. The principles will be designed to help
authorities develop land use and transport plans in an integrated manner, prioritise investments
and implement policies in each so that they work together to further the national objectives.
The overarching vision of the DoT’s Public Transport Strategy and Action plan (2007 to 2020)
was to implement a continuous and incremental upgrading from the current basic commuter
service to an upgraded modal service and then an integrated rapid public transport network.
This was positioned as three clear phases where the first phase aimed to stabilise the existing
passenger transport service delivery environment as well as to recover from the accumulated
neglect of decades of under-investment.
Key Performance Areas
1. All Planning Authorities to maintain and update a database of traffic and pedestrian counts;
(ITS)
2. Update Minimum Requirements for the preparation of PLTFs and ITPs;
3. All Provinces to update PLTFs to be relevant in this planning period (2023 to 2028);
4. All Municipalities to prepare and/or update Comprehensive, District, and Local Municipal
ITPs incorporating Public Transport Plans comprising of IPTN, Rationalisation plan,
Operating Licence Strategy and any Land Use Plans;
5.2 Urban transport and Smart Cities
Vision
Promote and invest in appropriate and sustainable and integrated urban mobility which
supports economic development and social inclusion.
Strategic Intent
South Africa is experiencing rapid growth of and migration to main urban areas. 40% of the
population live in the five largest cities (Johannesburg, Cape Town, eThekwini, Ekurhuleni and
Tshwane) in South Africa and this number is currently increasing at a rate of 4% per annum.
An efficient transport system serving well planned cities is a vital lifeblood for the effective
urban function. Transport systems require intensive, consistent investment into appropriate
and sustainable transport systems - congestion mitigation and improve air quality from
transport related activities.

It is a well-accepted approach worldwide that efficient urban transportation implies putting

effective public transport first. In South Africa, transport policy focus has progressively shifted
towards giving greater priority to public transport (and more recently to non-motorised
transport) over the provision for accommodating private transport as evidence in the NHTS
(2020) This has resulted in a series of integrated quality public transport programmes and
planning and implementation of IPTNs. The success and financial feasibility of all planned IPTN
interventions rely on increasing urban densities, mix use development and increasing the modal
share of public transport among choice users. The range of strategies and measures to ensure
these outcomes are fundamental to achieving better operational cost recovery in future.
Without doubt public transport investments are vital, yet this investment will not significantly
improve the urban economy nor public transport effectiveness unless equal attention is placed
on spatial densification and universal accessibility.
Spatial integration in the urban context is key to reduce urban sprawl, integrate different
communities (mixed income and mixed tenure), land use activities (mixed-use: commercial,
retail, recreational, transport, residential, social services, etc.) and encourage the shift from a
single motor car urban design concept to a new urban design concept based on public transport.
Greater public and government awareness of transport’s land use requirements will be
promoted, and effective, coordinated land use and transport interventions will be initiated to
counter unsustainable urban sprawl and unacceptably long travel distances.
The integration of public transport and land use planning to achieve change in the spatial layout
of the cities is fundamental to achieving the long-term objectives of a sustainable transport
system. This includes changing land use so as to shorten travel distances, creating bi-
directional passenger flows throughout the day, and reducing the high differential between
peak and off-peak demand. Strategies to support the densification of the cities in specific nodal
areas and along identified corridors will assist in reducing the costs of public transport.
Commuter rail considerations must be fully integrated with urban development plans and be
assessed as part of an integrated multi-modal transport and urban restructuring strategy. The
recommendations of PRASA should input into multi-modal assessments of the appropriate
serving approach and development of IPTNs and ITPs. High demand stations, should be
regarded as major local attractors and be the focus for future mixed development. In this way
progressive improvements in modal efficiencies will be achieved.
Where quality public transport systems are combined with and supported by excellent walking
and cycling linkages, a complete transport solution is provided. Beyond the core capital
investment in infrastructure being focused on the main corridors for rail and IPTNs systems,
the cost of providing feeding services to trunk lines are very expensive given the low urban
densities and the necessary transition to transform MBT to be part of the IPTN suite of offerings,
to put in place formal bus operations to replace informal and sub-economic mini-bus taxi
operations. A major opportunity exists to significantly improve cycling and walking links to
these primary public transport systems (NHTS, 2020). The potential benefits to overall
transport system effectiveness and urban functioning through much more comprehensive
inclusion of NMT provision must form a central pillar to urban transport strategy.
In South Africa, the transport sector is the second largest contributor (after the energy sector)
to carbon emissions. Actions to reduce the transport related carbon emissions profile also
support the urban development needs, namely promoting public transport over private car use,
de-congesting roads through travel demand measures, shifting a greater proportion of freight
onto rail, better spatial planning to limit urban sprawl, and investing in sustainable modes of
transport such as NMT.

Objectives
• Provide an efficient urban transport system in all Metros that complements economic
activity supplemented by appropriate systems such an Intelligent Transport System,
Travel Demand Management, and Transport System Management through a central
Transport Management Centre.
• Promote the development of an urban land use restructuring programme as part of the
Urban Renewal Strategy. A clear and unambiguous document setting out requirements
in support of urban corridor development and densification/infilling will be developed
and published. The transport sector in government will support and make inputs to the
Urban Renewal Strategy by means of a three-pronged urban restructuring initiative
aimed at (a) urban corridor development, (b) densification and infilling, and (c)
rationalisation of transport and housing strategies.
• Support the implementation of corridor development and densification strategies and

other aspects of IDPs that are effectively aligned with municipal transport plans. While
solutions are needed to address the access needs of low-income residents in poorly
located, distant areas, transport subsidies should be applied in ways that help drive the
restructuring of urban form rather than accommodate and subsidise further sprawl
which will lead to demands for further increases in subsidies.
• Provide greater priority to public transport and to non-motorised transport.
• Develop stronger institutional alignment between provinces, metros and PRASA in a

manner that makes metropolitan government the key locus for decision-making in line
with the National Land Transport Act (2009) to ensure better integration between
different types or modes of public transport, enabling optimal matching of transport
modes and services to demand patterns.
• Develop actions to reduce the transport related carbon emissions profile.
1. Improved service quality and safety of public transport
2. Improve access to main public transport nodes by improved walking links (20min or
1,5km), cycle networks and full cycle implementation programmes (within a radius of 5km)
and prioritising NMT – Universal Access
3. Undertake Household Travel Surveys every five years

5.3 Universal Accessibility
Vision
Promote and invest in a national transport system which is universally accessible.
Strategic Intent
The National Development Plan requires an approach of the removal of barriers and promotion
of equal participation for people with disabilities, as the Constitution requires. The National
Land Transport Act identifies specific passenger categories, universal access passengers, which
includes people with disabilities; along with children, elderly people, pregnant women and
people accompanying children. All these categories of passenger experience barriers to
transport services and systems, and account for over 60% of the population. Due to the
increase in violence on public transport systems in recent years, women and cyclists have been
added. Because of this over 90% of the population qualifies as having an unmet access need.
Concerted action is required to address these transport problems, through the implementation
of a Universal Design Access Plan or UDAP. Grant alignment is required, with conditions in all
Departmental grants, regardless of their application, so that change can more swiftly be
introduced.
The need for accessible transport systems was first identified in Moving South Africa, 1999.
Since then, the Department of Transport has introduced a number of Acts, amendments to Acts
and policy documents, particularly in the period before 2010. These have not been properly
implemented and yet contain legal requirements. The use of a UDAP introduced a change-
management approach with reporting against prescribed indicators, so that it is possible to
measure the extent and pace of change.
The UDAP forms part of the strategic and operational plan of the new transport system, and
monitoring against prescribed indicators is carefully considered. Reporting on the plan by the
municipal (or other) authority takes place one a year, and progress is reported to the
Presidency. These indicators relate to the outcomes required in the White Paper on the Rights
of Persons with Disabilities, 2015; which in turn is based on an international convention, the
United National Convention on the Rights of Persons with Disabilities, 2006, which South Africa
signed in full in 2007. Both documents require transport to be universally accessible so that
everyone can use it, and so that it provides accessibility to other services and amenities. This
approach is in line with the Constitution, rights-based and consumer protection legislation.
Spatial integration in urban and rural context is required, but if it is not planned using universal
design principles, it will not enable universal accessibility; as developed countries have found.
A different approach is required. Nationally, the application of existing standards promoting
universal access in the transport environment has led to the development of new requirements,
National Technical Requirements (NTRs); which are based on research with affected groups.
Regulation published using NTRs will already be based on proven research, and have been
developed with municipal (and provincial) support.
All modes of transport are affected by universal accessibility, which is a cross-cutting issue in
transport networks. Thus, every sectoral transport policy must deal with universal accessibility,
not public transport alone.

A universally planned, designed, constructed and operated public transport system will by its
nature, ensure that everyone is included. It will enable to access amenities, and enable
participation in all that life can offer; throughout the person’s life. This is an important part of
social sustainability and has significant economic benefits for South Africa. An inclusive
economy is one in which everyone participates, and provides a virtuous cycle, lifting some of
the poorest people out of poverty, which in turn, lifts other people out of poverty.
Objectives
• Provide a universally accessible urban and rural transport system introduced

incrementally, ensuring that everyone is able to use it, regardless of a disability or
universal access need.
• Promote the development of an urban land use restructuring programme as part of the
Urban Renewal Strategy, which includes universal design principles in planning and
design. The requirements in support of urban corridor development and
densification/infilling will include universal accessibility and ensure that the transport
system leads the way in the removal of barriers to access. The transport sector in
government will support and make inputs to the Urban Renewal Strategy by means of
a three-pronged urban restructuring initiative aimed at (a) urban corridor development
that is universally planned and designed, (b) densification and infilling that includes
modifications which meet the minimum standards, and (c) rationalisation of transport
and housing strategies, so that both are universally designed, as required by national
law and international commitment.
• Develop public transport systems that can support the implementation of universally
planned and designed corridor development. Also, densification strategies and other
aspects of IDPs that are effectively aligned with municipal transport plans and are
universally accessible. Where solutions are needed to address the access needs of low-
income residents in poorly located, distant areas, specific service may be introduced,
which enable stranded passengers to be reasonably accommodated, and which
positively impact on the eventual introduction of an integrated public transport
network.
• Provide greater priority for universal design standards for public transport and non-
motorised transport. This covers operations as well as planning construction and
design. It includes the use of universally designed digital technology, and other
operational components such as customer care and a complaints system. Introduce an
enforcement or compliance progamme.
• Develop stronger institutional alignment between provinces, metros and PRASA in a

manner so that all forms of transport in a local public transport network are universally
accessible, with integration between different types or modes of public transport,
enabling optimal matching of transport modes and services to patterns of demand
which everyone can use, throughout their lives.
• Develop actions to enable walking and cycling all the way or to a public transport stop,
regardless of age or disability, in line with the right to freedom of movement.
1. Improved universal accessibility of public transport networks across all modes of transport,
in line with minimum standards and requirements; measured against indicators
2. Compliance with minimum standards, the researched development of them and the
publication of universal access regulations; for planning, design, construction and operation

3. Undertake focused research with universal access passengers every year in order to report
on implementation progress, and remedy complaints, as required by the NLTA.
5.4 Rural Transport
Vision
To provide safe, reliable, effective, incrementally universally accessible and fully integrated
transport operations and infrastructure which will best meet the needs of freight and passenger
customers, at improving levels of services and costs in a fashion which supports government
strategies for economic and social development, whilst being environmentally and economically
sustainable.
Strategic Intent
Lack of access and mobility in rural areas is one of the key drivers of migration into urban areas
and impedes social and economic development of rural communities. Increasing mobility and
access to rural communities will unlock social and economic benefits and improve access to
education, health and other social amenities.
The remoteness from major economic hubs and low population densities isolates rural
communities from the mainstream economy which impacts on the ability of transport to support
national economic and social development objectives in these areas.
In rural areas, the most effective way of improving access to essential services is by improving
links between key rural nodes and employment nodes. Improving the lower order roads which
links rural communities to the higher order road network will make rural transport both more
accessible and more affordable, by reducing operating costs for road-based providers like taxis
and buses.
Improvement in rural access is a key requirement for achieving the Millennium Development
Goals such as halving poverty, increasing access to education, reducing maternal mortality and
improving child health5.
The Department has developed the National Guidelines for Integrated Public Transport Network
plans for the district municipalities. The National Guidelines were developed to standardised
the development of IPTNs. IPTNs will intensify the provision of public transport services and
infrastructure. It promotes quality, coordinated and integrated public transport system.
Objectives
The strategic objectives are:
• To improve economic and social and universal access for rural communities;
• Improving access to essential services by improving links between key rural nodes and
employment nodes or higher order road network;
• Promote quality public transport services within the District Municipalities
• Ensure better connectivity & interface of rural and urban areas
• To promote rural development that will improve access to opportunities, and
• Alignment of rural transport strategies with national rural development initiatives.

• Provision of public transport facilities and
• Development of Integrated Public Transport Network plans.
1. Develop actions and measure impact of rural transport interventions on safety and travel
time
2. Develop a strategic rural road network upgrade and maintenance plan with budgets for
rural road network infrastructure upgrades and maintenance
3. Establish the rural transport forum at district level, including universal access.
4. Measure Rural Access Index (which measures the number of people living within three
kilometres of an all-season road and/or transport service, as a proportion of the total rural
population).
5.5 Public transport
Vision
Ensure sustainable, equitable and uncongested mobility and accessibility “in liveable cities and
districts through integrated public transport networks (IPTNs)” (Public Transport Strategy
2007), Ensure that passenger transport services are customer focused and “address user
needs, including those of commuters, , children, people accompanying children, pensioners,
older people , pregnant women, learners, people with disabilities, tourists and long-distance
passengers” Public Transport Action Plan (2007).
Strategic Intent:
To promote a safe, reliable, effective, efficient, coordinated, accessible, affordable, integrated

and environmentally friendly public transport system by developing norms and standards as
well as regulations and legislation to guide the development of public transport for rural and
urban passengers and to regulate inter-provincial public transport and tourism services.
The initial priority for Public Transport should be a radical improvement to planning, operations,
infrastructure, and quality of service that are customer focused; and which meet the needs of
all users; improved significantly for the current users and subsequently stimulate mode shift,
especially from single occupancy cars. Public Transport improvements should focus on fleet
upgrades, safety, security, reliability and efficiency, universal access, and complementary
travel demand management measures such as HOV lanes, reversible lanes, integrated ticketing
and fare management, etc.
To monitor and evaluate the implementation of the Public Transport Strategy and the National
Land Transport Act (DoT), the Public Transport Strategy and Action Plan seeks to transform
public transport service delivery. The strategic thrust is to stabilise the current passenger
transport service delivery environment, enhance the institutional building blocks, fast track
service improvements, and incrementally enhance and expand the passenger transport system.
The linkage between public transport and NMT should start from initial phases of development
planning and joined with transport planning to avoid infrastructural disparities and costly
retrofits at later stages.
In order to provide effective public transport systems, as dictated by South African policy intent,
substantial investments into both capital and operational funding are required.

PRASA proposed a bold plan to transport and modernise passenger railways, while improving
integration between rail and other public transport modes to make it easier for passengers to
use railway services as part of the wider integrated transport system. Commuter rail
considerations must be fully integrated with urban development plans and be assessed as part
of an integrated multi-modal transport strategy.
It is of critical importance to recognise the country’s fiscal affordability challenges and the
productivity limits due to the low-density environment. Appropriate technical solutions must
be proven to ensure the achievement of optimal social and economic return.
The NLTA requires municipalities to provide transport that is accessible to everyone by meeting
all their needs, including people with disabilities; in so far as is possible on mainstream
transport. The entire Act requires the promotion of accessibility. Taken together, these two
parts emphases the need for municipalities to implement universal design in all parts of the
public transport system.
Objectives
The objectives of the Public Transport Strategy through Integrated Rapid Public Transport
Networks (IPTN) are as follows:
• Place 85% of residents of the large cities within 1km walking distance of the IPTNIPTN
• Link major origins and destinations (including airports, hospitals, recreational facilities,
etc.)
• Reduce journey times to a level that is car-competitive (under 60 minutes for door-
door commuter travel time)
• Implement 16-24-hour services through attaining peak frequencies for priority trunk
road and rail corridors at every five minutes, off-peak frequencies every 10-30minutes
and hourly late-night services
• Use of a hybrid service structure incorporating elements of both trunk-feeder services

and direct services
• Peak frequencies of 10 minutes and off-peak frequencies of 20-30 minutes
• Quality infrastructure and vehicles which are universally designed to ensure excellent
customer service through protection from the elements, pre-board fare collection,
security, comfort, reliability, and universal accessibility in all aspects
• Monitoring and control of operations through ITS
• Integrated Ticketing and Fare Management System, which is universally accessible
• Reinforce TOD with the IPTN
The National Public Transport Strategy has three phases that should be addressed in the
respective Planning Authorities’ Public Transport Plans, and implemented accordingly. The IPTN
should include passenger rail where rail is the primary trunk network and all other modes are
integrated with rail as one transport system. IPTN corridors should be studied in detail to
determine the relevant mode technology (quality bus, BRT, LRT, etc.) to promote the mode
that offers the best cost/service trade-off for a given corridor.

One of the five thrusts of the Implementation Strategy is continuous upgrading of existing
systems (modal upgrading). The public transport network grant is to provide for accelerated
planning, construction and improvement of public and non-motorised transport infrastructure
and services, where projects support an integrated network approach as defined in the Public
Transport Strategy and in the National Land Transport Act incorporating:
• integration between different public transport services, including non-motorised

transport infrastructure
• fare integration between different services, e.g. Single Ticketing System.
• marketing integration with unified branding and
• institutional integration between the services
One of the conditions of the Public Transport Operational Grant is that designs and business
plans detailing subsidised services will have to be approved by the Public Transport Integration
Committee comprising of the three spheres of Government to ensure alignment with Integrated
Public Transport Networks (IPTNs). A more rigorous review of projects and funding
requirements over the project life-cycle should be developed that assesses the feasibility of all
project applications. Applications should be built around a business case that articulates:
• Appropriate technical design built on a full options analysis,
• Full life-cycle costing that incorporates capital and operational requirements,
• Financial analysis of sources of income that details fare revenue and local income
stream projections,
• Rationalisation of all public transport operations,
• Socio-economic analysis enabling assessment of benefits versus costs incurred, and
• Institutional, management and contractual arrangements for the transition and ongoing
project management.
Feasibility studies for the devolution of passenger rail services to the Metropolitan Municipalities
should be carried out. eThekwini and Cape Town have already done so and established
Transport Authorities. The Department is in a process of developing a devolution strategy for
the future of the urban rail in South Africa in alignment with the Integrated Urban Development
Framework (IUDF) and White Paper on National Rail Policy (2022). The IPTN must seek to
rationalise public transport services to eliminate competition and redundancies, and implement
gross cost contracts for subsidised services.
1. Improve Public Transport efficiencies in accordance with the objectives of the Public
Transport Strategy through Integrated Public Transport Networks (IPTN).
2. Increase commuting to work trips by public transport and walking.
3. Implementation of universal design and universal access, as well as reasonable

accommodation, in line with the gazetted frameworks.
ͶǤ Increase the proportion of households in rural areas within 1km of an hourly (weekday)
public transport service.

5.6 Non-motorised transport
Vision
NMT is to become a desirable means of accessing opportunities and services and is a primary
consideration within the context of land use and transportation planning, civil engineering,
transport infrastructure provision and safety. Cycling or walking in and around communities
must be accessible, safe and reliable for everyone, including school children, leisure cyclists
and those commuting to work on a daily basis. For each commute, wherever the destination
or purpose of the commute, it must be possible for NMT to be the mode of choice.
Strategic Intent
NMT is an integration element of the overall transport system and is a mode of transport in its
own right. Hence, NMT must be planned on a systems basis comprising not just physical access
ways but all the supportive elements to ensure equitable, convenient and safe use of the NMT
network.
Walking is the ubiquitous mode of transport among learners and people on lower incomes and
therefore emphasis should be placed on providing comprehensive NMT facilities.
Inconsistencies and oversights within the regulatory frameworks will result in role-players not
treating the NMT agenda with gravity and emphasis it deserves. The starting point should
therefore be to address policy and legislative gaps as well as the need for a national directive
as well as guidelines and standards that would ensure consistent planning and designs that
receive the necessary funding.
Inconsistencies and oversights within the regulatory frameworks will result in role-players not
treating the NMT agenda with gravity and emphasis it deserves. The starting point should
therefore be to address policy and legislative gaps as well as the need for a national directive,
guidelines and standards that would ensure consistent planning and designs that receive the
necessary funding.
A major opportunity exists to significantly improve cycling and walking links to trunk routes.
Where quality public transport systems are combined with and supported by excellent walking
and cycling linkage, a complete transport solution is provided.
A lack of integration between public transport and NMT counteracts the full benefit that these
efficient modes offer, including social accessibility, support of economic growth and effective
mass mobility. There is an expressed vital need for better linkage between both modes in a
more focused and systematic way. A wide range of coordinated activities and functions is
required for successful NMT implementation and improvement programmes. Components
include:
• Provision of unimpeded (no light poles, road signs, informal traders, etc.) minimum of
2m wide sidewalks and minimum 1.5m wide cycle lanes as a standard requirement for
all municipal roads
• Signage & way finding
• Communication, travel planning and education
• Provision of Universal access for pedestrians, cyclists, and people with disabilities,
elderly people, children, and women
• Enforcement

• Maintenance
• Raising awareness and advocacy
Objective
Promote high quality public transport networks where NMT is a basic provision in all transport
planning and infrastructure projects.
The potential benefits to overall transport system effectiveness through much more
comprehensive inclusion of NMT provision forms a central pillar to the transport strategy.
The linkage between public transport and NMT starts from initial phases of development and
transport planning to avoid infrastructural disparities and costly retrofits at later stages.
1. Development of National guidelines and standards for non-motorised transport

(pedestrians and cyclists) as a sub-sector of the transport system to ensure consistent
planning and designs that receive the necessary funding
2. Investment in safe NMT facilities for learners at schools and surrounding areas,
3. Number of bicycles distributed through the Shova Kalula programme,
4. Increase NMT modal share (walking and cycling) for educational and commuting trips
5.7 Learner transport
Vision
A safe, reliable and integrated transport service that caters for the needs of learners. (National
Learner Transport Policy 2015)
Strategic Intent
The National Learner Transport Policy was developed in collaboration with the Department of
Basic Education (DBE) and other stakeholders and aims to address the challenges of
accessibility and the safety of learners. The environment within and the manner in which
learners accessed centres of learning experienced serious challenges, among others, no
services at all, unsafe and unsecure methods that were used, uncoordinated services,
unscrupulous operations and non-standardised methods.
The majority (83%) of learners use either NMT (63.4%) or public transport (20.1%) to access
institutions of learning. According to the NHTS 2020, 63% of school going learners walked all
the way to schools. Average time for learners to walk to schools is 29 minutes. Walking was
the primary method used by learners to reach their educational, of the 17 million learners, 10,1
million walked all the way to school. These statistics demonstrate the role of public transport
and NMT in being a significant mode of travel by learners. The DoT is committed to the provision
of safe and reliable learner transport. In pursuit of the vision for the provision of learner
transport, the Department seeks to prioritise the policies contained in the National Learner
Transport policy and translate these into practical service delivery initiatives.

Objective
Provide transport that allows learners to get to and from educational institutions safely,
securely and affordably and improve the quality of life for learners and students. This access
should be primarily through public or non-motorised transport that is safe, secure, convenient
and affordable.
Intergovernmental coordination must ensure that adequate infrastructure is provided for

learner transport. Learner transport infrastructure plans must be incorporated into the ITPs,
and no learner transport is required where there is a public transport service.
Provincial DoTs must ensure that learner transport services are integrated in order to render
an effective and efficient system. Provinces, in consultation with Local Government, must
ensure that learner transport services are accessible to all learners, including learners with
special needs, in both the urban and rural areas by addressing the following:
• Planning is fundamental to the success of learner transport provision through

establishment of a joint planning committee on learner transport with representatives
of the provincial department of transport, provincial department of education and
municipalities.
• Identification of learners who will be provided with subsidised services to feed into the
planning process as well as the actual implementation of those plans to ensure that
learners who qualify for subsidised learner transport services are provided with such
services.
• Develop learner transportation framework inclusive of a policy, operating standards,

safety guidelines and a code of conduct for drivers and learners.
• Develop educational programmes aimed at empowering vulnerable learners.
• Work with communities to develop safe walking and cycling to school programmes
and ensure the safety and security measures are taken while learners are being
transported.
• Monitoring and evaluation of the learner policy objectives through an independent

assessment undertaken every three years on the impact of programme
implementation.
1. Improve access to learner transport services
2. Registration and licensing of learner transport operators and demarcation of learner

transport vehicles
3. Increase funding for learner transport
5.8 Freight transport

Vision
An effective regulatory and institutional framework using international best practise systems,
technology and efficient management to provide high standards of operational quality and
minimal externalities in a sustainable road freight sector which provides efficient service to
South African industry”. (Road Freight Strategy 2017).

Strategic Intent
• Optimising the efficiency of road freight services to industry, and reducing the
externalities of the mode in terms of accidents, pollution, congestion, infrastructure
damage and anti-social activities.
• Improving the effectiveness of regulation and enforcement of quality standards and

ensuring equity between road freight transport operators within a system of quality-
regulated competition.
• Creating effective training and skills development options for all functions in the
industry, to encourage professionalism in the management, operation and support of
road freight operations, and to encourage increasing B-BBEE participation in the
industry.
• Providing for effective liaison between all role players in the sector; all tiers of government,
private sector operators and industrial users and to promote optimal intermodal
coordination and logistical efficiency as well as improving the planning of road freight
infrastructure provision and management and providing safe city use for residents.
• Promoting regional trade integration and improve cross border transport efficiency to
enhance national competitiveness.
• Proposing an effective fair rail road split.
The three modes of land freight transport are road, rail, and pipeline. However, the intermodal
association include freight hubs, ports, harbours, and airports. Therefore, the strategic goals
for the three modes of freight transport, whilst incorporating inter-modalism, are as follows:
Road: “An effective regulatory and institutional framework using international best practise
systems, technology and efficient management to provide high standards of operational quality
and minimal externalities in a sustainable road freight sector which provides efficient service
to South African industry”. (freight transport system, whilst acting responsibly to preserve the
road infrastructure.” (Draft Road Freight Strategy 2017).
Rail: Rail is a major carrier of freight with strong customer focus and high efficiencies. It is
competitive in both the bulk freight and finished goods sectors with good linkages to “the last
mile” for the local distribution.
Pipelines: Pipelines are an integral part of and strong alternative to bulk liquid/gas transport as
appropriate.
Hubs and Ports: Freight hubs, ports, and logistics parks are upgraded, developed and
maintained, and strategically located to enhance economic growth and optimise efficiency.
Objective
Freight movement has a significant impact on the national transport network and results in
high transport cost in the logistics value chain. This constrains Southern Africa from being
competitive in a global market and attracting sufficient international investment in supporting
economic growth in the region. The primary objective is to reduce the cost of freight logistics
and influence market forces to transform industry practice and behaviour, while maintaining
profitable operations.

Another objective in terms of freight transport is to address the competition between the main
land modes, road, rail, and pipeline and address the modal imbalance by facilitating the
potential mode shift between modes, basically to address road congestion, road safety, and
logistics cost.
1. Improve heavy goods vehicle safety performance; roadworthiness; and self-regulation

(RTMS certification and compliance)
2. Reduction in overloading by enforcing limits on axle limits and gross vehicle mass
3. Providing effective and safety freight corridors which enables safe and accessible urban
planning
4. Provision of alternative routes for the transport of hazardous materials
5. Optimise road, rail and pipeline freight balance
6. Separation of freight and commuter rail infrastructure to improve efficiencies in both

sectors
5.9 Transport infrastructure

Vision
Safe, reliable, effective, efficient and fully integrated transport operations and infrastructure
which best meets 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” (Road Infrastructure
Strategic Framework for South Africa, 2006)
Strategic Intent
The approach to passenger transport should shift priority from private to public transport across
all income groups and within the latter sector, from the provision of primarily peak period
commuter services to fully-fledged public transport system catering for a wide range of
passenger.
Therefore, all spheres of Government will continue to develop, and maintain transport
infrastructure for all modes including motorised and non-motorised modes, as well as
intermodal facilities.
Objectives
It is critical that current road infrastructure funding mechanisms are assessed and any short
comings identified. Further, although funding for the upgrading of the road network seems to
be a problem, it can be stated that a lack of institutional capacity and corruption contributes to
the backlog in road infrastructure provision through insufficient planning of road networks and
projects. It is therefore important for the authorities to ensure that roads infrastructure
networks are given high priority like other services during the planning and budget allocation.
The infrastructure will use sustainable materials where practical and feasible. The development,
management, and maintenance of transport infrastructure has great potential for skills
development and to generate employment, whilst delivering basic services, improving safety,
and enhancing access and mobility.

Authorities will maintain the asset management system to ensure strategic planning and
prioritise funding for transport major infrastructure. All spheres of Government responsible for
transport infrastructure will have functional infrastructure/asset management systems to plan,
manage and maintain, and implement transport infrastructure incorporating motorised and
non-motorised transport needs.
It is feasible to consolidate RAMS for regional networks for District and Local Municipalities and
share professional resources over the region for planning, management and implementation;
instead of each municipality pursuing its individual RAMS and professional expertise.
Provinces have a road maintenance funding programme from Treasury known as Provincial
Road Maintenance Grant (PRMG) that is managed under S’Hamba Sonke programme. Similarly,
there should be a dedicated funding program for Municipalities.
1. Provinces and Municipalities (and associated agencies) to operate a GIS based Asset
Management System (pavement, bridges and structures, storm water drainage, road signs
and road markings, etc.)
2. All transport infrastructure funding to be aligned with professional engineering expertise in

the Provinces and Municipalities (and associated agencies)
3. All Provinces and Municipalities (and associated agencies) to prepare a Strategic Road
Network Plan
4. Prioritise dedicated cycle lanes and sidewalks in all new projects and existing roads to cater
for NMTs.
5.10 Cross-border transport
Vision
To facilitate seamless and integrated movement of people and goods, to reduce system costs
as well as transit and turnaround times to enhance trade and economic development in the
SADC transport system.
Strategic Intent
Moving freight and passengers across borders require compliance with specific procedures
which are mandated and supported by the relevant legislation of both countries sharing the
border, consistent with the SADC Protocol on Transport. Policy and regulation are of particular
importance in cross-border transport as it relates to border crossing procedures for both import
and export trade and transit shipments. The optimisation of freight and passenger movement
assumes a corridor approach to ensure that all bottlenecks in the supply chain are addressed.
The efficient movement of passengers and freight through the transport system including road,
rail, pipeline, and border posts should be facilitated through operational procedures integrated
with infrastructure and relevant, contemporary technology.
Therefore, the DoT, Transnet, Cross-Border Road Transport Agency, BMA, RTMC and SANRAL
with the support of the respective local Municipalities, road authorities, South African Revenue
Services (SARS), etc., will ensure the facilitation of an efficient transport system by providing
sufficient capacity, law enforcement, infrastructure, operations, etc.

Objectives
• The Cross-border transport system and operations to be efficient and streamlined to

facilitate the legal movement of goods and people in the region, to complement the
Free Trade Area in South, Central and East Africa, in association with the new Border
Management Authority (BMA).
• Participate in mutually beneficial infrastructure projects to unlock long-term socio-

economic benefits by partnering with fast growing African economies with projected
growth ranging between 3% and 10%.
• Optimise regional trade through the Regional Spatial Development Initiatives (regional
corridors)
• Improve levels of service for passengers and freight at border posts, including universal
access.
• Reinforce the Spatial Development Initiatives through Road, Rail, border posts, and
ports infrastructure development
• Harmonise road traffic enforcement regulations, road freight as well as passenger

transport standards, and guidelines to ensure consistency for the regional travelling
public, and seamless movement across borders. For example, vehicle fitness standards
and roadworthy certification, permissible axle mass load and gross vehicle mass, etc.
• Infrastructures at most border posts require significant investment to accommodate

the growth of movement in freight and passengers between countries. Multiple
stakeholders are involved in sourcing, designing, constructing and operating the
required infrastructure and clear policy guidelines and regulations are required to
manage the investment efficiently.
• Traffic management strategies such as the use of intelligent transport systems (ITS) at
border posts are beneficial for the accommodation of increased traffic volumes.
• Traffic data to be collected at border posts so that planning of facilities is matched to

demand.
• Development of One Stop Border Posts is the ultimate scenario where an integrated
border management approach facilitates information and facility sharing to eliminate
duplication of processes.
Key Performance Area
1. Operational efficiency at border posts
2. Investment in infrastructure upgrades and maintenance
3. Harmonised Regional Transport regulation, guidelines, and standards
5.11 Transport safety and security

Vision
Safe and efficient road transport, contributing to economic growth and development, through
improved cooperation and compliance from road users, the business and NGO community and
public and private sector interventions. 6

Strategic Intent
In the SADC region, South Africa has the highest fatality per 100k population. South Africa also
has the highest motorisation level of 190 vehicles per 1000 population (Setting the UN Decade
of Action for Road Safety in motion in the SADC Region, 2011). High proportions (about 40%)
of road fatalities were pedestrians. These statistics are significantly higher relative to global
benchmarks. Railway Safety and Security currently also has a poor record in South Africa (RSR
Annual Report, 2014).
Therefore, significant effort is necessary to address transport safety and security in south
Africa, hence the need to improve transport safety and security to reinforce liveable cities and
communities by implementing the National Road Safety Strategy, addressing Railway Safety
and security, and passenger, pedestrian, cyclist safety, and work zone safety (with elevated
emphasis on women ,children, elderly people and people with disabilities) These also need to
provide interventions to eliminate gender based violence in transport. The target for 2030 is to
reduce the number of fatalities by 50%. It is evident that South Africa is not achieving its road
safety objectives. The poor road safety record has detrimental socio-economic impacts.
Therefore, the strategic intent is to achieve a 50% reduction in incidents and deaths by 2030
with further annual decreases of 10%.
In alignment with South Africa’s developmental approach, the National Development Plan 2030,
seen largely as the country’s strategy blueprint, sets national goals and objectives for the
country. Chapter 10 of the NDP, in particular, classifies road crashes as a health issue and sets
a target to “reduce injury, accidents and violence by 50% from 2010 levels”13. The NDP 2030
also outlines the following matters to be monitored and controlled including:7
• Roadworthiness of vehicles;
• Vehicle driver behaviour;
• Alcohol and substance abuse; and
• Weaknesses in law enforcement.
Objectives
The implementation of the United Nations Decade of Action for Road Safety will enable the DoT
to address road fatalities and remains one of the priority areas for the DoT. Their experience
to date is that road safety campaigns must be conducted throughout the year through the 365
Days Road Safety Programme. The DoT will be more stringent in the application of regulation
of road transport operations, law enforcement on issues such as vehicle and driver fitness,
speed, etc. The implementation of these measures will be prioritised by provincial and local
authorities as well.
Railway Safety and Security currently also has a poor record in South Africa. Significant
improvements to railway safety have the potential for mode shift for passengers from road-
based transport to rail. The safety and security on Gautrain is probably the standard to aspire
to, at Grade crossings and on-board safety will receive continuous monitoring.
7
National Road Safety Strategy, 2016-2030

The National Road Traffic Regulations, 2000 should review the rules of the road to add duties
of motorists towards pedestrians and cyclists. The duty should be on motorists to give way to
pedestrians and cyclists at all times and they should take proper care when passing or
overtaking cyclists. It should further be amended to create specific offences of colliding with
or endangering pedestrians and cyclists with strict penalties for such offences (Department of
Environmental Affairs, 2015).
Passenger, pedestrian, and cyclist safety, specifically in urban areas, will be enhanced through
24-hour monitoring by visible policing, and Central Communication Centres (CCTC). Such
interventions may stimulate greater interest in walking, cycling, and public transport.
Construction work zone safety requires stringent application of the Occupational Health and
Safety procedures to ensure zero fatalities and injuries on construction projects. All spheres of
Government and private sector implementing transport projects will adhere to OHS
requirements to achieve zero incidents at work zones.
Law enforcement will be professional and consistent in implementing the road traffic regulations
and influencing driver behavioural change.
It is critical that all spheres of government take a lead on Transport Safety and prepare MTEF
action Plans, with budgets and human resources to implement Transport Safety plans, which
universal accessibility These plans should be reflected in the respective ITPs and IDPs.
Transport Safety is a national priority and will be addressed with the similar passion, effort,
and resources that were once committed to the HIV/AIDS pandemic in the recent past in South
Africa.
The overriding objective is to reduce road crashes and their associated fatalities and
injuries thereby realising the Vision and meeting the Strategic Intent. The primary
requirement is to ensure that all levels of Government are informed of, understand and
are actively implementing the National Road Safety Strategy 2016-2030 (NRSS).
Implementing the SA Road Safety Strategy 2016-2030 by all spheres of government

as it has been developed and accepted remains the next key objective. This will require a
multifaceted approach based on the five pillars identified within the DoA as key to successfully
improving road safety. These pillars are:
• Road safety management
• Safer roads and mobility
• Safer vehicles
• Safer road users
• Post-crash Response
The integrated strategy on Road Safety must be addressed in the respective Transport Plans,
and implemented through multi-sectorial effort with private and public sectors, focusing on the
highest risk factors through:
• Institutional
- RTMC function and resources to take ownership of the Road Safety Strategy

- Increase funding (at least 10% of infrastructure spend)
- All spheres of government to implement Transport Safety plans reflected in the

respective ITPs and IDPs.
• Enforcement
- Constant daily visibility of officers (DoT 365-day programme)
- Independent oversight to address corruption and fraud
- Independent oversight and audit at licensing centres
- Investment in technology for officers such as in-vehicle real-time access to a

comprehensive road transport offence register, breathalyser testing, video cameras,
the newly re-engineered eNaTIS system that offers online vehicle renewal, online
bookings for driver license enrolment and renewal, etc.
- Moving violations including speed, seat belt compliance, baby seats, driver and
vehicle licences, public transport operating licences, etc.
- Vehicle roadworthiness by annual vehicle testing for all vehicles over three years old
and six monthly for public transport and heavy goods vehicles
- Freight and passenger overload control
- Increase in the self-regulation program for heavy vehicle operators
• Education
- Road Safety programs in schools, tertiary education institutions and businesses
- Public relations to engage the general public and creating continuous awareness
• Engineering
- Creating a safe environment for pedestrians and cyclists with dedicated sidewalks
and cycle lanes is mandatory requirements in all infrastructure development
projects, and use standards that include universal design, as is the legal minimum
requirement to make sure that road crossing is safe for everyone.
- Improvement of the road environment through proactive Road Safety Audits on the
strategic road network within each planning authority, and changing the standards
against which audits are carried out so that universal accessibility is included.
- Construction work zone safety application to aim for zero incidents at work zones.
• Evaluation
- Comprehensive data collection and extensive research to address prevailing

conditions, local challenges, root-cause analysis, and relevant interventions and
advancements, planning, and monitoring.
- A project review system whereby changes/trials implemented can be valuated -

systems, engineering, communication, etc.
• Emergency Medical Assistance: Improving post-crash care

- Incident Management Systems expanded beyond the National Road Network, and
incorporated in the Municipal Central Communications Centre/Disaster Management
Centre
- Road Accident Fund has appropriate local and regional offices
- Post-crash counselling provided by hospitals
The ultimate performance indicators are the reduction in crashes, injuries and fatalities in the
transport system.
5.12 Institutional management

The institutional management is governed by three key aspects which are addressed in this
section viz., Capacity to deliver, Intergovernmental relations and Transport information
systems.
Capacity to deliver
Vision
A professional organisation with qualified transport professionals equipped and empowered to

develop and manage an integrated transport system.
Strategic Intent
An effective public sector structure at all levels of transport planning, implementation and
management that is adequately resourced and appropriately skilled to plan and deliver the
requirements of the transport strategy within each level of Government.
Objectives
Institutional capacity across the sector is seen as a significant barrier to the effective and
efficient implementation of transport management and improvement, even where financial
resources are in abundance. Addressing the sector’s capacity constraints will compliment any
accelerated funding and implementation plan.
It is feasible to consolidate RAMS and Transport Models for regional networks for District and
Local Municipalities and share professional expertise over the region for planning, management
and implementation; instead of each municipality pursuing its individual Operational Systems
and professional expertise. The DoT is in the process of implementing the new National Land
Transport Information System (NLTIS) to replace the outdated system that does not comply
with the NLTA. Thus, there is potential to share professional resources.
The provision of professional resources may be reinforced through funding approvals, where
Treasury and the Department of Transport will endorse funding based on the availability of
professional expertise; either full time employees or contracted professional staff.
1. Number of professionally registered personnel in Civil Engineering, Traffic Engineering,

Transport Economics, Town Planning, Urban Design, and Transport Planning, Universal
Access Auditors, other unregistered professionals in areas such as Network operations
management, Taxi industry negotiations.

2. Establishment and professional operation of the National Public Transport Regulator, Public
Regulatory Entities, Transport Economic Regulator, and Transport Appeals Tribunal.
Intergovernmental relations
Vision
Integrated Land Use, and Transport Planning through vertical and horizontal coordination within
and between the various spheres of Government and its agencies.
Strategic Intent
Develop an integrated land use and transport system by promoting a holistic multi-modal
approach towards integrated land use and transport planning and implementation through
collaboration and consultation. The National Transport Forum will serve as the support vehicle
for land transport planning coordination through vertical and horizontal integration, and the
National Public Transport Regulator will provide oversight and enforcement
Objectives
All three spheres of government have a key role in integrated land use and transport planning,
coordination, implementation and maintenance of an integrated transport system for South
Africa. Integrated transport planning and implementation need a greater effort in coordination
and collaboration within and between government structures. Although the three spheres of
Government and its agencies are autonomous, they are required to work together on decision-
making and coordination of budgets, policies, activities, information sharing, and granting
approvals, authorisation, exemption, licence, or permission for the implementation of projects.
The Intergovernmental Relations Framework Act (Act 13 of 2005) provides a framework for the
three spheres of Government and all organs of state to facilitate coordination in the
implementation of policy and legislation, within the principle of cooperative governance set out
in Chapter 3 of the Constitution. The Act makes provision for intergovernmental forums on
National, Provincial and Municipal level.
Regulation and control in context of service delivery, spending of budgets, potential job
creation, stimulating the economy, etc., can be tedious, time consuming, costly and
counterproductive when addressing strategic planning and infrastructure development. For
example, the approval of an occupational Health and Safety Plan by the Department of Labour
could take up to six months to approval; and a Record of Decision for an Environmental Impact
Assessment could take up to twenty-four months by the Department of Environmental Affairs.
Intergovernmental relations encompass all the complex and interdependent relations among
various spheres of government as well as the coordination of public policies among national,
provincial and local governments through policy alignment, reporting requirements, fiscal
grants and transfers, the planning and budgetary process and informal knowledge sharing and
communication among officials. Intergovernmental relations also refer to the fiscal and
administrative processes by which spheres of government share revenues and other resources.
These overall objectives are to be achieved by an intergovernmental system that ensures
mutual consultation on policy and legislation, resolving disputes, coordinated strategic
planning; and accountability for performance and expenditure in terms of legislation.

For example, addressing the upgrade, maintenance, or re-routing of a national road through a
town, may be achieved through the principles of intergovernmental relations framework, where
the local municipality and the road agency collaborate to address the project through the ITP,
routine road maintenance programme, weighted contribution of funding by proportioning
through traffic and local traffic, etc.
Another example is the development and implementation of multidisciplinary projects that

requires approval, authorisation, exemption, licence, or permission from various departments
in the three spheres of government. In the spirit of the Intergovernmental Relations Framework
Act and the Infrastructure Development Act, the project steering committee should consist of
persons representing the relevant departments and organs of state affected by the project so
that processes are addressed proactively and efficiently.
Thus, the ultimate objective is to achieve efficiency and expediency in the functioning of the
Intergovernmental Relations Forums and Project Committees.
The National Transport Forum will embrace the vision of intergovernmental relations for
Integrated land use and transport planning in South Africa; provide practical advice to all
spheres of government in planning and implementation of integrated and sustainable transport
projects; facilitate the development of technical standards and guidelines for projects and
programmes; coordinate and share data, data collection, and research, share best practice,
and share resources and capacity building, etc.
• Facilitate research, and update technical guidelines and standards such as Technical
Recommendations of Highways (TRH), and Technical Manual for Highways (TMH) series
• Proactive stakeholder engagement involving the public sector, private sector, trade
unions, etc.
Transport Information System
Vision
Establishment of a functional land transport information system that informs integrated land
use and transport planning, infrastructure development, and operations.
Strategic Intent
An informed transport authority, adequately resourced and skilled to plan and deliver the
requirements of the five-year transport plan based on contemporary, reliable data and empirical
analysis
Objective
To provide secure, reliable and universally accessible transport related information. Before
2020, each transport authority will have an established legacy, resourced and functioning body
that oversees the management of the various aspects of the transport system and its
subsystems.

Key Performance Area
Technology is a necessary tool to enhance transport planning and management. The integrated
transport system is dependent on updated data systems such as Natis, Operating Licence
Administration System, RAMS, Transport Modelling, etc. Therefore, the three spheres of
government will ensure a fully functional and updated GIS based Land Transport Information
System.
5.13 Funding
Vision
Fiscally innovative, and appropriately prioritised funding aligned with the objectives and
deliverables of national policy and strategic priorities for an integrated land transport system
that provides efficient, reliable, and affordable access and mobility for people and goods
Strategic Intent
To ensure the provision of adequate funding for transport infrastructure, and operations for
new development, management and maintenance of the transport system.
Objectives
There is need for greater focus on the fact that relatively little is being done to manage the
existing transport system. The transport profession continuously demands resources for
preservation of assets, safety and security, professional institutional capacity and infrastructure
and operations management, and innovative implementation of travel demand management
and transport system management.
The paradox to affordable, accessible transport and an integrated transport system, is the high
cost for sustained operations and well-maintained infrastructure. The DoT is committed to the
detailed programming of the strategies and actions of the NLTSF as part of its budgeting and
planning processes as required by the Public Finance Management Act. The DoT is further
committed to the funding of the NLTSF through its existing budgets and through leveraging
additional sources from Treasury and innovative funding and financing mechanisms.
Furthermore, the DoT is committed to working closely with other spheres of government and
the Treasury to ensure that adequate resources are available for the effective implementation
of the mandate that the NLTSF obligates the transport industry in all spheres of Government.
Thus, there is need for an overall increase in funding for land transport based on the following
investment categories:
• annualised capital and operational requirements to maintain the current transport

system and to provide basic improvements
• capital and operational investment to address the backlog progressively
• capital and operational investment for upgrading and expansion of the transport system
• Ring-fence funding strategy for transport

However, major projects require comprehensive appraisal and evaluation methodology which
incorporates whole life assessment of investment, full costing approaches, the inclusion of wider
economic and social impacts based on empirical analysis. These evaluations should be
conducted at an overall sub-subsector level and for all major projects, and should provide a
clear unconstrained indicator for funding priorities, where business plans are developed per
project indicating the levels of subsidy, positive cash flow, debt, finance costs, transport pricing,
etc. Treasury and the DoT will align funding for Transport with strategic outcomes such as
RAMS, professional expertise, Air Quality Improvement, Congestion Management, etc.
1. A life-cycle cost approach for management and preservation of assets, and proposed
transport projects.
2. MTEF and DORA allocations for Public Transport Network Grant (PTNG) and Public Transport
Operations Grant (PTOG).
3. Financial modelling for revenue-based projects, such as public transport projects.
4. Economic evaluation of proposed infrastructure projects, including life-cycled maintenance.

HOW WILL THE FRAMEWORK BE DELIVERED?
Enabling the delivery of the NLTSF is very important. The Department is committed to the
implementation and funding of the strategies and actions set out in this framework. The NLTSF
in itself is a framework to guide the provincial and municipal transport plans. This section briefly
provides the role of the various entities in preparing and implementing Transport Plans, aligned
with the NLTSF.
The National Land Transport Act (NLTA) Section 34 (1) & (4) states the National Land Transport
Strategic Framework (NLTSF) “must guide land transport planning countrywide”. It is within
this context that the Framework was prepared. It is the role of the Department of Transport to
ensure the delivery of this Framework and annual reporting on the key performance areas.
The Framework is a synthesis of transport policy by the Department of Transport. This was
done by consulting widely to reach a consensus between stakeholders. The Department
therefore expects all planning entities to prepare transport plans within the context of the
policies and principles in this Framework. However, the Framework is not intended to prescribe
the requirements of the respective transport plans.
The DoT has established the National Transport Forum (NTF) which will assist the effectiveness
of the NLTSF through all spheres of government
6.1 Development of programmes

The mechanism to deliver the Strategy and the Vision within the Transport Framework are
programmes and actions developed through the PLTFs and ITPs at provincial and municipal
government respectively.
The Department of Transport has a direct role to play in implementing national strategy and
components of the Framework and translating national strategy into programmes projects and
action and will support where appropriate the programme development at Provincial and Local
levels. The Department of Transport is as much reliant on influencing South African central
institutions as on developing its own programmes to deliver national strategies. It is therefore
expected that programmes will need to be flexible and evolve with time.
The strategies selected need to be translated into programmes / projects. Once programmes
have been developed, they will need to be prioritised using a common basis of assessment.
The Common Basis Assessment should be used by all authorities to prioritise and make
decisions on programme development to ensure that programmes help achieve the Vision of a
coordinated transport system. In prioritising among strategies and in programme development
it will be important to have a clear view of their real impacts and if the desired targets were
achieved.
Translating strategies into programmes / projects requires decision criteria to test the relative
costs, benefits and the extent to which the programmes / projects meet the national and local
strategic objectives.

The development of the programmes will inevitably result in competing demands for scarce
resources, both those of the Department and other key organisations, agencies and
stakeholders. The guiding principle will be that the adopted programmes should provide overall
value. These programmes will be developed and prioritised using the conventional transport
assessment criteria of accessibility, economy, environment, safety and integration and the
national strategic objectives and wider local objectives of the authority concerned reflected in
the Common Basis Assessment. The criteria can help to determine the overall value and priority
of projects in meeting the wider aims of the Department and the particular needs of local areas
together with the guiding principles set out in the Strategy and the Vision in the Framework.
Only those programmes / projects ranked very strongly should be considered for business case
development or a feasibility study.

REVIEW, MONITORING AND EVALUATION
A practical approach is proposed which includes proper monitoring and review of the key
performance indicators. The key performance indicators are necessary to measure the
effectiveness of the NLTSF, ensure accountability by the DoT and the planning authorities, and
monitor value for money.
In context of the “Back to Basics” program for service delivery by Cooperative Governance and
Traditional Affairs (COGTA), there are several long overdue facets of integrated transport
planning that must be prioritised, to establish a firm foundation for the development of an
integrated transport system. The NLTSF is intended to establish a legacy beyond 2028 based
on the principle of sustainability.
The purpose of transport indicators is to ensure a balanced view at the national, provincial and
local levels of the critical role of transport services in reducing poverty, facilitating growth and
contributing to achievement of key development targets and sustainability. Chapter 4 which
deals with the NLTSF vision, contains facts and trends, sets out the challenges, and presents
some of the evidence available, which were considered in choosing the key performance
indicators.
The key performance indicators in the NLTSF are intended to cascade into the PLTFs and the
ITPs and subsequently escalate to the DoT annual monitoring and evaluation report on the
performance of the Transport System.
Therefore, the DoT with the support of the Provinces, Municipalities, and will monitor and
evaluate the key performance areas, and report progress on the KPAs in the DoT annual report.
Generally, transport schemes including public transport investments have not been subjected
to a rigorous formal appraisal methodology. Significant effort needs to be made in this area to
better cover the full range of impacts of improved public transport systems. All transport
schemes and major IPTN project interventions must be supported by a strong socio-economic
case for investment. Appraisal guidelines should be developed for transport projects to include
a suitable set of assessment criteria to discriminate between / prioritise projects in accordance
with the overarching goals of the NLTSF.
1Table 1 (below) provides the KPIs and indicates the main implementation sphere (N =
national, P = provincial and Me = Metros, Mu = municipal, O = other, (such as PRASA, SANRAL,
C-BRTA) with respect to rolling out the particular actions. Consultation may, however, involve
other spheres of government, stakeholders or users. An indicator is defined as a variable
selected and defined to measure progress towards an objective, whereas a target is defined
as a specific, attainable, realistic, measurable, and timely objective.
The “✓✓” mark in Table 1indicates which sphere has the lead coordinating and monitoring role
in the cases where more than one government sphere is involved.

Strategic KPI Responsibility Matrix

Element
N P Me M O
u
Integrated All Planning Authorities to maintain and update a ✓✓
Land Use and database of traffic and pedestrian counts;
Transport Update Minimum Requirements for the preparation ✓✓
Planning of PLTFs and ITPs;
All Provinces to update PLTFs to be relevant in this ✓ ✓✓

planning period (2023 to 2028);
All Municipalities to prepare and/or update ✓ ✓ ✓✓ ✓
Comprehensive, District, and Local Municipal ITPs ✓
incorporating Public Transport Plans comprising of
IPTN, Rationalisation plan, Operating Licence
Strategy and any Land Use Plans;
Improve Public Transport efficiencies in accordance ✓ ✓ ✓✓ ✓
with the objectives of the Public Transport Strategy
through Integrated Rapid Public Transport Networks
(IPTN).
Urban Improved service quality and safety of public ✓ ✓ ✓✓

Transport transport
Improve access to main public transport nodes by ✓✓ ✓✓ ✓ ✓
improved walking links (20min or 1,5km), cycle
networks and full cycle implementation programmes
(within a radius of 5km) and prioritising NMT
Undertake Household Travel Surveys every five ✓✓ ✓
years
Universal Improved universal accessibility of public transport ✓✓ ✓
Accessibility networks across all modes of transport, in line with
minimum standards and requirements; measured
against indicators
Compliance with minimum standards, the ✓✓ ✓ ✓ ✓ ✓
researched development of them and the publication
of universal access regulations; for planning, design,
construction and operation
Undertake focused research with universal access ✓✓ ✓ ✓ ✓ ✓
passengers every year in order to report on
implementation progress, and remedy complaints,
as required by the NLTA
Rural Develop actions and measure impact of rural ✓✓
Transport transport interventions on safety and travel time
Develop a strategic rural road network upgrade and ✓ ✓✓
maintenance plan with budgets for rural road
network infrastructure upgrades and maintenance
Establish the rural transport forum at district level ✓ ✓✓
Public Increase commuting to work trips by public ✓ ✓ ✓✓ ✓ ✓

Transport transport and walking.
Implementation of universal design and universal ✓ ✓✓ ✓
access throughout the IPTN incrementally through
an Up to Date UDAP, and annual reports
Increase the proportion of households in rural areas ✓ ✓ ✓✓ ✓ ✓
within 1km of an hourly (weekday) public transport ✓
service.
Improve Public Transport efficiencies in accordance ✓ ✓ ✓✓ ✓ ✓
with the objectives of the Public Transport Strategy ✓
through Integrated Rapid Public Transport Networks
(IPTN).
Quality of Service ✓✓ ✓ ✓ ✓ ✓
Promotion of Public Transport ✓ ✓ ✓ ✓ ✓
Accessibility ✓ ✓✓ ✓✓
Regulation and Control of Public Transport ✓✓

Reliability of scheduled services ✓✓ ✓
Non-Motorised Development of National guidelines and standards ✓✓ ✓

Transport for non-motorised transport (pedestrians and
cyclists) as a sub-sector of the transport system to
ensure consistent planning and designs that receive
the necessary funding
Investment in safe NMT facilities for learners at ✓ ✓✓ ✓
schools and surrounding areas
Number of bicycles distributed through the Shova ✓ ✓✓ ✓
Kalula program
Increase NMT modal share (walking and cycling) for ✓✓ ✓ ✓ ✓
educational and commuting trips
Learner Improve access to learner transport services ✓✓ ✓

Transport
Registration and licensing of learner transport ✓✓ ✓ ✓ ✓
operators and demarcation of learner transport
vehicles.
Increase funding for learner transport ✓ ✓✓
Universal Accessibility: Physically challenged/
✓ ✓✓
Special needs
Freight Improve heavy goods vehicle safety performance; ✓✓ ✓

transport roadworthiness; and self-regulation (RTMS
certification and compliance)
Reduction in overloading by enforcing limits on axle ✓✓

limits and gross vehicle mass
Provision of alternative routes for the transport of ✓✓ ✓ ✓

hazardous materials
Optimise road, rail and pipeline freight balance ✓ ✓✓
Separation of freight and commuter rail ✓✓ ✓ ✓ ✓ ✓

infrastructure to improve efficiencies in both sectors
Separation of freight and commuter rail ✓✓ ✓

infrastructure to improve efficiencies in both sectors
Road Asset Management System

✓✓
infrastructure
Infrastructure Spend ✓ ✓ ✓ ✓ ✓
S’Hambe Sonke Road Maintenance Program ✓ ✓✓
Improve the condition of classified road network ✓ ✓ ✓ ✓ ✓
Eradicate potholes in Urban Areas and Provincial ✓✓ ✓ ✓ ✓ ✓

Road Networks.
Social Investment ✓ ✓✓ ✓✓

NMT ✓ ✓ ✓
ITS ✓ ✓ ✓ ✓ ✓
Cross-border Consistent pricing for road infrastructure for each ✓ ✓ ✓

Transport category of road
Operational efficiency at border posts ✓✓ ✓ ✓ ✓ ✓
Investment in infrastructure upgrades and ✓✓ ✓✓ ✓ ✓ ✓

maintenance
Harmonised Regional Transport regulation, ✓✓ ✓ ✓ ✓ ✓
guidelines, and standards
Rail Asset Management System ✓ ✓✓
infrastructure
Infrastructure Spend ✓ ✓✓
Social Investment ✓ ✓ ✓
✓✓ ✓ ✓ ✓ ✓
The integrated strategy on Road Safety must be
addressed in the respective Transport Plans, and
Transport
safety and implemented through multi-sectorial effort with
security private and public sectors, focusing on the highest
risk factors through:
Institutional
Management:
Capacity to
Deliver
Number of professionally registered personnel in Civil
Engineering, Traffic Engineering, Transport ✓✓ ✓ ✓ ✓
Economics, Town Planning, Urban Design, and
Transport Planning, Universal Access Auditors, other
unregistered professionals in areas such as Network
operations management, Taxi industry negotiations
Establishment and professional operation of the
✓✓ ✓ ✓ ✓
National Public Transport Regulator, Public
Regulatory Entities, Transport Economic Regulator,
Inter- and Transport Appeals Tribunal
Government Technology is a necessary tool to enhance transport
Relations ✓ ✓ ✓ ✓
planning and management. The integrated transport
system is dependent on updated data systems such
as Natis, Operating Licence Administration System,
RAMS, Transport Modelling, etc. Therefore, the three
spheres of government will ensure a fully functional
and updated GIS based Land Transport Information
System.
Transport
Information Fully functional and updated GIS based Land
Systems Transport Information System
✓✓ ✓ ✓ ✓
Funding A life-cycle cost approach for management and ✓ ✓ ✓ ✓ ✓

preservation of assets, and proposed transport
projects
Table 1 Key Performance Indicators



REFERENCES
Department of Transport, National Learner Transport Policy (2015)

National Land Transport Amendment Bill. (2016).
Statistics South Africa, (2020). National Household Survey: StatsSA.
Statistics South Africa, (2013). National Household Travel Survey: StatsSA.
Department of transport,(2016). A rural transport strategy
Department of Transport, (2021). White Paper on National Transport Policy.
Department of Transport, (2018-2050). Green Transport Strategy for South Africa.
Department of Transport, (2022). White Paper on National Rail Policy.
Department Agricultural, Land reform & Rural development. (2022). National Spatial Development
Framework.
Department Planning, Monitoring and Evaluation. (2019-2024). Medium-TermStrategic
Framework.
Department of Cooperative Governance and Traditional Affairs. (2016). Integrated Urban
Development Framework.
Department of Transport. (2022). National Transport Master Plan.
Department of Transport. (2022). Revised Strategic Plan.
Department of Transport. (2016-2030). National Road Safety Strategy.
Department of Transport. (2021-2030). Decade of Action for Road Safety.
Department of Transport National Land Transport Act (2009)
Department of Transport Moving South Africa (1998);
Department of Transport National Freight Logistics Strategy (2005);
Department of Transport Road Freight Strategy for South Africa, Department of Transport (2017)
Transnet Long-term Planning Framework (2012);
Department of Transport Non-Motorised Transport (NMT) Policy (2012), and the NMT Guidelines,
2014;
Department Agricultural, Land reform & Rural development Spatial Planning and Land Use
Management Act (2013);
Department of Transport Public Transport Strategy and Action Plan (2007);
Department of Transport Implementation strategy to guide the provision of accessible public
transport in South Africa (2009);
Department of Transport Action Plan to guide the provision of accessible public transport systems
in South Africa, (2009);
National Spatial Development Perspective (2006);
A guide to the national planning framework (2009);
Department of Transport Rural Transport Strategy of South Africa (RTSSA) (2016);
Road Infrastructure Strategic Framework for South Africa (2006);
United Nations Convention on the Rights of Persons with Disability, 2007,
White Paper on the Rights of Persons with Disabilities, 2016
The United Nations Framework Convention on Climate Change (1994);
The Paris Agreement (2015);

Department of Transport Green Transport Strategy (2018);

Change Response Policy (2011);
National Strategy for Sustainable Development (2011);
Department of Transport, Rural transport strategy (2016);
National Spatial Development Framework (2022);
Cooperative Governance & Traditional Affairs, Medium Term Strategic Framework (2019-2024);
Trading Economics (2021)

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STAATSKOERANT, 3 Maart 2023 No.

General Notices • Algemene Kennisgewings

NO. 3119 3 March 2023

PUBLICATION FOR COMMENTS: NATIONAL LAND TRANSPORT STRATEGIC

All comments should be posted to the Director-General of the Department of Transport

This gazette is also available free online at www.gpwonline.co.za

NATIONAL LAND TRANSPORT

This gazette is also available free online at www.gpwonline.co.za

National Land Transport Strategic Framework (2023 -2028)

This gazette is also available free online at www.gpwonline.co.za

The purpose of the NLTSF is:

• To serve as a five-year framework for integrated land use transport planning

• To align transport to sustainable development., and universal accessibility.

• To enhance coordination between the various spheres of government.

Department of Transport – National Land Transport Strategic Framework 2023 - 2028 i

This gazette is also available free online at www.gpwonline.co.za

The overall vision of the NLTSF is to create:

The functional areas that are covered include the following:

1) Integrated Land Use and Transport Planning

2) Urban Transport and Smart cities

10) Cross-Border Transport

11) Transport safety and security

12) Institutional management

Department of Transport – National Land Transport Strategic Framework 2023 - 2028 ii

This gazette is also available free online at www.gpwonline.co.za

This gazette is also available free online at www.gpwonline.co.za

LIST OF FIGURES iii

POLICY CONTEXT FOR THE NLTSF 5

THE STRATEGIC FRAMEWORK 41

Department of Transport – National Land Transport Strategic Framework 2023 - 2028 i

This gazette is also available free online at www.gpwonline.co.za

5.6 Non-motorised transport 52

HOW WILL THE FRAMEWORK BE DELIVERED? 67

REVIEW, MONITORING AND EVALUATION 69

Department of Transport – National Land Transport Strategic Framework 2023 - 2028 ii

This gazette is also available free online at www.gpwonline.co.za

This gazette is also available free online at www.gpwonline.co.za

BBBEE – Broad-Based Black Economic Empowerment

BMA – Border Management Authority

BRT – Bus Rapid Transit System

CCTC – Central Communications Transport Centre

CITP – Comprehensive Integrated Transport Plan

COGTA – Cooperative Governance and Traditional Affairs

COTO – Committee of Transport Officials

CPTED – Crime Prevention Through Environmental Design

CPTR – Current Public Transport Register

CSIR – Council for Scientific and Industrial Research

DBE – Department of Basic Education

DBSA – Development Bank of Southern Africa

DDM – District Development Model

DFFE – Department of Forestry, Fisheries and the Environment

DMC – Disaster Management Centre

DOA – Decade of Action

DORA – Division of Revenue Act

DoT – Department of Transport of South Africa

GIS – Geographic Information System

GHG – Greenhouse Gas

GVA – Growth Value Add

HOV – High Occupancy Vehicle

STAATSKOERANT, 3 Maart 2023 No.

NO. 3119 3 March 2023