PUBLIC TRANSPORT PLAN
DRAFT FOR PUBLIC CONSULTATION
JUNE 2006
City of Cape Town: Public Transport Plan 2006
This Public Transport Plan has been prepared as a Draft for
public consultation and approval by Council.
City of Cape Town: Public Transport Plan 2006
TABLE OF CONTENTS
Page No.
EXECUTIVE SUMMARY
i - xii
1.
INTRODUCTION
1
1.1
1.2
1.3
CITY VISION AND PUBLIC TRANSPORT
THE RESPONSIBILITY OF THE CITY
AREA OF JURISDICTION OF THE PUBLIC TRANSPORT PLAN
1
1
5
2.
PUBLIC TRANSPORT VISION, POLICIES, GOALS & OBJECTIVES
6
2.1
2.2
2.3
2.4
2.5
2.6
NATIONAL POLICY
PROVINCIAL POLICY
LEGISLATION
PUBLIC TRANSPORT VISION OF THE CITY OF CAPE TOWN
CITY OF CAPE TOWN PUBLIC TRANSPORT GOALS AND OBJECTIVES
CITY OF CAPE TOWN PUBLIC TRANSPORT POLICY
6
8
10
10
14
15
3.
DEMOGRAPHIC CHARACTERISTICS
17
3.1
3.2
3.3
INTRODUCTION
DEMOGRAPHICS
SPATIAL DISTRIBUTION OF SOCIO-ECONOMIC CHARACTERISTICS
17
17
23
4.
PUBLIC TRANSPORT STATUS QUO
30
4.1
4.2
4.3
4.4
4.5
4.6
4.7
INTRODUCTION
CURRENT PUBLIC TRANSPORT RECORD
OVERALL SYSTEM PERFORMANCE
MODE CHARACTERISTICS
FACILITIES
FARES AND SUBSIDY
TRAVEL PATTERNS
30
30
30
32
46
46
47
5.
LAND USE/TRANSPORT INTEGRATION AND
LONG TERM PUBLIC TRANSPORT SYSTEM
55
MOBILITY STRATEGY
PUBLIC TRANSPORT NETWORKS
KEY INTERVENTIONS OF THE CORRIDOR STRATEGY
CORRIDOR ASSESSMENTS
TARGETTED MODAL SPLIT
55
56
61
63
76
5.1
5.2
5.3
5.4
5.5
City of Cape Town: Public Transport Plan 2006
TABLE OF CONTENTS
(continued)
Page No.
6.
PASSENGER RAIL SYSTEM
80
6.1
6.2
6.3
6.4
INTRODUCTION
KEY ISSUES
CITY'S POSITION ON RAIL
STRATEGIES AND PROJECTS
80
81
82
83
7.
ROAD-BASED PUBLIC TRANSPORT STRATEGIES & PROJECTS
90
7.1
7.2
7.3
7.4
7.5
7.6
7.7
7.8
7.9
7.10
7.11
7.12
INTRODUCTION
CONTRACTED SCHEDULED BUS SERVICES
KLIPFONTEIN CORRIDOR
UNSCHEDULED SERVICES (including Minibus Taxi-Type Services)
METERED TAXI SERVICES
LONG DISTANCE SERVICES
TOURIST SERVICES
CHARTER SERVICES
LEARNER TRANSPORT
STAFF SERVICES
SPECIAL NEEDS PASSENGERS
OPERATING LICENCES
90
93
106
108
110
114
116
117
119
120
121
123
8.
PUBLIC TRANSPORT SUPPORT SYSTEMS
130
8.1
8.2
8.3
8.4
8.5
8.6
8.7
8.8
8.9
8.10
PUBLIC TRANSPORT INFRASTRUCTURE: FACILITIES
PUBLIC TRANSPORT INFRASTRUCTURE: PRIORITY LANES
NON-MOTORISED TRANSPORT
FARE POLICY AND SUBSIDY SYSTEM
INTEGRATED FARE MANAGEMENT AND AVL SYSTEM
SAFETY AND SECURITY
LAW ENFORCEMENT
PUBLIC TRANSPORT INFORMATION
PUBLIC TRANSPORT BRANDING AND MARKETING
PUBLIC TRANSPORT SERVICE AND QUALITY CHARTER
130
134
141
143
145
147
150
151
153
154
City of Cape Town: Public Transport Plan 2006
TABLE OF CONTENTS
(continued)
Page No.
9.
PLANNING PROGRAMMES AND PROJECTS
158
9.1
9.2
INTRODUCTION
PUBLIC TRANSPORT PLANNING PROGRAMMES AND PROJECTS
158
159
10.
INSTITUTIONAL STRUCTURES
162
10.1
10.2
10.3
10.4
10.5
INTERGOVERNMENTAL INTEGRATED DEVELOPMENT STRATEGY
INSTITUTIONAL ROLE OF THE CITY OF CAPE TOWN
CO-ORDINATION STRUCTURES
POLICY FRAMEWORK
TRANSPORT AUTHORITY FOR THE CITY OF CAPE TOWN
162
163
163
164
165
11.
IMPLEMENTATION PLAN AND BUDGETS
170
REFERENCES
171
City of Cape Town: Public Transport Plan 2006
LIST OF FIGURES
Page No.
FIGURE 1.1:
FIGURE 1.2:
Inter-Relationship between Statutory Transport Plans
City of Cape Town Municipal Boundary
3
5
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
3.1:
3.2:
3.3:
3.4:
3.5:
3.6:
3.7:
3.8:
Age Profile of Population
Age/Sex Structure in the City
Number of Impaired Passengers
Population Density per km2
% Socio-Economic Status2001 by Suburb
Worst 20% SES Index
% Employed using Public Transport
% Employed using Car
18
19
20
24
25
26
28
29
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
4.1: Rail, Bus, Minibus-Taxi Networks
4.2: Rail Network
4.3: Rail Network with Highest Passenger Volumes
4.4: Existing Bus Network
4.5: Highest Frequency Bus Routes in AM Peak
4.6: Existing Minibus Taxi Network
4.7 a): Rail Commuters in AM Peak Period 2004 by Transport Zone
4.7 b): Bus Commuters in AM Peak Period 2004 by Transport Zone
4.7 c): Taxi Commuters in AM Peak Period 2004 by Transport Zone
4.8 a): Rail Commuter Percentages in AM Peak Period 2004 by Transport Zone
4.8 b): Bus Commuter Percentages in AM Peak Period 2004 by Transport Zone
4.8 c): Taxi Commuter Percentages in AM Peak Period 2004 by Transport Zone
4.9: Trip Productions and Attractions in AM Peak Period 2004 by Macro Zone
33
35
37
39
41
42
48
49
50
51
52
53
54
FIGURE
FIGURE
FIGURE
FIGURE
FIGURE
5.1:
5.2:
5.3:
5.4:
5.5:
55
57
60
64
65
FIGURE
FIGURE
FIGURE
FIGURE
7.1: Trend in Subsidy Payments
7.2 a): Bus Network
7.2 b): Minibus-Taxi Network
7.3: Klipfontein Corridor
93
95
95
106
FIGURE
FIGURE
FIGURE
FIGURE
8.1:
8.2:
8.3:
8.4:
135
138
138
139
Integrated Corridors
Proposed Public Transport Network – Accessibility & Mobility Networks
Coverage within 1km of Accessibility Network
Transport Investment Strategy
Northern/Atlantis Corridor
Designated Bus & Minibus-Taxi Lanes
Modal Split across Lanes on the N2
Modal Split across Lanes on Klipfontein Road
Modal Split across Lanes on Main Road
City of Cape Town: Public Transport Plan 2006
LIST OF TABLES
Page No
TABLE
TABLE
TABLE
TABLE
TABLE
TABLE
3.1:
3.2:
3.3:
3.4:
3.5:
3.6:
Population in City of Cape Town
Age Profile
Prevalence of Special Needs Passengers (2001 Census Data)
Employment by Industry Sector
Unemployment Levels
Income Distribution
17
18
20
21
22
22
TABLE
TABLE
TABLE
TABLE
TABLE
TABLE
TABLE
TABLE
TABLE
4.1:
4.2:
4.3:
4.4:
4.5:
4.6:
4.7:
4.8:
4.9:
Passenger Trips per Day
Number of Boarding Passengers on 8 Lines per Weekday
10 Stations with Highest Number of Boarding Passengers
Bus Trips and Passengers
10 Busiest Residential Areas for Bus Passengers in AM Peak Period
10 Busiest Bus Terminals – Passengers per Day Boarding & Alighting
Minibus-Taxi Services
Residential Areas with Busiest Taxi Ranks in AM Peak Period
Minibus Taxi Facilities with the Highest Number of Passengers
30
36
38
39
40
40
42
43
43
TABLE 5.1:
TABLE 5.2:
Modal Split Targets (Morning Peak Period)
Passenger and Modal Split
76
78
TABLE 7.1:
TABLE 7.2:
91
TABLE 7.3:
Road-Based Public Transport Services
Types of Contractual Arrangements under which Public Transport
Services can be Operated
Operational Concepts for Road-based Public Transport
92
125
TABLE 8.1:
TABLE 8.2:
TABLE 8.3:
Location of Existing Public Transport Priority Lanes
Proposed Extensions and New Public Transport Priority Lanes
Desirable Minimum Frequency of Services
134
137
156
TABLE 11.1:
Budgets and Sources of Funding
170
City of Cape Town: Public Transport Plan 2006
EXECUTIVE SUMMARY
INTRODUCTION
The City of Cape Town has charted a new direction in unveiling its vision for the City described in
its Integrated Development Plan 2005:
“Our Vision is to build a City for all, a City in which no one is left out.”
Public transport is a vital and essential element of this vision in providing the opportunity for all
citizens and visitors to access the full range of facilities which the City offers, whether for work,
education, recreation, health, social activities etc. It is particularly important for the poorer
sections of the community, without access to private cars, in providing mobility through accessible,
safe and affordable public transport. An improved public transport system also offers major
advantages to the City in providing an alternative for car users, with benefits for the environment,
reduced costs due to the easing of congestion and lowering the costs of doing business in the City.
A good public transport system also serves to promote the City for investment, for further growth
in tourism, and for major events, not least the FIFA 2010 Soccer World Cup.
This Public Transport Plan sets out the City’s vision, objectives, strategies and projects for
developing and managing the public transport system in Cape Town. It is guided by the City’s
Integrated Development Plan (IDP), particularly Strategy 3 of the IDP – Access and Mobility, as
well as the City’s Mobility Strategy.
The area of jurisdiction of the Public Transport Plan is the City of Cape Town.
VISION, GOALS AND OBJECTIVES, POLICIES
An interpretation of National and Provincial policies was undertaken to guide the development of
public transport policies for the City of Cape Town.
The Public Transport Plan is aligned to the City’s Integrated Development Plan (IDP) which sets
out as part of its vision “An accessible city that extends the benefits of urban society to all and
builds the capacity of its people”. This vision is supported by a strategic theme, “Accessibility and
Mobility”.
The Public Transport Vision for public transport in the City is:
“A safe, effective, efficient, equitable and affordable public transport system that
supports sustainable, social and economic development in an environmentally
responsible manner.”
The strategic theme access and mobility has been developed in some detail as part of the
restructuring and transformation of transport based on the Mobility Strategy. The Mobility
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City of Cape Town: Public Transport Plan 2006
Strategy is defined as a long term Year 2020 Vision for managing, delivering and meeting access
and mobility needs of all citizens, visitors, goods and services in the City of Cape Town in an
equitable and sustainable manner by Putting Public Transport, People and Quality of Life
First.
The Mobility Strategy is underpinned by two key pillars: Social Restructuring aimed at social
and economic integration and economic opportunity enhancement; Transport Restructuring
aimed at transformation of public transport services for greater mobility and integration across all
modes.
Among the key public transport policies are:
•
•
•
•
•
•
•
•
•
To give priority to public transport over private transport
To direct investment in transport infrastructure, services and facilities to enhance social and
economic development
To focus on public transport on development corridors
To provide public transport to meet the needs of all users
To support investment in rail
To support the use of the most appropriate mode in terms of cost/service trade-off
To restructure the minibus-taxi industry into a unified formal public transport sector
To provide access to transport for persons with special needs
To ensure safety and security
The overarching thrust is:
… to improve public transport for the benefit of existing and potential users
… to derive developmental and socio-economic objectives from an improved public transport
system
… to bring about a shift from the use of private vehicles to public transport through …
… the incentive measures of improved public transport and
… restraint measures in the use of private transport through travel demand
management including enforcement of dedicated public transport lanes, signal preemption, etc
The Public Transport Plan sets out strategies and projects for:
•
•
•
•
•
•
Land Use/transport integration
Passenger rail system
Road based public transport including all public transport modes
Public transport support systems
Planning programmes and projects
Institutional structures
ii
City of Cape Town: Public Transport Plan 2006
PUBLIC TRANSPORT STATUS QUO
Over 1,1 million passenger trips are made each day in the City of Cape Town using the three main
modes: Rail (602 000 passenger trips per day - 53%), Bus (197 000 - 18%), Minibus-taxi
(332 000 - 29%). The private/public transport split of passenger trips in the morning peak period
entering the CBD is 50:50.
The highest volume rail line is the Khayelitsha/Mitchells Plain line with 271 000 passengers per
day, representing 45% of the total rail passenger trips.
The busiest residential areas for bus passengers in the morning peak period are Khayelitsha
(15 000 passenger trips), Mitchells Plain (14 000), Nyanga (6 000). The busiest bus terminal is the
City centre (Golden Acre) with a total of 30 000 passengers per day, followed by Mitchells Plan
with 20 000 passengers.
The busiest residential areas for taxi passengers in the morning peak period are Khayelitsha (8 000
passenger trips), Nyanga (7 500) and Delft (5 800).
The busiest minibus-taxi facility is Cape Town Station Deck with 61 000 passengers per day,
Mitchells Plain East (56 000) and Bellville (48 000).
DEMOGRAPHIC CHARACTERISTICS
The City of Cape Town covers an area of 2 487km2 . In 2001 it had a population of 2,9 million and
population forecast for 2021 ranging from 3,3 million to 4,2 million, a growth of between 400 000
and 1,3 million over the 20 year period. The City has a young age structure with 37% of the
population below the age of 19. Unemployment was estimated at 29%; 49% of the population
earn less than R1 600 per month.
LAND USE/TRANSPORT INTEGRATION AND LONG TERM PUBLIC TRANSPORT
SYSTEM
The Mobility Strategy identified a number of integrated corridors where public transport
investment will be focussed.
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City of Cape Town: Public Transport Plan 2006
Northern
‘growth axis’
corridor
Northern
Suburbs
corridor
Southern
Suburbs
corridor
Phase 1:
Klipfontein
Corridor Project
INTEGRATED CORRIDORS
The public transport system will be structured along corridors, in which public and private
development will be encouraged and services will operate all day, at high frequencies and be safe,
affordable (for urban poor), reliable, efficient, convenient and accessible. Social and economic
restructuring of the City will be encouraged at the highly accessible nodes where these corridors
intersect.
The Mobility Strategy directs investment along these corridors that would:
•
Encourage sustainable economic development within the identified transport corridors and at
public transport interchange points
•
Encourage the desired thresholds of land use development within these corridors to support an
all day public transport system
•
Encourage the mix of development that will provide the all day surveillance required to secure
the corridor environment, and in particular at public transport interchange points
•
Encourage the use of public transport and NMT over the use of the private car
Summary assessments are presented in the Plan for each of the corridors to identify land use and
public transport characteristics and indicate possible strategic interventions.
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City of Cape Town: Public Transport Plan 2006
PASSENGER RAIL SYSTEM
The passenger rail system conveys some 602 000 passengers per day accounting for 53% of
public transport trips. In contrast with the rail network in other cities in the country, it penetrates
extensive middle to high income areas as well as low income areas, and therefore has the
potential to serve a wide range of travel markets. Apart from its predominant role of serving
passengers captive to public transport, it has the potential in the longer term to attract existing
and future car users.
Its ability to realise its full potential in delivering high quality public transport services, has been
hampered by a long standing lack of investment over many years resulting in a declining service,
loss in patronage and a decline in market share in recent years.
The City of Cape Town is committed in terms of its transport policy to promote and support
passenger rail where it is the most appropriate mode and can offer the required level of service as
part of an integrated transport system for the City.
The major problems facing the rail system are:
•
Long standing lack of investment in rolling stock, stations and system components leading to
deterioration of the service
•
The poor condition of rolling stock which appears to be the biggest problem facing the
operation of the system affect train frequencies, reliability, quality of the service and the ability
to attract choice riders
•
The age of the rolling stock with an average age of close to 29 years
•
The withdrawal of train sets on the grounds of condition and safety considerations leading to
the decline of the service frequencies and overcrowding
•
Overcrowding
•
Passenger perceptions of safety
•
Reliability of services
The City’s position on rail is:
•
To protect and enhance the substantial investment in rail
•
To plan and manage rail as part of an integrated multi-model transport system providing
seamless travel journeys
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City of Cape Town: Public Transport Plan 2006
•
To plan, develop and manage the rail system to meet the aims of the access and mobility goals
in the IDP and the Mobility strategy
The main policies in support of the City’s position on rail are:
•
To support and promote rail as part of an integrated multi-modal transport system
•
To promote investment in the rail system to bring it to a good overall condition and to a high
standard
•
To promote spatial development and corridor development to support and be supported by the
rail system to enhance socio-economic development
•
To promote universal access to the rail system
The City’s strategy for rail has short term, medium term and long term components. The essential
strategy derives from the acknowledgement of the extensive nature of the rail system and the
limitations of funding for additional expansionary investment. Before any consideration of
expanding the network is contemplated, the imperative is to attain a level of stabilisation and to
bring the existing system to a state of good repair and good condition in order to retain and attract
ridership in the established rail travel markets. Investment in new lines should be postponed to
the longer term horizon and, only when the existing network is operating to the required standard
in the travel markets where rail is currently prominent, should it be increased.
The short term strategy is to bring the existing system on priority corridors to a good state of
repair and good overall condition through fleet upgrading and service improvements aimed at:
•
•
•
Retaining current ridership
Regaining lost riders on priority corridors
Attracting new riders in existing travel markets through a higher quality and more attractive
service
The Priority corridors are:
Priority 1:
Priority 2:
Priority 3:
Khayelitsha/Mitchells Plain - Cape Town
Strand - City Line including services from Bellville
Simon’s Town/Cape Flats - Cape Town
Remaining lines
The investment as part of the short term strategy is to:
•
•
•
•
Upgrade and modernise the fleet
Additions to the fleet
Upgrade stations
Make provision for special needs passengers
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City of Cape Town: Public Transport Plan 2006
•
•
•
Improve service levels
Improve safety and security
Introduce integrated fare management system
The medium and long term strategies extend these investments to the other corridors in priority
order and consider new and extensions to the rail system subject to full financial and economic
evaluations.
ROAD BASED PUBLIC TRANSPORT
Scheduled Public Transport Service
Scheduled bus services in the City of Cape Town are provided exclusively by Golden Arrow Bus
Services (Pty) Ltd (GABS) under contract with the Department of Transport. GABS has operated
subsidised commuter services in the City over many decades, and was last formalised as an
interim contract in 1997. This contract was originally for a three year period, but has since twice
been extended and now is extended on a monthly basis pending placing the service on either a
tendered or negotiated contract.
The service is subsidised by the Department of Transport, and derived a subsidy of approximately
R 360 million in the financial year 2004/5.
The key issues facing the scheduled bus service are:
•
Uncertainty concerning the interim contract which precludes long term investment in the
service by the operator including fleet upgrading, ticketing systems, etc
•
Destructive competition with taxis and buses operating in competition with each other on the
majority of routes
•
Highly dispersed routing with very low frequencies and very limited off peak services
•
Lack of integrated fare management system
•
An outdated fleet which would not comply with requirements for current tender contracts
The strategy for the scheduled service is to transform services from the interim contract to either
tender or negotiated contracts on a restructured service in terms of the provision of the National
Land Transport Transition Act.
The restructured system will entail the following:
•
A unified road-based service which includes both bus and taxi passengers travelling on major
line-haul routes
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City of Cape Town: Public Transport Plan 2006
•
The use of the most appropriate vehicle size based on passenger numbers and cost/service
tradeoff where existing bus and taxi passengers will be considered as a single travel market.
•
Existing taxi services providing line-haul services will be withdrawn. The taxi industry will be
engaged to participate in providing the line-haul services in appropriate joint equity
arrangements.
•
The minibus-taxi industry will participate in the provision of the contracts through suitable
empowerment, equity ownership models, or special purpose vehicles in the form of business
units
•
The contract documents will utilise the Department of Transport’s model documents which
specifies minimum standards of service such as age of vehicle, ticketing equipment, passenger
information, etc and amended where necessary to accommodate/facilitate the implementation
of the restructured service
•
The restructured service will consist of:
-
direct, high frequency all day, 7-day a week services on the primary routes (mainly the
corridors)
-
direct peak hour services along high speed mobility routes
-
direct services linking high demand origins and destinations
-
community services within main residential areas providing feeder services and distribution
services to places of activity within the area
-
an integrated fare management system providing seamless journeys
Klipfontein Corridor
This flagship project is the development of an integrated public transport corridor from Khayelitsha
and Mitchells Plain to the Cape Town CBD.
The infrastructure provision will include the following:
•
Public transport priority measures – such as dedicated lanes for road-based public transport,
and/or public transport priority queue jump and by-pass lanes, and priority traffic signalling.
This means that road infrastructure will be upgraded mostly for improving the operations of
the public transport system
•
The Klipfontein Corridor Project recognises both Klipfontein Road and the N2 as a public
transport system supporting the corridor. The Project includes both public transport priority
measures in Klipfontein Road itself, as well as bus/minibus-taxi lanes on the N2
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City of Cape Town: Public Transport Plan 2006
•
Establishment of interchanges and park and ride facilities at key nodes
•
CCTV on both Klipfontein Road and the N2 to provide both enforcement of the public transport
priority measures as well as enhanced security
•
Upgrading of the Golden Acre Terminus or the construction of a new public transport terminal
in the CBD to support all priority corridors entering the CBD, including the Klipfontein Corridor
•
Upgrading of existing facilities to ensure universal access for Special Needs Passengers
•
Non-motorised transport (NMT) (ie pedestrian and cycle path) network along the full length of
the corridor, with bicycle storage facilities at key locations to cater for and provide easy access
to the major socio-economic and transport facilities
•
Upgrading of key nodal points along the corridor to form Dignified Urban Spaces, supportive of
NMT and promoting safe and secure environments for recreation and social interaction
•
Provision of public transport signage, passenger information displays, shelters, street furniture,
and dedicated stops to be provided on the network
•
Safety and security initiatives, including improved lighting where necessary
Unscheduled Public Transport Services
The Public Transport Plan has included extracts from the City’s Operating Licences Strategy which
guides the City in its recommendations to the Provincial Operating Licensing Board on:
•
The granting, renewal, amendment or transfer of an operating licence authorising the
operation of any road-based public transport service other than a charter service
•
The conversion of a permit to an operating licence that involves a conversion from a radius or
area-based permit to a route-based operating licence, or to an operating licence for a larger
vehicle.
The Operating Licence Strategy addresses the following:
•
•
•
•
•
•
•
•
Types of public transport services that require operating licences
Spatial, land use and economic planning
Type of vehicles which may be used for public transport services
Conversion of permits to operating licences
Operating licences for contracted services
Operating licences for non-contracted services
Validity period for operating licences
Cancellation of operating licences not brought into use
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City of Cape Town: Public Transport Plan 2006
•
•
•
Withdrawal of operating licences or permit in rationalisation of public transport services
Special needs passengers
Conditions to be recommended
The Public Transport Plan also sets out strategies and projects for the other public transport
modes, ie:
•
•
•
•
•
•
metered taxi services
long distance services
tourist services
charter services
learner transport
staff services
PUBLIC TRANSPORT SUPPORT SYSTEMS
Public Transport Infrastructure
The strategies for development of public transport infrastructure are to:
•
Upgrade existing facilities to comply with the standards required in the design guidelines
•
Provide additional public transport facilities to accommodate the growth in public transport
•
Increase levels of maintenance to retain the facilities in good condition
•
Investigate the modification of existing facilities to accommodate larger vehicles (articulated
buses) to be operated in the new scheduled service contracts
•
Re-design and upgrade facilities to accommodate articulated vehicles
•
Investigate and upgrade facilities to accommodate taxi recap vehicles
•
Introduce access control at public transport interchanges as part of the rank management
system
The Public Transport Plan identifies:
•
•
•
Public transport interchanges for improvement or new construction
Minibus-taxi ranks for upgrading or new facilities
General public transport facilities
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City of Cape Town: Public Transport Plan 2006
Priority Lanes
The City’s strategy is to improve journey times for public transport by provision of priority lanes on
major routes. Priority lanes currently exist on six routes. The Plan proposes extensions on five
routes and proposed priority lanes on a further 14 routes. The public transport plan contains
strategies and projects for:
•
•
•
•
•
•
•
•
•
Non-motorised transport
Fare policy
Development of an integrated fare management system
Provision for special needs passengers
Improvement to safety and security
Enhanced law enforcement
Development of a comprehensive public transport information system
Public transport planning and marketing
Public transport service and quality charter
PLANNING PROGRAMMES AND PROJECTS
The planning programme over the three years will involve the following planning initiatives:
•
•
•
•
•
•
•
•
•
•
•
•
Review and update of statutory plans
Demographic forecasts and land use integration
Update and refinement of the transport model
Corridor feasibility studies
Project identification and feasibility
Public transport impact studies
Funding strategy
Taxi recapitalisation programme
Transport information system
User preference surveys and user attitude surveys
Environmental policy for transport and alternative technologies
Transport operational plans for the FIFA 2010 World Cup
INSTITUTIONAL STRUCTURES
The City council has resolved to establish a Transport Authority for the overall management and
development of a transport system in the City. The National Land Transport Transition Act
provides for the establishment of a Transport Authority by agreement by the City and the MEC “if
their effect is to improve transport service delivery in the local sphere of government by grouping
transport functions into a single, well-managed and focussed institutional structure.”
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City of Cape Town: Public Transport Plan 2006
Investigations by the City indicated that a preferred option was to use the legal provisions of the
Constitution and the Municipal Systems Act to establish a Transport Authority as an internal
business unit of the City. The majority of transport functions are the responsibility of
municipalities in terms of the Constitution. Three critical functions lie with other spheres of
government: the rail function (National DOT/SARCC), the bus subsidy function (PGWC), the
regulation function and Provincial Operating Licensing Board (PGWC).
The project will be to establish the Transport Authority as an internal business unit and to engage
with other spheres of government on assignment of the remaining functions to the City.
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City of Cape Town: Public Transport Plan 2006
1.
INTRODUCTION
1.1
CITY VISION AND PUBLIC TRANSPORT
The City of Cape Town has charted a new direction in unveiling its vision for the City
described in its Integrated Development Plan 2005:
“Our Vision is to build a City for all, a City in which no one is left out.”
Public transport is a vital and essential element of this vision in providing the opportunity
for all citizens and visitors to access the full range of facilities which the City offers,
whether for work, education, recreation, health, social activities etc. It is particularly
important for the poorer sections of the community, without access to private cars, in
providing mobility through accessible, safe and affordable public transport. An improved
public transport system also offers major advantages to the City in providing an alternative
for car users, with benefits for the environment, reduced costs due to the easing of
congestion and lowering the costs of doing business in the City. A good public transport
system also serves to promote the City for investment, for further growth in tourism, and
for major events, not least the FIFA 2010 Soccer World Cup.
This Public Transport Plan sets out the City’s vision, objectives, strategies and projects for
developing and managing the public transport system in Cape Town. It is guided by the
City’s Integrated Development Plan (IDP), particularly Strategy 3 of the IDP – Access and
Mobility, as well as the City’s Mobility Strategy which has now been developed in some
detail.
1.2
THE RESPONSIBILITY OF THE CITY
The preparation of a Public Transport Plan is a statutory obligation for the City in terms of
the National Land Transport Transition Act (Act 22 of 2000). The Act requires all transport
authorities and municipalities to prepare a series of public transport plans in accordance
with the requirements of the Act and regulations issued by the Department of Transport.
The Public Transport Plan will be incorporated into the more comprehensive Integrated
Transport Plan which presents the proposals for the total transport system including road
infrastructure, private transport, freight, traffic demand management, etc.
The Public Transport Plan and the Integrated Transport Plan need to be prepared within
the national and provincial policy frameworks as set out in the relevant White Papers on
Transport Policy and the ensuing land transport frameworks.
The Western Cape
Department of Transport and Public Works has in addition issued a Provincial Vision for
Public Transport and a Public Transport Improvement Programme.
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City of Cape Town: Public Transport Plan 2006
The National Land Transport Transition Act (NLTTA) requires planning authorities to
prepare five statutory plans including the Public Transport Plan. The Public Transport Plan
forms part of the sequence of plans prescribed by the NLTTA. The sequence of plans
covers all three spheres of government as follows:
•
The Department of Transport must prepare a National Land Transport Strategic
Framework to guide land transport planning country-wide
•
The Provincial Department of Transport must prepare a Provincial Land Transport
Framework as an overall guide to land transport planning within the Province
Planning authorities such as the City of Cape Town, must prepare five plans:
•
Current Public Transport Record (CPTR): to record the provision and utilisation
of all public transport services and facilities in the transport area.
•
Operating Licences Strategy (OLS): to provide the planning authority with
information on the supply and demand of public transport services in order to advise
the Provincial Operating Licensing Board on the disposal of applications for operating
licences.
•
Rationalisation Plan (RATPLAN) (if there are subsidised transport services in the
area): to rationalise and restructure subsidised public transport services in order to
bring about greater efficiency and minimise subsidy.
•
Public Transport Plan (PTP): to set out the planning authority’s vision, goals and
objectives for public transport, and its strategy, programmes and projects for the
provision of the public transport system.
•
Integrated Transport Plan (ITP): to set out the planning authority’s vision, goals
and objectives, and strategies to address land transport in the area and to include
proposals for multi-modal transport, private transport and freight.
The Public Transport Plan and the Integrated Transport Plan must form part of the
Integrated Development Plan (IDP) for the area concerned. The plans need to be
developed within the overall policy and development framework of the IDP. The outcome
of the plans will provide input for developing the transport projects and budgets which will
form part of the IDP. The plans and their annual review will eventually need to tie in with
the annual cycle for preparing the IDP and municipal budgets.
The inter-relationship between the plans is illustrated in Figure 1.1.
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City of Cape Town: Public Transport Plan 2006
National Land Transport Strategic Framework
To guide land transport planning countrywide
Submit to Minister
Rail for approval
until devolved
Integrated Development Plan
Operating Licences Strategy
All planning authorities
Rationalisation Plan
All planning authorities with
subsidised public transport
Public Transport Plan
At request of MEC - public transport only
Submit to MEC with
certain aspects for
approval
Integrated Transport Plan
At request of MEC - includes all aspects of
transport
Provincial Land Transport
Framework
Initially as a guide
for planning
authorities in
Province
Current Public Transport Record
All planning authorities
Subsequent ones to
contain brief
summary of plans
and some detail on
interprovincialand
interplanning area
transport
Source: National Land Transport Transition Act (Act 22 of 2000)
FIGURE 1.1: INTER-RELATIONSHIP BETWEEN STATUTORY TRANSPORT PLANS
The following plans were completed for the City of Cape Town in 2004:
•
•
•
Current Public Transport Record
Operating Licences Strategy
Rationalisation Plan
The Operating Licences Strategy contained policies and recommendations for advising
the Provincial Operating Licensing Board in the disposal of applications for operating
licences for all categories of road-based public transport. These recommendations relate to
all the various public transport modes and have been built into the various strategies for
the different public transport services contained in Chapters 7 and 8 of this Public Transport
Plan. The Operating Licences Strategy is contained in a separate document which is
available for reference.
The Rationalisation Plan developed strategies for the rationalisation of the subsidised
services network as well as broad strategy for developing a unified contracted public
transport service which would include the existing subsidised service and the unscheduled
service operating in competition. The proposals contained in the Rationalisation Plan have
been incorporated into the strategies for the scheduled services component in Chapter 7 of
this Public Transport Plan. The Rationalisation Plan is contained in a separate document
which is available for reference.
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City of Cape Town: Public Transport Plan 2006
The Department of Transport has produced Minimum Requirements for the Preparation of
the Public Transport Plan (NDOT, 2003). These requirements set out a sequence of
Chapters. This Plan has met all the minimum requirements and has included additional
components appropriate to the needs in the City of Cape Town. The organisation of the
document in Chapter headings differs from the Minimum Requirements, but was developed
into a more suitable format for the needs of the plan for the City.
The Public Transport Plan must be submitted to the MEC for Transport in the Province, but
such approval only relates to procedures, financial issues that affect the province,
provincial policy and principles, transport across the boundaries of the areas of planning
authorities, inter-provincial transport and other matters provided for in provincial laws.
In terms of the NLTTA and the requirements issued by the Department of Transport, the
Public Transport Plan must include:
•
•
•
•
•
•
•
•
•
the planning authority’s vision, goals and objectives for public transport
the existing public transport system
land use and public transport integration
strategies and proposals for public transport including strategies for addressing the
needs of learners and persons with disabilities
the operational component in terms of the Operating Licences Strategy
provisions for the rationalisation of subsidised public transport services where
subsidised services exist
stakeholder consultation
prioritised proposals
funding implications
In preparing this Public Transport Plan, it has drawn on a wide range of more focussed
studies which were undertaken in 2004 as part of the City’s Public Transport Planning
Design and Implementation Programme. These include studies of projects such as
transport and development corridors, integrated ticketing, public transport infrastructure
provision and maintenance, enforcement and security, passenger information and
marketing, and transport for special needs passengers.
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City of Cape Town: Public Transport Plan 2006
1.3
AREA OF JURISDICTION OF THE PUBLIC TRANSPORT PLAN
The Public Transport Plan relates to the municipal boundary of the City of Cape Town as
shown in Figure 1.2.
FIGURE 1.2: CITY OF CAPE TOWN MUNICIPAL BOUNDARY
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City of Cape Town: Public Transport Plan 2006
2.
PUBLIC TRANSPORT VISION, POLICIES, GOALS &
OBJECTIVES
2.1
NATIONAL POLICY
The White Paper on National Transport Policy, published in 1996, called for a break with
the past in the direction of transport policy, a changed role for government, and a clear set
of outcomes for public transport:
“The promotion of a safe, reliable, effective, efficient, co-ordinated, integrated and
environmentally friendly land passenger transport system in South African urban and rural
areas, and in the Southern African region managed in an accountable manner to ensure
that people experience improving levels of mobility and accessibility” (DOT, 1996)
A number of clear themes emerge which provide a policy framework for the development
and management of public transport in the country:
•
Land Use Transport Integration
The need for closer integration in land use and transport planning with development
strategies based on corridor development and densification, aimed at greater
sustainability of the transport system as well as developmental objectives
•
More Competitive Environment
A more competitive environment in the provision of public transport through
competitive tendering in the provision of subsidised services.
•
Greater Participation by SMMEs
The opening up of the public transport market especially subsidised services to new
players particularly SMME and historically disadvantaged groups
•
Efficiency and Effectiveness
Greater efficiency and effectiveness in the public transport system through integration
of the various transport services and the correct placing of the various forms of
transport to operate in the most economic manner and to reduce total system costs
•
Access and Mobility
Increasing access and mobility for all users but with special attention to persons with
special needs such as persons with disabilities, learners, etc
•
Regulation and Enforcement
A more informed regulation for entry into the transport market backed up by more
effective enforcement
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City of Cape Town: Public Transport Plan 2006
•
Appropriate Institutions for Transport
Establishing appropriate institutions in the form of Transport Authorities at the
municipal sphere to take overall responsibility for the total transport system
The Moving South Africa Strategy for the long term re-shaping of the transport system
endorsed and emphasised the national policy position in identifying three key strategic
actions aimed at a sustainable and customer oriented public transport system:
•
Densification of Transport Corridors
This action is the linchpin of the Moving South Africa urban strategy, and aims to
achieve economies of scale through the provision of public transport investments to
support corridor densification
•
Optimise Modal Economics and the Service Mix to Meet Customer Needs
(a) Investment in infrastructure should support corridor development
(b) The planning and operation of public transport services should be reoriented to
promote the mode that offers the best cost / service trade-off for a given corridor
(c) Differentiated public transport services, which meet a higher level of customer
needs without subsidies or cross subsidies should be encouraged
(d) Tough road space management and car restrictions should be implemented to
improve the performance of public transport
•
Improve Firm Level Performance and Productivity
The strategic actions entail the encouragement of competition through public transport
tendering; regulation to ensure that customer needs are met; reduced system costs
and sustainability; and the improvement of funding for infrastructure and upgrading to
ensure sustainability
The NLTTA gave effect to the policies in the White Paper and set out clear principles for
developing public transport services:
•
In planning and provision of land transport infrastructure and facilities, a higher priority
to public transport over private transport
•
Public transport services aimed at affordability to the public, integration of modes, cost
efficiency and service quality, market development, value to the customer, and
minimising impact on the environment
•
Use of appropriate modes to reduce the total systems cost of travel, commensurate
with assessment of the impact on customer needs
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City of Cape Town: Public Transport Plan 2006
•
Transport planning to guide land use and development planning, and integration with
land use and economic planning, and development of corridors, and densification and
infilling
•
Subsidies targeted to assist currently marginalised users and those with poor access to
social and economic activity
•
Catering for needs of special categories of passengers in planning and the provision of
public transport infrastructure facilities and services. This should be provided as far as
possible through the mainstream public transport services
The National Land Transport Strategic Framework sets out end strategic outputs for public
transport:
2.2
•
Promotion of public transport over private transport
•
Development of transport plans at all three spheres of government
•
Promotion of transport authorities in selected municipalities
•
Efficient and effective regulation through provincial operating licensing boards
•
Promotion of safety on public transport services
•
Upgrading of public transport infrastructure
•
Introduction of information systems
•
Formalisation and regulation of the minibus-taxi industry and recapitalisation of the
fleet
•
Provision of road based public transport services through tendered contracts and
negotiated contracts
PROVINCIAL POLICY
The Provincial Government Western Cape endorsed and reinforced the sentiments of the
national position in its own Western Cape Provincial Transport White Paper, which was
published shortly after the national document in 1997.
Drawing on its strongly “Public Transport First” policy, the Provincial Department of
Transport in 2003 re-stated and added detail to its public transport strategy and set out a
Vision for Public Transport and a Five Year Strategic Delivery Programme based on 22
specific delivery plans (PGWC, 2003).
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City of Cape Town: Public Transport Plan 2006
The Mission Statement for all Delivery Programmes puts forward a statement of intent and
a clear policy direction for public transport:
“The Province is intent on transforming public transport services so that it may be:
•
•
•
•
SAFE
AFFORDABLE
RELIABLE
ACCESSIBLE
The overall mission is to have a safe, regulated public transport system that meets the
requirements of accessibility, reliability and mobility at an affordable cost and in accordance
with the needs of users. The system must reduce the level of uncertainty and personal risk
currently experienced by users. It must contribute to the quality of life of inhabitants and
provide transport for visitors to the Western Cape and, ultimately, offer a viable alternative
to private vehicle travel”
The Provincial Land Transport Framework prepared in 2004 set out 3 strategic goals for the
Province:
•
Strategic Goal 1
Community development and economic empowerment of the poor
•
Strategic Goal 2
- Job creation
•
Strategic Goal 3
- Providing access and opportunities to all communities with a bias towards the
disadvantaged
- Enhancing the mobility of all communities particularly those currently without or
with limited access
- Facilitation and enhancement of economic opportunities
- Promotion of rural development
- Internal transformation and capacity building to improve service delivery
- The promotion of co-operative governance
- Alignment of all planning processes with the broader developmental goals of the
Department and iKapa Elihlumayo
- Generation of revenue
In 2005 the Provincial Government Western Cape Department of Transport and Public
Works developed a Public Transport Improvement Programme as part of its Strategic
Infrastructure Plan. The Programme is a series of inter-dependent and mutually reinforcing
strategies and plans aimed at achieving the following objectives:
•
Making public transport more affordable to users and the government
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City of Cape Town: Public Transport Plan 2006
2.3
•
Ensuring that public transport contributes to Ikapa Elihlumayo by reducing the cost of
doing business, building social capital and supporting sustainable development
•
Paving the way for the transition from the interim bus contract with Golden Arrow Bus
Services to tendered and/or negotiated public transport contracts
•
Giving equal consideration to all citizens in the Province in the provision of public
transport
•
Reducing the amount of travel by private motor vehicles to public transport by
improving the quality of service received on the public transport system
•
Preparing for the hosting of the FIFA 2010 Soccer World Cup
LEGISLATION
Legislation has been enacted to give effect to the national policy. The main pieces of
legislation governing the development, management and regulation of the public transport
system are:
•
•
•
•
•
•
•
National Land Transport Transition Act (Act 22 of 2000)
Urban Transport Act (Act 78 of 1977)
Road Transportation Act (Act 74 of 1977)
Legal Succession to the SA Transport Services Act (Act 9 of 1989)
Municipal Systems Act (Act 32 of 2000)
Municipal Finance Management Act (Act 56 of 2003)
Promotion of Equity and Prevention of Unfair Discrimination Act (Act 4 of 2000)
Specific transport legislation needs to be read with local government legislation as the
latter affects the institutions established to manage the transport system.
2.4
PUBLIC TRANSPORT VISION OF THE CITY OF CAPE TOWN
2.4.1 Access and Mobility Strategic Theme
The Integrated Development Plan 2005/06 (IDP) is the principal policy instrument guiding
the strategic development and budgeting programme of the City. The City’s transport
Vision and its attainment through the Integrated Transport Plan must be aligned to the
overall vision and strategic direction of the City as contained in the IDP.
This vision is articulated in a number of definable attributes for the City:
A sustainable City
A dignified City
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City of Cape Town: Public Transport Plan 2006
An accessible City
A credible City
A competitive City
A safe and secure City
A prosperous City
A City known for its leadership in Africa
In support of the Council’s vision and goals for 2020 the IDP has put forward five interrelated strategic themes focussing on socio-economic development and improved service
delivery:
•
•
•
•
•
integrated human settlement
economic growth and job creation
access and mobility
building strong communities
equitable and effective service delivery
Improving access and mobility is one of the five themes. It requires the City to act to
create the maximum opportunity through transport for residents and visitors to take
advantage of the full economic and social potential the City offers, as well as sharpening
the competitive edge of the business community. Bringing about greater access and levels
of mobility through all means of transport, motorised and non-motorised, in a sustainable,
affordable manner is key to this endeavour.
The IDP for 2005/06 sets out as part of its vision - “An accessible city that extends the
benefits of urban society to all and builds the capacity of its people”. This vision is
supported by a strategic theme, “Access and Mobility”.
The access and mobility theme emphasises public transport as a catalyst and vital to
harness the synergies of the other themes. In the foreword to the Current Public Transport
Record Summary Report, the Mayor writes:
“Strategy 6 – Access and mobility – has an emphasis on public transport as being vital to
harness the synergies of the other five strategies. Out of this strategy has emerged our
Public Transport First policy, which has as a key principle that public transport must be the
prime mode of transport. For this policy to succeed, we intend to move forward with our
Mobility Strategy, using the planned improvement of public transport along major activity
corridors such as the Klipfontein Corridor to act as a catalyst. These significant projects will
improve living conditions of poor communities living in these corridors and will provide
them with affordable accessible transport.” (CCT, 2005)
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City of Cape Town: Public Transport Plan 2006
2.4.2 Mobility Strategy
The strategic theme access and mobility has been developed in some detail as part of the
restructuring and transformation of transport based on a Mobility Strategy. The mobility
strategy is defined as a long term Year 2020 Vision for managing, delivering and meeting
access and mobility needs of all citizens, visitors, goods and services in the City of Cape
Town in an equitable and sustainable manner by Putting Public Transport, People and
Quality of Life First.
The VISION for public transport in the City is articulated as:
“A safe, effective, efficient, equitable and affordable public transport system
that supports sustainable, social and economic development in an
environmentally responsible manner.”
The Mobility Strategy is underpinned by two key pillars:
2 Pillars
Mobility Strategy
Social
Restructuring
Transport
Restructuring
Socio-economic
integration and
economic
opportunity
enhancement
Transformation of
the provision of
public transport
services for
greater mobility
and integrated
across all nodes
It calls for a shift in transport policy direction:
•
A paradigm shift from market demand driven to social/equity issues
•
Putting people and quality of life first and ensure universal access
•
Planning for non motorised transport - pedestrian, bicycle
•
Transport plans to direct economic activity, mixed land use and high densities along
public transport corridors and nodes
•
Transport infrastructure to be used as leverage for economic development and social
upliftment
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City of Cape Town: Public Transport Plan 2006
•
Urban restructuring/renewal - land transport planning to be integrated with land
development process
•
Sustainable mobility
2.4.3 Sustainable Transport in the City of Cape Town
For the City of Cape Town, a sustainable transport system would involve the following:
•
Meets the basic access needs of individuals and societies in a safe and secure way, in a
manner consistent with human and ecosystem health, and with equity within and
between generations
•
Affordability - operates efficiently, offers choice of transport mode, and supports a
vibrant economy
•
Limits emissions and waste within the planet’s ability to absorb them, minimizes
consumption of non-renewable resources, limits consumption of renewable resources to
the sustainable yield level, reuses and recycles its components, and minimizes the use
of land.1
Sustainable transport strongly supports the City’s vision (IDP, 2005) of a sustainable,
dignified, accessible, credible, competent, prosperous, safe and caring city that is known
for its leadership in Africa and the developing world. Within the City’s vision for Cape
Town, the vision for a sustainable transportation system is translated as follows:
1
•
Sustainable City - The transportation system should have little or no impact on the
environment and on human health with more focus on non motorised modes and more
efficient motorised modes such as public transport
•
Accessible City - The transportation systems should be accessible with people having
access to opportunities, services and goods, specifically the poor and people with
special needs
•
Credible City - The transportation system must promote good governance with
integration and coordination between the different spheres of government
•
Prosperous City - The transportation of people and goods should be integrated to
allow ease of movement between modes and using the most effective modes where
appropriate
•
Safe and Caring City - The transportation system must provide a safe and secure
environment for people of all ages and all abilities
Adapted from the Canadian Centre for Sustainable Transport, 2002
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City of Cape Town: Public Transport Plan 2006
The City’s response in recognising the travel needs of people and to promote economic and
environmental sustainability as a means of promoting more efficient means of transport
identified the following key focus areas:
•
•
•
•
•
•
2.5
Promote alternative and more efficient modes of transport
Reduce the usage and dependence on private vehicle trips
Support integrated and more efficient utilisation of land
Promote improved travel behaviour through marketing and awareness
Shift government policy and thinking to support the implementation of efficient
transport systems
Promote the use of alternative and cleaner energy sources eg Biodiesel and Liquid
Petroleum Gas (LPG)
CITY OF CAPE TOWN PUBLIC TRANSPORT GOALS AND OBJECTIVES
The following public transport GOALS and OBJECTIVES for the City have been
formulated in definable and measurable terms, whereby performance indicators can be
developed to monitor the attainment of the objectives over time. The Goals and Objectives
are:
GOALS & OBJECTIVES
•
Sustainable funding of public transport
•
A safe and secure public transport system
•
An effective and
transport system
public
•
An integrated public transport system
across all modes of transport
•
Shift in the use of public transport
towards the national strategic objective of
a ratio of 80:20 between public and
private transport
•
An effectively regulated and
enforced public transport system
•
Public
transport
services
and
infrastructure which support social and
economic development
•
Low cost innovative forms of transport
complementary to the public transport
system
•
Appropriate institutional structures for the
development and overall management of
the public transport system
•
•
•
sustainable
Integrated land use and transport systems
oriented towards development corridors
and development nodes
Customer orientated public transport
services to meet peoples needs providing
high levels of mobility and accessibility
commensurate with reasonable costs
strictly
Reasonable levels of accessibility to the
mainstream public transport system for
passengers with special needs
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City of Cape Town: Public Transport Plan 2006
Specific strategies, programmes and projects aimed at attaining the vision, goals and
objectives are set out in the various chapters which follow that address specific
components of the public transport system.
2.6
CITY OF CAPE TOWN PUBLIC TRANSPORT POLICY
The goals and objectives and the ensuing strategies, programmes and projects related to
public transport need to be guided and aligned with the City’s clear statement of transport
policy.
Vision
P
O
L
I
C
I
E
S
Goals &
Objectives
Strategies
Programmes and Projects
Policy can be defined as the stated intent and ideological position of the City in the
planning, development, provision and overall management of public transport. Policy must
guide and direct the public transport strategies and projects based on a unified policy and
toward the common vision. Policies determine the manner in which strategies and
programmes need to be formulated and implemented. As well as derived from technicallydriven arguments, policies will often include ideological and value-laden statements which
are intended to shape the manner in which the vision, and objectives are to be attained.
The various strategies and programmes which are developed need to be tested to ensure
that they are consistent with the policy position.
Drawing on the national and provincial policy framework, as well as the City’s IDP vision
and Mobility Strategy, public transport POLICIES of the City to guide the development and
management of the public transport system are set out below:
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City of Cape Town: Public Transport Plan 2006
POLICIES
•
to give priority to public transport over
private transport
•
to implement travel demand management
aimed at a shift in the users of private
transport to public transport
•
•
•
•
to support the use of the most
appropriate mode in terms of cost/service
trade-off
•
to restructure the minibus-taxi industry
into the unified formalised public
transport sector
•
to provide and focus public transport on
development corridors as a key structuring
element
to provide choice in public transport
where it does not detract from financial
viability and tempered by economic
efficiency
•
to direct financial support for public
transport to low income areas
to provide access to transport for persons
with special needs
•
to ensure safety and security
•
to
support
innovation
and
environmentally sustainable transport
•
to market and
transport system
•
to promote and facilitate the participation
of SMMEs and previously disadvantaged
groups in the provision of transport
services
to
direct
investment
in
transport
infrastructure,
facilities
and
public
transport services to enhance social and
economic development
•
to reduce the need for government
support for public transport services while
meeting people’s needs
•
to provide public transport to meet the
needs of all users – journeys to work, to
school, to community/social activities, to
health, to recreational facilities, for
tourists, etc through all day public
transport services
•
promote
the
public
to support investment in rail as part of an
integrated multi-modal system
The overarching thrust is:
… to improve public transport for the benefit of existing and potential users
… to derive developmental and socio-economic objectives from an improved public
transport system
… to bring about a shift from the use of private vehicles to public transport through …
… the incentive measures of improved public transport and
… restraint measures in the use of private transport through travel demand
management including enforcement of dedicated public transport lanes, signal
pre-emption, etc
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City of Cape Town: Public Transport Plan 2006
3.
DEMOGRAPHIC CHARACTERISTICS
3.1
INTRODUCTION
The City of Cape Town is a metropolitan municipality (Category A municipality) established
in December 2000 by the incorporation of the Cape Metropolitan Council and six
metropolitan local councils namely, Tygerberg, Oostenberg, Blaauwberg, South Peninsula,
Helderberg and Cape Town.
The City of Cape Town covers an area of 2 487 km2. It is the third largest municipality by
population after Johannesburg and Durban (eThekwini).
3.2
DEMOGRAPHICS
3.2.1 Population
The City of Cape Town had a population of 2,89 million in 2001, and has experienced rapid
growth due to its young age structure and immigration.
Table 3.1 shows the population for the City of Cape Town for 1996 and 2001. It shows a
growth in population of 13% over the 5 years, or an annual growth of 2,5% per annum.
TABLE 3.1: POPULATION - CITY OF CAPE TOWN
1996
2 563 612
POPULATION
2001
2 893 246
CHANGE
+13%
Source: Statistics SA – 2001 Census
Population growth figures have been developed based on different scenario assumptions of
migration levels and the impact of AIDS. The figures are preliminary at this stage but
indicate a “low” and “high” range of between 3,3 and 4,2 million by 2021, in other words a
growth of between 400 000 and 1,3 million over the 20 year period to 2021.
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City of Cape Town: Public Transport Plan 2006
3.2.2 Age Structure
Table 3.2 shows the age profile of the population and is illustrated in Figure 3.1.
TABLE 3.2: AGE PROFILE
AGE
0-4
5 - 19
20 - 34
35 - 64
Over 65
TOTAL
POPULATION
252,826
805,550
824,474
866,230
144,171
2,893,251
%
9%
28%
28%
30%
5%
100%
Source: Statistics SA – 2001 Census
CENSUS 2001 - AGE STRUCTURE for CITY OF CAPE TOWN
900,000
800,000
700,000
600,000
500,000
400,000
300,000
200,000
100,000
0-4
5 - 19
20 - 34
35 - 64
Over 65
FIGURE 3.1: AGE PROFILE OF POPULATION
The profile shows a very young age structure typical of a developing region. Of
significance is the high number of persons between 5 and 19 falling into the school going
category. The issue of transport of learners, particularly in low income households, is an
important and challenging transport issue due to low levels of affordability.
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City of Cape Town: Public Transport Plan 2006
Figure 3.2 shows the age/sex structure in the City.
Source: Statistics SA – 2001 Census
FIGURE 3.2: AGE/SEX STRUCTURE IN THE CITY
3.2.3 Passengers with Special Needs
The definition of passengers with special needs is that presented the Department of
Transport document entitled “Moving South Africa”, and refers to a passenger in any of the
following categories:
Life Cycle Passengers - Including children between 5 and 14 years old, people with
health conditions, pregnant women and the elderly (aged 65 and above).
Impairment Passengers - Any customer with physical, sensory or cognitive impairments,
including full or partial impairments in motor functions, sight, hearing, speech, mental or
intellectual capabilities, and short people.
Signage Passengers - Including people who are not literate and foreigners who are
unable to read transport signs and notices and require non-verbal forms of communication.
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City of Cape Town: Public Transport Plan 2006
Table 3.3 shows the prevalence of Special Needs Passengers.
TABLE 3.3:
DATA)
PREVALENCE OF SPECIAL NEEDS PASSENGERS (2001 CENSUS
SPECIAL NEEDS PASSENGER CATEGORY
CITY OF CAPE TOWN
% POPULATION
518 195
Not known
144 168
662 363
18%
5%
23%
Life Cycle Passengers
Children (between 5 and 14)
Pregnant women (2 months only)
Elderly (aged 65 and above)
Subtotal
Impairment Passengers
Sight
Hearing
Communication
Physical
Intellectual
Emotional
Multiple
Subtotal
19
14
3
31
13
13
12
107
261
270
798
147
079
926
470
951
0.7%
0.5%
0.1%
1,0%
0.5%
0.5%
0.4%
3.7%
Signage Passengers
Unknown
-
TOTAL
770 314
26.6%
Source: Statistics SA – 2001 Census
A total of 26% of the population falls into the category of special needs passengers taking
the broad definition to include both life cycle and impaired passengers.
Figure 3.3 shows the numbers of impaired passengers by category.
NO. OF IMPAIRED PASSENGERS
City of Cape Town
35,000
31,147
% Population
30,000
25,000
0.4%
0.5%
12,470
13,926
0.5%
1.0%
0.1%
3,798
5,000
0.5%
0.7%
10,000
13,079
14,270
15,000
19,261
20,000
Sight
ng
ation
Heari
munic
Com
ical
Phys
l
ectua
Intell
onal
Emoti
le
Multip
FIGURE 3.3: NUMBER OF IMPAIRED PASSENGERS
Page 20
City of Cape Town: Public Transport Plan 2006
The two most prevalent categories of impairment passengers are physical and sight which
account for 50 400 passengers or 1,7% of the population. These groups are impacted
most acutely in terms of access and utilisation of the transport system.
3.2.4 Employment
The economy of the City of Cape Town contributed approximately 11% to the national
economy and 75% to the Western Cape economy as reported in the Environment Report
Year 4, 2001 (CCT, 2001). The City of Cape Town is the second largest city economy in
South Africa.
The economy of the City grew by 3% in 2001 and 2.1% in 2000. This is a higher growth
rate than that for the national economy, which was 2.2% in 2001. The growth areas for
the City for 2001 included the manufacturing, trade and finance sectors. The most
significant growth has been in trade, due to vast increases in tourism. The tourism
industry is seen as the industry which will contribute to employment creation and economic
growth and which is able to employ the unskilled labour force.
Formal sector employment declined to 64% in 2001 from 77% in 1991. The informal
sector has grown to play an important role in the economy of the City contributing 12% of
the economic output and employing approximately 18% of the labour force. Growth of
employment in the formal and informal sectors is projected to grow at an annual average
of approximately 2% between 2001 and 2005.
Table 3.4 shows the employment by industry sector.
TABLE 3.4: EMPLOYMENT BY INDUSTRY SECTOR
Number of Employed Persons
SECTOR
Agriculture/Forestry/Fishing
Mining/Quarrying
Manufacturing
Electricity/Gas/Water
Construction
Wholesale/Retail
Transport/Storage/Communication
Financial/Insurance/Real Estate/Business
Community/Social/Personal
Other
Private Households
Undetermined
TOTAL
2001
Western Cape
206,200
4,600
207,200
7,400
102,600
242,600
64,600
156,000
259,800
93,400
145,400
1,489,800
%
Cape Town
13.8%
23,290
0.3%
2,151
13.9%
155,846
0.5%
5,235
6.9%
68,005
16.3%
169,989
4.3%
50,399
10.5%
126,970
17.4%
182,006
0.0%
209
6.3%
59,204
9.8%
96,140
100%
939,444
%
2.5%
0.2%
16.6%
0.6%
7.2%
18.1%
5.4%
13.5%
19.4%
0.0%
6.3%
10.2%
100%
Source: Statistics SA – 2001 Census
Page 21
City of Cape Town: Public Transport Plan 2006
The most significant employment sectors in the City are Community and Social Services
(1995), Wholesale and Retail (18%), Manufacturing (16%) and Financial Services (13%).
Table 3.5 shows the unemployment levels between 1996 and 2001.
TABLE 3.5: UNEMPLOYMENT LEVELS
Employed
Unemployed
TOTAL
1996
904 471
%
80%
2001
939 440
%
71%
219 842
1 124 313
20%
100%
386 781
1 326 121
29%
100%
Source: Statistics SA – 2001 Census
The table shows an increase in the unemployment rate since 1996. The unemployment
rate of 29% in 2001 is based on the expanded definition. This is higher than the 23%
unemployment rate measured in the official source of labour statistics. The higher rate
reflected in the Census is probably due to those employed in the informal sector who more
likely classify themselves as unemployed, whereas the labour force survey prompts more
questions to identify such workers.
3.2.5 Income
Table 3.6 shows the income distribution in the City.
TABLE 3.6: INCOME DISTRIBUTION
Income Bracket
2001
R1 - 400
83,708
R401 - 800
236,707
R801 - 1,600
278,781
R1,601 - 3,200
252,226
R3,201 - 6,400
196,132
R6,401 - 12,800
108,206
R12,801 - 25,600
45,975
R25,601 - 51,200
14,368
R51,201 - 102,400
4,952
R102,401 - 204,800
3,504
Over R204,801
1,377
Total
1,225,936
%
6.8%
19.3%
22.7%
20.6%
16.0%
8.8%
3.8%
1.2%
0.4%
0.3%
0.1%
100%
Cumulative %
6.8%
26.1%
48.9%
69.5%
85.4%
94.3%
98.0%
99.2%
99.6%
99.9%
100.0%
Source: Statistics SA – 2001 Census
It shows that almost half the income earning population (49%) earn less than R1,600 per
month. The relatively low income levels impact on the affordability for transport and
places limits on the ability of commuters to bear the full economic fare of transport. The
national strategic objective is that not more than 10% of monthly income should be spent
on transport.
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City of Cape Town: Public Transport Plan 2006
3.3
SPATIAL DISTRIBUTION OF SOCIO-ECONOMIC CHARACTERISTICS
3.3.1 Population Density
Figure 3.4 shows population density per km2 by metro suburb. The highest densities
occur in the low income areas of Khayelitsha, Gugulethu/Nyanga, Delft, Philippi/
Crossroads/ Browns Farm and the low/middle income areas of Mitchells Plain. A strongly
contributing factor is the tightly packed extensive informal development juxtaposed to the
formal housing, particularly in Khayelitsha, Nyanga, Gugulethu and Crossroads/Philippi.
The southern suburbs is characterised by very low density and high car ownership. A
number of the other metro suburbs show very low density but it should be noted that these
include vast tracts of vacant land eg the Milnerton suburb, and the area to the south east
of Atlantis. This arises from the metro suburb delimitations.
3.3.2 Socio-Economic Status
Figure 3.5 show the socio-economic status (SES) by suburb. The SES is a composite
index of the following:
•
•
•
•
%
%
%
%
of adults (older than 20) unemployed
unskilled of labour force
households earning less than R1600 per month (Household Subsistence Level)
adults with less than matric
The SES index is the average of each of the four scores.
Figure 3.5 shows that the “worst” areas are concentrated in the metro south east
specifically Khayelitsha, Gugulethu, Nyanga, and small pockets in Atlantis, Hout Bay and
Du Noon informal area.
The index is more sharply shown in Figure 3.6 which shows the worst 20%.
Page 23
City of Cape Town: Public Transport Plan 2006
FIGURE 3.4: POPULATION DENSITY PER KM2
Page 24
City of Cape Town: Public Transport Plan 2006
FIGURE 3.5: % SOCIO ECONOMIC STATUS 2001 BY SUBURB
Page 25
City of Cape Town: Public Transport Plan 2006
FIGURE 3.6: WORST 20% SES INDEX
Page 26
City of Cape Town: Public Transport Plan 2006
3.3.3 Socio-Economic Determinant of Mode Choice
The use and demand for public transport is to a large extent by captive riders. Figure 3.7
shows the percent usage of public transport by employed persons. It shows the high
percentage use of public transport in the metro south east, particularly the lowest income
areas of Khayelitsha, Gugulethu, Nyanga and the low/middle income area of Mitchells Plain
and Blue Downs.
The lowest % use of public transport is the Durbanville area. This area has high car
ownership but also little incentive to use public transport with a lack of convenient access
to rail, and few bus services. For instance, there are extremely limited bus services to the
Cape Town CBD using the N1 as a direct, fast route.
It is important to recognise the relation between the perceived demand for public transport
services and the provision, and which comes first. A number of aspects will need to be in
place for choice riders to use public transport, both as incentives through good public
transport services, and restraint measures on the use of private transport. As the
Integrated Transport Planning process is developed and evolves, these strategies will need
to be refined and implemented.
It is possibly significant that the high income southern suburbs, with income levels
comparable to the Durbanville area, have the tendency for greater % use of public
transport, possibly due to better access to the rail system, more extensive proximity to
employment areas.
The findings above are also clearly demonstrated in Figure 3.8 which shows the % use of
private car by employed persons.
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City of Cape Town: Public Transport Plan 2006
FIGURE 3.7: % EMPLOYED USING PUBLIC TRANSPORT
Page 28
City of Cape Town: Public Transport Plan 2006
FIGURE 3.8: % EMPLOYED USING CAR
Page 29
City of Cape Town: Public Transport Plan 2006
4.
PUBLIC TRANSPORT STATUS QUO
4.1
INTRODUCTION
This Chapter provides a brief overview of the public transport system operating in the City
in 2004. This information is provided to contextualise the content of the Public Transport
Plan, and is not intended to be a comprehensive description of the services and their
utilisation. More detailed information about public transport services can be found in the
2004/2005 Current Public Transport Record (CCT, 2005).
4.2
CURRENT PUBLIC TRANSPORT RECORD
In accordance with the requirements of the NLTTA, field work was carried out by the City
in 2003/2004 to expand its understanding of current public transport. This concentrated
on scheduled bus services, minibus-taxi services boarding and alighting patterns, rail
services utilisation, and the condition and facilities at public transport interchanges. The
data obtained strengthens previously collected data, and IT systems have been further
enhanced to enable data analysis and data manipulation to be more effective using GIS
databases.
The 2004/2005 Current Public Transport Record is comprehensively contained in a set of
CDs, covering data for all modes of public transport. In addition, a shorter glossy book
entitled “Summary of 2004/05 Current Public Transport Record” was produced in hard-copy
version for distribution to interested stakeholders, and can also be obtained from the City.
Below is a shortened version of the information in the executive summary of the CPTR. It
focuses on presenting an overview of the public transport services in the City.
4.3
OVERALL SYSTEM PERFORMANCE
Over 1,1 million passenger trips are made in the City of Cape Town by the three main
modes: rail, bus and minibus-taxi (this excludes metered taxi, long distance bus, etc).
TABLE 4.1: PASSENGER TRIPS PER DAY
Commuter Rail
Minibus-Taxi
Bus
TOTAL
PASSENGER TRIPS/DAY
601 940
332 407
197 444
1 131 791
%
53%
29%
18%
100%
Source: CPTR 2004/05
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City of Cape Town: Public Transport Plan 2006
MODE SHARE
(All Day)
Bus, 197444,
18%
Minibus-taxi,
332407,
29%
Rail, 601940,
53%
Source: CPTR 2004/05
Rail accounts for 53% of daily passenger trips, minibus-taxi 29%, and bus 18%.
Public transport records indicate that 417 000 passengers are carried on a typical 3-hour
morning peak period from 06:00 to 09:00 by all forms of public transport. Of these
252 500 are carried by rail, 104 000 by minibus-taxi and 60 500 by bus. This gives a
percentage share of 60% by rail, 25% by minibus-taxi and 15% by bus.
Trends available for patronage records for the rail system indicate that daily number of
commuter rail trips made in Cape Town decreased from 729 000 in 1997 to 601 940 in
2004, or a decrease of 18% over the 7-year period. Minibus-taxi passenger trips increased
from 283 000 to 332 000 (17%) between 2002 and 2003. Direct comparison of bus
passengers is not possible due to a different basis and time period used in the two surveys.
The share of transport usage between the private car and public transport may be gauged
from the annual screenline surveys of trips entering the Cape Town Central Business
District (CBD). Of the total trips entering the Cape Town CBD in a typical day, 69% are
made using private cars, while the public transport share is 31%. The morning peak
period (06:00 – 09:00) model split for total area are 50% by private car and 50% public
transport.
It should be noted that this reflects trips entering the Cape Town CBD.
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City of Cape Town: Public Transport Plan 2006
MODE SPLIT – TRIPS ENTERING CAPE TOWN CBD
All Day
Morning Peak Period
(06:00 - 09:00)
Public Transport,
31%
Private Car, 69%
Private Car, 50%
Public Transport,
50%
Source: CPTR 2004/05
The City-wide modal split figures derived from the EMME/2 transport model for the
morning peak period (06:00 to 09:00) are as follows:
Private car
Rail
Taxi
Bus
52%
22%
16%
10%
Total PT 48%
From modal split trends determined using the Cape Town CBD screenline counts, it may be
deduced that some 3,5 million motorised trips are made per day in the City. For the
current population of 3,1 million, this equates to 1,13 motorised trips per person for all
modes, of which 0,76 trips are made by private car and 0,37 are made by public transport.
This can be compared with other cities in the world which typically produce between 1 – 2
motorised trips per population per day (Santiago 1,4; Stockholm 1,9).
4.4
MODE CHARACTERISTICS
Figure 4.1 shows the rail, bus, and minibus-taxi networks.
Page 32
City of Cape Town: Public Transport Plan 2006
FIGURE 4.1: RAIL, BUS AND MINIBUS-TAXI NETWORKS
Page 33
City of Cape Town: Public Transport Plan 2006
4.4.1 Commuter Rail Services
The commuter rail network in the City of Cape Town has 260 km of rail track, 14 rail
service routes and 97 stations.
Figure 4.2 shows the rail network.
Page 34
Maitland
Paarden
Eiland
Esplanade
Simon's Town
Sunny Cove
Glencairn
Mandalay
Fish Hoek
Nolungile
Kapteinsklip
Mitchells Plain
Pentech
Kalk Bay
Clovelly
Tygerberg
Muizenberg
Sarepta
St. James
Unibell
Lentegeur
Klapmuts
Paarl
Huguenot
Dal Josafat
Mbekweni
Wellington
Strand
Van der Stel
Somerset West
Lynedoch
Vlottenburg
Stellenbosch
Du Toit
Koelenhof
Muldersvlei
Firgrove
Faure
Eerste River
Melton Rose
Blackheath
Kuils River
Khayelitsha
Nonkqubela
Brackenfell
Lakeside
False Bay
Nyanga
Heideveld
Eikenfontein
Retreat
Steenberg
Koeberg Rd.
Heathfield
Southfield
Lavistown
Netreg
Parow
Wittebome
Plumstead
Steurhof
Dieprivier
Ysterplaat
Crawford
Lansdowne
Wetton
Ottery
Kentemade
Elsies River
Wynberg
Thornton
Athlone
Akasiapark
Harfield Road
Kenilworth
Monte Vista
Hazendal
Bellville
Newlands
Claremont
Mutual
De Grendel
Ndabeni
Avondale
Pinelands
Malmesbury
Kraaifontein
Mowbray
Rosebank
Rondebosch
Oosterzee
Salt River
Observatory
Atlantis
Wolseley
City of Cape Town: Public Transport Plan 2006
Stikland
Belhar
Philippi
Vasco
Goodwood
Bontheuwel
Mutual
Langa
Woltemade
Woodstock
Cape Town
FIGURE 4.2: RAIL NETWORK
Page 35
City of Cape Town: Public Transport Plan 2006
Of the 601 940 rail passengers trips made on a typical working day the number of
passengers carried in the 3-hour morning peak period (06:00 – 09:00) is 246 431 (41%), in
the inter-peak (09:00 – 16:00) 115 204 (19%) and in the afternoon peak (16:00 – 19:00)
194 360 (32%) the remaining 245 945 (8%) carried in the pre-morning or post-evening
peak. MetroPlus carries 13% of the passengers while Metro carries 87%. Passengers
travelling into the Cape Town area from Wellington and Stellenbosch number only 18 827.
Table 4.2 shows the number of daily boarding passengers on the 8 lines.
TABLE 4.2: NUMBER OF BOARDING PASSENGERS
LINE
Khayelitsha
Mitchells Plain
Strand
Simon’s Town
Kraaifontein / Parow
Lavistown
Cape Flats
Monte Vista
TOTAL
BOARDING PASSENGERS/DAY
149 542
121 640
95 571
92 788
60 572
41 629
37 463
2 735
601 940
%
24.8%
20.2%
15.9%
15.4%
10.1%
6.9%
6.2%
0.5%
100%
Source: CPTR 2004/05
The Khayelitsha and Mitchells Plain lines account for 45% of total boarding passengers,
and together with the Strand line these account for 61% of total boarding passengers. The
Simon’s Town line also has significant ridership with 92 788 boarding passengers or 15,4%
of the total.
Figure 4.3 shows the rail network with the highest volume of passengers.
Page 36
City of Cape Town: Public Transport Plan 2006
FIGURE 4.3: RAIL NETWORK WITH HIGHEST PASSENGER VOLUMES
Page 37
City of Cape Town: Public Transport Plan 2006
Table 4.3 shows the 10 stations with the highest boarding passengers.
TABLE 4.3: 10 STATIONS WITH HIGHEST NUMBER OF BOARDING PASSENGERS
TO CAPE TOWN
Station
No. of Boarding
Passengers All Day
Philippi
Nonkqubela
Khayelitsha **
Nolungile
Bellville *
Langa
Nyanga
Heideveld
Retreat
Mitchells Plain
TOTAL
16 151
14 940
14 666
14 566
13 608
12 404
11 482
11 325
9 630
9 233
128 005
FROM CAPE TOWN
Station
Cape Town
Mutual *
Salt River *
Bonteheuvel
Bellville *
Maitland
Langa
Pinelands *
Woodstock
Philippi
TOTAL
No. of Boarding
Passengers All Day
59 316
28 173
23 230
20 920
15 744
13 647
11 189
10 310
8 623
7 192
198 344
* Stations where passengers board trains after transferring from other trains
** In the morning peak, many passengers board the train to Cape Town at Nonkqubela and Nolungile
travelling in the direction of Khayelitsha in order to secure a seat. They remain seated when the train turns
around at Khayelitsha, thus distorting the number of passengers boarding at all three of these stations.
Source: CPTR 2004/05
Philippi and the 3 stations serving the Khayelitsha area (Nonkqubela, Nolungile and
Khayelitsha) are the 4 busiest boarding stations for services to Cape Town. Cape Town is
by far the busiest boarding station for services from Cape Town followed by Mutual.
4.4.2 Scheduled Bus Services
A fleet of 852 buses is used to provide a scheduled bus service in the City of Cape Town.
All except 24 buses are single deck with a front-mounted engine and a single front door.
Passenger bus capacity averages 90 passengers with seating provided for 65 passengers.
Page 38
City of Cape Town: Public Transport Plan 2006
Figure 4.4 shows the existing bus network.
FIGURE 4.4: EXISTING BUS NETWORK
Most bus services operated are line haul with route distances of more than 15km. These
services are provided in 2 539 bus trips a day in the forward direction on 771 routes, when
93 793 passengers are carried. In the return direction 2 751 bus trips a day are operated
carrying 103 651 passengers on 759 routes.
Table 4.4 shows bus trips, passengers and average passengers/trip in the morning and
evening peak periods.
TABLE 4.4: BUS TRIPS AND PASSENGERS
Morning Peak (06:00 – 09:00)
Evening Peak (16:00 – 19:00)
BUS TRIPS
1 228
1 372
PASSENGERS
60 488
59 816
PASS/TRIP
50
44
Source: CPTR 2004/05
Page 39
City of Cape Town: Public Transport Plan 2006
Table 4.5 shows the ten residential areas with the highest number of bus passengers in the
morning peak period.
TABLE 4.5: TEN BUSIEST RESIDENTIAL AREAS FOR BUS PASSENGERS IN
MORNING PEAK PERIOD
Rank
1
2
3
4
5
6
7
8
9
10
RESIDENTIAL AREA
Khayelitsha
Mitchells Plain
Nyanga
Delft
Hanover Park
Atlantis
Strandfontein
Manenberg
Philippi East
Ocean View
DEPARTING PASSENGERS
(06:00 – 09:00)
14 365
13 561
5 760
3 371
2 246
1 614
1 428
1 426
984
867
Source: CPTR 2004/05
Table 4.6 shows the ten busiest bus terminals in terms of passengers per day boarding and
alighting.
TABLE 4.6: TEN BUSIEST BUS TERMINAL – PASSENGERS PER DAY BOARDING
AND ALIGHTING
TERMINAL
Rank
1
2
3
4
5
6
7
8
9
10
City (Golden Acre)
Mitchells Plain
Bellville
Wynberg
Claremont
Nyanga (CALA Dairies)
Mowbray
Killarney
Hanover Park
Retreat
TOTAL PASSENGERS
ALL DAY
38 036
20 423
11 423
9 707
9 409
5 318
5 250
3 398
3 181
2 873
Source: CPTR 2004/05
During the morning peak period from 06:00 to 09:00 only nine bus routes have a
frequency of more than four buses per hour (ie buses less than 15 minutes apart). Three
of these routes are from Mitchells Plain, three from Nyanga and one from Cape Town.
Page 40
City of Cape Town: Public Transport Plan 2006
Figure 4.5 shows the bus routes with greater than 4 trips per hour in the morning peak.
FIGURE 4.5: HIGH FREQUENCY BUS ROUTES IN THE MORNING PEAK
4.4.3 Minibus-Taxi Services
A total of 7 467 minibus-taxi vehicles (15 seaters with no aisle and a sliding door) operate
during a typical weekday in Cape Town. Services include line-haul services from residential
areas to employment areas and feeder/distribution services mainly to/from commuter rail
stations. Minibus-taxi services do not operate according to timetables and most vehicles
depart only when they are full.
Of the total fleet operating from ranks within the City, surveys has shown that 4 253 (47%)
have legal operating licences/permits and the remaining 3 214 (43%) are vehicles without
a valid authority.
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City of Cape Town: Public Transport Plan 2006
Figure 4.6 shows the existing minibus-taxi network.
FIGURE 4.6: EXISTING MINIBUS-TAXI NETWORK
On a typical weekday a total number of 332 407 passenger trips are conveyed by 55 998
minibus-taxi trips operating 565 routes. Vehicles having legal operating licences/permits
and operating from ranks convey 319 587 (96% of passengers) while illegal vehicles
convey only 12 821 (4%) of the passengers. Illegal minibus-taxis convey a further
unknown number of passengers by operating outside ranks.
Table 4.7 shows a breakdown of minibus-taxi service by type of service.
TABLE 4.7: MINIBUS-TAXI SERVICES
SERVICE TYPE
Line Haul
Feeder
Distribution
ROUTES
153
103
52
TRIPS
26 000
16 000
7 000
PASSENGERS
186 000
96 000
50 000
Source: CPTR 2004/05
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City of Cape Town: Public Transport Plan 2006
Table 4.8 shows the ten busiest residential areas with the highest number of taxi
passengers in the morning peak period.
TABLE 4.8: RESIDENTIAL AREAS WITH BUSIEST TAXI RANKS IN MORNING
PEAK PERIOD
RANK
NO. BOARDING PASSENGERS
(06:00 – 09:00)
8 002
7 447
5 896
4 945
4 361
3 762
3 461
2 598
2 295
1 984
Khayelitsha (Nolungile)
Nyanga Central
Delft
Mitchells Plain East
Hanover Park
Atlantis
Gugulethu
Wesbank
Macassar
Bonteheuwel
Source: CPTR 2004/05
Table 4.9 shows the ten busiest taxi ranks.
TABLE 4.9: MINIBUS-TAXI FACILITIES WITH THE HIGHEST NUMBER OF
PASSENGERS
Rank
1
2
3
4
5
6
7
8
9
10
FACILITY
Cape Town Deck
Mitchells Plain East
Bellville
Wynberg West
Khayelitsha Site C
Nyanga Central
Wynberg East
Retreat West
Delft Roosendal
Elsies Rivier
All Day
Arriving
Passengers
All Day
Departing
Passengers
30 067
26 773
17 404
16 095
14 729
9 310
10 480
8 320
7 362
8 351
31 498
29 734
30 677
15 645
16 563
14 040
9 121
7 639
8 461
6 921
TOTAL No. of
Passengers
ALL DAY
61
56
48
31
31
23
19
15
15
15
565
507
081
740
292
350
601
959
823
272
Source: CPTR 2004/05
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City of Cape Town: Public Transport Plan 2006
4.4.4 Metered Taxi Service
Metered taxi services are synonymous with “Taxi” services found in most cities around the
world. They provide a personalised service to individuals and small groups travelling
together. Taxi vehicles are most commonly sedan cars, while the use of seven- or eightseater minivans is becoming increasingly popular.
Metered taxis can be found at ranks (usually located in areas of greatest demand) or called
by telephone/radio dispatch. There is very little evidence of roaming and passengers
hailing taxis on the street. There is evidence that demand for metered taxis at existing
ranks is growing only slowly, whereas the demand for radio dispatched taxis is growing
very rapidly.
On a typical weekday 3 993 taxi passenger trips are made from official ranks by 189
operators who own 453 taxi vehicles. This patronage is a conservative figure, as the
number excludes passengers hailed on the street or by telephone and collected by
arrangement at other locations. Most of the taxi trade is centred on the Cape Town CBD,
the Waterfront and the Cape Town International Airport thereby serving tourist demands.
There are 37 official taxi rank facilities at which 123 standing taxis can be accommodated.
The five busiest ranks are at the V&A Waterfront (Two Oceans Aquarium, Victoria Wharf
and the Clock Tower), Cape Town CBD (Upper Adderley Street) and the Cable Way Station.
The total taxi passengers boarding at these ranks number 1 771 (44%) out of all
passengers on a typical day.
4.4.5 Long Distance Services
Long Distance Bus
There are three long distance bus terminals in the City. They are situated at Cape Town
station (off Adderley Street), Bellville (Mispel Street) and Philippi (Joe Gqabi). A former
informal terminus at Langa/Epping has been replaced by Joe Gqabi.
Long Distance Minibus-Taxi
Many dispersed long distance ranks are used throughout the Cape Town area, the main
ones being located in Bellville, Cape Town CBD, Khayelitsha, Kraaifontein, Bloekombos,
Langa and Nyanga. During the busiest Sunday in the December holiday peak period 5 270
passengers depart from these ranks on a typical day. Most departures take place from
Khayelitsha Site C (31%) followed by Nyanga (19%) and Bellville (17%).
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4.4.6 Learner Transport
In terms of the Department of Education policy children living further than five kilometres
from selected schools are entitled to a school bus service. These dedicated services are
provided free of charge to the learners. Once a route is identified it is put out on tender
and the successful operator provides the service according to the contract conditions.
Currently services are provided by 39 tendered contracts that transport 13 591 learners
daily to institutes of education at a cost to the Department of R24 million per annum.
Other school bus services also exist. Examples include schools using their own vehicles to
transport children, especially children with disabilities, to school, and to attend sporting and
cultural events, registered bus services chartered by schools to provide transport to and
from extramural activities and services charted by parents to transport children to schools
located far from their place of residence. There are no existing surveys that depict the
extent of these services.
4.4.7 Tourist Services
The tourism industry in South Africa, and Cape Town in particular, is a thriving industry.
Most of it operates to international standards. The transport services carry tourists to and
from tourist attractions with the tourists being accompanied by a registered tour guide.
Authority to operate a tourist service is given in terms of a permit or operating licence
granted by the Provincial Operating Licensing Board. The authority specifies the area in
which the vehicle can operate with some operators providing tours nationally.
A wide range of vehicles is used to provide the services, ranging from luxury coaches to
minibuses and game viewing vehicles. Operators range from well established national
service providers to owners of single vehicle providing local tours. A number of hotels also
provide shuttle services to airports and to other amenities. Shuttle services are also
provided by private companies.
4.4.8 Charter Services
Charter services are those services where a vehicle and driver is hired for a journey at a
charge that is arranged beforehand with the operator. The person hiring the service has
the right to decide the route, date and time of travel and passengers are conveyed to a
common destination. Charter services are therefore generally regarded as a service
provided to transport organised parties to and from an event. A wide range of vehicles are
used to provide the services, ranging from coaches to minibus and motor cars.
“Chauffeur” and limousine services are also being operated within the City where a vehicle
and driver are made available to a passenger or a group of passengers.
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4.4.9 Dial-a-Ride Service
Dial-a-Ride services for persons with physical disabilities are provided using 17 purposely
modified vehicles. These are equipped with automatic lifting facilities and wheelchair
restraints within the vehicle. The service is provided by the City through a contract with a
service provider. The fares are equivalent to single trip bus cash fares.
4.5
FACILITIES
Facilities for boarding and alighting of passengers using rail, bus and minibus-taxi services
in the City number in total 432 unique locations excluding en-route bus stops. Of these,
120 are separate single mode facilities for rail, bus or minibus-taxi, 140 serve two modes
while 172 are modal interchanges at which all three modes can be accessed.
4.5.1 Commuter Rail Stations
There are 97 commuter rail stations in the City, of which 38 stations have more than two
platforms. A total of 84 (87%) have shelters and seating for waiting passengers and 83
(86%) have toilets.
4.5.2 Bus Facilities
There are 132 bus facilities in Cape Town, of which 59 are terminals, 80 are ranks and two
are holding areas. All facilities are surfaced, 54 have five bays or less and seven have
more than 20 bays. Of the 132 facilities 74 (56%) have shelters and 36 (27%) have
toilets.
The scheduled bus services are served by some 4 500 formal bus stops.
4.5.3 Minibus-Taxi Facilities
Cape Town has 203 minibus-taxi facilities, of which 112 are terminals, 61 ranks and 30 are
holding areas. Of the total 141 are off-street and 62 on-street. 178 of the facilities are
surfaced. Most have less than 25 bays, while seven have more than 175 bays. Of the 203
facilities 133 (66%) have shelters and 49 (24%) have toilets.
4.6
FARES AND SUBSIDY
Commuter rail and the scheduled bus services are subsidised by the Government. Metrorail
is reimbursed for its operating deficit whilst Golden Arrow Bus Services (Pty) Ltd is
subsidised by the number of multi-journey tickets sold.
The Metrorail subsidy is estimated at approximately R250 million for 2004/2005, and the
bus subsidy at R360 million for 2004/2005.
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Commuter rail fares are charged by distance travelled in terms of zones (1 to 20km, 21 to
35km, 36 to 50km and more than 51km). Different fares are also charged for travel in
Metro Plus and Metro coaches. The minimum single fare is R4.20.
A minimum single fare of R2.30 is charged for travel by bus. This amount increases in
proportion to the distance travelled. A subsidised multi-ride “clip card” for 10 rides has a
minimum price to the passenger of R34.00 increasing to R103.50 for longer distances
(2004 prices). Corresponding prices for 44 ride cards are R150.00 and R455.00.
Minibus-taxi fares are paid in cash to the driver and, except in the Atlantis area, no tickets
are issued. Fares increase as the route distance travelled increases.
The CPTR 2004/5’s comparison of the basic fares charged shows that, for distances up to
20km, the single MetroPlus class fare is the most expensive. The single bus and minibustaxi fares were almost equal for similar distances. The weekly bus fare is more expensive
than the weekly Metro class fare but cheaper than the single taxi fare.
For distances greater than 20km, the bus single-trip fare increases rapidly compared with
the fares of the other modes. The weekly bus fare is higher than the weekly rail fare.
4.7
TRAVEL PATTERNS
Figures 4.7 a) to c) shows the geographic distribution of rail, bus, and taxi commuters in
the morning peak period taken from the household interview surveys conducted by the City
in 2004. The results shown in the figures refer only to main mode and do not include
feeder trips.
It clearly shows the high prevalence of rail and bus commuters from the metro south east
area, particularly Khayelitsha, Nyanga and Mitchells Plain. This use of taxis is more
widespread as shown in Figure 4.7 c).
Figures 4.8 a) to c) shows the percentage use of rail, bus and taxi by traffic zone.
Figure 4.9 shows the trip productions and trip attractions by traffic zone. It illustrates the
concentrations of job opportunities in the Central City, Voortrekker Corridor (including the
Bellville node), and the Main Road Corridor (including the Claremont/Wynberg node). The
lack of job opportunities in the metro south east areas of Khayelitsha, Nyanga, and
Mitchells Plain is clearly apparent. The long term sustainability of transport needs to
address the disparities in the location of residence and work opportunities.
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FIGURE 4.7 a): RAIL COMMUTERS IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.7 b): BUS COMMUTERS IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.7 c): TAXI COMMUTERS IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.8 a): RAIL COMMUTER PERCENTAGES IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.8 b): BUS COMMUTER PERCENTAGES IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.8 c): TAXI COMMUTER PERCENTAGES IN AM PEAK PERIOD 2004 BY TRANSPORT ZONE
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FIGURE 4.9: TRIP PRODUCTIONS & ATTRACTIONS IN AM PEAK PERIOD 2004
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5.
LAND USE/TRANSPORT INTEGRATION
TERM PUBLIC TRANSPORT SYSTEM
5.1
MOBILITY STRATEGY
AND
LONG
During 2003 the City of Cape Town together with the Provincial Government Western Cape
Department of Transport and Public Works formulated a new vision for public transport,
termed the Mobility Strategy.
The Mobility Strategy identified a number of Integrated Corridors as shown in Figure 5.1.
Northern
‘growth axis’
corridor
Northern
Suburbs corridor
Southern
Suburbs
corridor
Phase 1: Klipfontein
Corridor Project
FIGURE 5.1: INTEGRATED CORRIDORS
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City of Cape Town: Public Transport Plan 2006
The Mobility Strategy directs investment along these corridors that would:
5.2
•
Transform and restructure public transport within the City of Cape Town to provide a
socially just public transport system
•
Encourage sustainable economic development within the identified transport corridors
and at public transport interchange points
•
Encourage the desired thresholds of land use development within these corridors to
support an all day public transport system
•
Encourage the mix of development that will provide the all day surveillance required to
secure the corridor environment, and in particular at public transport interchange points
•
Encourage the use of public transport and NMT over the use of the private car
PUBLIC TRANSPORT NETWORKS
The Mobility Strategy has as its lynch-pin the Corridor Strategy articulated as follows:
“Cape Town will be restructured into an integrated and sustainable city, through the
provision of an socially just, integrated and intermodal public transport system, that
provides a high level of accessibility to economic, recreational and social opportunities for
all. The public transport system will be structured along corridors, along which public and
private development will be encouraged and services will operate all day, at high
frequencies and be safe, affordable (for urban poor), reliable, efficient, convenient and
accessible. Social and economic restructuring of the City will be encouraged at the highly
accessible nodes where these corridors intersect.”
The proposed public transport network is made up of three broad categories as follows:
1) Accessibility Network – further subdivided into a primary accessibility network and a
secondary accessibility network
2) Mobility Network
3) Community Services Network
The Accessibility Network and the Mobility Network are shown at a conceptual level in
Figure 5.2. The road networks shown is at a conceptual level and provides a guide to the
development of public transport routes in the City. The detailed development of the
complete network, as will be necessary to specify tender contracts, may mean that
additional routes are identified to accommodate passenger demand in the most effective
manner.
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Legend
Primary
Accessibility
Routes - Rail
Primary
Accessibility
Routes - Road
Secondary
Accessibility
Routes - Road
Mobility
Network
Routes
FIGURE 5.2: PROPOSED CONCEPTUAL PUBLIC TRANSPORT NETWORK – ACCESSIBILITY & MOBILITY NETWORKS (Community
Services Network not shown)
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City of Cape Town: Public Transport Plan 2006
5.2.1 Accessibility Network
The proposed accessibility network shown in Figure 5.2 comprises the following:
•
The commuter rail network which forms the prime public transport grid in high
public transport demand areas
•
Strategic road based routes are subdivided as follows:
-
Primary accessibility network comprising:
§ principal road based routes along the major development corridors ie:
o
Klipfontein Road
o
Wetton /Lansdowne Road
o
Vanguard Drive
o
Koeberg Road
o
Symphony Way
These routes could ideally require dedicated rights of way for public transport but
subject to feasibility
-
Secondary accessibility network comprising:
§ road based routes that provide connectivity to other parts of the City
These may not require dedicated rights of way but may require public transport
priority in certain locations
Attributes of the accessibility network include:
•
Services operating throughout the day, at relatively high frequencies and on fixed
schedules
•
Transfers provided between different accessibility routes at transfer points
•
Frequent stops along accessibility routes to allow a large variety of different trip lengths
and types and to maximise the number of origin-destination pairs served
•
Express type services operating along the accessibility network by skipping intermediate
minor stops
The following route characteristics were taken into account in selecting the appropriate
accessibility network:
•
Activity routes with a high concentration of commercial activity and public amenities
ie along centre of gravity of future development corridors
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City of Cape Town: Public Transport Plan 2006
•
Routes with a high concentration of higher order institutional facilities such as
universities, technikons, hospitals, schools etc
•
Routes with good coverage ie have high densities of residential development within
1 km on both sides of the route
•
Routes which border on or travel through agglomerations of industrial and commercial
activities
•
Routes which provide access to heritage, recreational and tourism destinations
•
Routes with the ability to interconnect the most origins with the most destinations
•
Routes which are relatively direct and along which reasonable travel speed can be
maintained during the off peak. If required, sufficient road reserve exists along the
route to provide public transport priority to ensure peak period mobility
•
Routes should encourage high pedestrian and cyclist connectivity to maximise exposure
to public transport
5.2.2 Mobility Network
In order to reduce commuting travel times, especially during peak periods, and in order to
provide City-wide mobility, a mobility network has been formulated, in addition to the
accessibility network.
Mobility should be afforded to those who live far from places of work. While the long term
strategy should be to create employment and commercial opportunities in close proximity
to lower income areas (thereby minimising trip lengths), the provision of a mobility network
will effectively “shrink travel distances” for the majority of commuters in the short term.
The proposed mobility network comprises:
•
Strategic road-based routes that facilitate high speed movement across the City.
These would generally be freeways, expressways and high speed Class 2 arterials.
Where necessary, roads on the mobility network would be candidates for dedicated
rights of way, public transport priority measures, high occupancy vehicle lanes (public
transport lanes/BMT), etc.
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The mobility network is shown in Figure 5.2.
Attributes of the mobility network include:
•
Services operating on fixed schedules throughout the day as follows:
- at high frequencies during the peak periods
- at low frequencies during the off peak periods
•
Compatibility with the accessibility network so that transfers between the two networks
is possible
•
Restricted stops (ie ±3km intervals) to keep journey times as short as possible and
travel speeds as high as possible
The networks aims to provide the required level of coverage for the metro area ie 90% of
the population living within 1km of the Mobility and Accessibility network. This is illustrated
in Figure 5.3.
FIGURE 5.3: COVERAGE WITHIN 1KM OF ACCESSIBILITY NETWORK
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5.2.3 Community Services Network
The proposed Community Services Network will provide feeder services to the accessibility
and mobility networks as well as providing internal distribution services to the main
activities ie schools, hospital, clinics, commercial and employment areas, recreational
facilities etc.
5.2.4 Nodes
Nodes on the public transport network have both a transport role and land use role. They
reflect points at which public transport can be accessed or where a change in the direction
of movement (transfer) can occur, and should thus be supported by public transport
interchange facilities. They are also places in the network, which due to their accessible
nature, can and should accommodate an agglomeration of commercial, recreational,
institutional and residential uses.
A hierarchical system of nodes is proposed which reflects both their importance in the
transport network and as points which present possibilities to reinforce or encourage
agglomerations of activity. Where possible, points of greatest access and with the highest
potential for transfer on the accessibility network, should be (or are already) reinforced by
high agglomerations of activity.
The transport/land use role of these nodes should be defined at a corridor and local area
level and future planning should reinforce existing nodes on the public transport network
and support the development of emerging nodes.
5.3
KEY INTERVENTIONS OF THE CORRIDOR STRATEGY
The identification of the public transport network presents an opportunity to contribute to
the restructuring of the City both in terms of its metropolitan functioning as well as at the
local scale. To support the objectives of the public transport corridor strategy, strategic
transport/land use interventions should be focussed on the following high level longer term
interventions:
Support the creation of a hierarchy of accessible centres
The agglomeration of opportunities at accessible places should be promoted to provide
people with conveniently located services and economic opportunities. Within the public
transport network these nodes are thought of as public transport interchanges where
changes of direction are possible. Around these interchanges, opportunities exist to
restructure or reinforce systems to ensure greater equity in access to opportunities as well
as to support the efficient functioning of the public transport network.
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Intervention around these centres should:
•
Balance transport/economic/environmental ideals to inform design resolution at
interchanges
•
Locate social facilities and institutional services at these centres
•
Focus on encouraging a mix of business and residential land uses
Encourage development and higher densities along line haul public transport
corridors
There is a need to encourage and promote higher density and mixed land uses along the
public transport corridors, mainly the primary and secondary accessibility routes.
Plan for public transport in new urban expansion to avoid car oriented outcomes
Privately lead development has occurred rapidly in many areas of Cape Town. Further to
the aforementioned strategies, there is a need to identify interventions to encourage public
transport supportive development through:
•
Integrated transport and land use planning
•
Identify measures to encourage the location of high trip generating uses close to public
transport
Provision of priority for public transport vehicles on the accessibility and
mobility networks to ensure required operating speed and achieve desired
levels of the reliability
Public transport vehicles should be afforded priority on the transport network to ensure the
efficient operation of the public transport system. Priority will allow public transport to
operate at speeds higher than general traffic and hence public transport will become an
attractive alternative to private vehicle travel.
•
Provision of dedicated rights of way (where required) for public transport vehicles on all
primary accessibility network routes
•
Investigate the need for public transport priority on the secondary accessibility network
routes and implement these priority measures where required
•
Implement travel demand management measures along the mobility network routes
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Provision of high levels of connectivity to ensure seamless transfers at all
interchanges between the accessibility, mobility and community services
networks
Careful consideration regarding the location, planning and micro-design of public transport
interchanges will ensure the efficient and convenient transfer of passengers between the
various routes on the public transport network.
5.4
•
Identify locations for future public transport interchanges with an emphasis on visibility,
accessibility, convenience and safety
•
Identify design guidelines to ensure that interchanges facilitate transfers that are
seamless and convenient
•
Identify a range of transport facilities and services that would promote better use of
public transport by a wide range of users
CORRIDOR ASSESSMENTS
The City undertook investigations of a number of corridors in 2004 as part of its Public
Transport Planning Design and Implementation Programme. It focussed on the existing
characteristics of transport corridors and the potential for land use and transport
interventions aimed at sustainable transport solutions.
An assessment of the operation of the public transport priority lanes was also undertaken,
and recommendations made to extend these and improve their effectiveness.
A summary assessment of the principal transport corridors is covered below for the
following corridors:
•
•
•
•
•
•
•
•
Klipfontein Corridor
Wetton-Lansdowne Corridor
Vanguard Corridor
Koeberg Corridor
Voortrekker Corridor
Main Road Corridor
Symphony Way/Delft Main Road Corridor
Modderdam Corridor
The summary assessments conclude with candidate strategic interventions. Further more
detailed in-depth planning on a corridor-by-corridor basis will be required as part of the
ongoing planning to develop and refine the proposals. This will need to include full
feasibility, financial, economic and environmental evaluation across the various mode
options to determine the optimal strategies and solutions.
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City of Cape Town: Public Transport Plan 2006
Figure 5.4 shows the typology of transport modes and technologies which are candidates
for implementation in the corridors.
The option of funding strategies including Private Public Partnerships (PPP) will be
investigated for implementation of different technologies as appropriate including Bus
Rapid Transit (BRT), Light Rail, etc
Investment
Cost
• Roads/Freeways
• Metro
systems
Rail
• Regional
Rail
• Commuter Rail
• Light Rail
• Bus Rapid
Rapid Transit
Gap
Bus
Taxi
Non – Motorized Transport
Systems Performance (Speed, capacity, comfort)
Closing the Gaps in the System
FIGURE 5.4: TRANSPORT INVESTMENT STRATEGY
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City of Cape Town: Public Transport Plan 2006
Figure 5.5 illustrates the Northern/Atlantis Corridor.
Melkbosstrand
Atlantic Beach
Robben Island
Rd
ast
Co
est
7W
R2
Big Bay
N
7
Parklands &
Sunningdale
West Beach
Blaa
uwb
erg R
d
Du Noon
Table View
Sunset Beach
Plattekloof
Plattekloof
Milnerton
Milnerton
Cape Town
N
1
FIGURE 5.5: NORTHERN/ATLANTIS CORRIDOR
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KLIPFONTEIN CORRIDOR
Regional Context
The Klipfontein Corridor is a major high public transport corridor running diagonally across
the City from Khayelitsha to the Cape Town CBD. It contains the N2 freeway and
Klipfontein Road as the major roads along the corridor, and the corridor intersects with
other major corridors to provide connectivity across the City: Vanguard, Modderdam,
Symphony/Delft Main Road, and Main Road Corridors.
Function
-
Land Use
The corridor links high density areas of Khayelitsha, Nyanga, Mitchells Plain to the
industrial/commercial areas at Salt River, and to the Cape Town CBD
Corridor comprises 2 main routes along its length: Klipfontein route, but efficiency
compromised for PT due to congestion and lack of enforcement of MBT lane
Klipfontein Road is a primary accessibility route
Corridor has connectivity with major north-south corridors: Vanguard, Symphony Way,
Modderdam, Main Road corridors
-
Dense, low income, population levels at the eastern end at Khayelitsha, Nyanga
Low/middle income at Mitchells Plain
Mixed uses along mid section of corridor: residential, commercial, some institutional
Concentration of employment at Western end at Mowbray/Salt River and City CBD
-
Heaviest rail corridor: 248 000 passengers boarding all day on Khayelitsha/Mitchells
Plain to Cape Town Line
Major peak hour overcrowding between Philippi and Mutual/Maitland
Public Transport
Rail
-
Bus
Klipfontein Road
Major bus route from Khayelitsha, Mitchells Plain, Nyanga to Mowbray and City
Kerbside bus lane on Klipfontein Road from Vanguard Drive to Jan Smuts
137 Bus trips in AM peak period on section with bus lane
Encroachment by private vehicles in bus lane
3 000 private vehicles in bus lane
N2
Major peak period bus route
Bus lane from Vanguard Drive to Liesbeek Parkway
182 Bus trips in AM peak period after Jan Smuts (bus lane section)
Encroachment by private vehicles in bus lane – 3 500 private vehicles in bus lane
Severe congestion in peak period
Lack of enforcement of bus lanes
Utility of bus lane severely compromised
Taxi
Klipfontein
Major taxi route
661 Taxi trips in AM peak and section with bus lane
Encroachment by private vehicle on bus lane
N2
Major taxi route
1050 Taxi trips (after Jan Smuts) in AM peak period
Encroachment by private vehicles on BMT lane
Lack of enforcement
Same comments as for bus
NMT
-
Detailed studies completed for NMT
Cycleway proposed on corridor
Dignified urban space project
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Strategic
Intervention
-
Upgrade Khayelitsha/Kapteinsklip Line as priority rail project; upgrade rolling stock,
stations, signaling, etc
Increase trainsets to reduce overcrowding
Construct Khayelitsha rail extension – 2 additional stations
Retain N2 as peak period mobility route
Extend bus lane
Assessment of enforcement options
Investigate bus lane options from N2 to Main Road and to CBD
Retain and enhance Klipfontein Road as accessibility route
Finalise proposals for bus lanes/BRT systems on Klipfontein
Implement NMT projects
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WETTON-LANSDOWNE ROAD CORRIDOR
Regional Context
Wetton – Lansdowne Corridor is formed by Wetton Road which runs east-west from Main
Road in Wynberg to the Wetton Circle and continues along Lansdowne Road which runs
from Wetton Circle eastward to the R300 in Philippi. It crosses major intersections:
Rosmead Avenue/Prince George Drive, Lansdowne Road/Old Strandfontein Road, etc. It is
also supported by an extension of Lansdowne Road.
Function
Wetton and Lansdowne Road
Class 3 arterial
Corridor crosses major intersecting routes
Link residential areas with commercial and industrial areas at Wynberg/Claremont
Bus lanes on Lansdowne Road between New Strandfontein and Wetton Circle (0.52 km)
Land Use
-
Mixed land use along the corridor
Both Commercial and Industrial nodes
Activity mainly in the western sector between Main Road (Wynberg) and Jan Smuts
Drive
Metropolitan/regional institutional facilities along the corridor such as Wynberg Court,
GF Jooste Hospital, etc
Public Transport
Rail
-
Bus
-
Taxi
-
NMT
-
Strategic
Intervention
-
No rail service along length of corridor
Philippi-Southfield rail link has been investigated.
Long term proposal only if
economically justified
Rail stations at extremes of corridor: Stock Road/Philippi on Khayelitsha Line; at
eastern end of corridor Cape Flats Line and Simon’s Town Line at western end of
corridor
Corridor is served by both bus and taxi but with a higher demand for buses
Highest daily bus passenger flow is approximately 10 000 and occurs between
Khayelitsha and Lansdowne
Operate along the spine of the corridor on routes like, Turfhall Road and Ottery Road
Bus lanes proposed
Operate along the spine of the corridor on routes like, Turf hall Road and Ottery Road
the same as buses
Highest daily taxi passenger flow is approximately 7000 and occurs between Jan Smuts
Drive and Ntlangano Crescent/Emms Drive
Bicycle routes indicated in the BMP (Bicycle Master Plan) include the corridor spine from
Main Road in Wynberg to the R300 as well as east-west routes
Also other north south routes that crosses the corridor
Retain Lansdowne/Wetton as primary accessibility routes
Provide for mobility function through public transport lanes and public transport priority
Need for public transport lanes on Lansdowne/Wetton and Turfhall Roads to reduce
journey times and public transport reliability
Integrated NMT routes are needed on Lansdowne Road (between Wetton and
Chichester Road and other north-south routes
Need for better accessibility in order to stimulate economic developments along the
corridor
Law enforcement is needed especially on public transport lanes in order to reduce travel
time
Investment in road-based public transport along corridor as a priority
Prime road-based corridor with high public transport volumes
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VANGUARD DRIVE CORRIDOR
Regional Context
The Vanguard Drive Corridor extends North-South from Baden Powell Drive in Mitchells Plain
in the South to Plattekloof Road in the North. It links major residential areas in the South to
important industrial areas of Epping, Montague Gardens and Killarney in the North.
Vanguard Drive is the principal and only continuous road serving the full corridor.
Function
-
-
Land Use
-
Vanguard Drive
Class 2 limited access arterial
High speed North-South Mobility route for public transport, mainly peak services
High speed mobility link to N2 for City bound services
Links residential areas south of N2 to important industrial areas in North (Epping,
Montague Gardens and Killarney
Bus lanes (kerbside) between Klipfontein and Viking Way (North bound only)
(4 kms)
Major transport routes cross corridor East-West (N2, Lansdowne)
-
Mainly low/mid income residential south of N2
Significant industrial areas north of N2 (Epping, Montague Gardens, Killarney)
Major commercial uses in mid section (Vangate Mall, Athlone)
Rail
-
Rail line on portion of the corridor from Mitchells Plain to Mutual Station
Highest passenger volumes occur in the corridor between Philippi and Maitland/Mutual
Severe overcrowding occurs in peak hour
Bus
-
High bus volumes providing mainly peak period services
187 bus trips in peak period (06:00 – 09:00) on section with bus lane
Private cars encroach on bus lane reducing its effectiveness for public transport
Lack of enforcement
Taxi
-
Large number of minibus taxis
346 taxi trips in peak period (06:00 – 09:00) on section with bus lane
NMT
-
No planned provision for cycles on Vanguard Drive in Bicycle Master Plan due to
Freeway status
NMT routes identified on other roads in corridor eg Eisleban, NY1, Duinefontein, etc
Public Transport
-
Strategic
Intervention
-
Support rail investment and road-based investment in corridor
Rail forms part of priority rail corridor; need for urgent upgrade in short term
Rail service needs to be improved: higher frequency to reduce overcrowding, upgrade
rolling stock, stations, etc
Retain mobility functions of Vanguard Drive to reduce journey times and reduce peak
fleet requirement for buses
Investigate potential on certain sections of Vanguard Drive for improved access to land
uses especially industrial areas
Retain and enforce bus lanes
Extend bus lanes to improve journey times and reliability of public transport
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KOEBERG ROAD CORRIDOR
Regional Context
The Koeberg Road Corridor extends from Berkley Road south of the N1 up to Blaauwberg
Road at its northern end. It links residential areas as well as major industrial area in the
north to other areas of the City via other corridors, ie Voortrekker, Vanguard, Main Road,
etc. The corridor is also served by Marine Drive and a portion of the N7.
Function
Koeberg Road
Primary accessibility route (Class 3 facility)
Serves residential areas in north to CBD and other employment areas
Serves routes from Atlantis to CBD, and Killarney and Montague Gardens industrial
areas
Marine Drive
Class 2 facility
Serves as a Mobility route serving Blaauwberg to CBD
Land Use
-
Mid income residential along the corridor
High growth of mid/high income at north of corridor in Table View, Parklands
Major industrial zones: Paarden Eiland, Montague Gardens, Killarney
Mixed land use along corridor: residential, commercial, industrial
-
Full Corridor not served by rail
Stations at Paarden Eiland, Ysterplaat, Maitland, Koeberg
Transfer occur at Maitland and Koeberg stations to bus and taxi
Options for conversion of Atlantis goods line to commuter line to Atlantis linking into
Monte Vista Line - investigation undertaken
Linkage from Khayelitsha/Mitchells Plain Line into proposed Atlantis Line investigated
Bus
-
Bus routes from Blaauwberg, Atlantis use Koeberg Road and Marine Drive
Bus passenger volumes on Koeberg Road 4 100 pass/day southbound
Severe traffic congestion approaching Koeberg interchange impedes public transport
Taxi
-
Taxi routes on Koeberg Road, Marine Drive
Taxi volume on Koeberg Road 1 100pass/day southbound
Severe traffic congestion approaching Koeberg interchange impedes public transport
NMT
-
Cycle routes indicated on Bicycle Master Plan along corridor on: Koeberg Road, Marine
Drive, Otto Du Plessis Drive, Montague Drive, and east-west routes:
Sable,
Bosmansdam, Blaauwberg, Sandown
Strategic
Intervention
-
Promote road-based corridor as priority intervention with priority schemes for public
transport
Retain Koeberg Road as accessibility route
Provide bus lanes on Koeberg Road
Investigate improvement to Koeberg interchange combined with bus priority measures
Consider rail investment to serve northern corridor in short to medium term
Option of conversion of goods line to commuter line to be fully evaluated as mid/long
term project
Develop NMT network
Public Transport
Rail
-
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VOORTREKKER ROAD CORRIDOR
Regional Context
The Voortrekker Road Corridor extends from Cape Town CBD, includes the
industrial/commercial areas of Woodstock/Salt, and continues along Voortrekker Road
through Goodwood, Elsies River, Parow to Bellville. The N1 freeway runs along the corridor
providing a high speed mobility route.
Function
Voortrekker Road
Class 3 facility
Accessibility route providing high level of access to commercial/industrial/residential
areas
Links Bellville and Cape Town CBD, and intervening areas of Goodwood, Elsies River,
Parow, etc
N1 Freeway
Freeway standard
High speed mobility route along corridor, peak periods
Provides high speed access to Cape Town CBD, but suffers from severe congestion in
peak periods
Land Use
-
Mature mixed land use corridor
Major industrial areas/mixed commercial, significant commercial node at Bellville
Major institutional uses including major regional hospitals
Mid income residential development along corridor, relatively low density
-
Two rail lines: Bellville Line with services from Strand, Stellenbosch and Wellington;
Monte Vista Line passes through Bellville Station
41 000 passengers per day on Bellville line
2 700 on Monte Vista line
80 train trips/day – Bellville line
22 train trips/day – Monte Vista line
Peak hour overcrowding on Bellville line between Bellville and Thornton
Low utilisation of both service capacity and line capacity on Monte Vista line
Public Transport
Rail
-
Bus
-
-
Extensive bus services (±80 bus trips/day) between Cape Town to Bellville on
Voortrekker Road
Buses from Atlantis and Blaauwberg also join Voortrekker corridor at Koeberg and
proceed to CBD
Very limited service along N1
Taxi
-
Heavy taxi service along Voortrekker Road
Major public transport interchange at Bellville – 48 000 passengers/day
NMT
-
Lack of facilities
Need for facilities at stations
Strategic
Intervention
-
Bellville Line is part of priority corridor for service upgrading
Increase rail frequency to reduce overcrowding
Investment in rail system on Bellville Line
Consider future of Monte Vista Line – option of alternative technology – light rail, bus
way, but access to stations to be improved
Retain Voortrekker Road on accessibility route
Investigate bus lanes on Voortrekker/Albert Road
Possibly busway on N1 corridor – currently under investigation
NMT facilities at station
-
-
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MAIN ROAD CORRIDOR
Regional Context
Main Road Corridor extends from Muizenberg in the south to Cape Town CBD. It serves an
important link to some of the east – west links. These links are the N2 Freeway,
Lansdowne, Wetton, Constantia Main, Steenberg and Baden Powell Drive. It also has two
north-south parallel routes in the form of the M5 and M3 Freeways these routes are being
consider as high mobility routes.
Function
Main Road
Classified as a class 3 arterial
Serves as an activity route with high public transport volumes
North- South parallel routes, M3 and M5 serve as high speed Mobility route
Bus Lanes between Russell Street and the N2 on Ramp (3.98 km)
Land Use
-
Mature mixed land use corridor concentrated on Main Road
Mixed land use: residential (high/medium income), commercial, industrial at northern
end, institutional uses
Significant metropolitan/regional institutional facilities along the corridor like, the
University of Cape Town and Groote Schuur Hospital
Public Transport
Rail
-
-
Bus
-
Main Road corridor is well served by the commuter rail network. Simon’s Town Line,
Cape Flats Line
The Simon’s Town line runs parallel with Main Road to Cape Town CBD with high level
of accessibility from short station and
Also the Cape Flats line that are situated on the eastern periphery of the corridor. This
line runs in a northerly direction from Diep River Station and links than with the main
commuter rail line into Cape Town CBD at Maitland station
Overcrowding occurs during peak hour between Retreat and Salt River Station
Buses operate predominantly along Main Road and the M5 Freeway in the north-south
direction from Retreat to CBD
Bus routes from N2 and Klipfontein Road route join Main Road at N2/Main Road
intersection
200 Bus lanes on Main Road between N2 and Russell Street (4km) between 16:00 –
18:00 southbound
Taxi
-
315 Taxi’s between 16:00 – 18:00 southbound
29 000 taxi passengers/day
Heavy volumes of taxis on Main Road
NMT
-
Bicycle routes indicated in the BMP (Bicycle Master Plan) for the corridor include the
north-south routes such as Main Road from Simon’s Town in the south to Sea Point in
the north
There is also other routes like Liesbeek Parkway and a section of the M5 Freeway from
Grassy Park to Baden Powell Drive and east west linkages (Klipfontein, Wetton,
Constantia Main, Ottery and Baden Powell Drive)
-
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Strategic
Intervention
-
Retain Main Road as accessibility routes for public transport
Retain road-based services, but review extent of service pending timing of
improvements of rail system
Extend bus lanes in order to provide better service
Enforcement of Public Transport priority measures along Main Road in order to reduce
travel time of commuters
Upgrading of rail rolling stock is needed to reduce overcrowding
Southern suburbs rail line as one of the priority rail corridors for upgrading
An improved rail service is needed in order to provide a better service to commuters
Upgrade rolling stock, stations, security, etc
Consider increased skip/stop operations to improve journey time
Enforcement of public transport lanes
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SYMPHONY WAY/DELFT MAIN ROAD CORRIDOR
Regional Context
The Symphony Way/Delft Main Road Corridor extends from Lansdowne Road across the N2,
Stellenbosch Arterial, into Erica Drive and connects to Modderdam Road to Voortrekker
Road. It provides an important North-South link, although not direct. The extension of
Symphony Way, when constructed will reinforce the more direct North-South link.
Function
-
The North-South route provides important links for the residential areas of Khayelitsha,
Mitchells Plain and Delft to industrial/commercial opportunities in Bellville
Link to the growing Durban Road commercial corridor extending to Durbanville
R300 provides high speed mobility route to the corridor
-
Low income residential areas in the south: Khayelitsha, Mfuleni, Mitchells Plain, Delft
Industrial, commercial zone in the north of the corridor
Limited work opportunities in the middle section of the corridor
Rail
-
No rail service along corridor
Rail services across the corridor east-west:
Bellville Line at the northern end
Bus
-
Bus services serving Delft use Delft Main Road
Taxi
-
Taxi services exist in competition to bus
Extensive service through the corridor from Khayelitsha to Bellville
NMT
-
Limited planning and provision for cyclists
Strategic
Intervention
-
Delft Main Road to be used as accessibility route along the corridor
Mobility (peak period, high speed services) to use R300
Completion of Symphony Way from Lansdowne Road
Line-haul services to transfer from Delft Main Road to Symphony Way when completed
Consider rail investment in longer term (Blue Downs Line)
Land Use
Public Transport
Khayelitsha Line at the southern end,
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MODDERDAM CORRIDOR
Regional Context
The Modderdam Corridor extends from Lansdowne Road in the south, crosses Klipfontein
Road, the N2 Freeway, Stellenbosch Arterial, and ends at Voortrekker Road.
Function
-
Land Use
-
An important North-South route
Connects to other major East-West corridors, namely Klipfontein, Voortrekker
Links residential and industrial/commercial areas
Major North-South routes are Modderdam Road (Class 2 arterial) and Duinefontein
Road (Class 3 arterial)
Modderdam Road serves as mobility route
Mainly residential along corridor
Commercial activity in the south at Lansdowne and in the North at Voortrekker Road,
Sacks Circle, Bellville
Significant institutional land uses:
University of Western Cape, and Peninsula
Technikon
Public Transport
-
Corridor not served north-south by rail
Heavier rail corridor intersects corridor: Khayelitsha Line with station at Heideveld and
Netret
Sarepta Line, Bellville Line cross corridor
Bus
-
Significant bus volumes on Modderdam Road and Duinefontein Road
Major bus route cross the corridor: Lansdowne, Klipfontein
Bus lane from Borchards Quarry to De La Rey (2km)
Taxi
-
Modderdam Road has the highest north-south taxi volumes
NMT
-
Bicycle Master Plan indicates cycle routes on north-south routes: Modderdam,
De La Rey; east-west routes Voortrekker, Stellenbosch Arterial, Klipfontein, Lansdowne
Strategic
Intervention
-
Retain as accessibility route
Enforce bus lanes
Rail
-
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5.5
TARGETTED MODAL SPLIT
5.5.1 Private : Public Modal Split
Results from the Household Survey and EMME/2 Traffic Modelling showed a modal split for
the morning peak period as follows:
Private Car
Rail
Taxi
Bus
52%
22%
16%
10%
48% Public Transport
The national strategic objective in the White Paper on National Transport Policy is to attain
a public : private split of 80:20. This must be regarded as a long term aim, and strategies
must be put in place to move towards this target.
The City is committed as a policy to promote public transport and give it priority over
private transport in line with the national and provincial policy.
Table 5.1 shows the private : public transport modal split to be targetted over the next 15
years. It is aimed at reducing the percentage transported by private car by 10% over the
next 10 years to 2015 and by a further 10% between 2015 and 2020.
TABLE 5.1: MODAL SPLIT TARGETS (MORNING PEAK PERIOD)
Private
Transport
52%
Public
Transport
48%
2010
50%
50%
2015
47%
53%
2020
43%
57%
Existing
This will result in a public : private split nearing 60:40 being achieved by 2020.
A range of strategies will need to be implemented to attain this such as:
•
•
•
•
•
•
Substantial investment in the rail system
Major improvement to the road based public transport system
Enhanced security to and on public transport
Provision and enforcement of public transport priority lanes and dedicated lanes
Travel demand measures (TDM)
Parking strategies including Park ? Ride facilities
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City of Cape Town: Public Transport Plan 2006
5.5.2 Public Transport Modal Split
The policy of the City is to promote and maximise the use of rail where it is the optimum
mode. The National Rail Plan and Regional Rail Plan for Cape Town are aimed at directing
major investment in the rail system.
Scenarios have been developed to set out target public transport modal splits. As part of
the implementation of the Public Transport Plan and its projects, more detailed studies will
be undertaken to test the feasibility of the modes to accommodate the targeted passenger
numbers and modal splits.
The modal splits were considered between the motorised modes, rail, bus and taxi. This
should not be taken to imply that non-motorised transport is not considered. NMT fills a
vital place in the transport system both as a prime mode as well as a feeder mode.
Two growth scenarios for public transport trips were considered:
•
A 2,5% per annum growth. This approximately equates to population growth scenarios
that have been developed by the City
•
A 3,5% per annum growth. This is based on more optimistic economic growth
assumptions resulting in high level of trip making
The following assumptions were made:
1)
It is assumed the restructured system is implemented between 2005 and 2010.
This brings about a unified public transport system, comprising line haul and
community/feeder services, which removes the distinction between the services by
vehicle size. Rather it refers to the nature of the service being offered, either
scheduled or unscheduled, with the use of the appropriate vehicle size. It is likely
that the unscheduled services will be provided by taxis. This is described fully in
Section 7.2 of the Plan.
2)
The share of the growth between 2005 and 2010 allocated to rail is limited to 25%.
The rail strategy is to immediately kickstart the investment on priority corridors. It
is assumed that it will take a while for the investment and for the benefits to
translate into major growth in passengers. The short term aim is to stabilise the
system, retain existing passengers, and possibly attract passengers recently lost to
rail.
3)
The 75% balance of passenger growth between 2005 and 2010 is split between
scheduled and unscheduled services in proportion to their ridership.
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City of Cape Town: Public Transport Plan 2006
4)
Between 2010 and 2015, 75% of the growth is allocated to rail and the balance to
road based. This assumes that the investment in rail begins to pay dividends in
attracting passengers on the main existing corridors.
5)
Between 2015 and 2020, 90% of the growth is allocated to rail. This assumes
major new investment to open up new rail travel markets, such as the Blue Downs
Line, Northern Line, new stations, north-south lines, etc.
The results of the scenario are shown in Table 5.2 as:
TABLE 5.2: PASSENGER AND MODAL SPLIT
PASSENGERS PER DAY (000s)
RAIL
Existing Passengers
(2005)
601
ROAD BASED SERVICES
53%
529
47%
Scenario 1: 2,5% passenger growth per annum
2010
638
50%
2015
764
55%
2020
935
59%
640
682
702
50%
47%
42%
Scenario 2: 3,5% passenger growth per annum
2010
654
49%
2015
843
53%
2020
1112
59%
688
751
781
51%
47%
41%
Significant results can be highlighted:
Under the low scenario (2,5% growth):
•
By 2010 rail attracts a modest increase in passengers per day (31 000) but loses
market share from 53% to 50%
•
By 2015 and 2020, growth is substantial and market share increases to 55% and 58%
respectively
•
Patronage by 2020 increases by 55% from 601 000 to 935 000 passengers per day
•
The share of road based passengers per day reduced from 47% to 42% between 2005
and 2020
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City of Cape Town: Public Transport Plan 2006
•
The growth in road based passengers is significant with a 32% increase to 532 000
passengers per day by 2020
Under the high scenario (3,5% growth):
•
The growth in rail is substantial by 2020, with an 85% increase to 1 112 000
passengers per day
•
Detailed study will be required to examine investment required and the feasibility of
developing the capacity required to accommodate this growth
•
The road based services also experience substantial growth from 529 000 to 781 000
passengers per day by 2020 or 47% increase
More detailed analysis as part of the implementation of the Public Transport Plan is
required to test and refine these scenarios. A planning project contained in the Plan is the
preparation of demographic and economic forecasts, and the updating of the transport
model which will provide a sound basis for projections.
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6.
PASSENGER RAIL SYSTEM
6.1
INTRODUCTION
The passenger rail service plays a vital role in the transport system in the City of Cape
Town and adjoining areas. According to the rail census carried out in 2004, it conveys
some 620 000 passengers per day and accounts for 53% of daily public transport trips. In
contrast with the rail network in other cities in the country, it penetrates extensive middle
to high income areas as well as low income areas, and therefore has the potential to serve
a wide range of travel markets. Apart from its predominant role of serving passengers
captive to public transport, it has the potential in the longer term to attract existing and
future car users.
Its ability to realise its full potential in delivering high quality public transport services, has
been hampered by a long standing lack of investment over many years with the result of a
declining service, loss in patronage and a decline in market share in recent years.
The City of Cape Town is committed in terms of its transport policy to promote and support
passenger rail where it is the most appropriate mode and can offer the required level of
service as part of an integrated transport system for the City.
The responsibility for the planning, funding and ensuring the delivery of rail services as well
as the ownership of the commuter rail assets, vests with the South African Rail Commuter
Corporation (SARCC), a unit of the Department of Transport. The responsibility for
operating the service rests with Metrorail, a business unit of Transnet, under an operating
agreement and contract with the SARCC.
A restructuring is currently taking place to merge and consolidate the SARCC, Metrorail and
Shosholoza Meyl under the Department of Transport. This would remove Metrorail from
the Transnet organisation.
The SARCC has commissioned a National Rail Plan, which, on completion, is to be followed
by a number of Regional Rail Plans for each of the regions where commuter rail services
operate. Preparation of the Regional Rail Plan for the Cape Town region is due to
commence early in 2006.
The FIFA 2010 Soccer World Cup presents both a challenge and an opportunity for
developing the rail system in the City. The commitment of additional funds from the Public
Transport Infrastructure Fund to support the staging of the event creates an opportunity to
fast-track and accelerate urgently needed investment in the rail system consistent with the
City’s longer term strategy for the integrated transport system.
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City of Cape Town: Public Transport Plan 2006
6.2
KEY ISSUES
•
Institutional Arrangements - Rail is a current function and competency of the
national sphere, falling under the ownership and management of the SARCC. In
exercising its mandate to develop and manage the system in response to passenger
demands, this has largely been done in isolation and without the meaningful
participation of the City of Cape Town. The City needs and intends to play a more
significant role in the planning and service level decisions on the rail system. In the
long term this could also lead to the assignment of the rail function to the City.
•
Funding - There has been insufficient funding over many years for the upgrading of
rolling stock, stations and other system components in the Cape Town rail system
leading to deteriorisation of the service. Funding particularly to upgrade and modernise
rolling stock and add to the fleet is urgently required.
•
Rolling Stock - The availability and condition of the rolling stock would appear to be
the biggest problem facing the operation of the rail system. This severely affects the
ability to increase services and train frequencies, reliability of the services, the quality of
the service, as well as the ability to attract particularly choice passengers with attractive
modern up-to-date equipment. The number of train sets has dropped from 95 in 1995
to 85 in 2005.
The withdrawal of train sets has been largely of the grounds of condition and for safety
considerations.
•
Age of Rolling Stock - The rolling stock is old with the average age similar to the
national average of 29 years.
•
Patronage - Ridership has declined by 7% in the 4 years from 2000 to 2004 from
670 000 to 621 300 passengers per day. (These figures refer to the regional system
and include passengers from beyond the City boundary such as Stellenbosch,
Wellington, etc which accounts for some 19 000 passengers per day). The main
decline has been on the Khayelitsha/Kapteinsklip lines amounting to a decline of 44 300
passengers per day amounting to 14%.
•
Reliability - The reliability of the service has dropped based on the international
benchmark of “within 5 minutes” of the scheduled time to measure of reliability from
95% in 1999 to 88% in 2004.
•
Service Levels and Overcrowding - The 2004 Rail Census showed significant levels
of overcrowding in the peak hour on certain lines, notable the Kapteinsklip, Khayelitsha
and Strand lines.
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City of Cape Town: Public Transport Plan 2006
•
Passenger Perceptions - The consistent and common theme across all respondents
surveyed is concern about personal safety and overcrowding. The advantages of the
train service varied more widely and included such factors as the relatively low fares,
punctuality, safety from accidents and in some cases journey time.
The National Travel Survey of 2004 highlights the customer needs in the City of Cape
Town. The findings of the study showed that 49% of the respondents were dissatisfied
with the rail services. Severe overcrowding, security and poor facilities are the main
complaints.
•
6.3
Special Needs Passengers - There are extremely limited facilities for passengers
with special needs especially the mobility and visually impaired.
CITY’S POSITION ON RAIL
Before developing the strategies it is important to set out the City’s position on rail and the
policies to be employed to support this position.
The City’s position on rail is described below:
•
The substantial investment in rail will be protected and enhanced
•
Rail will be planned and managed, not as an independent mode, but as part of the
integrated multi-modal transport system of the City providing a seamless travel journey
•
The rail system will be planned, developed and managed to meet the aims of the
access and mobility goals as contained in the IDP and the Mobility Strategy
•
Proposals for the investment of new lines will be subject to a full financial, economic
and environmental evaluation comparing all alternative public transport modes
The POLICIES aimed at supporting the City’s position on rail are the following:
•
To support and promote rail as part of an integrated multi-modal transport system
•
To promote investment in the rail system to bring it to a good overall condition and to a
high standard
•
To promote spatial development and corridor development to support and be supported
by the rail system and which can enhance socio-economic development
•
To provide road-based feeder services, non-motorised transport facilities and
infrastructure, and mode transfer facilities to improve accessibility to the rail system
•
To promote universal access to the rail system
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City of Cape Town: Public Transport Plan 2006
6.4
•
To promote safety and security to the rail system as part of the total journey
•
To support the fast tracking and acceleration of rail investment on rail corridors which
support the FIFA 2010 World Cup event
STRATEGIES AND PROJECTS
The essential strategy derives from the acknowledgement of the extensive nature of the
rail system and the limitations of funding for additional expansionary investment. Before
any consideration of expanding the network is contemplated, the imperative is to attain a
level of stabilisation and to bring the existing system to a state of good repair and good
condition in order to retain and attract ridership in the established rail travel markets.
Investment in new lines should be postponed to the longer term horizon and, only when
the existing network is operating to the required standard in the travel markets where rail
is currently prominent, should it be increased. Investment in new lines also needs to be
subject to comprehensive financial, economic and environmental evaluation across
alternative modes. Such evaluation needs to examine the spatial and developmental
opportunities with respect to the different modes.
SHORT TERM – Bring the existing system on priority corridors to a good state of
repair and good overall condition through fleet upgrading and service improvements aimed
at:
•
•
•
retaining current ridership
regaining lost riders on priority corridors
attracting new riders in existing travel markets through a higher quality and more
attractive service
MEDIUM TERM – To complete the upgrading on the priority corridors and to extend these
initiatives to the remaining corridors serving high volume rail markets. This strategy is
aimed to bring the whole network to a good overall condition to provide improved service
to existing users, coupled with the drive to attract potential non-captive riders. Included in
the medium term strategy is evaluation of the closure of lines where it can be
demonstrated that other modes or technologies can serve the market more efficiently and
effectively and that the equipment and resources can be can be better deployed elsewhere
on the system.
LONG TERM – Expand the network to capture new travel markets where rail is
shown to serve as the optimum mode as new additional rolling stock becomes available
and the quality of the service can be sustained. This investment must be subject to
comprehensive evaluation of alternatives, including other technologies such as light rail.
The criteria for identifying the priority corridors, not necessarily in order of importance,
include the following:
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City of Cape Town: Public Transport Plan 2006
1)
2)
3)
4)
5)
6)
Corridors
Corridors
Corridors
Corridors
Corridors
Corridors
serving the lowest income commuters
serving the largest travel markets
aligned to the City Mobility Strategy
which contribute and can enhance economic development
subject to congestion and pressure on the road network
which support the FIFA 2010 Soccer World Cup
Based on these criteria the corridors are prioritised as follows:
•
Priority 1: Khayelitsha/Mitchells Plain – Cape Town
This corridor ranks the highest against all the criteria
•
Priority 2: - Strand – City Line including the services from Bellville
- Simon’s Town Line/Cape Flats – City Line
These lines rank highly on most of the criteria. Whilst they do not serve the lowest
income groups, they serve significant travel markets and two of the significant corridors
identified in the City’s Corridor Strategy. They serve corridors experiencing major
pressure on the road network in terms of congestion, and over the medium term the
opportunities to attract non-captive riders needs to be seriously explored.
•
Priority 3: The remaining lines fall into the third priority
SHORT TERM STRATEGY
Infrastructure
The Khayelitsha rail extension should be implemented as part of the short term strategy. It
is on the priority corridor, and serves one of the main travel markets.
Service Levels
The Mobility Strategy argues for 18-hour services, more frequent interpeak services and
extended services over weekends on the primary accessibility corridors. Cut backs in the
service have taken place in recent years largely for financial reasons as well as the difficulty
of providing adequate security over the extensive network for an extended day including
later evening services. The extension of the service day to provide later services needs to
be carefully considered on the grounds of security. Whilst it may be possible to secure the
stations and the trains, albeit at high cost, the real consideration for commuters is security
across the whole journey. Inadequate security in the street, poor lighting etc, will nullify
the benefits of greater security on the rail network and may frustrate the attempt of
extended services later into the evening. It needs to be assessed, however, but as part of
a more comprehensive “safe city” type of approach.
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City of Cape Town: Public Transport Plan 2006
The short term strategy is therefore directed at:
•
Additional peak hour frequencies on the Khayelitsha/Mitchells Plain Lines to reduce
overcrowding, provide greater levels of comfort, and attract new riders. As a broad
indictor an additional 3 to 4 peak hour train trips would be required on each line to
restore the service to the 2004 Census level in order to reduce overcrowding, and
improve levels of comfort to make the service more attractive for new riders. This is an
indicative assessment only, and will need to be refined through additional investigation
possibly as part of the Regional Rail Plan. Clearly this will have implication on the fleet
requirement.
•
The first priority is to increase frequencies on the priority corridor, namely the
Khayelitsha and Mitchells Plain lines. As additional rolling stock become available
frequencies should be increased to cater for additional demand.
•
Extending the service day on the priority lines to include later evening services and
week end services subject to a feasibility assessment which will need to include the
security aspects.
•
Review and assessment of rail service for the northern corridor.
Rolling Stock
The short term strategy is directed at:
•
Additions to the fleet through upgrading, refurbishment, general overhaul, and new
fleet to bring the size of the operational fleet to the 2000 level in the short term.
This implies an increase of the fleet of 9 trainsets from 85 (including spare fleet) to 94
(including spare fleet).
The options mix between general overhaul, refurbishment, new fleet to secure the
optimum upgrading programme for additional rolling stock would need to be considered
in the National Rail Plan and the Regional Rail Plan.
•
Improved levels of maintenance of equipment to ensure the reliability of the service.
Upgrading of Stations
The short term strategy is directed at the upgrade of key stations on the prioritised lines.
The station upgrades will comprise a wide range of improvements which should include the
following depending upon the utilisation of the particular station:
•
General refurbishment
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City of Cape Town: Public Transport Plan 2006
•
•
•
•
•
•
•
•
•
•
•
Facilities for passengers
Prioritisation for universal access
Access control
Ticket offices
Surveillance and CCTV
Information system and pa services
Signage
Park n ride facilities
Feeder transport facilities
NMT facilities
etc
Provision for Special Needs Passengers
The study undertaken for the SARCC identified 30 priority stations to be upgraded to cater
for Special Needs Passengers on the following priority corridors:
•
•
•
Cape Town – Khayelitsha / Kapteinsklip line
Cape Town – Bellville – Wellington – Strand
Cape Town – Simon’s Town
(Philippi Corridor)
(Bellville Corridor)
(Simon’s Town Corridor)
Integrated Fare Management System
An Integrated Fare Management System should be implemented as part of the short term
strategy.
The system which is being developed by the City and the Province as part of the
restructuring of the public transport system should be extended to include the rail system.
The system is being designed for inter-operability with the SARCC initiatives at a national
level for automatic fare collection.
The full benefit to the commuter can only be achieved if the rail system is included.
Safety and Security
Whilst the strategy advocated is to improve and enhance the system to bring it to good
overall condition and quality service on a prioritised corridor basis, the same approach
cannot be applied to safety and security. Safety and security is not in any way negotiable
and must be treated on a universal basis. Even though the focus of attention in the short
term might be on prioritised corridors, any security incident on any corridor will serve to
negate any gains or achievements attained. The perceptions of an unsafe system will
remain irrespective of the considerable investment on priority corridors. The attention to
security must extend across the whole network even as part of the short term strategy.
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A sustained, continued, and improved drive to improve security is required using a broad
based approach and may include a number of the following:
•
•
•
•
•
•
•
•
•
•
Increased surveillance
Deployment of personnel
Permanence of the railway unit of SAPS
Technological solutions such as cctv at stations and on trains
Access control
Co-ordination between enforcement and security personnel of the various institutions
Deployment of specialised security personnel
Rapid response units
Speed and effective judicial treatment of offenders
etc
Promotion and Marketing
This should be a co-ordinated initiative between the SARCC, Metrorail and the City of Cape
Town.
FIFA 2010 Soccer World Cup
Rail should play an important and vital role in the FIFA 2010 Soccer World Cup, both as the
main transport mode to the match venue, but also to provide transport to regional and
international visitors staying in Cape Town over the period of the event.
The World Cup provides an opportunity to fast track and accelerate the improvement in the
rail system in time with the rail framework.
The requirements for the Soccer World Cup are closely tied to the prioritised investment
strategy proposed in this rail framework. The acceleration of funding to upgrade the rail
system therefore leaves a lasting legacy for an improved transport system in the City.
The specific proposals for fast tracking and accelerating investment to support the World
Cup is listed as follows:
1) Priority attention to the Khayelitsha/Mitchells Plain – Cape Town, and Southern
Suburbs/Cape Flats – Cape Town Lines
Construction of the Khayelitsha Extension
Hazendal – Langa Link
2) Accelerated upgrading and refurbishment of the rolling stock, and injection of new
trainsets. The improved and modernised fleet to be deployed to support the World Cup
event. The upgrading of the rolling stock is considered vitally important to ensure
reliability and a more modern fleet for international visitors.
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3) Integrated ticketing and fare management system.
special “World Cup Pass”.
This would need to include a
4) Infrastructure and equipment to enhance and support improved security.
MEDIUM TERM STRATEGY
The medium term strategy is directed at completing the upgrading of the system on the
priority corridors and extending the improvements to the remaining corridors. It therefore
has the following components:
Rolling Stock
Continued investment in the refurbishment and modernising of the fleet, and additions to
the support increased service to respond to increased demand, and maintain acceptable
utilisation levels.
Upgrading of Stations
To complete the upgrading of prioritised stations on the priority corridors and extend to the
remaining corridors. This will include the programme to make the system universally
accessible.
Safety and Security
Continued, sustained and expanded programmes to ensure and maintain high levels of
security on the system. It was noted earlier that these programmes must extend across
the whole network and not only on prioritised corridors. The various strategies and
programmes that may be applied were listed under the short term strategies.
Broaden Passenger Base
There are two markets that rail to date has not focussed on, these are the leisure and
recreational sector and the tourist sector. Once the rail service is operating at acceptable
service levels, a strategy should be considered and evaluated to expand its passenger base
so that it can provide additional value to the City of Cape Town as part of its tourist
strategy. In order to do this, the following should be focused on:
•
•
•
•
•
A signage system that is tourist friendly
Promotion of key rail services as tourist routes by the appropriate tourism authorities
Incorporation of training for frontline staff on tourist services
Market and promote the service for recreational and leisure trips
Review the fare policy that was drafted in the Short Term Strategy, to take into account
the broadened passenger base
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LONG TERM STRATEGY
The long term strategy revolves around the expansion of the network to capture new
travel markets where rail is shown to serve as the optimum mode. This investment must
be subject to comprehensive evaluation of alternatives including financial, economic, social
and environmental evaluation. It is vital that the City and the rail authorities agree on the
proposed links so that it can be incorporated into the ITP, and so that suitable land uses
can be promoted.
There is an argument that these interventions should be considered earlier, at least in the
medium term rather than the long term phase on the grounds that new lines should be
implemented before travel patterns become entrenched and infrastructure provided to
support other modes which then become redundant. This emphasises the need for
detailed in-depth evaluation against other alternative modes. The investment in new lines
must also factor in the absolute assurance of funding to provide the required rolling stock
without compromising the service on other established corridors.
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7.
ROAD-BASED PUBLIC TRANSPORT STRATEGIES AND
PROJECTS
7.1
INTRODUCTION
Road-based public transport in the City of Cape Town provide the following types of
services:
•
•
•
•
•
•
•
•
•
Scheduled bus
Unscheduled (including minibus-taxi)
Metered taxi
Long distance
Tourist
Charter
Learner
Staff
Dial-a-Ride
Each of these services is defined within the National Land Transport Transition Act, 2000
(Act No.22 of 2000). These definitions are summarised in Table 7.1.
The services may be provided in terms of contracts with government (contracted services)
or as non-contracted services (meaning that the service is not contracted to government),
as shown in Table 7.2. The different types of contracted services are to be replaced by
subsidised service contracts or commercial service contracts.
This chapter presents the City’s plan for each type of service. In each section it describes
the service and identifies issues that affect it. It then presents strategies that the City plan
to follow to enhance the service and summarises the project to be implemented. The
chapter concludes by presenting the City’s framework for the disposal of operating licences
which a person must hold if they are to operate a road-based public transport service.
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TABLE 7.1: ROAD-BASED PUBLIC TRANSPORT SERVICES
PUBLIC TRANSPORT SERVICE
•
Means a service for the carriage of passengers by road or rail, whether the service is subject to a contract or not, and where the service is provided for a fare or other considerations or
reward.
•
No person may operate a road-based public transport service without holding the necessary permit or operating license subject to certain exemptions. (NLTTA Section 33)
Scheduled service
A public transport service operated by road by a motor car, minibus, midibus or bus on a particular route or routes in accordance with a timetable.
Unscheduled service
A public transport service operated by road on a particular route or routes, or, where applicable, within a particular area, without a timetable, where passengers
are charged fares individually.
Charter service
A public transport service operated by road involving the hire of a vehicle and a driver for a journey at a charge arranged beforehand with the operator, where:
a)
neither the operator nor the driver charges the passengers individual fares
b)
the person hiring the service has the right to decide the route, date and time of travel, and
c)
the passengers are conveyed to a common destination.
Long-distance service
A scheduled or unscheduled public transport service, other than a service for commuting, that is provided beyond the boundary of the are covered by a transport
plan, where passengers are charged fares individually.
Metered taxi service
A public transport service operated by means of a motor vehicle which is designed, or lawfully adapted, to carry fewer than nine seated persons, including the
driver, where that vehicle –
a)
is available for hire by hailing, telephone or otherwise
b)
may stand for hire at a rank, and
c)
is equipped with a sealed meter, in good working order, for the purpose of determining the fare payable.
Tourist service
A public transport service by road for the carriage of tourists to or from tourist attractions, where the tourists are accompanied by a registered tour guide.
Staff service
A public transport service by road provided by a means of a vehicle owned by an employer or a vehicle provided by a public transport operator in terms of a
contract with the employer, when used exclusively for the conveyance of the employer’s employees.
Learner service
Notes:
Conveyance of learners, students, teachers or lecturers to and from a school or other educational institution on a daily basis.
1.
A “courtesy service” means a transport service for customers or clients provided by an organization which is not a public transport operator where the organization provides its
own vehicle or a vehicle provided by an operator in terms of a contract with that organization. NO OPERATING LICENCE IS REQUIRED FOR THE OPERATION OF A COURTESY
SERVICE (NLTTA, Section 92).
2.
A “special event” means a cultural, religious, sporting or recreational event, or any entertainment, conference, exhibition or show, which is to occur or be held on a specific day or
a number of specific consecutive days at a predetermined venue.
3.
“Inter-provincial transport” means a public transport service operating between two or more provinces. “Intra-provincial transport” means a public transport service operating
within the boundaries of a province.
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TABLE 7.2: TYPES OF CONTRACTUAL ARRANGEMENTS UNDER WHICH PUBLIC TRANSPORT SERVICES CAN BE OPERATED
PUBLIC TRANSPORT SERVICE
CONCESSION AGREEMENT
CONTRACTED SERVICE
NON-CONTRACTED SERVICE
(PERMISSION)
To operate a public transport service on a
railway line or rail network
A public transport service other than one
operated in terms of commercial service
contract, subsidised service contract, current
tendered contract, interim contract or
concession agreement
EXISTING CONTRACTED SERVICES
INTERIM CONTRACTS
CURRENT TENDERED CONTRACTS
Untendered contracts between the national/provincial department and a public
transport operator for the provision of a subsidized scheduled service and which
expires after commencement of the NLTTA.
Contract awarded by a tender board between the national / provincial department
and an operator for the provision of a public transport service and which was
conducted before the commencement of the NLTTA.
TO BE REPLACED BY
•
•
SUBSIDISED SERVICE CONTRACTS
Means an agreement concluded by a contracting authority (meaning the
National Department of Transport, provincial department, transport authority, or
a core city) and a public transport operator to operate a scheduled service
provided for in a public transport plan and in terms of which the public transport
operator, in addition to the passenger fares paid, receives financial support in
terms of tendered contract.
The services to be operated in terms of the agreement has been put out to
public tendering BUT the Minister / MEC may grant, once only, exemption to
NEGOTIATE with the operator in respect of a service or part of a service subject
to specified conditions.
•
a)
b)
c)
COMMERCIAL SERVICE CONTRACTS
Means an agreement concluded by a contracting authority (meaning the
National Department of Transport, any provincial department, transport
authority, designated municipality and any core city) and a public transport
operator to operate a public transport service:
provided for in a public transport plan
operator’s consideration consists of fares payable by the passengers that are
carried and, where passengers pay concessionary fares, also of the
reimbursement made by the contracting authority to that operator, and
operator does not receive any subsidy or other financial support from any
organization in the sphere of government.
Note: A municipality may operate a municipal public transport service at its own cost.
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CONTRACTED SCHEDULED BUS SERVICES
Scheduled bus services in the City of Cape Town are provided exclusively by Golden Arrow
Bus Services (GABS) under contract with the Department of Transport. GABS has operated
subsidised commuter services in the City over many decades, and this was last formalised
as an interim contract in 1997. This contract was originally for a three year period, but has
since twice been extended and now is extended on a monthly basis pending placing the
service on either a tendered or negotiated contract.
The market share of bus transport in Cape Town has generally been declining over the last
30 years, largely due to competition from both private transport and other public transport
modes particularly minibus-taxi. In recent years, however, passenger numbers and ticket
sales have been increasing.
The service is subsidised by the Department of Transport, and derived a subsidy of
approximately R 360 million in the financial year 2004/5.
Figure 7.1 shows the trends in subsidy between 1997 and 2005. The subsidy has
increased from R 130 million in 1997/8 to R 360 million in 2003/4, an increase of 175%
over the seven years.
The increase in subsidy derives from a combination of two factors: escalation in economic
fare due to inflation (as provided for in the interim contract) and an increase in passengers.
Annual Subsidy Paid to GABS
400
350
300
250
Rm
7.2
200
150
100
50
Annual Subsidy Paid
0
/98
97
19
/99
98
19
/00
99
19
1
/02
/03
0/0
01
02
200
20
20
Financial Year
/04
03
20
/05
04
20
FIGURE 7.1: TREND IN SUBSIDY PAYMENTS
The service attracts a passenger subsidy based on an agreed amount per passenger trip,
which is negotiated between the operator and the Department of Transport, for the
number of multi-journey (clipcard) tickets sold - the so-called tariff subsidy system. The
subsidy per ticket is indexed based on rates of inflation.
The National policy is to convert all interim contracts to tendered contracts or, in special
circumstances, to negotiated contracts. The basis of subsidy will also be altered to a
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City of Cape Town: Public Transport Plan 2006
tendered rate per revenue kilometre based on a specified service timetable - the so-called
revenue kilometre basis of subsidy.
National policy as set out in the White Paper on National Transport Policy is aimed at
attaining greater efficiencies in the delivery of subsidised public transport services and in
the utilisation of subsidy, as well as greater accountability and service quality. The policy
was enshrined and given effect in the National Land Transport Transition Act.
ISSUES
A number of problems and challenges need to be addressed to deliver an efficient and
effective contracted scheduled bus service in line with the public transport vision.
•
Service Viability - The existing bus service compares unfavourably with Third World
international
best
practice
benchmarks
such
as
passengers/bus/day,
kilometres/bus/day, passengers/bus/km, etc
This does not necessarily imply inefficiencies by the operator, but can be attributed to
inherent inefficiencies in the public transport system manifested in the various modes
operating in inappropriate operating environments, the lack of modal integration,
destructive competition, etc. A contributing factor is undoubtedly the urban structure
characterised by low densities, extensive distances between residential and work
places, absence of appropriate land use arrangements which can support and
encourage bi-directional and off peak demand.
•
Increasing Subsidy Requirement - The subsidy has risen sharply in recent years. The
imperative is to ensure financial efficiency and economy in the provision of the service.
The funding authority needs to be assured that the required level of service is provided
at least cost.
•
Dispersed Routing - The service offers a wide coverage over a very dispersed network.
Whilst the service offers good coverage, it restricts the option of providing higher
frequencies and route permanence which can support and enhance the Mobility
Strategy, aimed at all-day, high frequency services along the development corridors.
On average, the route network translates to no more than 6 trips per route per day in
both directions.
Inspection of the bus network also shows extensive services and trips within the main
public transport market areas of Mitchells Plain, Khayelitsha, and Blue Downs which are
of an internal/feeder/distribution type role. It is suggested that this role would be more
appropriately left to smaller vehicles, and allow the higher capacity buses to
concentrate on the line haul, higher density routes. The appropriate positioning of the
various modes in their most effective and economic environment is a vitally important
issue in developing an effective integrated service.
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•
Competition for passengers - A comparison between the bus and taxi network shows
that there is a virtually complete overlap between the two services. The bus network
shown in Figure 7.2a) can be compared with the taxi network in Figure 7.2b) below.
FIGURE 7.2a): BUS NETWORK
FIGURE 7.2b): MINIBUS-TAXI NETWORK
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This reflects how the two road-based services have competed for the same market
both in the line-haul and feeder/distribution services. Significantly the scheduled bus
services also provides an almost equivalent collection/distribution service in most areas
as that provided by the unscheduled, minibus taxi services so as to protect their line
haul market.
•
Parallel Subsidised Services with Rail - The subsidised bus service also competes with
subsidised rail service on a number of routes, notably the services from Mitchells Plain,
Khayelitsha, Main Road, and Vootrekker Road. National and Provincial policy is aimed
at eliminating parallel subsidised services. It must be noted, however, that the rail
system currently operates at capacity with severe overcrowding. This means that the
bus mode is currently providing a supplementary service which cannot be removed until
investment in rolling stock has been achieved. In the long term, the aim is to subsidise
the most efficient/economical mode but to allow parallel services for choice users at a
different/no subsidy level.
•
Integration of Services - There is no effective integration of services through integrated
ticketing systems. The correct positioning of the various modes in terms of their most
effective and economic operating environment in terms of cost and service trade-off is
a key issue.
•
Interim Contract - The uncertainty from the continued short term extensions of the
interim contract precludes long term investment in the service including fleet
upgrading, ticketing systems, monitoring of the service, etc.
STRATEGIES
•
Transform the interim contract into tendered or negotiated contracts on a phased
programme
•
Restructure the existing bus and minibus-taxi services operating in competition into a
unified road-based scheduled service utilising the optimum vehicle into line haul and
feeder/distribution routes
•
Restructure the scheduled services to align with the Mobility Strategy and Corridor
Strategy. This process must be guided by the City’s Rationalisation Plan
•
Develop tendered (or negotiated) contracts to provide enhanced quality of service in
line with a public transport service charter, extended 18 hour day service on the
primary accessibility routes, provision for Special Needs Passengers, strict monitoring of
service quality and timetabling, etc
•
Restructure service in main residential zones to respond to passenger demand for
feeder and distribution services
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•
Introduce an integrated fare management system
IMPLEMENTATION OF SCHEDULED ROAD-BASED PUBLIC TRANSPORT SERVICES
Concept for Scheduled Public Transport Services
The NLTTA requires services which are continued to be subsidised to be operated as
subsidised service contracts as provided for in section 47 (1):
“47(1) After expiry of any interim contract or current tendered contract, if the public
transport service that had been operated in terms thereof will continue to be subsidized,
that service must be operated in terms of a subsidised service contract.”
The GABS service in currently operating as an interim contract, and this needs to be
transformed into either a tendered or negotiated contract through the restructuring of the
public transport system. The longer term concept for the transformation of scheduled road
based public transport in the City is designed to support the Public Transport Vision put
forward in Chapter 2, and draws on the national and provincial policy objectives, as well as
the City’s Mobility Strategy.
The concept for the restructured public transport system has the following components.
–
An integrated public transport system with seamless transport between modes
through an integrated fare management system
–
A unified road-based public transport service (taking into account the existing bus
and taxi market) to augment the rail mode
–
The use of the appropriate mode (including rail) to reduce total system costs based
on passenger numbers and operational characteristics
–
Core routes on the main corridors identified in the Mobility Strategy providing 18
hour day services, 7 days a week
–
Additional peak period services on high speed routes to provide directs services and
reduced travel times
–
Public transport priority lanes on the main core routes and high speed routes where
feasible
–
Feeder and Distribution Services which will provide good penetration and coverage
within the main residential areas to include;
-
Feeder services to line haul routes
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City of Cape Town: Public Transport Plan 2006
-
–
- Feeders services to rail
Distribution within residential areas to activities such as schools, hospitals, shopping
centres, recreational areas, institutional complexes etc.
The service is to be broken down into a number of contracts and these are to be either
tendered contracts or may be negotiated or a combination of the two. The contracts
are to be divided to achieve operational and financial efficiency as well as other
objectives such as opening up the transport market to new entrants, removing barriers
to entry, removing the potential for conflict, etc.
An integral component of the restructured system (in the longer term), with its objective of
an integrated unified system, is the participation of the taxi industry and SMME bus
operators in the provision of the subsidised scheduled services. The concept is aimed at
removing the artificial distinction between modes based on vehicle size, bus or taxi, and
move towards a unified service using the most appropriate mode.
Through the
establishment of business entities, the taxi industry will, either on their own or through
joint ventures or other suitable mechanisms, be in a position to tender or negotiate for
scheduled subsidised services. It follows that existing taxi services operating in parallel
with the restructured unified line-haul service will need to be withdrawn.
Similarly,
existing bus services operating in parallel to restructured routes best served by midi and
minibuses will also need to be withdrawn.
This restructuring represents a bold intervention directly in line with national, provincial
policy as well as the two pillars of the Mobility Strategy, namely public transformation for
greater mobility and integration, and socio-economic integration and opportunity
enhancement.
It must be recognised however that there are current realities and major impediments to
the immediate implementation of the proposed restructured system. A carefully designed
implementation strategy needs to be developed to bring about the phased introduction of
the proposed restructuring.
Current Constraints and Impediments
The major impediments are outlined below:
1) The taxi industry is not currently structured or formalised to the degree necessary to
enter into tendered or negotiated contracts. Extensive negotiations still need to be
completed on acceptable models for participation of the taxi industry. The taxi services
transport nearly double the existing subsidised bus passengers and are therefore a vital
stakeholder in the unified public transport service. Suitable empowerment models need
to be developed and agreed to ensure the industry’s meaningful participation.
2) The process of conversion of permits to operating licences is incomplete and needs to
be brought to a conclusion. The permit conversion process offers an opportunity to rid
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the system of dormant permits. The CPTR surveys show that there are about 4000
legal vehicles which were observed to operate in Cape Town whilst the Operating
Licensing Board records show that there are about 10 000 legal permits/operating
licences. This indicates the potential of some 6 000 dormant permits and illegal
operators. The applicant for conversion must show proof that they had been operating
on a regular basis for at least a period of 180 days before the date of application for
conversion. Permits which do not pass this test must not be converted and the Board
should withdraw the permit.
3) The taxi recapitalisation process is not ready to be rolled out in an efficient manner due
to the existence of a large number of dormant permits. There is a danger that these
dormant permit holders will use the recapitalisation project to claim the R 50 000
scrapping allowance to leave the industry thereby increasing the financial burden of the
recapitalisation project.
Furthermore, the proposed restructured system aims to rationalise the system to make
use of the most appropriate vehicle size in terms of financial efficiency and the
operating environment. It would entail major abortive expenditure if a large number of
vehicles were to be recapitalized only to be replaced by more appropriate vehicle once
the restructured system is implemented.
4) The existence of dormant permits may also affect the restructuring project. The
intention is to use the appropriate vehicle size to reduce total costs. This means that,
where appropriate, the existing 16 seat vehicles will need to be replaced by 35 seat
vehicles, standard buses or articulated buses on certain routes. Operators are to be
offered either suitable alternatives (including participation in the new operating entity)
or compensated. The existence of large numbers of dormant permits will merely
exacerbate the problem of finding alternatives or increase the costs of compensation
when the restructured system is implemented. There is little doubt that the proposed
restructured system will lead to attrition in the current taxi industry, but this problem
will be much greater if the existence of a large number of dormant permits/operating
licences is allowed to persist.
5) The management of the operating licences strategy relies on proper and sustainable
enforcement. The lack of enforcement capacity is also a major constraint and will need
to be addressed.
6) The existing infrastructure is not suitable to accommodate articulated vehicles which are
proposed in the restructured system for the high demand routes. It will take time for
the facilities to be redesigned and built to accommodate the larger vehicles. Also, the
ratio of bus to taxi facilities will change.
6) 7) GABS received a subsidy of R360 million for the 2004/5 financial year. This already
represents an increase of 175% over the last seven years from R130 million in 1997.
The restructured system represents another substantial increase (more than 100%) in
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the subsidy required and there should be some concurrence from the Department of
Transport. This arises largely from the need to introduce new vehicles to comply with
the model tender specifications and the doubling of the number of passengers to be
accommodated on the subsidised scheduled service. Additional funding will need to be
secured. No other province has received a significant increase in subsidy over the last
three years. No work has also been done on a cost model for withdrawing minibus-taxi
operating licences and this could make the restructured network totally unaffordable.
Also, estimated cost implications are based on out of date route and passenger
information. The market share of public transport is far from being in a state of
equilibrium and as a result there are substantial fluctuations in passenger numbers and
trips
In summary, a consolidated approach by the City, the Department of Transport and Public
Works, and the Provincial Operating Licensing Board is required to ensure that no dormant
permits are converted to operating licences. An implementation plan to modify and/or
build facilities which are suitable for larger vehicles is also necessary.
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Phased Implementation of the Restructured System
It is essential that these major impediments be satisfactorily removed before the proposed
restructured system can be fully implemented. A strategy has therefore been developed
which addresses these concerns, and can lead to a managed implementation of the
proposed restructured system over the next two to three years.
Prerequisites for the implementation of the proposed restructured system:
1)
Regulate and Clean up the Status of Existing Operating Licences
The conversion process provides the opportunity to clean up the system and rid it
of dormant permits. The intention is to complete the conversion process and
remove dormant permits so that they will not become eligible for the scrapping
allowance. This will reduce the cost of the recapitalisation project in the City, and
lessen the burden of compensation or other alternatives when the proposed
restructured system is implemented.
The taxi recapitalisation project will be delayed for 6 months to allow the process of
conversion of permits to operating licences to be completed. For the reasons given
above, close liaison between the City, the Department of Transport and Public
Works, and the Provincial Operating Licensing Board will take place to address the
issues of dormant permits.
Parallel to the process of conversion is the need to bring the operating licences into
alignment with the transport plans of the City. The application for renewal of
operating licences also requires proof of regular operation to be supplied. The
recommendations of the City on the need for the service must also be taken into
account by the Board in disposing of the application. This process allows the
system to be cleaned up both by removing dormant licences and removing
operating licences which are not in line with the transport plans (where the
commuter-demand has decreased).
2)
Implement the Operating Licences Strategy
The Operating Licences Strategy showed that 70% of the routes in the City are
overtraded. It is important however to note that the majority of these are
feeder/distribution routes. On the line haul routes, some waiting times are longer
than acceptable and additional services are required on many routes.
However, in the light of the restructuring project, it would create future difficulties
for the project to grant additional operating licences. Not only would this lead to
additional job losses when the project is fully implemented but it would place an
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City of Cape Town: Public Transport Plan 2006
additional financial burden on the City/PGWC to pay compensation if these
operating licences need to be withdrawn.
It is also apparent that the protracted passenger waiting times on these line-haul
routes are mainly due to congestion on the City’s major freeways. The build-up of
commuters normally occurs when the rank is totally devoid of vehicles. The
effective enforcement of public transport priority lanes will allow public transport
vehicles to return at a faster rate and this will automatically result in a better level
of service. The enforcement of public transport priority lanes will also obviate the
need for additional services.
It is legally not possible to impose a moratorium on the granting of operating
licences and the Board must exercise its mind in each case. However, the City will
discourage the granting of new operating licences, and will generally recommend
against them. There will need to be exceptions in special cases after careful and
thorough investigation.
3)
Establish Effective Law Enforcement
The success of the Operating Licences Strategy is heavily dependent on effective
law enforcement. This relies on continuous and sustained effort, and this is best
achieved through a dedicated enforcement unit specialising in public transport law
enforcement. Negotiations will take place with the Metropolitan Police to establish
a specialised dedicated unit for public transport enforcement. Enforcement will take
place on the N2 public transport lanes and on the existing and proposed bus lanes
in the remainder of the City.
After these fundamentals have been put in place it is important to develop a
strategy that allows for the phased implementation of the restructured system.
The major objective of the restructured system is to improve public transport for
the benefit of existing users and to attract potential new users and it is therefore
imperative that the transition to the restructured system causes minimal disruptions
to public transport services and responds to changes in passenger demand. The
premise of the implementation strategy should therefore be the following:
•
Neither the bus or taxi industry should experience dramatic losses in terms of
market share, employment opportunities and economic viability. Whilst it is
acknowledged that there will be losses, it remains imperative that such losses
incurred are phased in over a period of time.
•
The proposed restructured system should not offer the commuter less in terms
of safety and trip quality (as reflected in the quality charter):
o A maximum of 60 minutes of travelling time
o Maximum walking distance – 1 km
o Maximum number of transfers to be 2
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o
Maximum queue waiting times of less than 15 minutes in peak
periods
To test this, a pilot project should be undertaken on a corridor to show that neither the
operator nor the commuter will be worse-off if the restructured system is introduced. The
following criteria is proposed:
Joint ventures between bus and minibus-taxi operators are to be promoted. To achieve
this, contracts must be negotiated between GABS, taxi operators, and small bus operators
to implement the restructured system. These negotiations will be strengthened and
advanced more directly once the initiatives identified above are well under way.
The following steps are proposed:
–
Enter into discussions with GABS about forming joint ventures or other types of
business entities with taxi associations
–
Enter into discussions with taxi associations
–
With the successful cleaning up of the operating licences system as indicated above,
and the completion of the detailed design on the restructured system to bring about
the use of the optimum mode (no buses will be allowed on feeder/distribution
routes), the taxi recapitalisation project can proceed. The City’s criteria for
prioritisation and requirements are as follows:
-
Line haul routes should be targeted first
-
The second criterion is the age of vehicle
-
Operators on line haul routes should only be allowed to replace existing
vehicles with 35 seat vehicles or larger vehicles
-
Two 16 seat vehicle operating licences should be handed in for one 35 seat
operating licence
-
Single operating licence holders should be encouraged to form joint ventures
with other operators
-
Feeder and distribution routes should be targeted last for recapitalisation
-
On these feeder/distribution routes, existing 16 seat vehicles should only be
allowed to be replaced by vehicles of the same capacity
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–
Identify taxi associations who are willing to form joint ventures or other types of
business entities with GABS to operate a unified scheduled service on a particular
route
–
The joint venture shall be allowed to operate the service with existing vehicles in
the short term as part of the negotiated arrangements and receive subsidy. These
vehicles can be replaced with recapitalised taxi vehicles or buses in the longer term
as appropriate in terms of the negotiated arrangements
–
Associations not willing to form joint ventures with GABS should be allowed to
continue to operate without the benefit of subsidy. However, where minibus-taxis
are not considered the appropriate mode on a particular route/corridor the
operating licences relating to such services will be phased out over time.
–
Where negotiations are not fruitful, the service must be put our to tender.
• The National Land Transport Transition Act (22 of 2000) makes provision for
contracts to be negotiated once, in respect of a service or part of a service. The
next round of contracts must be tendered.
Alternatives to the restructured network
Failure to satisfactorily remove the identified impediments could mean that the
restructured system cannot be implemented. The following system is proposed as
an alternative to the restructured system:
•
Implement Taxi Recapitalisation project as articulated in the City’s Operating
Licensing Strategy
•
Transform current interim contract into a tendered contract. Bus routes to
be rationalised to reduce inefficiencies in bus operations. This process must
be informed by the Rationalisation Plan. The Provincial Government of the
Western Cape has already prepared a cost model for a rationalised service,
which is considerably lower than that of a restructured service. The
rationalised service however does not fully support national policy aimed at
creating a unified road-based service.
q
q
q
Bus operations to be withdrawn from all feeder and distribution
routes. This is generally considered an inappropriate operating
environment for high capacity vehicles and most of the residential
roads have not been designed to carry heavy vehicles.
Service to be provided at higher frequencies especially during peak
periods
Greater route permanence (especially during off-peak period and
before and after peak periods)
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•
Place strong emphasis on enforcement and regulation with the aim of using
the appropriate mode to reduce total system costs.
q
q
q
q
q
Where minibus-taxis are not considered the appropriate mode on a
particular route/corridor, applications for the renewal of such licences
will not be supported (if authority was issued for a fixed period).
A holder of such a licence issued for an indefinite period will be
offered a viable alternative service in place of the existing service (in
accordance with section 51 of the National Land Transport Transition
Act (22 of 2000).
If this viable alternative service is unreasonably refused by the holder
of such a licence, the City will recommend to the Operating Licensing
Board that the licence be withdrawn and pay compensation for such
withdrawal if justified.
The mentioned licences are to be phased out over a period of time
so as to cause minimal disruptions to public transport services.
Additional higher capacity vehicles to be added to the system as
minibus-taxi licences are phased out.
PROJECTS
Project B1: Provision of Scheduled Bus Services through Interim Contract
The interim contract with GABS for scheduled services will be continued until
such time as it is transformed into the restructured tendered or negotiated
contract. This project is being managed by the PGWC Department of
Transport and Public Works. In 2004/05 the subsidy was provided by the
Department of Transport as was approximately R360 million.
Project B2: Design and Preparation of Scheduled Service Contract
Documents/Negotiated Contracts with Bus and Taxi Operators
This project entails the design of a restructured unified integrated road
based scheduled service to replace the existing interim contract with GABS
and include line-haul taxi services. Negotiations with GABS, small bus
operators and the taxi industry will be undertaken based on the framework
outlined above to implement negotiated contracts on a phased programme.
Project B3: Provision and Management of Scheduled Service Contracts
The restructured scheduled subsidised service contracts will be awarded on
a phased programme. This project entails the on-going management of the
contracts for the delivery of the contracted services.
Project B4: Monitoring of the Scheduled Public Transport Services
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Scheduled service contracts require to be monitored to ensure operator
compliance with the contracted service quality and schedule. This project
will entail the development of the method of monitoring, using technology
solutions such as the AVL system and manual monitoring. The project will
entail the ongoing monitoring or the scheduled services.
7.3
KLIPFONTEIN CORRIDOR
The flagship project to roll-out the City of Cape Town’s Mobility Strategy is the Klipfontein
Corridor. The Klipfontein Corridor runs diagonally across the City from the Cape Town CBD
to Khayelitsha and Mitchells Plain as shown in Figure 7.3.
Northern
‘growth axis’
corridor
Northern
Suburbs corridor
Southern
Suburbs
corridor
Phase 1: Klipfontein
Corridor Project
FIGURE 7.3: KLIPFONTEIN CORRIDOR
Project C1: Klipfontein Public Transport Corridor
This project is the development of an integrated public transport corridor
from Khayelitsha and Mitchells Plain to the Cape Town CBD.
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Infrastructure needs to be provided to support the envisaged operational
environment. The infrastructure provision will include the following:
•
Public transport priority measures – such as Bus Rapid Transit (BRT)
lanes for road-based public transport, and/or public transport priority
queue jump and by-pass lanes, and priority traffic signalling. This
means that road infrastructure will be upgraded mostly for improving the
operations of the public transport system
•
The Klipfontein Corridor Project recognises both Klipfontein Road and the
N2 as a public transport system supporting the corridor. The Project
includes both public transport priority measures in Klipfontein Road
itself, as well as bus/minibus-taxi lanes on the N2
•
Establishment of interchanges and park and ride facilities at key nodes
•
CCTV on both Klipfontein Road and the N2 to provide both enforcement
of the public transport priority measures as well as enhanced security
•
Upgrading of the Golden Acre Terminus or the construction of a new
public transport terminal in the CBD to support all priority corridors
entering the CBD, including the Klipfontein Corridor
•
Upgrading of existing facilities to ensure universal access for Special
Needs Passengers
•
Non-motorised transport (NMT) (ie pedestrian and cycle path) network
along the full length of the corridor, with bicycle storage facilities at key
locations to cater for and provide easy access to the major socioeconomic and transport facilities
•
Upgrading of key nodal points along the corridor to form Dignified Urban
Spaces, supportive of NMT and promoting safe and secure environments
for recreation and social interaction
•
Provision of public transport signage, passenger information displays,
shelters, street furniture, and dedicated stops to be provided on the
network
•
Safety and security initiatives, including improved lighting where
necessary
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7.4
UNSCHEDULED SERVICES (INCLUDING MINIBUS-TAXI SERVICES)
Unscheduled services are provided by vehicles operating on a particular route or routes, or
where applicable within a particular area, without a timetable where passengers are
charged fares individually. These services include those currently being operated by the
minibus-taxi industry which provide both feeder and distribution services within
communities and line-haul services from residential areas to areas of employment.
Minibus-taxis are operated by private individuals who generally belong to a local area taxi
association. These have been grouped within the City into twelve regional associations
which are represented on the Western Cape Provincial Taxi Council.
Surveys undertaken for the City’s Current Public Transport Record (CPTR) report that
almost 7 500 minibuses are used to provide unscheduled services from taxi ranks within
the City. The vehicle registration numbers recorded during these surveys were matched
against the active permits/operating licences registered in the Land Transport Permit
System. The results showed that 43% of the observed vehicles were operating without a
valid permit or operating licence. These vehicles tended to pick up passengers on-route
rather than at ranks where self-regulation of the industry and law enforcement is more
prominent.
Recent analysis of the CPTR data has shown that 70% of all routes are overtraded by both
vehicles with and without permits/operating licences. Indeed, on some routes there are 50
to 250 more authorities than required to meet passenger demand.
ISSUES
The provision of unscheduled services, particularly minibus taxi-type services, has grown
rapidly during recent years in the City. This has lead to many issues arising that need to
be addressed so that the services can be provided effectively and safely in a sustainable
manner. These issues include:
•
•
•
•
•
•
•
•
•
•
Large number of vehicles operating without permits/operating licences
Income is derived from the fare-box creating fierce competition for passengers
Overtrading of financially lucrative routes and the associated lack of services offered on
other routes and outside peak travel periods
Inappropriate use of minibus on high volumes line-haul routes
Associations enrolling new members despite over-trading
Uncertainty caused within the industry by the lack of information surrounding the
implementation of the national taxi recapitalisation programme
Administrative backlogs at the Provincial Operating Licensing Board that delay the
processing of applications
Culture of hiring/renting out of permits/operating licences
High number of dormant permits/operating licences within the system
Multi-route permits/operating licences
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•
Appeals are held by the Transport Appeals Board at the national sphere, which fails to
consult with the City in the adjudication of appeals
STRATEGIES
•
Institute effective regulation of services through operating licences
•
Ensure effective law enforcement of operating licences to remove unlicenced operations
•
Implement the Operating Licences Strategy:
complete the conversions of permits to operating licences
eliminate wasteful competition on over-traded routes
refuse the application for an operating licence on overtraded routes
grant new operating licences only for routes that are not adequately served by
existing public transport services
validity periods of licences to expire as restructured public transport services are
introduced
support and assist to improve the administrative capabilities of the Provincial
Operating Licensing Board
•
Promote better communications between the parties involved with the taxi
recapitalisation programme
•
Support the establishment of a Provincial Appeals Board in Provincial legislation
•
Include the minibus-taxi industry into the provision of the restructured scheduled
subsidised services with services being operated by appropriately sized vehicles
PROJECTS
Project D1: Management of the Operating Licences Strategy
Implementation and ongoing management of the Operating Licences
Strategy.
This includes providing recommendations to the Provincial
Operating Licensing Board based on research on validity period of OLs,
research on balancing supply and demand, identification of the need for new
operating licences for new developments, greenfield developments/growing
and expanding areas, and research of opportunities to redirect OLs from
overtraded routes to underserved areas and routes.
The major component on this project will be performed internally by staff of
the Transport Roads and Planning Service Department of the City. Some
specialised research on specific components to inform the ongoing
management of the OLS will be commissioned. The option of establishing a
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Conflict Resolution team will be investigated as part of this project. The
management of the Operating Licences Strategy is aimed at preventing and
diffusing potential for conflict before it breaks out.
Project D2: On-going Focussed Surveys
On-going surveys will be undertaken, prioritised and targeted to areas
where major changes are taking place either through land use changes,
significant development, changes in travel patterns, etc. These surveys will
provide the information for the on-going management of regulation of public
transport and implementation of the Operating Licences Strategy.
7.5
METERED TAXI SERVICES
Metered taxi services are public transport services operated in terms of a permit or
operating licence by a motor vehicle which is designed or lawfully adapted to carry fewer
than nine seated persons (including the driver) where the vehicle •
•
•
is available for hire by hailing, by telephone or otherwise
may stand for hire at a rank
is equipped with a sealed meter to determine the fare payable
The current operations provide a 24-hour per day, 7-days per week, door-to-door transport
service. The service is complementary to the route-based bus, minibus taxi and commuter
rail services and offers itself as an alternative to those services for customers who prefer or
require more personalised transport. It is therefore particularly attractive to small groups
and visitors to the City, business people and those who travel outside the normal hours of
operation of the route-based services.
Metered taxi operators use a variety of vehicle types. The most common are motor cars
which vary considerably in terms of manufacturer, age and condition. The use of station
wagons and minivans is also increasing in popularity.
Most of Cape Town’s metered taxis are operated by individuals or small companies, each
holding less than five operating licences. There is a small group of taxi companies, each
holding ten or more authorities, and collectively controlling about 25% of the industry.
Cape Town’s metered taxis operate mainly from designated ranks and holding areas in the
high demand areas of the inner City and Waterfront and at other places where tourist
demand is concentrated (eg at the airport). Although ranks have been provided elsewhere,
there is a strong preference to operate from centrally located ranks. Taxi drivers can also
collect passengers by arrangement through centralised radio dispatch systems or cell
phone communications. There is little evidence of taxis roaming the city streets in search
of customers as in other higher density cities. The demand for radio-dispatched metered
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taxis has grown substantially in recent years while the demand at ranks has declined in
relative terms. In general, most of the taxis operated by the larger operators are fitted
with two-way radios whereas those operated by individuals and small companies tend to be
dependant on demand at ranks. As a result, there is significant variation in average daily
trips per vehicle across the industry.
The fare is generally determined by the meter that displays a fixed component and a
variable charge per distance travelled, as well as a waiting rate and a luggage charge if
applicable. However, the fare can also be fixed by negotiation between the driver and the
passenger before the journey begins. The taxi operator generally determines his tariff but
he is required to display the details of the tariff on the sides of the vehicle. The variability
of tariffs within the industry, the incidence of relatively high tariffs and the lack of a clear
relationship between tariff levels and service quality have a negatively influence on the
image of the industry for existing and potential users.
Operating licences specify either a single radius of operation or an inner (pick-up) and an
outer (service) radius of varying distances. The centre of the radius is sometimes, but not
necessarily, the rank from which the taxi is authorised to operate. “Central Area”
authorities allow the operator to wait for customers at any of the ranks in the central area
of the Cape Town. At present, only a small number of operators have been granted
authority to rank in the V&A Waterfront and all others are doing so illegally. There are also
a significant number of operators holding “base company” licence that grants them the
right to operate but not the right to use any ranks. Perceived inequality in operating rights
is an area of contention.
ISSUES
•
•
•
•
•
•
•
•
Variation in standard of vehicles and oversupply of low quality vehicles
Variation in the knowledge of drivers and oversupply of poorly-trained drivers
Relatively high tariffs and not related to service quality
Operational and financial performance largely carried by drivers and not by the
operators
Variation and perceived inequality in existing operating rights
Inadequate service quality regulation and enforcement
Lack of access to radio dispatch systems by small operators
Competition from vehicles licensed to provide charter and/or tourist services such as
“chauffeur services” and hotel, airport and shopping centre “shuttles”
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STRATEGIES
•
The supply of metered taxis is to be regulated by the City and the Provincial Operating
Licensing Board to ensure that there is sufficient capacity to meet peak period demands
and to target an increase in the average utilisation rate
•
In consultation with the industry and stakeholders, develop a code of conduct and
appropriate requirements and standards for vehicles and drivers and an appropriate
tariff structure
•
In consultation with the industry and stakeholders, identify and progressively provide a
range of additional facilities including ranks, holding areas and drop-off/pickup bays.
Owners of land developed for uses that are important generators of demand for
metered taxis will be required to provide and manage facilities to the satisfaction of the
City
•
In consultation with the industry, review existing operating rights and develop measures
to address perceived inequality and establish a more rational and effective regulatory
system
•
Encourage the provision of metered taxi services throughout the metropolitan area by
supporting the granting of area-specific operating licences
•
Encourage operators to make use of two-way radios or alternative dispatch systems
including the establishment of an service centre for use by small operators
•
All operators and drivers of metered taxi services need to be registered and be subject
to compliance with established service quality and performance standards
•
Effective regulation of and enforcement against services illegally encroaching on the
defined markets of metered taxis
PROJECTS
Project E1:
Code of Conduct and Operating Practices
The City, in collaboration with the Province, will establish a working
committee with industry representatives and stakeholders, including the
tourism and hospitality industry, to develop and implement a Code of
Conduct and Operating Practices. This will include vehicle and driver quality
standards, registration requirements, vehicle markings, tariffs, consultation
structures, employment conditions, specification of meters, radio dispatch,
etc.
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Project E2:
Service Centre
A few years ago, industry representatives identified the need for a project to
establish a Service Centre that would empower and assist small operators to
gain access to radio dispatch and take advantage of other services to
improve incomes and operational efficiency. Subsequent investigation has
confirmed the technical feasibility of the project. It is now proposed that a
pilot study, involving no more than 20 vehicles, be undertaken to test
financial viability. If successful, this will be followed by full implementation.
Project E3:
Allocation of ranks in the V & A Waterfront
In consultation with the industry, the City will engage with the management
of the V&A Waterfront and the Provincial Operating Licensing Board to
facilitate a process of allocating ranking rights in the Waterfront. It is
suggested that preference will be given to existing metered taxi operators
who are prepared to exchange their current rights for the right to operate
solely from Waterfront ranks. This would open the way for a general
realignment of operating rights with customer demand while simultaneously
addressing perceived inequalities in a holistic and systematic manner.
Project E4:
Provision of New and Improved Facilities
This project entails provision of additional facilities for metered taxis
including ranks, holding areas, and drop off/pick up bays and improvement
of operating conditions at existing facilities. The City has already started
identifying potential sites and their requirements in close consultation with
the industry, and this process will continue.
Project E5:
Driver Training
Building on the existing “Ambassadors” programme, the City will continue to
collaborate with the Province (in consultation with industry representatives)
in the provision of appropriate and accredited training and the
administration of a qualifying test for all metered taxi drivers.
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7.6
LONG DISTANCE SERVICES
Long distance services are scheduled or unscheduled services, other than services for
commuting, that are provided beyond the boundary of the area covered by a transport
plan, where passengers are charged fares individually. The services therefore include
intra-provincial and inter-provincial services.
Long Distance Bus
Scheduled, long distance services are predominantly provided by national operators using
luxury and semi-luxury coaches. In contrast, unscheduled, long distance services are
generally provided by a mixture of economy style bus and minibuses.
There are facilities for scheduled, long distance bus services at Cape Town Station and at
Bellville. These facilities are privately operated and charge market rentals to the operators
that make use of them.
In recent years, the City has developed the Joe Gqabi modal interchange at Stock Road in
Philippi and is in the process of centralising all unscheduled long distance bus operations at
this facility. However, there are already indications that the facility is operating close to
capacity at peak times.
Long Distance Minibus
Long distance minibus-taxi services are currently provided from numerous ranks, many
informal, scattered in many parts of the City. The City has embarked on an exercise to
consolidate these long distance services at Cape Town, Nyanga, Mitchells Plain, Bellville,
Langa, Khayelitsha, Du Noon and Masiphumelele.
ISSUES
•
Lack of information about long distance services as they have not been a focus of
regular, co-ordinated surveys given their intra-provincial and inter-provincial nature
•
Lack of proper passenger facilities for long distance minibus-taxi operations
•
High-peaking demand for long distance services, especially over the December holiday
period
•
Suitability of vehicles for long distance travel
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STRATEGIES
•
Co-ordinate with adjacent and other planning authorities to obtain supply and demand
information on intra-provincial services and availability of ranking space so as to inform
comments on applications for operating licences
•
Long distance buses will be required to use only the dedicated facilities provided at
Cape Town, Bellville and the new Joe Gqabi Terminus or alternatively provide facilities
that have been approved by the City. Strict enforcement action may be necessary
•
Consolidate and provide a limited number of centralised facilities for long distance
minibus-taxi services
•
Future support for operating licences for long distance minibus-taxi services should be
limited to recapitalised vehicles
•
Operating licences for long distance minibus services should also include authorities to
provide unscheduled minibus taxi-type services in areas where they collect/drop
passengers
PROJECTS
Project F1:
Surveys of Long Distance Bus and Minibus Operators
Surveys of long distance bus and minibus-taxi operations will be carried out
to determine passenger demand to inform comment to the POLB, and to
provide necessary information for the planning of new facilities and the
management of existing facilities.
Project F2:
Provision of Long Distance Facilities
Facilities for long distance bus and taxi facilities will be provided:
•
Improvement/expansion or a new facility in the City Centre for long
distance buses
•
New facility for long distance buses in the Northern Suburbs
•
Facilities for long distance minibus-taxis, consolidated in ranks at Cape
Town (Central City), Nyanga, Langa, Mitchells Plain, Bellville, Du Noon,
Khayelitsha, Masiphumelele
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Project F3:
Management of Long Distance Bus and Minibus-Taxi Ranks
This project will provide the management, operational control and security
at long distance facilities.
7.7
TOURIST SERVICES
Tourist services are public transport services that transport tourists to or from tourist
attractions where the tourists are accompanied by a tour guide registered under the
Tourism Act, 1993. The Second Amendment of this Act states that no tourist guide may
drive a vehicle with a carrying capacity of 10 or more persons and, at the same time, act as
a tourist guide.
The tourism industry in South Africa is a thriving industry which relies heavily on the
provision of high quality transport services to carry its customers safely, promptly and in
comfort to their destinations. Operators range from internationally recognised fleet
owners, who recruit their business both locally and overseas, to individual operators
providing services from their homes. Services are provided in terms of permits or
operating licences which specify areas of operation ranging from within the City to
throughout the country. The vehicles used also range from luxury air-conditioned coaches
to minibuses and motor cars. Specialist tourist vehicles, such as safari-type vehicles and
open-top double deck buses are also used to provide specific services.
The City has seen a large growth in the number of operating licences that have been
issued for tourist services and, in some cases, the abuse of these authorities. Some of
these services may be providing more luxurious or specialised services than the existing
scheduled and unscheduled public transport services. In the longer term, the public
transport system should provide a quality of service that meets the needs of tourist and
other visitors as well as those of local residents.
ISSUES
•
Lack of legislation that takes into account the specific nature of the tourism transport
industry in contrast to that of general public transport. This relates, in particular, to the
need for flexibility so as to be able to rapidly respond to market demands that fluctuate
based on many parameters including those governed by overseas influences. This
distinction was recognised by the Department of Transport’s White Paper on National
Transport Policy, published in September 1996, that stated that charter services (as
tourist services were then called) should be fully competitive with the granting of
permissions being based “solely on compliance with safety and traffic regulations”.
However, this distinction was not incorporated into the National Land Transport
Transition Act, 2000 and has contributed to many of the problems now being
experienced
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•
Lack of definition and enforcement of the types of services that may be provided under
the authority of a tourist, as opposed to a charter licence (as chauffeur and shuttle-type
services are also being operated) and the definition of what constitutes a tourist
attraction
•
Administrative effort and regulations associated with obtaining inter-provincial
authorities
STRATEGIES
•
Support amendments to legislation that recognise the specific nature of tourist services
•
Support an accreditation process for tourist operators to be provided by the industry
and recognised by the City. (The Tourism Grading Council of South Africa is currently
finalising a national accreditation system for tour/charter operators)
•
Support improvements in the administrative capabilities of the Provincial Operating
Licensing Board and liaison with other provincial boards and planning authorities
•
Provide additional facilities such as boarding/alighting bays and holding areas for tourist
transport vehicles at tourist attractions
•
Need for clear identification of vehicles providing tourist services so as to assist law
enforcement
PROJECTS
Project G1: Accreditation of Tourist Services
This project entails the development of an accreditation process for the
provision of tourist transport services in consultation with the tourist industry
and other stakeholders.
7.8
CHARTER SERVICES
Charter services are public transport services involving the hire of a vehicle and a driver for
a journey at a charge arrange beforehand with the operator where:
•
•
•
neither the operator nor the driver charges the passengers individual fares
the person hiring the service has the right to decide the route, date and time of travel
the passengers are conveyed to a common destination
Charter services are therefore generally regarded as services provided to transport
organised parties from a common collection point to a common dropping off point for an
event such as religious gatherings, picnics, concerts or sporting competitions, etc.
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A wide range of vehicles are used to provide the services, ranging from coaches (luxury
and semi-luxury) to minibuses and motor cars. Authority to operate a service is provided
by a permit or operating licence which specifies either an area in which, or route that, the
vehicle can operate.
The City has seen a large growth in the number of authorities that have been granted for
charter services, resulting in competition with other modes. Many of the authorities also
authorise tourist, long-distance and/or minibus taxi-type services to be provided by the
operator.
ISSUES
•
The lack of definition in and hence abuse of the roles of charter, tourist and long
distance services
•
The granting of operating licences that contain combinations of charter, tourist and
long distance authorities which make law enforcement difficult
•
Charter services are often in competition with minibus taxi-type and long distance
services due to the area - nature of their authorities
•
Competition for ranking space at City-owned facilities
•
Legislation that specifically excludes referring applications for charter services to the
City, as the planning authority, for consideration
STRATEGIES
•
Authorities to be issued with clear, precise conditions that regulate the services to be
provided
•
Support for amendments to legislation that require applications for charter services to
be referred to the planning authority for consideration
•
Ranking space is not to be provided for charter services at City-owned facilities,
particularly facilities provided for long distance services
•
Need for clear identification of vehicles providing charter services so as to assist law
enforcement
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7.9
LEARNER TRANSPORT
The conveyance of learners, students, teachers or lecturers to and from a school or other
educational institutions on a daily basis is regarded by legislation to be a public transport
service for which a permit or operating licence is necessary.
Learner transport is provided within the City by either formal services utilising public
transport operators or through informal arrangements such as buses owned and operated
by individual schools and parents using motor cars. The formal services are a mixture of
contracted, subsidised, services provided by the Western Cape Department of Education
and contracts between school governing bodies and operators.
ISSUES
•
Lack of regulation given that, historically, permits were not required to provide the
service
•
Need, or otherwise, for an operating licence to be required for learner services that are
not provided on a daily basis
•
Inadequate management, monitoring and funding of services resulting in poorly
maintained and aged vehicles being used
•
Short duration and nature of subsidised contracts that are insufficient to allow
operators to recapitalise their vehicles
•
Institutions for learners with disabilities requiring to provide their own transport
services
STRATEGIES
•
Encourage operators who are currently providing learner services without the necessary
authorities to apply for operating licences and raise the awareness of educational
institutions to the need for licences
•
Support for the Provincial Department of Transport and Public Works to assume
responsibility and management (with associated funding) for the provision of learner
services
•
Where possible, learners to be accommodated by mainstream public transport services
•
Promote the drafting and adoption of model documentation and guidelines for contracts
between educational institutions and operator. The validity of the operating licences is
to expire on or before the expiry of the contract
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•
Support applications for the issue of operating licences only where there is a signed
contract between the educational institution and the operator. The validity of the
operating licence is to expire on or before the expiry of the contract
PROJECTS
Project I1:
Demand for Learner Transport
This project entails the assessment of demand for learner transport and the
potential implications and mechanisms to include this in the mainstream
public transport.
Project I2:
Model Contracts for Learner Service
This project will develop a model contract for the provision of learner
services in liaison with the Provincial Departments of Education and of
Transport and Public Works.
7.10 STAFF SERVICES
Staff services are public transport services provided by a vehicle owned by an employer or
a vehicle provided by a public transport operator in terms of a contract with the employer,
when used exclusively for the conveyance of the employer’s employees.
The services are provided by a range of vehicles but predominantly by minibuses. Many of
the services operate either very early in the morning or late in the evening when
mainstream public transport services are not available or considered unreliable or unsafe.
ISSUES
•
Identifying the need for a service in contrast to providing a scheduled mainstream
service available to all
•
Regulation of the service given its typical hours of operation
STRATEGIES
•
Support applications for operating licences for staff services only when the services are
to be provided outside the core operating hours of mainstream public transport
•
Improvement of the scheduled services so as to provide mainstream services that are
available to staff
•
Regulation of the service through better control of authorities including inspection of the
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contracts between the employer and the operator
•
Provide the drafting and adoption of model documentation and guidelines for contracts
between employers and operators
•
Support applications for the issue of operating licences only where there is a signed
contract between the employer and the operator. The validity of the operating licence
is to expire on or before the expiry of the contract
PROJECTS
Project J1:
Demand for Staff Services
The demand for staff services will be assessed, and the potential
implications, and mechanism for including this in mainstream public
transport will be developed.
Project J2:
Model Contract for Staff Services
A model contract for staff services will be developed.
7.11 SPECIAL NEEDS PASSENGERS
One of the principles of the National Land Transport Transition Act, 2000 (Act 22 of 2000)
to guide the development and operation of public transport services is that:
“the needs of special categories of passengers must be considered in planning and
providing public transport infrastructure, facilities and services, and these needs should be
met as far as may be possible by the system provided for mainstream public transport.”
Special categories of passengers include life cycle passengers (children, pregnant women
and the elderly), passengers with impairments and signage passengers (people who are
not literate and visitors to the City who are unfamiliar with its transport system).
Studies conducted by the City have shown that the majority of its public transport facilities
and services are not accessible to Special Needs Passengers. One of the key strategies for
improving access and mobility within the City’s 2005/2006 Integrated Development Plan
therefore includes improving the accessibility of the public transport system for Special
Needs Passengers. This is to be achieved through implementation of the City’s Universal
Access programme.
ISSUES
•
Facilities that are not accessible
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•
•
•
Service vehicles that are not accessible
Passenger information that is not accessible
Lack of trained assistance as and when required
The City has recognised these issues and has developed its policy to improve the
accessibility of public transport. It has undertaken pilot projects to demonstrate the
operation of low-floor buses. The City also started and continues to part-fund and manage
the Dial-a-Ride fleet of 17 adapted vehicles that are available to transport passengers who
use wheelchairs and other Special Needs Passengers. Improvements have also been made
to the accessibility of some of the principal interchange facilities.
STRATEGIES
•
Ensure the incremental improvement of the accessibility of public transport services on
the mainstream primary network and on selected services on the secondary, feeder and
distribution services
•
Complement mainstream services by a Special Transport Service which includes the
continuation of the current Dial-a-Ride service and/or an equivalent demand responsive
service
•
Design all new facilities and built in accordance with the principles of Universal Access
•
Prioritise the improvement of the accessibility of existing facilities on the primary
network, leading to accessibility of all existing facilities in the long term
•
Promotion and support for self-representation by and for Special Needs Passengers on
all matters affecting them
PROJECTS
Project K1: Provision of the Dial-a-Ride Service
The Dial-a-Ride Service will continue to be provided, and tenders for the
service will be called for at the expiry of the existing contract.
Project K2: Services for Special Needs Passengers
A study of alternative methods for the provision of services for SNP will be
undertaken. A demonstration project will be implemented and monitored
for effectiveness.
Project K3:
Accessibility to Public Transport Facilities
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This project is the phased implementation of improvements to the access to
public transport facilities for SNP including passenger information.
7.12 OPERATING LICENCES
7.12.1 Introduction
The NLTTA states that, subject to certain exemptions, no person may operate a roadbased public transport service without holding the necessary permit or operating licence.
The licences are issued by the Provincial Operating Licensing Board (POLB). The Act
requires that the POLB must inform the City of each application for the granting, renewal,
amendment or transfer of an operating licence or for the conversion of a permit to an
operating licence and request the City of Cape Town for its comments. Subject to other
considerations which are given in the Act, the POLB, in disposing of an application, must
act according to, and may not grant an operating licence contrary to the City’s transport
and the City’s submitted recommendations and representation.
The City has established its framework for submitting its comments to the POLB. The
framework is presented with the City’s Operating Licences Strategy (OLS) and its
reproduced below:
7.12.2 Purpose of Framework
The purpose of the framework is to assist the City to formulate its recommendations and
representation on applications received by the POLB for:
•
the granting, renewal, amendment or transfer of an operating licence authorising
the operation of any road-based public transport service other than a charter
service
•
the conversion of a permit to an operating licence that involves a conversion from a
radius or area-based permit to a route-based operating licence, or to an operating
licence for a larger vehicle.
7.12.3 Types of Public Transport Services that Require Operating Licences
Any person operating a public transport service by road must hold the necessary permit
or operating licence (or, in the case of a special event, a temporary permit or
authorisation) (NLTTA Section 33). Public transport services are defined within the
NLTTA (Section 1) as services for the carriage of passengers for a fare or other
consideration or reward and include:
•
A scheduled service
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•
•
•
•
•
•
•
An unscheduled service (which includes a minibus taxi-type service)
A charter service
A long-distance service
A metered taxi service
A tourist service
A staff service
A learner service
Certain services are exempt from the requirement for their operator to hold a permit or
operating licence, including a farmer conveying employees in his or her own vehicle, a
local authority conveying people in its own vehicle without reward, persons conveying
patients to receive medical treatment (eg ambulance drivers), lift clubs, a hotel conveying
guests to the nearest or most convenient transport facility in its own vehicle, and an
employer conveying employees between workplaces (but not between home and work).
Also exempted are persons operating under the authority of permits issued in terms of
the Cross-Border Road Transport Act (No 4 of 1998).
No person has a right to be issued with an operating licence (except upon conversion of a
permit) (NLTTA Section 34). Furthermore, an operating licence in respect of a minibus
taxi-type service may be granted only to a person who is a member of a provisionally or
fully registered taxi association or to a registered non-member or a person who has
applied to be registered as a non-member (NLTTA Section 34).
7.12.4 Spatial, Land Use and Economic Planning
All land transport functions must be integrated with related functions such as spatial, land
use and economic planning and development. This is to be achieved through, amongst
other actions, the development of corridors, densification and infilling.
7.12.5 Type of Vehicles which may be used for Public Transport Services
Vehicles to be used to convey passengers must comply with the National Road Traffic
Regulations, 2000, as published by Government Notice No 20963 of 17 March 2000, and
other relevant legislation. No person shall, on a public road, carry any person for reward
in the goods compartment of a motor vehicle.
The National Land Transport Transition Amendment Bill (Government Gazette No.28186
of 31 October 2005) proposes that operating licences may only be issued for vehicles
according to defined passenger capacities. The City will, when considering an application
for an operating licence, comply with current legislation and the requirements of the Bill
become law.
From a date to be determined by the Minister, which may not be earlier than 1 October
2006, no vehicle may be used for the operation of a public transport service, except by a
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foreign carrier, unless it is a vehicle contemplated above or otherwise a special category
of vehicle (NLTTA Section 31).
When making recommendations and representations to the POLB, the role of each public
transport mode and the promotion of the integration of all modes (NLTTA Section 4) will
be taken into consideration. In this respect, the operational concepts for road-based
services that are given in Table 7.3 will be used as a guide.
In accordance with the NLTTA (Section 31) a midibus may be used for the operation of an
unscheduled service only where:
•
•
there are no existing scheduled services on the same route or on another route in
the same corridor
relevant transport plans allow for its use
No standing passengers may be carried in a motor car, minibus or midibus.
TABLE 7.3: OPERATIONAL CONCEPTS FOR ROAD-BASED PUBLIC TRANSPORT
Demand
Characteristics
High demand
destinations
Low demand
destinations
Service Type
Direct
Aggregate demand
Direct from
interchange
Long haul
Short haul
Feeder to
interchange
Long haul
Short haul
Candidate Road-based
Mode
BUS/BUS-TRAIN
MIDIBUS
MINIBUS
BUS / MIDIBUS
MIDIBUS / MINIBUS
Source : Moving Ahead Pt 2 – Public Transport Operational Component (adapted)
7.12.6 Conversion of Permits to Operating Licences
The City may make recommendations and representations it considers fit to the POLB
with regard to the route or routes, or where applicable, the area to be specified in the
conversion of a permit to an operating licence except where the permit to be converted
already authorises public transport services on a particular route or routes (NLTTA Section
81).
In making representations and recommendations, the following consideration will be
taken into account:
•
An operating licence issued in place of a permit is to confer the same authority as
that which has been conferred by the permit (NLTTA Section 32), except that route
descriptions that are considered to be vague or inadequate may be improved
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•
The holder’s actual operations for the period of 180 days prior to the date of
application (NLTTA Section 81)
•
In the case of the conversion of a permit to an operating licence for a larger vehicle
the availability of ranks or terminals or other facilities or spaces for boarding and
alighting from, or holding or parking the larger vehicle
•
Any other recommendations or representations in relation to the application.
In providing input to the POLB, information will be provided to minibus taxi associations
operating along the route or routes in question adequate information to allow them to
give input to route descriptions.
The authority conferred by a permit may not be renewed, amended or transferred unless
the permit has first been converted to an operating licence.
7.12.7 Operating Licences for Contracted Services
Representations and recommendations to the POLB with respect to an application for the
granting, renewal, amendment or transfer of an operating licence for a contracted service
will include the following:
•
The availability and improvement needs of terminals and bus stopping facilities on
the route in question for boarding and alighting of passengers
•
Whether the application is supported in light of the Operating Licences Strategy and
Public Transport Plan
•
Any other recommendations or representation in relation to the application
Existing contracted services (interim and current tendered contracts) are to be replaced,
by the relevant government departments, with Commercial and Subsidised Service
Contracts. The PTP concurs with the principle of user charging or cost recovery in that
users should pay for all or most of the costs related to the service in question. Where
services are subsidised, these subsidies should be aimed to assist currently marginalised
users and those who have poor access to social and economic activity.
Where a commercial service contract, subsidised service contract, current tendered
contract or interim contract has been terminated for any reason, the POLB must withdraw
the operating licence(s) or permit(s) provided in terms of the contract (NLTTA Section
42).
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7.12.8 Operating Licences for Non-Contracted Services
Recommendations and representations to the POLB with respect to an application for the
granting, renewal, amendment or transfer of an operating licence for a non-contracted
service will take into account the following:
•
The availability of ranks or terminals or other facilities or spaces for boarding or
alighting from, or holding or parking vehicles
•
Whether the application is supported in the light of the Operating Licences Strategy
and Public Transport Plan
•
Whether or not the public transport requirements for the particular route or routes
are adequately served by an existing public transport service of a similar nature,
standard or quality provided in terms of a commercial service contract or subsidised
service contract or in terms of operating licences as shown by the City’s transport
plans
•
The existence of any By-Law, regulation, prohibition, limitation or restriction that is
relevant to the transport service that the applicant proposes to operate
•
The period for which the operating licence should be issued
•
Any other recommendations or representations in relation to the application
The non-availability of ranking space at a public transport facility owned by the City is not
sufficient reason not to support an application for an operating licence. Instead, when
considering any application for an operating licence for a minibus-taxi service, the City
requires the applicant to nominate their “priority route” to assist the City to best manage
the public transport facilities used by that route.
The following will be considered, when in receipt of an application for an operating licence
for long-distance services:
•
The days of the week or month and time of day for departure
•
For a minibus-taxi service, that passengers may not be picked up or set down en
route unless the operator has reached agreement in this regard with the City and
other relevant transport authorities and with the taxi associations operating locally
in the area concerned
Long-distance services should preferably be operated by vehicles that also provide a
public transport service within the City.
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When in receipt of an application for an operating licence for a metered taxi service, the
latest version of its Operational Plan for metered taxi services that the City is developing
with the industry will be taken into account.
When considering an application for an operating licence for tourist services, applications
for services to operate tours, would be preferred. Services that are predominantly of the
shuttle/transfer nature should be operated by other types of public transport services.
7.12.9 Validity Period for Operating Licences
No operating licences may be issued for longer than five years (except where a permit
with a long validity period was converted to an operating licence) (NLTTA Section 35).
When considering the representations and recommendations to the POLB with respect to
the validity period for an operating licence for contracted services, the validity period shall
be only for the duration and subject to the terms and conditions of the contract. The
period may be amended to extend the duration thereof where the duration of the relevant
contract is extended (NLTTA Section 40).
When considering the representations and recommendations to the POLB with respect to
the validity period for an operating licence for non-contracted services, the following may
be included:
•
Current and envisaged trends in utilisation on the route, routes or in the particular
area
•
Efficiency of the proposed services in meeting user needs
•
Likelihood that, in future, the public transport service for which the application is
being made may no longer be required in terms of the City’s transport plans
•
Likelihood that the public transport service for which the application is being made
may become the subject of a commercial service contract or a subsidised service
contract
Operating licences for charter services, long-distance services, staff and tourist services
must be for a fixed period (NLTTA Section 88).
7.12.10 Cancellation of Operating Licences not Brought Into Use
The City may bring to the notice of the POLB that an operating licence converted from a
permit has not been brought into use within 180 days. It may also bring to the notice of
the POLB that a service authorised by a permit or an operating licence has not been
observed by the City to operate and may therefore not be faithfully carrying out the
conditions or requirements of the authority (Section 78(5)(c) and Section 25(1)(a) of the
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Road Transportation Act, 1977). The POLB may then call on the holder to advance good
reasons why the authority to operate that service should not be suspended or cancelled.
7.12.11 Withdrawal of Operating Licence or Permit in Rationalisation of Public
Transport Services
If there is a need to rationalise public transport services, or if there is an oversupply of
transport, resulting in an existing non-contracted service being no longer required, and
no conditions are attached to the operating licence that imply or state the contrary, the
City will use its best endeavours to offer the holder of the permit or operating licence an
alternative service or services in the place of the existing service. Such an offer may not
be refused unreasonably by that holder (NLTTA Section 51).
Should the permit or operating licence be withdrawn, payment of fair compensation will
be considered in accordance with the requirements of the National Land Transport
Transition Act, 2000 (Act No.22 of 2000).
7.12.12 Special Needs Passengers
The needs for special categories of passengers will be considered when making
representations and recommendations to the POLB with regard to applications for
operating licences. Special needs are to be met, as far as may be possible, by the
system provided for mainstream public transport (NLTTA Section 4).
7.12.13 Conditions to be Recommended
Representations to the POLB for conditions to be imposed on operating licences that
have been decided to be granted, renewal, amended or transferred may include the
following conditions:
•
route, or routes/area, on which services can operate
•
that the operating licence is brought into use within 180 days or advance good
reason for not doing so
•
that the authorised vehicle, whilst in a public transport facility, including a holding
area, that is provided for it by the City, is operated in accordance with any
management procedures and/or regulations that the City has put in place at that
facility
•
the validity period of the operating licence being a minimum of one year and, if
subsequently the City do not recommend its renewal or transfer, compensation is not
payable to the holder of the operating licence
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8.
PUBLIC TRANSPORT SUPPORT SYSTEMS
8.1
PUBLIC TRANSPORT INFRASTRUCTURE : FACILITIES
The City has made substantial investment in recent years in developing, upgrading, and
improving public transport facilities. These take the form of multi-modal public transport
interchanges, bus terminals, and taxi ranks. Interchange management regimes have also
been instituted.
The City commissioned a study to develop design guidelines on the design and amenities
requirements for different categories of facilities based on size and levels of passenger
utilisation:
•
Category A (off-street):
High passenger volumes - greater than 20 000 passengers/day
•
Category B (off-street):
Medium/High passenger volumes – 3000 to 20 000 passengers/day
•
Category C (off-street):
Low passenger volumes – less than 3000 passengers/day
•
Category D (on-street):
Moderate passenger volumes – greater than 1000 passengers/day
•
Category E (on-street):
Low passenger volumes – less than 1000 passengers/day
The study identified a number of policies to guide prioritisation of development of these
facilities:
•
Policy Statement 1:
Focus on development of high-volume facilities requiring
substantial investment to achieve the Design Guideline benchmark
•
Policy Statement 2: Focus on formalising informal terminal facilities without amenities
that process moderate to high volumes
•
Policy Statement 3: Focus on terminal facilities providing feeder services to the
Klipfontein Corridor and other corridors should they become priority
•
Policy Statement 4: Place emphasis on specific attribute (eg facilities for Special Needs
Passengers, passenger shelters, surveillance equipment) if identified at any time by the
City as a strategic objective
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•
Policy Statement 5: Balance maintenance and development needs, having due regard
for the cost implications of substandard maintenance
•
Policy Statement 6: Focus on en-route public transport stops that process the highest
boarding and alighting passenger volumes (eg 5th percentile)
ISSUES
•
Many facilities do not meet the benchmarks and design guidelines prepared by the City
•
Certain facilities need to be modified and expanded to accommodate large vehicles
such as articulated buses which are proposed to be used in the design of the new
scheduled service contracts, and taxi recap vehicles
•
New facilities will be required to support the public transport corridors and nodes
•
Additional facilities will be required to accommodate the growth in road based public
transport services
•
Increased levels of maintenance are required to maintain the investment in public
transport facilities in a good state of repair
•
A number of facilities are now redundant or standing empty and subject to vandalism
STRATEGIES
•
Implement the upgrading, redesign, and development of new facilities in accordance
with the needs of the restructured transport system
•
Provide additional public transport facilities to accommodate the growth in public
transport
•
Upgrade existing facilities to comply with the standards required in the design guidelines
•
Increase levels of maintenance to retain the facilities in good condition
•
Introduce access control at public transport interchanges as part of the rank
management system
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Public transport facilities have been identified and prioritised to support public transport
services and improve conditions for passengers. The restructured public transport system,
which is intended to be introduced in phases, will alter the functioning of a number of
these facilities. For instance, the restructured system has identified the need for
articulated buses on certain high volume routes, a number of existing minibus-taxi services
would be transformed into scheduled services using higher capacity vehicles. The change
in the functioning of these facilities will require a redesign to accommodate the needs of
the restructured system.
The following approach needs to be adopted:
•
As part of the implementation programme, the design of projects which have been
identified will be reviewed in the light of the needs of the restructured system
•
Facilities will be designed for flexibility to accommodate different sized vehicles eg taxi
recap vehicles, standard buses, articulated buses
•
Projects whose function is not affected by the restructured system can be prioritised
and implemented with minimal risk of abortive expenditure
•
Projects affected by the restructured system will be reviewed and the need for low cost
interim improvements which will limit abortive expenditure will be evaluated
PROJECTS
Project L1:
Design and Construction of Improved and New Public Transport
Interchanges
Existing Public Transport Interchanges will be upgraded and improved to
bring them to the standard and benchmark required. The need for new
Public Transport Interchange will be identified and new interchanges
constructed. The design of facilities will need to allow for flexibility to
accommodate different sized vehicles, for instance taxi recap vehicles,
articulated buses. As the restructured scheduled services are phased in with
the appropriate vehicles, facilities will need to be adapted to accommodate
these vehicles.
The following low risk/committed projects will be proceeded with:
•
Fisantekraal
•
Somerset West
•
Mitchells Plain Southern Terminal
•
Khayelitsha Rail Extension (Stations 4 & 4a)
•
Claremont CBD
•
Khayelitsha CBD
•
Hanover Park Bus Facility
•
Lentegeur
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•
•
•
Project L2:
Ysterplaat
Nomzamo
Macassar
Design and Construction of Minibus Taxi Ranks
Minibus-taxi ranks will be upgraded and new facilities provided where
required. The following projects will be implemented:
•
•
•
•
•
Project L3:
Durbanville Taxi Rank (North)
Edgemead Taxi Rank
Imizamo Yethu Taxi Facilities: Hout Bay
Masiphumelele (Site 5) Taxi Rank
Table View Taxi Rank (Bayside)
Facilities Needs of Taxi Recapitalisation Programme
This project will entail the infrastructure needs and design modifications at
public transport facilities to accommodate taxi recap vehicles will be
assessed. These needs to be met as far as possible by implementing
modifications at the facilities.
Project L4:
General Public Transport Facilities
Improvements of public transport facilities like:
•
•
•
•
Project L5:
Bus/Taxi Embayments: General Provision
Provision of Bus/Taxi shelters
Station Upgrade
Signalling
Khayelitsha Rail Extension
Road-over–Rail Bridges, transport interchanges and access roads will be
constructed in order to improve the service.
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8.2
PUBLIC TRANSPORT INFRASTRUCTURE: PRIORITY LANES
The City has made a concerted effort to improve the average journey times of public
transport by constructing several priority bus/minibus taxi lanes on major routes. For
example, to assist the movement from the metro south east areas to the central area,
lanes have been provided on sections of the N2 freeway, Klipfontein Road and Victoria
Road. Likewise, sections of lanes have been provided on Modderdam Road or Vanguard
Drive to assist south-north travel. The location of existing lanes is shown in Figure 8.1. A
list of the lanes is given in Table 8.1 which also indicates whether the lane is marked in the
slow (left) or fast (right) lane of the roads cross-section.
TABLE 8.1: LOCATION OF EXISTING PUBLIC TRANSPORT PRIORITY LANES
ROAD
FROM
TO
LENGTH
POSITION
(km)
1. N2
Vanguard Drive
Liesbeek Parkway
5.5
Far right
2. Klipfontein
Vanguard Drive
Jan Smuts Drive
2.9
Left
3. Vanguard Drive
Klipfontein
Gunners Circle
4.0
Left
4. Modderdam
Borchards Quarry
De La Rey
1.9
Left
5. Lansdowne
New Strandfontein
Wetton
0.5
Left
6. Main Road
N2
Russel
4.0
Left
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FIGURE 8.1: DESIGNATED BUS & MINIBUS-TAXI LANES
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Surveys undertaken by the City show that the infringement of the lanes by mixed traffic
varies for different roads. For example, more light vehicles were observed to travel in the
public transport lane on the N2 in the morning peak period than in each of the mixed traffic
lanes. This model split is shown in Figure 8.2. In contrast, light vehicles did not use the
public transport lanes on Klipfontein Road (Figure 8.3) and Main Road (Figure 8.4). The
resulting operating speeds of different section of lanes during peak conditions therefore
varies from 12.5 km/hr on the N2 to 23 km/hr and 26 km/hr on Klipfontein Road and Main
Road respectively.
A key to the success of priority lanes is their effective law enforcement to prevent general
traffic from using the lanes. Currently, usage of none of the lanes is enforced and the
operation of all is impeded to a varying degree. This is particular so on the N2 freeway.
Enforcement of the N2 public transport priority lane should be undertaken only when the
extension of the lane from Vanguard Drive to Borchards Quarry at the airport has been
completed.
Over the length of the priority lane (11.24 km), the travel time saving would be 42 minutes
during the peak based on an operating speed of 60km/hr compared with the existing
average observed speed of 12,5 km/hr.
A recent study by the City proposes that some of the existing priority lanes are extended
and that new lanes are provided elsewhere in the City. The locations of the proposed
facilities are shown in Figure 8.1 and listed in Table 8.2. Introduction of these lanes, plus
effective law enforcement of all lanes should increase the operating speed of public
transport vehicles throughout the City. This will provide shorter journey times for
passengers and allow buses and minibus-taxis to make more than one trip during the peak
periods.
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EXTENSIONS
PROPOSED
TABLE 8.2: PROPOSED EXTENSIONS AND NEW PUBLIC TRANSPORT PRIORITY
LANES
ROAD
FROM
TO
1
R27
Racecourse Rd
Section Rd
Distance
6.66
2
3
Voortrekker/Albert Rd
Koeberg Rd
Koeberg Rd
Blaauwberg Rd
Russel St
Voortrekker Rd
4.33
10.91
4
Ottery Rd
Strandfontein Rd
Rosmead Ave
4.41
5
Strandfontein Rd
Spine Rd
5th Ave
5.03
6
Turfhall Rd
Vanguard Dr
Flamingo Cres
3.30
7
Wetton Rd
Strandfontein Rd
Rosmead Ave
3.49
8
Lansdowne Rd
Prince Arthur
Palmyra Rd
3.22
9
Blaauwberg Rd
R27
Koeberg Rd
3.73
10
11
Main Rd
Main Rd
Russel St
Campground Rd
N2
Stanhope Rd
3.98
0.77
12
Main Rd
Wetton Rd
Constantia Rd
1.33
13
Plattekloof Rd
Koeberg Rd
N7
1.25
14
Bosmansdam Rd
Montague Dr
N7
1.20
15
N2
Borchards Quarry
Vanguard Dr
5.75
16
N2
Oswald Pirow
Liesbeek Parkway
5.72
17
18
Klipfontein Rd
Klipfontein Rd
Jan Smuts Dr
NY1
Liesbeek Parkway
Vanguard Dr
3.42
2.47
19
Vanguard Dr
Aft Gunners Circle
Voortrekker Rd
2.41
Source: City of Cape Town
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City of Cape Town: Public Transport Plan 2006
N2 after Jan Smuts (06:00 - 09:00)
5000
388
NUMBER OF VEHICLES
4000
295
330
38
251
96
48
113
67
3000
3,153
3,422
3,521
2000
1000
0
Lane 1
Lane 2
Bus Lane
TIME PERIOD
Light Vehicle
Heavy Vehicle
Bus
Minibus-Taxi
Source: City of Cape Town
FIGURE 8.2: MODAL SPLIT ACROSS LANES ON THE N2
Klipfontein Rd after Hazel Rd
2000
104
NUMBER OF VEHICLES
1500
63
20
7
274
33
1000
1,443
1,137
500
223
57
34
0
Lane 1
Lane 2
1
Bus Lane
TIME PERIOD
Light Vehicle
Heavy Vehicle
Bus
Minibus-Taxi
Source: City of Cape Town
FIGURE 8.3: MODAL SPLIT ACROSS LANES ON KLIPFONTEIN ROAD
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City of Cape Town: Public Transport Plan 2006
Main Rd after Durham Ave
1400
59
NUMBER OF VEHICLES
1200
14
1000
800
21
115
88
28
600
1,139
400
723
141
200
98
21
0
Lane 1
Lane 2
0
Bus Lane
TIME PERIOD
Light Vehicle
Heavy Vehicle
Bus
Minibus-Taxi
Source: City of Cape Town
FIGURE 8.4: MODEL SPLIT ACROSS LANES ON MAIN ROAD
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City of Cape Town: Public Transport Plan 2006
ISSUES
•
Illegal usage of public transport lanes by private vehicles
•
Parked vehicles obstruct movement along public transport lanes
•
No prioritisation for public transport vehicles at intersections
•
Incomplete network of lanes
STRATEGIES
•
Provide effective law enforcement of public transport lanes to present illegal usage of
lanes by general traffic
•
Provide prioritisation for public transport vehicles through major intersections
•
Extend existing and provide new priority lanes where needed to improve the operating
speeds of public transport vehicles
•
Ensure the usage of priority lanes by public transport vehicles through promotion of
mixed land use and high densities along corridors and at nodes
PROJECTS
Project M1: Law Enforcement of Public Transport Lanes
Jurisdiction of many of the major roads used by public transport vehicles is
shared by provincial and local government. The purpose of this project is to
co-ordinate law enforcement on these roads so as to discourage the illegal
usage of priority lanes by general traffic.
Project M2: Prioritisation for
Intersections
Public
Transport
Vehicles
through
Major
The purpose of this project will be to study, design and implement a system
of providing prioritisation for public transport vehicles through major
intersections.
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City of Cape Town: Public Transport Plan 2006
Project M3: Extend and Provide New Priority Lanes
The City has identified strategic locations in the road network where priority
lanes could be provided to shorten the journey times of passengers and
improve the operating speeds of public transport vehicles. This project will
undertake the design of these proposals and plan their implementation.
Specific tasks will be to select the best cross-section for the infrastructure
(lane or busway) and the effect of its implementation on general traffic.
8.3
NON MOTORISED TRANSPORT
Most journeys made by mainstream public transport involve a link where the passenger
utilises “non-motorised transport” (NMT). This link can be on foot or bicycle. It is
generally at the beginning and end of the journey when the passenger travels to join the
service from their home and leaves it to reach their destination. Safe, pleasant and well
maintained sidewalks and cycle paths are therefore an important component in promoting
and operating public transport services in the City.
ISSUES
•
NMT is not generally recognised as a mode of transport. This lack of recognition is
manifested in a general lack of consideration for pedestrians and cyclists by motorists
•
The NMT environment in Cape Town is generally characterized as a poor quality
environment. Sidewalks are often not provided or are poorly maintained and
inadequately lit. Public spaces are often not sociable, seldom used and infiltrated by
crime.
•
In the past there has been a lack of an integrated planning approach which recognises
that NMT forms an important component of a passengers journey.
STRATEGIES
•
Strategies have been identified to improve the NMT environment in the City. Those that
relate to public transport include:
-
Provision of an integrated transport planning approach that includes NMT
-
Improvements to connectivity and mobility involving planning and provision of NMT
infrastructure that supports public transport
-
Provision of people safety and security
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City of Cape Town: Public Transport Plan 2006
PROJECTS
Project N1: Development of NMT on the Klipfontein Corridor
This project entails the provision of an NMT network to support the
Klipfontein Public Transport Corridor will be designed and implemented. The
short and medium term projects include:
•
Access to Nolungile Station, Improved pedestrian environment along
Lansdowne Road, linked to Njongo Avenue
•
Access to Nonqubela Station, Improved pedestrian environment along
Aliam Street and Tabulele Avenue. Includes sidewalks, traffic calming,
landscaping, stairs to pedestrian bridge
•
Spine Road, NMT link along Spine Road between Tourist Gateway and
Lansdowne Road intersection
•
NY1, NMT link between Klipfontein Road and Lansdowne Road
•
Ngulube/Emms Drive, NMT link between Philippi Station and Klipfontein
Road
•
Heideveld Pedestrian Bridge, street to street pedestrian bridge over rail
at Heideveld Station
•
NY3/ Terminus/ Sithandatu, NMT link
•
Big Lotus River, NMT link between Klipfontein and Nyanga Station
•
Bosduif/Petunia Road, NMT link along Bosduif and Petunia to Klipfontein
Road
•
Hazel Road, NMT link along Hazel/ Pooke/ Surran Roads between
Klipfontein and Hanover Park
•
Klipfontein/ Durban Road, NMT link between Red Cross Hospital and
Main Road Mowbray
•
Liesbeek Parkway, NMT link along Liesbeek Parkway, Albert Road, Salt
River, New Market Street to CBD
•
Salt River Focus Area, Salt River Circle pedestrian facilities and
pedestrian link between Salt River station and Victoria Road via Cecil
Road, Salt River
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City of Cape Town: Public Transport Plan 2006
•
Woodstock Focus Area, pedestrian link between Woodstock Station and
Zonnebloem via Station Road and Searle Street, Woodstock
Project N2: Development of City-Wide NMT Network
NMT networks will be developed aimed at:
•
The movement of children to crèches, education, sport and recreation
facilities and amenities along routes that are comfortable, safe and fun
to walk/cycle along
•
Movement in the off-peak periods, for those doing shopping, etc
•
The movement of employed persons using public transport on a daily
basis along routes that are comfortable, safe, convenient and provide
opportunities for social and economic interaction
The following projects are included:
•
•
•
•
•
•
•
•
•
•
•
•
8.4
NY3/Terminus/Sithathu, Gugulethu
NY3/Koornhof/Sithathu, Gugulethu
NY1, Gugulethu (Completion)
Mew Way, Khayelitsha
Spine Road, Khayelitsha/Mitchells Plain
Swartklip Road, Mitchells Plain
Morgenster Road, Mitchells Plain
Beach Road, Greenpoint
Somerset Road, Greenpoint
Willie van Schoor/ Carl Cronje, Bellville
Modderdam/ Symphony, Bellville
Marine Drive, Paarden Eiland/ Milnerton
FARE POLICY AND SUBSIDY SYSTEM
Currently the responsibility to set the fare policy and subsidy system and fare levels does
not lie with the City. Commuter rail fares are determined by the national government, bus
fares by national and provincial government and minibus-taxi fares by the operator.
However, the City’s vision for public transport requires public transport to be affordable
both to the passenger and the provider of the service. Consequently, a key driver to
realise this vision are the fare policy and subsidy systems that are adopted.
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The fare policy determines the structure of the fares. The levels of fares charged to the
passenger in terms of the fare structure should reflect the level of service offered by a
particular service as well as the cost of providing that service. The structure is to adhere to
the following general principles:
•
•
•
Fares should be used as an instrument for achieving overall transport policy objectives
The structure should be user friendly, transparent and easily understood by all
A uniform fare structure should apply to commuter rail, bus and minibus taxi-type
services
Where users cannot afford the full commercial cost of services, the fares should be
subsidised. In such cases, subsidies should be allocated to targeted recipients who are
most in need of the subsidy.
The desired level of subsidy will depend on the needs of each recipient group and the level
of funding required to achieve the desired goals. The actual level of subsidy will depend on
the availability of sustainable funding. Its allocation should, as far as feasible and practical,
be directed at the intended recipients rather than the service provider.
ISSUES
•
A fare policy and subsidy policy needs to be developed to support the City’s transport
and developmental agenda aimed at more equitable and socially just provision of
transport
•
The subsidy policy needs to balance the affordability both of the users of public
transport and the funding agency
•
Lack of an agreed fare structure across the different modes of transport
•
The need for fare structure and fare levels to be applied to the restructured road based
public transport system to be implemented in the transformation of the existing interim
contract to the scheduled service contracts
STRATEGIES
•
Review and development of a fare structure and subsidy policy in the light of the City’s
transport and development agenda. This needs to be considered together with the cost
of providing the restructured and enhanced service through the tendered contracts
•
Develop a revised fare structure to be implemented with the introduction of the
restructured scheduled public transport services
•
Determine fare levels
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City of Cape Town: Public Transport Plan 2006
PROJECTS
Project O1: Fare Policy and Subsidy Policy
This project will entail a revision and development of a new fare structure
for the restructured public transport system. The project will include options
for targeting subsidy in terms of the City’s policy, affordability of users, and
the subsidising agency, subsidy levels required, subsidy contributions from
different spheres of governments. The project will need to take into account
the costs of the enhanced services to be provided through the restructured
service and tender contracts.
8.5
INTEGRATED FARE MANAGEMENT AND AVL SYSTEM
One of the City’s objectives is the transformation of the existing public transport system
from one in which commuter rail, buses and minibus taxis operate substantially in
competition with each other into an integrated, restructured system which provides a
seamless journey for its passengers. A multi-modal, integrated fare management and
automatic vehicle location (AVL) system is essential to the success of this objective as it
will:
•
•
•
•
•
•
•
Provide the passenger with a seamless ticketing interface between public transport
modes
Provide a safer, more user-friendly environment by reducing the risk of theft of cash
Reduce fare evasion and fraud
Increase flexibility in implementing new fare structures
Provide better management and monitoring information
Provide better fleet management
Provide real-time passenger information
An integrated ticketing system consists of the following components:
•
•
•
Ticket and smartcard sales and distribution system
Electronic verification and access control system
Back office and management information system
The ticket and smartcard sales and distribution system typically includes a combination of
different options, such as:
•
•
•
•
Automatic vending machines at interchanges and principal stops
Point of sale equipment in retail outlets
Traditional ticketing offices
Portable ticket issuing and verification machines
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City of Cape Town: Public Transport Plan 2006
The electronic verification and access control systems differ for the different modes of
service. Commuter rail and Bus Rapid Transit services utilise electronically controlled
access gates at platforms whilst standard buses, including minibuses, verify tickets onboard the vehicle. All vehicles providing scheduled, contracted services and, ideally all
unscheduled vehicles and metered taxis should be fitted with compliant equipment.
The Back Office and Management Information System captures and audits the ticketing
information for all the modes and individual operators using the system.
Currently, both the South African Rail Commuter Corporation and the Provincial
Government: Western Cape are investigating the provision of ticketing systems for
commuter rail and road-based services. It is the intention of the City to ensure that the
implementation of the ticketing system achieves the objectives of the City.
Complementary to the provision of the integrated fare management system is an Automatic
Vehicle Location (AVL) system. This comprises:
•
•
Geographical location device on-board the vehicle
Back office and management system
It enables the position of the vehicle to be monitored by the book office and management
staff and alerts that staff to potential problems so that they can instruct negating actions.
It also provides factual data on which to regulate services that are provided under
contracts.
ISSUES
•
•
•
Existing ticketing systems are not compatible with each other
Technical specifications have not been agreed by all parties
More than one stakeholder is developing the system
STRATEGIES
•
Seek agreement by all stakeholders on technical specifications
•
Establish, with relevant stakeholders, back office and management information system
for an integrated fare management and automatic vehicle location systems
Project P1: Development of Integrated Fare Management and AVL System
Tender specifications for the provision of the Integrated Fare Management
System and Automatic Vehicle Location will be developed.
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City of Cape Town: Public Transport Plan 2006
Project P2: Implementation of an Integrated Fare Management System
The Integrated Fare Management System will be implemented to tie in with
the implementation of the contracts for scheduled services. The project will
include:
•
•
•
•
8.6
The back office or data warehouse
Distribution system
Ticketing system
Access controls
SAFETY AND SECURITY
Public transport passengers expect to be able to undertake their whole journey in a safe,
roadworthy vehicle and without the threat of their personal security. Safety and security
must be a pre-requisite in the trip-chain of the public transport service, which consists of
the walking component, the board/alighting component and the vehicle trip itself. These
components together comprise the public transport journey, and therefore the safety and
security of the passenger is the joint responsibility of government and the operator of the
system.
ISSUES
The issues are complex, and affect the different modes in different ways. The main ones
are:
Safety:
•
Poor driving standards of road-based public transport vehicles, mainly minibus-taxis but
also certain classes of buses
•
The use of unroadworthy vehicles, mainly the minibus-taxis but also certain buses
Security:
•
A lack of a co-ordinated source of information on incidents especially at access points
and on walking routes to stations and ranks
•
The fragmentation of responsibility for safety and security
•
Crime and violence on the rail system. Not only have there been many casualties, but
the lack of proper policing on trains and at stations has created the perception that the
train service is unsafe and undesirable
•
Conflict within the minibus-taxi industry
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City of Cape Town: Public Transport Plan 2006
STRATEGIES
It is clear that the future improvement of public transport lies not only in the provision of a
good network and regular reliable services, but a great deal of attention must be placed on
improving both the safety and security on public transport. The strategies for achieving
this objective are:
Safety:
•
Monitoring the compliance of operators to maintain vehicle, driver and operational
safety standards
•
Improvement of the standard of vehicles used for public transport, particularly roadbased vehicles, by rigorous and systematic enforcement
Security:
•
Co-ordination of the efforts of all agencies involved in law enforcement, operational
practices, local and provincial government agencies involved in public transport
administration and the operators of public transport
•
Collection of information on crime, accidents and incidents involving all components of
the public transport trip-chain, and to develop an integrated database to better
understand the situation and to identify hot spots
•
The development of a detailed security strategy
PROJECTS
Project Q1: Deployment of Security Services
This project will entail the continuation of the management of interchanges
and the deployment of security personnel at public transport interchanges
under contract with the City. Further contracts will be implemented at new
major interchanges as they are implemented. A review of the contract
requirements in terms of personnel deployed will be undertaken as part of
this project. Facility management will be expanded to include mechanisms
such as access control and rank tokens.
Project Q2: Interchange Management Advisory Committee (IMAC)
Interchange Management Advisory Committee (IMAC) will be retained to
provide a forum for all stakeholders of public transport interchanges,
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City of Cape Town: Public Transport Plan 2006
operators, minibus-taxi associations, formal and informal traders, traffic
authorities and user representatives. The Committees serve as a forum to
canvass views on the needs, management and operational aspects of the
Public Transport Interchanges. New IMAC’s will be formed for the new
public transport interchanges to be developed.
Project Q3: Co-ordinate Strategy for Security on Public Transport
This project is to develop a co-ordinated strategy among all the agencies
involved in security to improve security on public transport.
Project Q4: Integrated Information System
This project is to develop an integrated information system on security
incidents on the public transport system. The information system will need
to be continually updated. The aim is to identify the high incident crime
areas for focussed and enhanced security measures.
Project Q5: Pilot Project of Public Transport Safety and Security Audit
This project is to undertake a pilot project in a high crime public transport
facility (taxi rank, public transport interchange, bus terminus) of an audit to
establish:
•
Safety and security design flaws at the facility
•
How communities may become involved in public transport safety and
security
•
A plan for the upgrade of the selected facility
•
To gain a better understanding of the factors that impact on public
transport safety and security in developing a “public safety and security
case study and handbook” that may be used as a reference in the
implementation of safety and security initiatives at other public transport
facilities
Project Q6: Provision of CCTV on Trains
Extend the pilot project to provide CCTV on the train service. The pilot
provided was funded with contributions from the City. The pilot project will
be expanded to cover additional number of trains.
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8.7
LAW ENFORCEMENT
The enforcement of the relevant laws regulating the public transport industry has been
inadequately applied in Cape Town for many years, and this has led to a situation where
many road-based public transport operators provide illegal transport and use vehicles of
poor quality. Cape Town has in the past made attempts to bring about effective public
transport law enforcement through the formation within the traffic department of “taxi
units”, but these have been insufficiently resourced.
All sectors of the public transport industry must be made to comply with the laws requiring
public transport operating licenses, roadworthy vehicles and the licensing of drivers. The
transformation of public transport services as envisaged in this Plan will need strong and
concerted enforcement, political support and the necessary resources.
ISSUES
The major issues are:
•
The lack of enforcement of operating licenses, which has led to a high number of illegal
operations primarily in the minibus-taxi and charter services.
•
Unacceptable numbers of road-based public transport vehicles, primarily minibus-taxis
and sedan taxis, also certain buses operating long distance transport and providing
learner transport, are unroadworthy due to the lack of enforcement.
•
Insufficient resources are provided for targeting the enforcement of public transport
and road traffic legislative provisions relating to operating licences, vehicle licences and
drivers licences.
•
The general lawlessness with regard to public transport operations encourages an
environment of non-compliance with laws in general, including criminal laws. This has
resulted in a minibus-taxi industry dominated by gangsterism and extortion.
STRATEGIES
Proper concerted enforcement of public transport operations has long been recognised as
the key to transformation of the current public transport system into a planned, regulated
and organised system. Without devising and then implementing an effective enforcement
strategy, any attempt to restore and improve public transport will be ineffective. The
strategies to achieve this vital objective are:
•
Establishment of a special unit for enforcement of public transport in Cape Town,
consisting of transport inspectors and traffic officers, sufficiently resourced to effectively
restore and maintain law within the public transport industry
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City of Cape Town: Public Transport Plan 2006
•
Provision of the necessary impoundment facilities
•
Provision of facilities throughout the City for the efficient spot-testing of vehicles for
fitness
PROJECTS
Project R1: Special Public Transport Unit
This project is to establish a specialised public transport unit dedicated to
public transport law enforcement. Its main purpose is to undertake
enforcement of operating licences.
Project R2: CCTV Enforcement of Public Transport Lanes
Technology solutions for the enforcement of public transport lanes will be
implemented. The project will commence on the N2 MBT lanes and extend
to the Klipfontein Road when the bus lanes are implemented. The project
will then extend to other corridor projects where public priority measures are
implemented.
8.8
PUBLIC TRANSPORT INFORMATION
Information provision is a key component of public transport provision and its promotion.
It:
•
•
•
•
Provides current users with clear details on services to undertake the required trip
Informs users of any important operational change
Reassures the passenger, therefore encourages them to use the service again
Acts as a specific “trigger” and places public transport “in the frame” which can lead to
a re-think of usual behaviour
A passenger information strategy is built around the chain of information requirements :
MAIN CATEGORY
SUB-CATEGORY OF INFORMATION TYPE
Awareness
Journey Planning
System Access
In-trip Information
Network Coverage
Route & Fare information
Stop & Station Access, Route Identification, Local Area Orientation
Service Information, Real Time
ISSUES
•
Lack of comprehensive passenger information covering the complete journey chain:
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City of Cape Town: Public Transport Plan 2006
-
Pre-travel information
In-travel information (static)
In-travel information (real time)
Customer care/feedback
•
The MTI Call Centre provides a good service but is not yet comprehensive to cover all
travel modes adequately
•
The passenger information will need wholesale updating to take into account the
proposed restructuring of the scheduled service
STRATEGIES
•
Promote & expand the Metro Trans Info call centre as the single point of contact for all
telephonic and web-based travel information
•
Develop a comprehensive passenger information system
PROJECTS
Project S1: MTI Call Centre
The MTI Call Centre will be maintained and further developed to take into
account the proposed restructured public transport service. The service will
be expanded to provide passenger information across all modes including
minibus-taxis and metered taxis. The option of using the MTI call centre to
undertake commuter satisfaction surveys will be evaluated. The use of the
MTI call centre to monitor complaints will also be evaluated.
Project S2: Development of a Comprehensive Passenger Information System
This project involves the development of a comprehensive passenger
information system which will include:
•
•
•
•
•
•
•
•
•
MTI Call Centre
Timetables
Posters
Information boards at public interchanges, ranks and terminals
At stop information
On-board vehicle information
Signage
Real time information
etc
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City of Cape Town: Public Transport Plan 2006
Project S3: Implementation of the Passenger Information System
A comprehensive passenger information system will be implemented.
8.9
PUBLIC TRANSPORT BRANDING AND MARKETING
The marketing and promotion of public transport is a vital element of changing peoples
perceptions, enlisting co-operation by all stakeholders, and building support for the public
transport system. These strategies will form an important element of the immediate
strategy to retain existing riders and the medium to longer term drive to bring a shift from
private to public transport.
Successful marketing approaches must follow product strategies tailored to the selected
target market. There are essentially four broad marketing strategies to select from, as
indicated below:
Current Market
New Markets
Current Products
New Products
Market Penetration
Strategies
Product Development
Strategies
Market Development
Strategies
Diversification
Strategies
ISSUES
•
Poor perceptions exist of public transport in terms of quality, availability of service,
safety, security, etc
•
The delivery of public transport is seen as fragmented and disjointed without overall coordination and management
•
There is a lack of information conveyed to the community of the intentions of
government agencies responsible for provision of transport services
•
Absence of livery for the services to be put out as tendered contracts
STRATEGIES
•
Marketing priorities must reflect the core corporate priorities. Given clear product and
service deficiencies, the appropriate focus is to strive for a dramatically altered service
targeted at the current public transport market. (Product Development Strategies)
•
The marketing role must focus foremost on aligning opinion internally and politically
making the case for fundamentally restructuring the public transport system. Vision
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City of Cape Town: Public Transport Plan 2006
Setting, Communication and Internal Marketing to achieve alignment within and
between Provincial and Metropolitan authorities as well as stakeholders is crucial
•
Any relevant promotional activity needs to be targeted and focussed clearly on the
visible improvements being pursued on a transport corridor basis
•
Develop a strong, recognisable brand and livery for the total public transport system
•
Promote and market public transport aimed at changing perceptions
PROJECTS
Project T1:
Develop Public Transport Brand
This project is to develop the branding for public transport in the City to
support the marketing and promotion of public transport. The branding will
apply all the full spectrum of public transport ie vehicles, facilities, passenger
information, promotion material, etc.
Project T2:
Develop the Livery for Contracted Services
The livery for the contracted services to be operated under the scheduled
service contracts will be developed and specified.
Project T3:
Develop and Implement a Comprehensive Marketing Strategy
This project is to develop a comprehensive programme to promote and
market public transport. Based on the project completed by the City in
2004, the components could include the following:
•
•
•
•
•
•
•
Vision selling
Market analysis
Stakeholder communication
Political marketing
General promotion
Branding and corporate identification
Target marketing of specific projects
8.10 PUBLIC TRANSPORT SERVICE AND QUALITY CHARTER
A service and quality charter is a high level agreement between transport authorities, and
the public to a set of performance goals and good practices. Such an agreement is
undertaken with the commitment of working together to achieve better outcomes to enable
users of public transport to assert their right to be involved in decisions on the type and
form of public transport, which directly affects them.
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Quality must be implemented in a “contract and partnership” based approach: Contract
based: between the public authority and the operators, for the aspects which depend on
the operators and on the authorities. The contracts can contain financial incentives for
improvement and continual evaluation by the Transport authorities to ensure compliance.
Partnership based: for all the aspects that require the involvement of several stakeholders.
ISSUES
•
Currently, the City does not have control over the performance standards achieved by
the providers of bus, rail, minibus-taxi or metered taxi services. Performance targets
and key indicators are the basis to performance management of public transport
services operating within the City of Cape Town
•
Detailing of the set standards and performance targets which are relevant, achievable
and affordable must be undertaken prior to any written commitment in the form of a
customer charter. Clearly the specification of these targets will be a significant issue for
debate between service providers and the City of Cape Town.
•
A national charter is being prepared by the Department of Transport but is not yet
available and may be inappropriate for the City.
STRATEGIES
•
Undertake a realistic assessment of standards and performance targets which can form
the basis of an initial service charter with service providers and the public, including
aspects relevant to the functions and responsibilities of the City in bringing about
improved public transport delivery
•
Once a clear framework for charter development is in place, develop performance
agreements that relate to legal requirements and contracted provision of public
transport services
•
Engage with commuter organisations and transport operators to develop a service and
quality charter
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City of Cape Town: Public Transport Plan 2006
An interim charter was previously developed by the City and can act as a guide for the
development of contracted scheduled services in the interim.
Trip Quality
Ideally:
•
•
•
Less than 60 minutes of travelling time
Maximum walking distance – 1km
Maximum number of transfers to be 2
The 1km walking distance criteria is in line with the national strategic objective put forward
in the White Paper on National Transport Policy. In normal society this is accepted as a
reasonable standard equivalent to approximately 15 – 20 minute walking time. However,
Cape Town is faced with a high crime level, especially in the marginalised areas where the
use of public transport is highest. The dangers are exacerbated by poor infrastructure,
inadequate lighting, and lack of surveillance. The 1km criterion should therefore be the
subject of wider public debate but should not be greater if public transport is to be
accessible to its passengers.
Service Levels
The ideal period of operation through the day should be as follows:
•
•
18 hours from Monday to Saturdays
15 hours on Sundays and Public Holidays
Services are to be provided with a frequency which provides the capacity to meet the
demand, but subject to the aim of a minimum desirable level of frequency.
TABLE 8.3: DESIRABLE MINIMUM FREQUENCY OF SERVICE
Mondays – Saturdays
Type of Service
Peak Period
06:00 – 08:30
16:00 – 18:30
10 minutes
Off-Peak
Period
08:30 –
16:00
20 minutes
18:30 –
20:00
30 minutes
30 minutes
Line-Haul Non-Corridor Routes
20 minutes
30 minutes
30 minutes
30 minutes
Feeder to Corridor Routes
Feeder to Non-Corridor Routes
5 minutes
10 minutes
10 minutes
15 minutes
15 minutes
15 minutes
15 minutes
15 minutes
Line-Haul Corridor Routes
Evening
Sundays/
Public
Holidays
Day/
Evening
Source: Moving Ahead Pt 2 – Public Transport Operational Component
PROJECTS
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Project U1: Development of a Public Transport Charter
A public transport charter covering the quality and level of service of public
transport including the items listed in the diagram below will be developed:
TRANSPORT
TRANSPORT MODE
MODE SPECIFIC
SPECIFIC QUALITY
QUALITY CHARTER
CHARTER ASPECTS
ASPECTS
Service
Service Quality
Quality Components
Components
RAIL
RAIL SERVICE
SERVICE CHARTER
CHARTER
•• maximum
maximum age
age of
of vehicles
vehicles
or
or rolling
rolling stock
stock
•• accessibility
accessibility of
of service
service
•• level
level of
of staff
staff interaction
interaction
BUS
BUS &
& TAXI
TAXI
•• service
service frequency
frequency
SERVICE
SERVICE CHARTER
CHARTER
TRANSLATE
TRANSLATE
AND
AND
•• level
level of
of punctuality
punctuality
•• level
level of
of comfort
comfort
•• level
level of
of information
information
ARTICULATE
ARTICULATE
METERED
METERED SERVICE
SERVICE
CHARTER
CHARTER
•• level
level of
of safety
safety and
and security
security
•• level
level of
of cleanliness
cleanliness
•• reimbursement
reimbursement due
due to
to service
service
shortcomings
shortcomings
•• level
level of
of integration
integration
•• brand
brand recognition
recognition
NMT
NMT SERVICE
SERVICE CHARTER
CHARTER
•• others…
others…
Project U2: Transport Forum
A Transport User Forum will be established for consultation on the
development of the transport system. The aim of the Forum is to service as
a consultative body to identify transport problems and issues, contribute
towards policy formulation, development of projects, and the monitoring of
progress.
The representation will be as follows:
•
•
•
•
•
One person per ward, elected by the ward structures
Persons elected by umbrella organisations
Persons elected by transport provider associations
Nominated officials from the Transport Authority
Nominated officials from the PGWC Department of Transport and Public
Works
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9.
PLANNING PROGRAMMES AND PROJECTS
9.1
INTRODUCTION
A continuing programme the further planning, development and refinement of the public
transport system will be undertaken as part of the implementation of the Public Transport
Plan. This continued planning and refinement is required because of:
•
the rapid urbanisation and major socio-economic changes taking place in the City which
places new and changing demands on public transport
•
major land use changes
•
the dynamic and changeable nature of public transport
•
changes in the economic outlook in the country and in the City
•
changing and rising aspirations of existing and potential public transport customers
•
technological changes in transport
A comprehensive programme and set of projects is required as part of the Public Transport
Plan strategy in order to:
•
to position the City to anticipate and make the necessary interventions to respond to
the pressures of socio-economic and technological environments
•
to refine and improve the planning information and planning techniques in order to
improve planning processes and planning responses
•
to monitor and review the progress towards the attainment of the public transport
goals and objectives
•
to comply with the requirements to update and review the statutory plans
This Chapter sets out the planning programme to be implemented as part of the Public
Transport Strategy.
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9.2
PUBLIC TRANSPORT PLANNING PROGRAMMES AND PROJECTS
Project V1: Review and Update of Statutory Plans
The NLTTA requires the City, as the planning authority, to update and
review the various statutory plans on a regular basis. The Operating
Licences Strategy for instance needs to be updated on a continuous basis
and updated at least once a year. The proposed revisions to the NLTTA,
which are expected to be enacted in the near future, change the format for
the statutory plans and require a different review period. It proposes the
preparation of an Integrated Transport Plan containing all the elements of
the five statutory plans currently prepared ie CPTR, OLS, RATPLAN, PTP,
ITP. This project will update the source information required for the
preparation of the Integrated Transport Plan, and prepare the Integrated
Transport Plan and its supporting documentation in terms of the amended
requirements.
Project V2: Demographic Forecasts and Land Use Integration
Land use, demographic and socio-economic trends will be monitored and
updated, and their implications for the transport system assessed in the light
of the City’s Spatial Development Framework. The information will indicate
the need for changes and amendments to the transport system, need for
new services in developing areas, as well as essential planning information
for other transport planning projects such as the refinement of the transport
model.
Project V3: Update and Refinement of the Transport Model
The City’s transport model will be developed and refined to provide
improved transport planning capability. The model will be used to test the
feasibility and implications of future land use/transport options and future
transport needs.
Project V4: Corridor Feasibility Studies
Feasibility studies will be undertaken to plan and develop Integrated
Strategic Public Transport Corridors and dedicated public transport priority
schemes in line with the Development Corridor Strategy and Mobility
Strategy. These include the Koeberg Road, Lansdowne/Wetton, Vanguard
Drive, Symphony Way corridors.
This project will include feasibility studies of public transport priority
measures on the N1 and N2 freeways such as dedicated lanes, High
Occupancy Vehicle lanes (HOV), High Occupancy and Toll lanes (HOT), etc.
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Project V5: Project Identification and Feasibility
Projects will be undertaken for the identification, feasibility and economic
evaluation of major new and upgraded public transport projects, including
new rail lines, rail stations, public transport interchanges, etc.
Project V6: Public Transport Impact Studies
Impact studies of major land use development will need to be undertaken as
a statutory requirement to approve or refuse major land use changes. The
needs for public transport facilities to serve major developments including
an assessment of private sector funding contributions will also need to be
undertaken.
Project V7: Funding Strategy
Funding strategies for public transport will be investigated, evaluated and
developed which will need to include capital, operational, and subsidy
funding requirements.
The project will include evaluation and
implementation options of alternative sources of funding.
Project V8: Taxi Recapitalisation Programme
In liaison with the Province and the Department of Transport, strategies for
the implementation of the Taxi Recapitalisation Programme will be
developed and implemented.
Project V9: Transport Information System
A comprehensive public transport information system will be developed.
This will need to comply with the Provincial and National information
systems requirements and include their key performance indicators (KPIs).
Key performance indicators and performance measures applicable to the
City to measure the performance of the public transport system and the
attainment of objectives will be developed as part of this project.
Project V10: User Preference Surveys and User Attitude Surveys
User preference surveys and user attitude surveys will be undertaken to test
levels of satisfaction with public transport and identify the need for
improvements. These surveys will also be used to test the latent demand
for public transport, including those areas currently not served or underserved by public transport, and the strategies required to increase ridership
and bring about shift riders from private to public transport.
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Project V11: Environmental Policy for Transport and Alternative Technologies
The project will develop the City’s transport environmental policy including
investigation of the use of alternative technologies.
Project V12: Transport Operational Plans for the FIFA 2010 World Cup
Detailed transport operational plans for the FIFA 2010 World Cup will be
developed.
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10. INSTITUTIONAL STRUCTURES
10.1 INTERGOVERNMENTAL INTEGRATED DEVELOPMENT STRATEGY
A Presidential Imbizo, held in December 2005, led to the establishment of an Intergovernmental Integrated Development Task Team to consider critical service delivery and
development issues in the City of Cape Town. An initial report of this Task Team was
prepared in February 2006, proposing a common inter-governmental agenda for the
development of Cape Town and its region.
The purpose of this initiative was to consolidate a common vision and alignment of all
governmental plans, identification of large-scale interventions that go beyond the
competencies and capacities of any one sphere of government, and to inform budget
priorities and project funding in the City of Cape Town and its functional region.
The report identified three critical outcomes – shared prosperity, an inclusive and equitable
society and an ecologically sustainable future – that must be achieved by the
transformation strategy. Each outcome was given targets to be achieved by 2014 to
measure strategic progress. One of these targets is a 50% improvement in an “Access
Index” which incorporates proximity to service centres, public transport, education, health
and recreation facilities.
Twelve priority areas for intergovernmental action are:
•
•
•
•
•
•
•
•
•
•
•
•
An infrastructure and spatial development plan
Restructuring and integrating the urban core
Sustainable and integrated housing development
Public transport as a critical priority
Enhancing urban service infrastructure
Enhancing safety and security
Action for sustainable resource use
Formal Business Support
Economic support for the poor
Human and social capital development
Improving the regulatory environment
Better public administration
The Task Team also proposed the need for appropriate institutional arrangements to
facilitate co-operation and collaboration between the City and Provincial governments,
alignment of plans and budgets and the identification of lead initiatives for
intergovernmental action. The report stresses that a plan for public transport must be
completed as a high priority, premised not only on the economic, equity and environmental
benefits – but also the investment opportunities afforded by the 2010 Soccer World Cup.
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Public transport is seen as key to both integrated human settlement and to growth and
competitiveness in the urban region.
10.2 INSTITUTIONAL ROLE OF THE CITY OF CAPE TOWN
The City of Cape Town is designated in terms of the Municipal Demarcation Act (Act 27 of
1998) as a unitary Metropolitan municipality. It exercises executive authority and the
rights to administer municipal functions listed in Part B of Schedules 4 and 5 of the
Constitution. In terms of the Constitution, the functional areas assigned to municipalities,
relevant to public transport, are:
•
•
•
•
•
Municipal planning
Municipal public transport
Public works in respect of its functional areas
Municipal roads
Traffic and parking
Whilst public transport is designated in the Constitution as a concurrent national and
provincial function, the Constitution requires national and provincial government to assign
functions to local government where they can be more effectively administered if there is
capacity to do so.
The City of Cape Town is also charged with the responsibility, in terms of the National Land
Transport Transition Act (Act 22 of 2000), to prepare a series of transport plans including
the Public Transport Plan, and also to provide recommendations to the duly appointed
Provincial body responsible the granting of licences to operate public transport services.
10.3 CO-ORDINATING STRUCTURES
The City participates in a number of co-ordinating structures at provincial and national
level:
•
PROVCOM/PROVTECH.
The
City
is
represented
on
the
Provincial
PROVCOM/PROVTECH structure and the six co-ordinating committees of PROVTECH.
The main purposes of these structures is to serve as a consultative and co-ordinating
body aimed at alignment across the province on policy and technical matters related to
transport.
•
Committee of Transport Officials. Though its representation on South Africa Local
Government Association (SALGA), the City is represented at the Committee of
Transport Officials (COTO) which is a policy forum on transport matters between the
national and provincial Departments of Transport. Formerly the City, as a metropolitan
transport area under the Urban Transport Act, had direct representation on the
committee. The current arrangement is considered as inadequate for such an
important forum for addressing transport matters. As a major metropolitan area facing
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important challenges on public transport issues, the previous arrangement of direct
representation at this committee is considered appropriate.
•
Rail Liaison Committees. The City is represented on two rail liaison committees: the
Rail Liaison Committee with representation from the City, Province and the SARCC; and
the Rail Working Group with representation from the City, Province, SARCC, Metrorail,
Spoornet, and Propnet. The committees are aimed at improving co-ordination on rail
transport planning, implementation and operations.
•
South African Cities Network. The City is one of nine cities in South Africa
participating in the Cities Network which is a forum for information exchange, best
practice on urban management. Its goals are to promote good governance, shared
learning and debate on the strategic challenges.
10.4 POLICY FRAMEWORK
The Constitution requires national and provincial government to assign functions to local
government subject to certain conditions.
“156(4) The national government and provincial governments must assign to a
municipality, by agreement and subject to any conditions, the administration of a matter
listed in Part A of Schedule 4 or Part A of Schedule 5 which necessarily relates to local
government, if(a) that matter would most effectively be administered locally; and
(b) the municipality has the capacity to administer it.”
Drawing on the Constitutional principles, the White Paper on National Transport Policy
supported the devolution of public transport functions:
“The principle of subsidiarity and devolution of public passenger transport functions,
powers and duties to the lowest appropriate level of government is confirmed.”
It also advocated the concept of Transport Authorities for metropolitan area to assume
responsibility for the full spectrum of transport functions.
The Draft Provincial Land Transport Framework gives support to the recognises of
devolution of transport functions and the establishment of transport authorities:
“The Western Cape Provincial Department of Transport and Public Works supports the
concept of the devolution of functions to the lowest sphere of government which is
competent to perform them.
The premise that all functions would be better performed if managed by a single
organisation is technically sound, however the practicalities of such still require
investigation in the Western Cape.”
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10.5 TRANSPORT AUTHORITY FOR THE CITY OF CAPE TOWN
10.5.1 Legislative Provisions
The National Land Transport Transition Act gave effect to the policy in the White Paper on
National Transport Policy and made provision for the establishment of Transport Authorities
if their effect is to improve transport service delivery in the local sphere of government by
grouping transport functions into a single well managed and focussed institutional
structure.
In 2000, an investigation was undertaken on the establishment of a Transport Authority in
the City of Cape Town. As part of this project, a draft Founding Agreement was prepared.
Since then a number of legislative and institutional changes have taken place, namely
finalisation and enactment of the NLTTA, designation of the City of Cape Town as a Unicity
metropolitan municipality, enactment of local government legislation in the form of the
Municipal Systems Act (Act 32 of 2000) and the Municipal Finance Management Act (Act 56
of 2003).
10.5.2 Case for the Transport Authority
There is a compelling case for a Transport Authority in the City of Cape Town. World Best
Practice is testimony to successful transport authorities in complex metropolitan areas
where the issues such as multi-modal transport systems, integration between modes,
co-ordination, ticketing and fare structuring, contracting for public transport services,
regulation are paramount. All these issues pertain to Cape Town and need to be
addressed if the City is to attain its vision for public transport.
The case for a transport authority derives from the need to overcome the current
institutional dysfunction which currently exists. The White Paper on National Transport
Policy identified the fragmentation of functions between different spheres of government
and within local government structures as one of the key factors hampering the effective
delivery of transport system in South Africa. This sentiment was echoed in the Moving
South Africa Strategy which identified the need for “effective innovative and enabling
institutional and regulatory structures supported by sustainable funding arrangements.”
The World Bank also identified institutional strength as a key success factor:
“The strength of urban transport institutions has a very considerable bearing on the
effectiveness of public transport…. The experience of aid agencies, including the World
Bank, is that institutional weakness in the primary reason for poor project implementation
and performance.”
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It particularly listed public transport as demanding on appropriate institutional structuring:
“Of the many components of urban transport, public transport is probably the most
demanding on city authorities, and brings out any weaknesses or strengths in the
institutional structure. The effectiveness of public transport is particularly dependent on
there being a sound institutional basis for the formulation and implementation of policy and
planning.”
In addressing the institutional dysfunction, the Transport Authority can position the City to
improve transport service delivery through a number of ways:
•
Integration and improved service delivery is facilitated by having all modes under the
control of one authority. Effective transport delivery relies on the control over the vital
components of service delivery; policy, planning, co-ordination, service provision,
regulation, and monitoring
•
Alignment to a common vision is more easily secured by removing the fragmentation of
responsibility which overcomes the potential for different priorities, conflicting political
agendas, inertia in decision-making, etc
•
The allocation of funding can be better utilised with control over the full range of
transport functions
•
The Transport Authority brings about greater local accountability with a single
customer-facing agency for all transport users, commuters of all modes, freight,
visitors, tourists, business, etc
•
A more focussed and dedicated attention to transport with the potential for a
heightened profile
The NLTTA lists the six compulsory functions and a wide range of optional functions which
can be negotiated to be assigned to a Transport Authority, established under the provision
of the NLTTA.
A majority of these functions are municipal functions in terms of the Constitution in so far
as they relate to local interest and local matters. It is accepted, however, that a number of
these will be shared functions, as provided for in the Constitution, where national and
provincial responsibility vests with setting a broad national or provincial policy framework,
the matters of national interest, norms and standards, etc.
The Constitution defines municipal functions in Part B of Schedules 4 and 5 as follows:
•
•
•
Municipal public transport
Municipal roads
Traffic and parking
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•
Municipal planning
The functions which currently are not assigned to the City are:
1) provision of rail services – currently a national competence and managed by the SARCC
under the Department of Transport
2) provision of the existing subsidised bus contract – this is the interim contract with
Golden Arrow Bus Services (GABS) which will be transformed into tendered or
negotiated service contracts. This function is currently performed by the Provincial
Government Western Cape Department of Transport and Public Works with funding
from the Department of Transport
3) the regulation function, ie the Provincial Operating Licensing Board – currently
performed by the Provincial Government Western Cape Department of Transport and
Public Works
Apart from the three functions listed above, the City is empowered, mandated and required
to perform the functions listed in the NLTTA as possible Transport Authority functions, and
no further assignment of these functions from another sphere of government is required.
The City of Cape Town will therefore perform the functions listed below but will need to
seek additional funding on a sustainable basis from other spheres of government to
implement certain projects which fall under these functions in support of its own
developmental objectives and national and provincial policy objectives.
•
Develop Transport Policy
Overall transport policy across all modes, including NMT, freight, etc
•
Transport Planning and Co-ordination
Statutory transport planning
Planning of road based transport
Rail planning
Transport/land use integration
Financial planning and budgeting
Government and agency liaison and co-ordination
•
Provision of Public Transport Services
Facilitation for provision of public transport services
Modal integration and integrated fare management systems
•
Development, Management of Infrastructure
Provision/maintenance of road infrastructure
Management of road infrastructure
Road network operations
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City of Cape Town: Public Transport Plan 2006
-
Provision/maintenance of road based public transport infrastructure
•
Regulation of Market Entry
Submission of comments on operating licences for the Provincial Operating
Licensing Board
•
Enforcement
Provision/co-ordination of enforcement agencies on traffic enforcement
Provision/co-ordination of enforcement agencies on enforcement of public
transport/operating licences
•
Safety and Security
Co-ordination of security agencies
Provision of security at public transport interchanges
•
Passenger Information
Provision of passenger information systems
Provision of call centre
•
Public Participation
Public participation
Stakeholders forums
•
Promotion and Marketing
Communication strategy transport
Provision and marketing of public transport
Branding
10.5.3 Implementation Strategy
Further investigations have been undertaken in 2005/06 on the establishment of a
Transport Authority.
The Council of the City of Cape Town in May 2006 resolved inter alia that:
•
The work done on the investigations to establish a Transport Authority be recognised
•
That a formal process of engagement take place with the national and provincial
spheres to seek agreement as the most appropriate Transport Authority
•
That a formal process of engagement with other stakeholders take place to seek
support
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City of Cape Town: Public Transport Plan 2006
•
That engagements take place with other municipalities, Provinces and National with
regard to exploring additional funding sources for transport to make Transport
Authorities viable
PROJECTS
Project W1: Establishment of a Transport Authority
This project is to establish a Transport Authority for the City of Cape Town.
The option of a Transport Authority as an internal structure within the City
at both the political and technical level will be investigated to perform the
transport functions. In addition, the phased assignment of the three
transport functions not currently assigned will be investigated, namely:
•
•
•
Rail function
Bus function
Regulation function
The investigation will need to be undertaken in liaison, consultation and
approval of the Department of Transport and Provincial Government
Western Cape Department of Transport with respect to these functions
currently performed by the respective spheres. The investigation will need
to include the following aspects:
•
•
•
•
•
•
•
•
•
•
Legal implications and required changes to legislation
Technical and practical implications
Financial implications
Contractual obligations including the operating contract with Metrorail
Funding requirements including sustainability of funds
Capacity and skills requirements
HR implications and labour law requirements
Ownership of assets and asset management
Liability
etc
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11. IMPLEMENTATION PLAN AND BUDGETS
Table 11.1 shows the implementation plan and estimated budgets. The implementation of
the projects is subject to the availability of funds.
The estimated budgets refer to disbursement costs for service providers and capital costs
for infrastructure. They do not include internal operating costs of the City, ie staff costs
and associated overheads.
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REFERENCES
ACTS:
Act
Act
Act
Act
Act
Act
Act
Act
22 of 2000, National Land Transport Transition Act
27 of 1998, Municipal Demarcation Act
78 of 1977, Urban Transport Act
74 of 1977, Road Transport Act
9 of 1989, Legal Succession to the SA Transport Services Act
32 of 2000, Municipal Systems Act
56 of 2003, Municipal Finance Management Act
4 of 2000, Promotion of Equity and Prevention of Unfair Discrimination Act
City of Cape Town: Summary of 2004/5 – Current Public Transport Record
City of Cape Town: Draft Integrated Development Plan, March 2004
City of Cape Town: Draft Integrated Development Plan 2005/2006, March 2005
City of Cape Town: Integrated Ticketing System and Fare Policy, Volume 1: Subsidy System
Analysis and Fare Policy, October 2004
City of Cape Town: Marketing and Passenger Information, June 2004
City of Cape Town: Mobility Strategy
City of Cape Town: Operating Licences Strategy, 2004
City of Cape Town: Public Transport Infrastructure Development and Maintenance Plan, October
2004
City of Cape Town:
Public Transport Safety and Security Strategy and Implementation
Programme, October 2004
City of Cape Town: Rationalisation of Public Transport Fares in the City of Cape Town, May 2001
City of Cape Town: Rationalisation Plan, 2004
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