FOR PUBLIC COMMENT
PROMOTING SUSTAINABLE
(GREEN) TRANSPORT IN
GAUTENG
(April 2014)
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MESSAGE FROM THE MEC FOR ROADS AND TRANSPORT
It is my pleasure to release the draft policy, Promoting Sustainable (Green)
Transport in Gauteng (April 2014), for public comment.
Sustainable (green) transport aims to minimise the adverse impact of transport
on the environment and simultaneously address current and future transport
demands based on sustainable development principles. It reduces the impact of
transport on the environment with respect to carbon emissions and the effects of
transport infrastructure on the immediate environment. This can be achieved
through reducing private car dependence in favour of public transport and nonmotorised transport as well as using low impact designs and materials for
transport infrastructure.
The 25-Year Integrated Transport Master Plan for Gauteng envisions a
sustainable (green) transport system that allows the basic access and
development needs of individuals, businesses and society to be met safely and in
a manner consistent with human and ecosystem health. It should be affordable;
operate efficiently; offer a choice of transport mode; and support a competitive
economy as well as balanced regional development. It must limit emissions and
waste; use renewable resources, and use non-renewable resources at or below
the rates of development of renewable substitutions, while minimizing the
impact on the use of land and the generation of noise.
This draft policy for sustainable (green) transport seeks to address the need to
limit the negative environmental impact of the transport sector in Gauteng.
Through joint ventures with other spheres of government and with organs in
civil society it provides policy directives to the transport sector on measures to
reduce carbon emissions, and to improve environmental conditions and the
health of our people in the province. Importantly, it sets out the critical policy
interventions necessary for promoting sustainable (green) transport.
The public is invited to comment on the draft policy so as to improve and refine
the policy proposals. Such comments should be addressed to Ms Angela
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Andrews via e-mail at angela.andrews@gauteng.gov.za and should reach the
Department no later than 30 June 2014.
Dr Ismail Vadi
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FOR PUBLIC COMMENT
PROMOTING SUSTAINABLE (GREEN) TRANSPORT IN GAUTENG
(Gauteng Department of Roads and Transport, April 2014)
1. INTRODUCTION
Sustainable (green) transport aims to minimise the adverse impact of transport on the
environment and simultaneously address current and future transport demands based on
sustainable development principles. It requires that socio-economic growth targets are met in
a way that guarantees greater safety to citizens and commuters alike and harmonises with the
natural, social or economic environment. Sustainable (green) transport reduces the impact of
transport on the environment with respect to carbon emissions and the effects of transport
infrastructure on the immediate environment. This can be achieved through reducing private
car dependence in favour of public transport and non-motorised transport as well as using low
impact design and materials for transport infrastructure.
In Gauteng, the transport sector contributes significantly to carbon emission levels due
to high levels of energy consumption and inefficient transport modes. This is likely to grow
in the foreseeable future as the population and the number of vehicles is predicted to increase
substantially over the next 25 years. It is further predicted that by 2037, Gauteng’s population
will increase from the current 12.5 million people to 18.7 million and its vehicle population
will increase from 3.560 million to 6.570 million by that time. Hence, the 25-Year Integrated
Transport Master Plan (ITMP25) of the Gauteng Department of Roads and Transport notes:
The expected growth trends show that by 2037 Gauteng’s population would
have grown to the current population of many other metropolitan areas in
the world. This means that the Gauteng City Region will have to
accommodate this growth in population as part of its development and
transport system. Similarly, the transport system will have to be developed
and expanded at a ‘comparable’ rate to ensure adequate levels of mobility. If
the transport system is not able to effectively deal with this growth,
efficiency, productivity and the provincial economy will be severely
constrained. Congestion will clog up the city region, the quality of life and
the urban environment will deteriorate, and the impact on the natural
environment will worsen substantially over time. (ITMP25, pp.16-17)
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Consolidation and densification of the urban fabric of the Gauteng City Region is thus of
utmost importance when considering how to enhance the sustainability of urban areas in the
province.
Addressing the negative impact of climate change has become a priority of governments
globally. Reducing the impact of the transport sector on emission levels can serve as
one of the greatest leaps towards providing a better future for the people of Gauteng. The
South African government at national, provincial and municipal levels have in the recent past
taken a number of legislative and policy initiatives to address this concern. These initiatives
are encapsulated in legislative, policy and strategic planning instruments. At the same time,
road infrastructure adaptation (such as reducing impermeable surfaces on roads or harvesting
surface run-off water) minimises the possibility for floods and associated damages to
transport and other public infrastructure in our province.
In developing a considered response to the impact of climate change in Gauteng, the ITMP25
states:
The major drivers of environmental change in South Africa are population
growth; economic activities; governance, and levels of technology and
innovation. The pressure on the transport system and its associated
infrastructure to develop is increasing. The goods and resources consumed
to develop the transport sector have a significant impact on the built and
natural environment. Various modes of transport affect the environment in
different ways. The potential environmental impact of transport
infrastructure depends largely on the types of land affected and its
immediate surroundings (e.g. wetlands, intact ecosystems, transformed or
altered land). Another important factor is the infrastructure characteristics
that can determine the impact on the landscape and the extent to which the
infrastructure is a barrier to the movement of animals or people. (ITMP25,
p.113)
The ITMP25, therefore, envisions a sustainable (green) transport system that allows the basic
access and development needs of individuals, companies and society to be met safely and in a
manner consistent with human and ecosystem health. Such a system should promote equity
within and between successive generations. It should be affordable; operate fairly and
efficiently; offer a choice of transport mode; and support a competitive economy as well as
balanced regional development. It must limit emissions and waste within the planet’s ability
to absorb them; use renewable resources at or below their rates of generation; and use nonrenewable resources at or below the rates of development of renewable substitutions, while
minimizing the impact on the use of land and the generation of noise.
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This strategic framework for sustainable (green) transport seeks to address the need to limit
the negative environmental impact of the transport sector in Gauteng. Through joint ventures
with other spheres of government and with organs in civil society the framework provides
policy directives to the transport sector on measures to reduce carbon emissions, and to
improve environmental conditions and the health of our people in the province. Lastly, it sets
out the critical policy interventions necessary for promoting sustainable (green) transport.
2. PROBLEM STATEMENT
Climate change is an unmistakable reality. It is a phenomenon that has occurred throughout
human history. Scientific research shows that the period since the Industrial Revolution has
seen a distinct change in global weather patterns that can be attributed to human activities.
The detrimental change in average global temperature coincides with a large increase in
energy use, including those for transport purposes.
In recent times there has been a dramatic increase in greenhouse gases such as carbon dioxide
(CO2), methane and nitrous oxides in the atmosphere, largely due to the burning of fossil
fuels. South Africa has not been left unscathed by the effects of global warming. The major
drivers of environmental change in South Africa are population growth, economic activities,
governance and levels of technology and innovation.
Road transport is the primary source of CO2 emissions in South Africa. Gauteng - as its
economic hub - is the largest contributor to the country’s emission index. The heavy reliance
of its energy, transport, mining, industrial, commercial and agricultural sectors on road-based
transport to move people and freight contributes both to a quicker deterioration of its road
infrastructure and higher levels of greenhouse gas emissions compared to other provinces in
the country. The pressures on transport and its associated infrastructure to develop are
enormous and the increasing resources consumed to develop the transport sector will in the
long term impact negatively on the environment.
The fragmented approach to city, regional, provincial and national planning results in
displaced urban development and distorted, fragmented, unequal and inefficient human
settlement patterns. More specifically for the transport sector in Gauteng - that has to
confront the legacy of apartheid spatial planning - the result has been the movement of people
across long distances from home to work. This is both time consuming and costly. It
entrenches a system of unequal access to resources and socio-economic opportunities. The
resultant travel patterns have a substantial effect on atmospheric conditions, specifically on
air quality, climate change and ozone depletion. It is clear that over time transport is likely to
have an increasing impact on land resources, water quality, air quality and biodiversity.
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Graph 1 below depicts the energy consumption of various sectors in Gauteng. The combined
energy consumption of the transport (freight and passenger) sector is 35 percent, while the
commercial and industrial sectors contribute to 48 percent of demand. The fact that passenger
transport alone contributes to a fifth of the energy consumption is alarming.
Graph 1: Gauteng Energy Consumption per Sector (Gauteng Department of
Local Government and Housing, Gauteng Integrated Energy
Strategy 2010)
Passenger
Transport
21%
Freight
Transport
14%
Residential Government
16%
1%
Commerce
4%
Industry
44%
The following graph depicts the demand for various types of energy. Notably, the demand for
petrol is second to the demand for coal, which is a primary resource for the production of
petrol. It is evident that the use of CNG (at four percent) is highly limited in the province.
Graph 2: Energy Demand per Carrier in Gauteng (Gauteng Department of
Local Government and Housing, Gauteng Integrated Energy
Strategy 2010)
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Natural Gas
4%
Kesasene
IPG
0%
Electricity
26%
Petrol
22%
Coal
35%
Diesel
13%
3. CURRENT LEGISLATION AND POLICY STATEMENTS
Numerous legislative and policy instruments have been developed by the national, provincial
and local spheres of government in the country to promote a green economy and to develop a
sustainable (green) transport agenda. At the heart of the new policies is the Constitution of the
Republic of South Africa, 1996, which provides in Section 24 that everyone has the right (a) To an environment that is not harmful to their health and wellbeing,
(b) To have the environment protected for the benefit of present and future
generations, through reasonable and legislative measures that (i) Prevent pollution and ecological degradation;
(ii) Promote conservation; and
(iii) Secure ecologically sustainable development and use of natural
resources while promoting justifiable economic and social
development.
South Africa also is a signatory to the Convention on Bio-Diversity, (1992) and the Kyoto
Protocol, (1997). In addition, the following legislation and policy statements have been
approved, which has an important bearing on sustainable (green) transport:




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National Road Traffic Act, (1996);
National Land Transport Act, (2009);
National Environmental Management Act, (1998);
Energy Efficiency Strategy, 2005;
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 White Paper on National Transport Policy, (1996);
 National Climate Change Response White Paper, (2011);
 National Development Plan, (2011).
The legislative and policy frameworks to deal more assertively with transport and carbon
emissions at a provincial level are:





Gauteng Integrated Energy Strategy, (2010);
Gauteng Strategy for Sustainable Development, (2011);
Strategy for a Developmental Green Economy for Gauteng, (2012);
Department Roads and Transport - Air Quality and Noise Management Plan,
(2012); and
The Gauteng 25-Year Integrated Transport Master Plan, (2013).
At a municipal level, the Minimum Requirements of Integrated Transport Planning
Regulations has relevance. Interestingly, the City of Johannesburg has an approved NonMotorised Transport Policy.
The overall strategic objectives of the above-mentioned legislative and policy instruments are
to ensure that road transport is managed in a sustainable manner with the least possible
impact on the environment. More specifically, they aim to:
 make public transport affordable, safe, reliable and accessible as an alternative to private
modes of transport;
 reduce traffic congestion and carbon emissions;
 promote non-motorised transport by providing safe infrastructure for its use;
 ensure the use of environmentally-friendly materials in road construction and
maintenance;
 ensure that spatial and route planning enhances green transport initiatives; and
 promote sustainable partnerships for better integration of various modes of transport.
Based on the above, the following targets have been set at different levels of government for
the reduction of energy consumption.
Policy
The Energy Efficiency
Strategy, 2005
Strategy for a
Developmental Green
Economy for Gauteng,
2005
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Target
9% by 2015
15%
(no year identified)
Target
objective
Reduction in energy
usage
Reduction in use of
private vehicle trips
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Gauteng Integrated
Energy Strategy, 2010
State of Energy Report
(City of Johannesburg)
State of Energy Report
(Ekurhuleni)
State of Energy Report
(City of Tshwane)
7% by 2014 and
15% by 2025
9% by 2015
15% by 2025
50%
(no year identified)
Energy efficiency
target
Transport efficiency
target
Reduction in
travelling time
Conversion of diesel
vehicles to bio-fuels
In essence, the aim in Gauteng is to reduce the overall consumption of fuel and to ensure that
residents adopt a shift in transport modes from motorised to non-motorised trips; private to
public transport; and from road to rail.
The Gauteng Provincial Government has a critical role to play in co-ordinating the use of
necessary resources effectively and efficiently to achieve these targets. It has to ensure that
the set targets are attainable by all stakeholders within the set timeframes. At the same time, it
must be recognised that there are already a number of interventions at various levels of
government and the private sector to promote sustainable (green) transport in South Africa.
The current, government-led initiatives are described briefly below.
4. CURRENT GREEN TRANSPORT INTERVENTIONS
There are several initiatives nationally, provincially and locally to promote sustainable
transport in South Africa. Nationally, these relate to promoting carbon trading markets; the
taxi recapitalisation programme, and imposing a carbon tax on new vehicles. The Gautrain
Rapid Rail Link and the Bus Rapid Transit systems are the hallmarks of the provincial and
municipal spheres of government respectively.
4.1. CARBON TRADING MARKETS
Carbon markets are mechanisms for exchanging emission reductions between entities,
thereby optimising efficiency and minimising cost in controlling pollution levels. They
include both cap-and-trade mechanisms in which mandatory limitations on emissions create
markets in which polluters trade emission allowances, offset schemes and voluntarily pay
compensation for emissions. National Treasury has been tasked with the responsibility to
investigate the feasibility of an emissions trading scheme in the medium- to long-term.
4.2. CARBON TAX
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The South Africa government strategy to make a contribution towards greenhouse gas
emissions mitigation is encapsulated in the National Climate Change Response White Paper
(2011). This was after the commitment made by South Africa at the Copenhagen Conference
of Parties (2009) to take appropriate national actions to curb greenhouse gas emissions by 34
percent by 2020 and a further 42 percent by 2025. The government advocates that greenhouse
gas emissions must be reduced while working to ensure economic growth, increase
employment, and reduce poverty and inequality. The White Paper on the Renewable Energy
Policy (2003) has called for concerted efforts to reduce its use of fossil fuels through the
implementation of renewable energy programmes aimed at reducing South Africa's
significant reliance on conventional fossil fuels.
The aim of a carbon tax is to punish polluters in the interest of the planet. National Treasury’s
Carbon Tax Policy Paper Reducing Greenhouse Gas Emissions and Facilitating the
Transition to a Green Economy (2013) states:
Emission reductions for the transport sector can be achieved by improving the
availability of more energy-efficient modes of freight and public (passenger)
transport, and promoting the use of alternative, cleaner fuels. Low-income
households spend a large proportion of their incomes on energy services and
transport. The availability of safe and affordable public transportation will
therefore provide relief to the poor, and more reliable transport will also
encourage a switch from private to public transport by middle income
households. In addition, although a significant proportion of South Africa’s
freight is transported by road, there are initiatives to improve the rail network
for freight so as to encourage a shift of freight from road to rail. (May 2013,
pp.7-8)
The policy calls for a carbon tax introduced via a phased-in approach in the near future. The
primary objective of implementing carbon taxes is to change current and future behaviour,
rather than to raise revenue. Therefore, it proposes a relatively low carbon price and then
increasing it progressively after five years. A carbon price can drive changes in producer and
consumer behaviour and in so doing address climate change.
The National Development Plan: Vision for 2030 (NDP) was published in November 2011. It
recognises key strategies that the government could implement to help stabilise, and then
reduce, South Africa’s greenhouse gas emissions. It requires a commitment to undertake
mitigation actions for ensuring a robust and transparent monitoring, reporting and verification
system. Strategies include the following:

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an appropriate mix of pricing mechanisms;
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


an expanded renewable energy programme;
an effective mix of energy efficiency and demand management incentives;
regulations to promote green buildings and construction practices; and
an investment in an efficient public transport system.
The NDP supports the use of a carbon price, through a carbon tax, to contribute to a costeffective, just and managed transition to a low-carbon economy that would begin to
internalise the environmental and social costs of greenhouse emissions. It recommends a
broad-based carbon pricing regime covering all sectors at one consistent price.
4.2. TAXI RECAPITALISATION
In part, the National Land Transport Transition Act (No.22 of 2000) aimed to formalise and
regulate the taxi industry. In the same year, the national Department of Transport instituted a
four-year taxi recapitalisation scheme with limited financial compensation to the owners of
the vehicles entering the scheme. The objective of the scheme is to replace the 15-seater
minibus taxis with 18 and 35-seater minibuses and to scrap the older vehicles altogether. It is
hoped that this would reduce the overall number of old, and possibly un-roadworthy minibus
taxis on the roads; improve passenger and road safety, and offer emission reduction benefits.
This programme has had limited success largely as a result of disagreements among taxi
associations as to the nature of the scheme and the governance model of the entity
responsible for overseeing the project. In 2004, the Minister of Transport released a revised
recapitalisation timeline. To date, 57 526 minibus taxis nationally have been scrapped. Of
these, 12 885 taxis have been scrapped in Gauteng.
4.4. PRASA RAIL MODERNIZATION
The Passenger Rail Agency of South Africa (PRASA), which is responsible nationally for
commuter rail services, aims to improve the reliability, quality and safety of rail services in
Gauteng. Over the next decade it aims to modernise and extend the commuter rail service. It
is anticipated that its Metrorail system will serve as the backbone of an integrated public
transport network in metropolitan areas in the province. Currently, Metrorail has 650 000
daily passengers and PRASA plans to increase its ridership to one million passengers per day.
The strategy for the rail commuter system in Gauteng builds on the Department of Transport
plans for the stabilization, rationalization, modernization and integration of rail commuter
services into the rapid public transport networks in Gauteng. PRASA aims to renovate core
station precincts; lay-out a new fibre optic signalling system and acquire new rolling stock so
as to render Metrorail as a transport mode of choice.
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4.5. SHOVA KALULA
In 2001, the national Department of Transport launched the Shova Kalula bicycle partnership
project as a low-cost, clean, healthy and sustainable mobility alternative for short-distance
movement. The aim is to distribute one million bicycles over time to selected social groups.
The project primarily targets learners from poor households in both rural and urban areas who
walk more than five kilometres to schools. Subsequently, the Department undertook to extend
the project to rural women, farm workers as well as ordinary road users in urban areas.
The project also promotes the construction of city-wide cycling infrastructure networks and
establishing micro businesses for the distribution and maintenance of bicycles. These
comprise low-cost, locally manufactured bikes and a delivery chain that includes a bicycle
repair training course and light engineering modifications to produce load carrying workcycles. Since the inception of the programme in Gauteng, the Department has distributed 20
000 bicycles, primarily to learners both in urban and rural schools.
4.6. GAUTRAIN RAPID RAIL LINK AND BUS SYSTEM
The Gautrain Rapid Rail Link is in part a green transport project. It is a medium speed rail
system that is electrically driven. Its current ridership exceeds 1.3 million passengers per
month and it has succeeded in reducing private motor vehicle usage on the roads. Presently,
75 percent of the 61 500 passengers who use Gautrain on a daily basis have indicated that
they had previously travelled in private cars from home to work. In addition, Gautrain busses
that transport over 23 000 daily passengers to the Gautrain stations comply with strict
environmental requirements and meet Euro IV standards.
4.7. BUS RAPID TRANSIT
The metropolitan cities of Johannesburg, Tshwane and Ekurhuleni have adopted policies
supporting the introduction of Bus Rapid Transit systems to promote public transport. The
progressive implementation of BRT systems in Gauteng’s metropolitan municipalities will
gradually transform road-based public transport by replacing existing bus contracts and
absorbing the minibus taxi operators into the trunk and feeder operations. Johannesburg
already has two phases of its Rea Vaya operational and planning for Phase 3 is underway.
Similarly, Tshwane should have the first phase of its A re Yeng BRT system operational by
mid-2014.
Travel Demand Management (TDM) is a collection of measures that encourage shifts from
private vehicles to public transport options such as BRT. Likewise, land-use policies to
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encourage transit oriented development and densification around public transport nodes can
do much to incentivise shifts to public transport. BRT development presents opportunities to
introduce land-use changes in urban areas based on the “3Ds model”, namely, density,
diversity and design. If developed through a mutually-supporting package of measures, the
3Ds can be the basis of creating an effective market for public transport systems such as
BRT. Lastly, busses generally meet exacting standards for carbon emissions (EURO IV) and
the removal of private vehicle traffic from the street environment constitutes an
environmental improvement.
4.8. AUTOMOTIVE INDUSTRY DEVELOPMENT CENTRE LPG PROJECT
The Automotive Industry Development Centre (AIDC) was established in 2000 by the
Gauteng Department of Economic Development to assist in increasing the global
competitiveness of the South African automotive industry and to provide accessible and
affordable world-class technology to localise the industry. The AIDC seeks the aggregation
of automotive assemblers, component manufacturers and material suppliers in a bid to
reposition the Gauteng economy in high value-added segments in knowledge-driven
manufacturing and services. It focuses on enhancing the competitiveness of the automotive
industry through the involvement of small business enterprises.
The AIDC, in partnership with the South African National Taxi Associations Council
(SANTACO), manages a pilot project to convert minibus taxis into dual-fuel vehicles, with the
aim of reducing CO2 emissions by 11 percent. The project has converted over 300 taxis to
operate on liquefied petroleum gas (LPG) as well as petrol. Technical tests were conducted by the
South African National Energy Research Institute (SANERI) on a Sasol-sponsored prototype
minibus to assess the impact on carbon emissions as well as fuel efficiency. Recent testing
indicates a 30 percent reduction in the carbon monoxide levels. The test showed that although the
overall fuel consumption is higher on LPG, the lower cost of LPG balances out the effect of fuel
costs for taxi operators. The cost benefits included improved longevity of the engine and a
reduction of overall maintenance costs over the lifespan of the vehicle, while vehicle performance
remained unchanged.
4.9. SANERI CNG TRIALS
The South African National Energy Research Institute’s (SANERI) Green Transport Centre
is a one-stop facility for information sharing, technology development and technology
demonstration and deployment in relation to the use and testing of alternative fuels and
vehicles. SANERI has partnered with the Gauteng Department of Roads and Transport to
perform trials by converting g-Fleet vehicles to run on Compressed Natural Gas (CNG). The
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establishment of the first CNG refuelling station in Langlaagte and the availability of
conversion kits complement this project. The basic aim of the project is to perform emissions,
fuel consumption, efficiency and maintenance requirement testing of vehicles provided by gFleeT and powered by CNG.
4.10. NON-MOTORISED TRANSPORT
All major cities in Gauteng are beginning to actively promote non-motorised transport. In
particular, greater attention than before is being given to laying out infrastructure catering for
the needs of pedestrians and cyclists. For example, the City of Johannesburg is constructing
cycling lanes in parts of Soweto and has plans to extend such facilities to areas such as
Sandton, Alexandra Township, Rosebank and Auckland Park. The Department is currently
developing a non-motorised plan for the province as a whole. However, not the same kind of
attention is being given to promoting motor bike usage in the cities or the province as a
whole.
5. STRATEGIC GOALS
The Department’s overall strategic goals should be guided by the NDP. Specifically, with
respect to the transport sector the NDP provides the following strategic direction to all
spheres of government:
Instead of focusing on a particular transport mode, emphasis should be
placed on the total transport network. This systemic approach will help
improve transport efficiency and accessibility while reducing the overall
environmental, social and economic costs. This approach should also
consider transportation options that would contribute towards South
Africa's decarbonisation efforts, for instance, the use of electric buses or
offering companies incentives for using delivery vehicles powered by
liquefied natural gas.
Behavioural change is critical for reducing the environmental, social and
economic costs associated with transport. Targeted communications
campaigns and the availability of alternatives have the potential to improve
South Africa's transport situation by shifting public thinking about public
transport and transport that uses alternative energy sources. For instance,
while some forms of private transport, such as the car, will still be used in
2030, there will be a marked move towards public transport as more
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options become available to commuters. With these strategies in mind, the
government needs to focus on the following policy issues going forward.
To create a streamlined and effective urban transport system, the
government needs to increase investment in public transport and resolve
existing public-transport policy issues. This includes attracting privatesector investment. Both public and private investment should go towards
extending bus services, refurbishing commuter trains, linking high-volume
corridors and integrating all these into an effective service. The
government needs to coordinate these investments if economies of scale
are to be maximised. (NDP, pp.183-184)
Similarly, the ITMP25 focuses strongly on sustainable transport and preservation of the
environment. The vision of the ITMP25 is:
An integrated and efficient transport system in Gauteng that promotes
sustainable economic growth, skills development and job creation; fosters
quality of life; socially includes all communities, and preserves the
environment.
The ITMP25 notes that South Africa is ranked among the top 20 countries measured by
absolute CO2 emissions, with emissions per capita in the region of 10 metric tons per annum.
Its economy is energy intensive, with fossil fuels accounting for more than 90 percent of the
primary energy demand. The country currently relies on imports of crude oil and refined fuels
for 70 percent of its liquid fuel needs. It is, therefore, vulnerable to global oil price hikes.
There are both short-term and long-term threats to global oil supplies, which should be taken
into account by South Africa’s transport planners. Furthermore, the current levels of
congestion on Gauteng roads are high, especially during the peak periods resulting in loss of
productivity; higher energy consumption; pollution and greenhouse gas emissions, and loss in
family time. Congestion is caused by the limited alternative routes available in the event of
incidents as well as heavy vehicle freight traffic.
The ITMP25 advocates a major policy shift. It calls for a new set of policies and guidelines
which should result in a policy pathway that will see an evolutionary move towards
environmentally sustainable transport policies. This should be directed at the movement of
people, and not goods and services. It should be regulatory rather than fiscal in nature and
aim to achieve transport mode shifts and favour non-motorised transport alternatives (e.g.
walking and cycling).
The reduction of greenhouse emissions; the reduction of energy consumption, and the
protection of the natural environment have been identified as Strategic Sustainable Transport
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Aims. In Gauteng, the transport industry contributes 24 percent of the total greenhouse gas
emissions and this is increasing annually. The province’s carbon profile shows that it needs
stringent targets to meet the requirements of the Long-Term Mitigation Scenarios.
Strategies that the province could implement to curb the increase in greenhouse gas emissions
by the transport industry include the promotion of a shift away from private car use; the
greater uptake of motor cycles; increasing support for public transport; the removal of
subsidies for fossil fuel, and penalising high fuel consumption. The implementation of a
carbon tax in the longer term could mitigate environmental externalities and pave the way to
a low-carbon economy, reducing greenhouse gas emissions and environmental pollution.
The ITMP25 states that the transport question that will most probably have the greatest
impact on the environment has to do with energy and fuel consumption. The key drivers
identified to reduce fuel consumption for the transport sector include a switch to low-energy
and low-carbon modes of transport i.e. public and non-motorised transport systems as well as
the design of an urban environment that facilitates low travel distances between residential,
commercial and educational facilities. A complete transformation and regeneration of the
cityscape into a sustainable arena is also needed. This should include sustainable
infrastructure design that does not only include new infrastructure, but the rehabilitation, reuse and optimisation of existing infrastructure, which is consistent with the principles of
urban sustainability and global sustainable development. Also, ‘green infrastructure’ such as
permeable paving, swales and street trees should become the norm on our roads. In order to
shift transport towards a low-carbon environment a major shift from private to public
transport is needed as well as an increase in the quality, affordability and availability of
public transport.
Lastly, the ITMP25 states that energy efficiency and reduced carbon emissions are attained
through encouraging the uptake of alternative technologies and fuels. Simultaneously,
Intelligent Transport Systems must be integrated into transport infrastructure projects. This
will reduce travelling time and thus reduce greenhouse gas emissions and fuel consumption.
From an environmental point of view, one of the most important operational considerations is
the impact of the vehicle technology chosen. Emission standards should range from Euro I to
Euro VI, which are dependent on fuel quality; engine technologies; emission-control
technologies; inspection and maintenance programmes, and driver training. The type of fuel
to consider should include standard diesel; clean diesel; compressed natural gas
(CNG)/biogas; liquid petroleum gas (LPG); bio-diesel and ethanol.
Essentially, the Department aims to achieve a number of strategic goals in promoting
sustainable (green) transport in the short- to medium-term. These are:
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 making public transport reliable, affordable, safe, and accessible as an alternative
to private modes of transport;
 reducing traffic congestion and carbon emissions within the province;
 ensuring that Intelligent Transport Systems are introduced and utilised to
contribute to the reduction in the carbon footprint and traffic congestion within the
province;
 actively promoting non-motorised transport and strive to provide safe road and
pedestrian infrastructure for its use;
 ensuring the use of environmentally friendly materials in road construction and
maintenance programmes;
 ensuring that Spatial and Route Planning enhances and promotes sustainable
(green) transport; and
 forging partnerships with organs of civil society and academic institutions to
undertake further research into and promote the sustainable (green) transport
agenda.
Based on the above-mentioned strategic goals the Department adopts the following policy
statements.
5.1. POLICY STATEMENT ONE
The Department will ensure that it utilizes all available resources and co-ordinating
structures within its means, to develop and promote the public transport system in a
way that is reliable, safe, affordable, accessible, and environmentally friendly.
The use of public transport as an alternative to privately used vehicles should become the
mode of choice for the vast majority of people in the province. This is possible if the public
transport system in Gauteng is reliable, affordable, safe and accessible. Simultaneously, it
must be environmentally friendly and sustainable over time. The Department’s priorities will
be to:

promote public transport modes as the more feasible, cost effective options to
private vehicle usage;

promote the improvement; further development; extension, and expansion of rail
systems to serve as the backbone of the public transport system in the province;
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
promote the development and integration of Bus Rapid Transit systems, particularly
in metropolitan municipalities;

ensure better regulation of and control over the minibus taxi industry;

ensure that alternative modes of public transport are readily available where the need
is identified through effective communication systems;

align public transport routes to provide for seamless mobility and reliability of
services;

ensure that public transport operating licenses approved by the regulatory authority
meet the required standards;

attach incentives to the usage of public transport for the commuters;

make information on public transport readily available with regards to routes,
timetables, tariffs etc; and

to promote non-motorised transport as a distinct mode of mobility and as a feeder
mode to public transport.
5.2. POLICY STATEMENT TWO
The Department will actively strive to reduce traffic congestion and carbon emissions
within the province.
Current legislation clearly outlines the mandate of the Department with regard to energy
efficiency and traffic congestion management. However, the competency to adjudicate over
and to prescribe mineral and energy usage is limited. The Department has to ensure that coordinated efforts are made to reduce traffic congestion and carbon emissions. The
Department’s Air Quality and Noise Management Plan for the transport sector and the Traffic
Congestion Management Plan offer solutions and methodologies in this regard. The
Department’s priorities will be to:

promote public transport as an environmentally-friendly means of travelling and
commuting as opposed to private vehicle usage, thereby contributing to the reduction
in traffic, particularly during peak times;
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
maintain and develop the provincial roads network so as to ensure that there is a free
flow of traffic in the province and that there are no unwarranted traffic congestion
points;

ensure that carbon emission reduction targets remain a priority throughout the
province;

ensure that air quality data centres within the jurisdiction of municipalities are
effective in monitoring and evaluating data collected at these stations;

hold municipalities accountable for ensuring that their Integrated Transport Plans
include realistic plans to make public road-based transport more user-friendly and to
minimize their carbon footprint within their respective jurisdictions;

set minimum vehicle standards, particularly for public transport vehicles such as
minibus taxis and busses;

reduce congestion by provision and application of Intelligent Transport Systems and
of navigational aids e.g. road signs and route numbering and maps; and

promote the use of non-motorised transport and motor cycles as an alternative to
private cars.
5.3. POLICY STATEMENT THREE
The Department will ensure that Intelligent Transport Systems are introduced and
utilised to secure a reduction in both the carbon footprint and traffic congestion
within the Province.
The Department will collaborate with metropolitan municipalities; the private sector, and
state-owned entities such as SANRAL, PRASA, ACSA and Transnet to develop and
implement appropriate Intelligent Transport Systems for the timely, efficient, cost effective
and seamless movement of people, goods and services in the province. This will be achieved
through the provision of:



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smart communication systems with commuters on transport related matters;
the effective and efficient collection of transport data; and
the effective use of transport data in immediate route planning for the commuter
or long terms route planning and alignment for the Province.
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5.4. POLICY STATEMENT FOUR
The Department will actively promote non-motorised transport and strive to provide safe
road and pedestrian infrastructure for its use.
Non-motorised transport is defined as all forms of transport that are human or animal drawn
such as walking, cycling, small-heeled transport (skates, skateboards, push scooters and hand
carts), bicycle taxiing, rickshaw riding and horse riding. There are also non-motorised
transport modes for the transporting of goods, including wheel barrows and carts drawn by
donkeys, horses or humans. Importantly, non-motorised transport includes wheelchairs
(motorised as well as non-motorised), which should be considered when planning and
designing transport related facilities for people who are physically challenged.
Non-motorised transport can be seen as the best possible solution to guarantee a more
environmentally-friendly transport system for the movement of people and goods. It can be
creatively utilised as a mode of transport even in an industrialised province such as Gauteng
if transport infrastructure is designed and developed to accommodate its use.
The development of non-motorised transport is a key element in successfully encouraging
sustainable, inclusive and integrated urban transport. Fundamental to pursuing this is the
concept of “universal design”, which in essence gives recognition to the fact that people’s
mobility and accessibility are largely determined by the built environment, i.e. the design of
buildings, sidewalks, paths, roads and vehicles. Rather than assuming that people must
accommodate the built environment, the built environment should accommodate all users as
much as is feasible. In this regard, the ITMP25 succinctly states that:
A paradigm shift in the approach in the road design, towards adopting the
“modal hierarchy” approach to road network development is required. This is
aimed at transforming the roads network to meet the needs of all road users.
The concept implies shaping the road function according to a prioritisation
scheme, where the hierarchy moves from pedestrian as the highest priority,
across to bicycles, public transport and with private vehicles given the lowest
priority. This ties in with the “complete streets” approach that redefines what a
street is intended to do. It breaks down the traditional separation between
freeways, public transport, cycling and walking, and instead focuses on the
desired outcomes of a transport system that supports safe use of the roadway
for everyone. In principle, the concept suggests that in Gauteng, high order
mobility roads such as Class 1 roads will primarily focus on vehicular
transport, whereas on Classes 2 to 5 roads other forms of transport, such as
NMT and public transport will be an integral part thereof. The practical
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implementation of this concept requires road authorities to rethink the road
design standards that are currently being applied, which prioritise and favours
the private car. (ITMP25, p.70)
The key principles required to integrate non-motorised transport into the road network in the
province are as follows:
 Promote non-motorised transport as part of a sustainable transport system, e.g. include
walking and cycling as a feeder system to all public transport systems;
 Redesign and create a built environment (urban and rural) to inclusively
accommodate non-motorised transport users according to universal design principles;
and
 Create a liveable and sustainable urban environment through a ‘complete streets’
approach and ensure that the connectivity among different land uses and public
transport systems is expanded to be non-motorised transport inclusive.
The Department will mainstream non-motorised transport through the following measures:
 The Gauteng Transport Commission will co-ordinate and integrate non-motorised
transport planning and provision. It must ensure that municipalities plan, design and
provide for non-motorised transport modes within their Integrated Transport Plans
and Pedestrian Management Plans;
 A provincial non-motorised transport master plan will be developed, supplemented
with non-motorised transport strategies approved by each metropolitan and district
municipality. This policy will also include a cycle master plan which must identify
cycle corridors across the province;
 The Department will strive to operate and manage non-motorised transport networks
in a safe, secure and accessible manner;
 The Department, in conjunction with relevant role-players, will promote a nonmotorised transport culture, including road safety and awareness campaigns; and
 The Department, in partnership with the private sector, will continue its programme
of distributing bicycles to learners.
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5.5. POLICY STATEMENT FIVE
The Department will promote environmentally sensitive designs and ensure the use of
environmentally-friendly materials in road construction and maintenance programmes.
Road design, construction and maintenance can have a significant impact on the environment.
If done properly, road designs can mitigate the effect on the environment in the positioning of
the roads in relation to environment sensitive areas. Similarly, good drainage designs can
minimize pollution of the water system. Road construction, concrete and manufacturing
plants also contribute to air pollution. Locally acquired and more energy efficient plants can
diminish the impact on carbon emissions.
There is scope to promote sustainable (green) transport through innovative designs aimed at
using less bulk materials and/or environmentally friendly construction materials. For
instance, lower temperature asphalt designs require less energy. Likewise, the use of ultrathin concrete pavement layers requires less material. With the requirement for lighting on
roads for safety and security reasons, the use of lighter road surfaces requires less lighting
and also the use of energy efficient luminaries will lower energy consumption.
The Department will:
 Promote on-going research in identifying more environmentally friendly materials
to use within the construction and maintenance of roads; and
 ensure that the most environmentally friendly designs in construction and
maintenance of the road network are utilized.
5.6. POLICY STATEMENT SIX
The Department will ensure that Spatial and Route Planning enhances and promotes
sustainable (green) transport.
Spatial and route planning can help to curtail urban sprawl and reduce travel distances from
home to work. Human settlement patterns should support densification. In addition, transit
oriented development substantially reduce commuter travel distances and times, thereby
improving the quality of life and mitigating against the negative impact on the environment.
The Department in its quest to build integrated road and transport networks is largely
dependent on a spatial development framework that promotes densification and transit
oriented development.
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The Department, therefore, will align the strategic road and public transport networks, and its
non-motorised transport plans, to the provincial spatial development framework that
promotes densification and transit oriented development.
5.7. POLICY STATEMENT SEVEN
The Department will adopt an integrated and co-ordinated approach to sustainable
(green) transport, and strive to build the capacity, skills and capabilities across the
different spheres of government to implement this policy.
Promoting, inculcating and rooting a sustainable (green) transport agenda in Gauteng and the
country at large is only possible through on-going public education and awareness; scientific
research; extended partnerships with organs of civil society, academic institutions; and, an
integrated and co-ordinated approach across the different spheres of government. The
Department will:






invest in technologies and research related to clean and more efficient fuel for vehicle
propulsion;
support academic research and teaching programmes relating to sustainable (green)
transport;
forge partnerships with a wide range of organs of civil society to raise public awareness
of the need for sustainable (green) transport and to achieve the strategic goals outlined
in this policy;
continuously educate the public on issues relating to sustainable (green) transport;
appoint dedicated personnel within available resources to implement this policy and to
ensure compliance; and
together with its partners, monitor and evaluate progress in the implementation of this
policy.
END
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