FOR PUBLIC COMMENT - Gautrain Management...

FOR PUBLIC COMMENT

PROMOTING SUSTAINABLE

(GREEN) TRANSPORT IN

GAUTENG

(April 2014)

1 | P a g e G a u t e n g o n t h e M o v e

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 non-motorised 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


Andrews via e-mail at [email protected] and should reach the Department no later than 30 June 2014.

Dr Ismail Vadi


mailto:[email protected]

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)

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 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 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.

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)

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)


Resi-dential

16%Gov-ern-ment1%

Commerce

4%

Industry44%

Pas-sengerTrans-port21%

Freight Trans-port14%

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:

National Road Traffic Act, (1996); National Land Transport Act, (2009); National Environmental Management Act, (1998); Energy Efficiency Strategy, 2005; White Paper on National Transport Policy, (1996);


Coal35%

Diesel13%

Petrol

22%

Electric-ity

26%

Natural Gas4%

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 Non-Motorised 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 Target Target objective

The Energy Efficiency Strategy, 2005

9% by 2015 Reduction in energy usage

Strategy for a Developmental Green Economy for Gauteng, 2005

15%(no year identified)

Reduction in use of private vehicle trips

Gauteng Integrated 7% by 2014 and Energy efficiency


Energy Strategy, 2010 15% by 2025 targetState of Energy Report (City of Johannesburg)

9% by 2015 Transport efficiency target

State of Energy Report (Ekurhuleni)

15% by 2025 Reduction in travelling time

State of Energy Report (City of Tshwane)

50%(no year identified)

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

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:

an appropriate mix of pricing mechanisms; 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 cost-effective, 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.

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 work-cycles. 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 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 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,


http://www.engineeringnews.co.za/topic/liquefied-petroleum-gas

fuel consumption, efficiency and maintenance requirement testing of vehicles provided by g-FleeT 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 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 private-sector 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 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, re-use 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:


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;


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 co-

ordinated 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;


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:

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.

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 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 non-motorised 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.


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 ultra-thin 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.


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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