Issue 9 February - May 2002by Mike Mabasa

Mike Mabasa , head media liaison and corporate communication, South African Ministry of Transport provides some clarity on the Road to Safety—South Africa’s new National Road Safety Act.

What are the objectives of the new national Road Safety Act and what are its fundamental differences to previous initiatives, for instance the Arrive Alive campaign?
The strategic objective of the Road to Safety is to reduce crashes, deaths and injuries on South African roads by 5% year-on-year until the year 2005 (at a saving to the economy of R770 million per annum), and then, based on the strengthened institutional platform created, by at least 10 % year-on-year until the year 2009.

Arrive Alive is a clearly delimited tactical programme designed to achieve effective practical co-operation between the three spheres of government in on going road traffic and road safety management. As such, the Road to Safety has, in effect, become Arrive Alive’s parent, taking responsibility for the short, medium and long-term structural and systemic issues. Its central aim is to attack the underlying problems that have given rise to the carnage on South African roads.

What is the basic plan of action to achieve these objectives and when will the first phase of implementation begin?
Four key focal areas have been identified and it is around these that the basic plan of action revolves:
• Enforcement and law compliance
• Operator, vehicle and driver fitness
• Infrastructure, management and information systems
• Communication, public education and community participation.

To each of these, we have applied prioritised, targeted and mutually reinforcing measures to ensure: appropriate legislative and regulatory norms are in force (standards and rules); the right systems and institutions are in place to control the road network; and compliance is increasingly achieved.

The implementation of interventions in the above-mentioned areas has already commenced however, through the Road to Safety, these interventions will be strengthened.

What is the time frame for implementation and how will progress be monitored and measured?
A comprehensive intervention schedule has been developed with short, medium and long-term milestones to be achieved. An advisory/monitoring committee comprising of role-players and stakeholders from the private, public and non-governmental sectors will monitor and evaluate progress made on a regular basis.

Can you quantify the cost of road accidents to the South African economy?
The cost of accidents to the South African economy was estimated at about R13,4 billion in 1998. This figure reduced to about R13,2 billion in 1999.

Can you explain what AARTC and RTIA are, and what their functions will be under the Road to Safety?
AARTO stands for Administrative Adjudication of Road Traffic Offences Act. The act seeks to remove the burden of road traffic cases from the courts and administer them in an administrative manner. In order to do this, a need was identified to create an institution at arms length from Government.

The Road Traffic Infringement Agency (RTIA) is the institution that Government seeks to establish to enforce the AARTO Act. The function of the RTIA will include fine collection on behalf of the state.

Are there opportunities for business ie public private partnerships of any sort, and if so, how can interested parties find out more about these opportunities?
Chapter 5 of the RTMC Act does make provision for “private investment in road traffic”, however interested parties will have to engage the CEO of the said RTMC, once this person has been appointed. It must however be stressed that there is no obligation on the part of the RTMC (CEO) to involve the private sector, but it is an option.

Comment has been made that for many large-scale infrastructure development projects, funded by international funding agencies, the tendency exists to utilise overseas civil engineering companies over African based concerns. Design costs might be cheaper, but material costs are usually higher and the roads often not designed to meet harsh African conditions. Can you comment?
The public-private partnerships entered into between the agency and the concessionaires (the three current projects being the N4 Maputo Development Corridor, the N3 Toll Road Project and the N4 Platinum Toll Highway) are structured and formalised in terms of a concession contract. This agreement encompasses various aspects related to equity, social and entrepreneurial development and job creation, ensuring that local material and designs are used, jobs are created and training is done within South Africa using local businesses and SMMEs, and South African equity is created within the concession company. This approach ensures the establishment of a balanced concession company with regard to international expertise, local equity and a socio-economic development programme tailored to South African needs. The designs and construction methods used are also tried and tested designs specifically for South African conditions to ensure both safety and durability. The success of this approach is evident when studying the following tables:

Employment Creation:
A total of 13 242 direct jobs have been created in the 2000/2001 financial year amounting to R407.2m as follows:

GRAPH

SMME Development:

GRAPH

Has the private sector (road users) been involved in determining the framework for the new Act?
Yes, the document enjoyed various levels of consultation and participation, from grass-roots to organised business, through the Road Traffic Safety Board, which was established to invite comments and feedback on the broad range of issues facing all road users.

What steps will be taken to upgrade existing infrastructure/road systems and can you provide an indication of projected disbursements in this regard?
The current 7 200km of national roads under the agency’s jurisdiction comprises of both toll and non-toll roads. While toll roads are funded through the user-pay principle, non-toll roads are funded through the national treasury. The challenge faced by the agency in this regard is that, while road use continually grows, road-funding declines. The current funding from the national treasury, unfortunately, has fallen to such a level that it cannot fully finance the maintenance needs of the existing network, let alone provide for extensions required to meet the growing traffic demands. With an assumed funding level of R800m per year for the non-toll national road network, it can be deduced that the existing road network will rapidly deteriorate over the next eight years to a forecasted backlog of approximately R8,5b. This implies that the assumed funding levels are only sufficient to effectively maintain approximately 40% of the non-toll network.

As the agency’s principle strategic challenge is the long-term sustainability of a primary road network, a programme has been develop to finance road provision to cater for the whole nation rather than for the few. The needs and concerns of road users, their expectations of what constitutes a fair return and the need to improve road safety, clearly suggests a primary road network consisting of both toll and non-toll roads. However, taking the disparate demands on tax-based revenues into account, the expansion of the primary road network needs to be strategically programmed and funded under a private sector borrowing/concessioning programme, reducing the pressures on the national treasury to meet the basic needs of the citizens of our country. Entering the new millennium, the agency is not only faced with the existing funding backlog and continued deterioration of road pavements, but also new challenges placed in our path. This programme, with its holistic vision firmly set on a ten year horizon, is the agency’s answer to the demands and challenges of not only our past but our future; a programme designed to better the quality of life and prosperity of all citizens in this country.

There are currently certain N-route sections that are provincial road sections, but that have been identified—together with the provinces—as part of the long-term strategic national road network. This relates to approximately 13 000km of national routes under provincial government control that need to be incorporated into the existing national road network. The vision of the agency is thus to accede to the request of various provincial administrations, in the short and medium term, to be responsible for all national routes of strategic and economic importance—the primary road network—a total of approximately 20 000km. Further, in view of the severe road funding constraints experienced by the provinces, an understanding has developed between the agency and the provinces to work together to declare some provincial road sections as national roads.

Currently, a number of provinces have already, or are in the process of, handing over various routes to the agency for incorporation into the primary road network. The Free State, Northern, Eastern Cape and Western Cape provinces have already indicated various routes to be handed over, whilst routes in the Mpumalanga province, ie portions of Roads P80, P133, P179, D1120, D2683, D797 and D2948, were incorporated into the national road network in 2000.

However, this programme is of no use if not supported by the public at large and all relevant stakeholders. One of the biggest challenges facing the agency is the inaccurate perceptions, both from the general public and transport operators, as to the advantages and challenges of roads, and more in particular, the user-pay principle. The agency will therefore embark on a strategy to inform, educate and communicate with all concerned to rectify these mis-perceptions and at the same time, stimulate interactive relationships. The creation of an awareness plan will also ensure that the agency remains a strategically focused organisation able to respond to the needs of transport users.

We obviously have a major problem with overloading of vehicles, and poor vehicle conditions on our roads. The perceived reasoning behind this is very often a financial one ie upkeep of the vehicle and/or carrying less impacts on the sometimes very limited earnings. Owners of the vehicles might realise their impact on the road system, but this is not their expense. What would you tell these people?
It is time to stop looking to the government to save our lives on the roads and to mend the horrendous dent it makes on the national budget.

Although many taxi and heavy-vehicle drivers and owners think that by overloading they can make more money, it is dangerous and will cost more in the long run:
l An overloaded vehicle will take longer to stop, making it dangerous, especially in an emergency
l When a vehicle is overloaded, it is more difficult to handle and cannot accelerate as normal—making it dangerous to overtake
l Higher maintenance costs to the vehicle eg tyres, brakes, shock absorbers and higher fuel consumption
l Overload vehicles damage roads and may result in heavy fines

Overloading in the freight sector causes major damage to South African roads, but also creates inequitable competition, distorts economic tariffs and threatens the general safety of all road users. In the passenger industry, particularly the minibus–taxi sector, the combination of overloading and over speeding accounts for more than 90% of collisions.

Improving overloading control requires the participation of many different organisations and sectors. No one sector working alone can effectively reduce overloading.

The commercial sector and service organisation could play a pivotal role in curbing overloading. For this, close co-operation between the government authorities, industries and the public at large is necessary. A workshop was held at Derdepoort, Pretoria on November 13, 2001 regarding the implementation of the road to safety 2001–2005 (Overloading Control). Relevant stakeholders were invited to participate in the meeting with the purpose of stimulating discussions on the overloading control document and to intensify law enforcement with the aim of completely eradicating overloading. The following institutions were amongst those present at the meeting:
• Automobile Association of South Africa (AASA)
• Road Freight Association
• CSIR
• South African National Road Agency

After the meeting, the following recommendations were included of the Overloading Control Discussion Document:

• Legalisation of Portable equipment
The department should engage the SABS to prepare the standards, and the Prosecuting Authority to obtain acceptance of available modern technology for prosecution purposes. These include portable weighbridges and weigh-in-motion equipment.

• Extended Responsibility
In view of the strong role market forces play in encouraging overloading lawlessness, all the proponents of the practice of overloading should be held accountable for damage caused. In this respect, consignors and consignees of overloads should be held jointly and severally liable with the hauliers, and be exposed to the forces of the law. It was indicated however that in certain cases this would not apply. It was also clearly stated that the Road Traffic Act would require amendments to enforce this, and it was indicated that the drafting of this amendment must be started immediately, and that the legislation for the transportation of dangerous goods should be used as a basis for this vision.

• Review of 5% Tolerance
The issue of the current 5% tolerance imposed by the Department of Justice was identified as a major problem insofar as freight operators take advantage of this tolerance to load their vehicles to the maximum legal limit plus the 5%. (It should be noted that the current modern scales in use are accurate to about 1%). Thus, the calculated additional cost of this misuse of the 5% tolerance amounts to approximately R8 million per annum on the N2 and N3 routes in KwaZulu Natal alone. The effect of this on the country’s total road network could therefore be more than 200 million per annum.

• Fees and Penalties
With the advent of AARTO, an opportunity exists to install a system for charging a fee for road abuse, based on vehicle class, the extent of the overload, and the number of kilometres traveled with the overload (based on standard distance tables). The concept of a user-charge for over loaders to cover the additional road consumption cost due to overloading and a fine should be further investigated. The overloaded trucks should not be permitted to continue with the journey until the load is rectified and the consumption cost paid. In this regard, the introduction of a weight/mass based toll tariff system for heavy vehicles should be investigated. The transfer of fees for Abnormal Load Vehicles to toll road owners (SANRAL and the Concessionaires) must also receive attention as they are currently not compensated for this. An additional, heavier penalty system for habitual offenders must be devised and implemented. The concept of “Bail Bonds” as used in the United States should be considered for implementation.
That Procedures on how to identify and deal with habitual offenders must be developed and implemented including amongst others, impounding and forfeiture of vehicles and goods, higher licence fees, withdrawal of operator cards, etc.

• Self-Regulation; Control of certain freight trip origins and destinations:
That the origin and destination of freight and goods trips play a major role in effective overload control programmes. It is not only long distance hauliers that overload and in many instances it is short distance hauliers that cause major damage over relatively short distances. It not possible and cost-effective to construct and efficiently operate Control Centres and to cover such daily overload operations effectively. In this regard a procedure for self-regulation must be introduced as a matter of urgency. This could be achieved through the compulsory construction and operation of permanent weigh bridges on the premises of the businesses, such as at, for example, the sugar mill where sugar cane is delivered (the point of arrival) and at the quarry where stone and sand are delved and crushed (the point of departure). In this regard the construction of weighbridges at border posts and toll plazas should also be considered.

There has been mention made of introducing technologies that limit vehicle speed (as in the UK) and overloading. Is the cost and difficulty of maintaining such technologies in the African environment not overly restrictive?
Top speed limiters have been introduced in a number of countries worldwide and have been mandatory for trucks and coaches across the EU since 1995. These limiters should not be confused with the old style “governors” since they allow for full performance through the gears up to a point at which the limiter is set to reduce revs and control any further speed increase. Safety is therefore not compromised in emergency situations requiring acceleration to avoid a potential collision. The installations of these devices are not mandatory at present, however I am encouraging transport operators to equip vehicles with such technology. These devices will assist in an improved monitoring of the driver and the vehicle, leading to safer vehicles and drivers on our roads. We are in the process of developing the relevant standards for these devices with the view to request mandatory fitment to certain vehicles.

With the opening up of cross border trade, we have an increasing number of vehicles from outside South Africa on our roads. Are there initiatives to standardise road safety requirements (vehicle requirements) across SADC/African borders?
Yes, the standardisation and harmonisation of many aspects regarding cross border transport and traffic matters is envisaged. The SADC Protocol on Transport, Communication and Meteorology, which was jointly developed and approved in 1996, entered into force in 1999 (see Traders issue 8). Issues already developed and introduced include the credit card format driving licence, the SADC Road Traffic Signs Manual, driver testing and vehicle standards. The further development and implementation of the South African National Traffic Information System (NaTIS) is also encouraged in the SADC region. The system is already operational in Namibia and is being implemented in some other countries. We have permanent structures where we interact with Member States on various issues concerning the region on a regular basis. These discussions include traffic related issues.

Like with any legislation, the crux comes in its enforcement. How does NDOT plan to ensure road users comply with regulations?
Through rigorous, prioritised enforcement, education, effective control and prosecution through inspectorates and hard-hitting communication actions.

Drivers seem to have adopted a “why should I comply when no one else does” attitude ie there seems to be incredible frustration and an increased lawlessness due to a perceived lack of intervention. How can NDOT change this attitude?
As stated above, with increased monitoring and control procedures. In addition, by empowering road users themselves through the establishment of a national call centre that will allow voluntary traffic observers to report good and bad driving as well as other road traffic accidents and incidents.

The Act also addresses pedestrian and cyclist safety, can you provide some insight in this regard?
Pedestrian safety:
The department, in conjunction with the department of education, is currently implementing road safety educational programmes (which are in line with the outcome based education approach) within the mainstream education system (Grade R–12).
Community road safety forums will be expanded to ensure community participation pertaining to identification of hazardous locations/areas, providing relevant solutions and thereby ensuring safe and orderly interaction between pedestrians and other modes of transport.
The local community-based organisations will play an integral part in mobilising and disseminating road safety information to the communities, and this will result in broader community participation and the ability to distinguish between correct and incorrect actions within the road environment.
The reflective armband programme, which is currently operational at certain identified hazardous locations, will be expanded to other areas to promote visibility amongst pedestrians.

Cyclist safety:
The National Bicycle Programme will be integrated with pedestrian safety programmes by including safety measures such as improvement and identification of cycle paths/routes, signage, knowledge, correct skills, visibility and the use of helmets.

Similar to pedestrians, cyclists are also killed or maimed due to lack of visibility. Through this strategy, cyclists will be introduced to reflectorised material, which will contribute towards improved visibility and better interaction with other road users. The programme will be run jointly with the department of education.

A manual for the planning, design and construction of pedestrian and cyclist facilities is also currently being revised and updated.

What is the maximum amount of hours a driver should be on the road?
The issue of regulation regarding driving hours falls under the Occupational Health and Safety Act, managed by the Department of Labour. We are in the process of discussing the regulation of driving hours, and the monitoring and control thereof.

What advice could you offer to other SADC countries that plan to address their own road safety issues?
The SADC Transport Protocol document, to a large extent, addresses issues aimed at the promotion of road safety. Should all these issues be developed, implemented and adequately operated it should contribute to the overall promotion of road safety in the Southern African region. Many countries have also already adopted certain issues from the South African Arrive Alive programme and regular meetings are held with neighbouring states to promote the transfer of skills, exchange of information and material and to develop joint traffic promotion programmes.

Author's Contact Details
Author: Mike Mabasa
Email: MABASAM@ndot.pwv.gov.za