nelson mandela bay municipality comprehensive integrated transport plan 2011/12 prepared in terms of the national land transport act (no 5 of 2009) by: ssi engineers and environmental consultants po box 925 port elizabeth 6000 for the infrastructure and engineering directorate nelson mandela bay municipality po box 7 port elizabeth 6000 march 2011 finali table of contents table of contents ......................................................................................................................................i  list of tables ............................................................................................................................................ iv  list of figures .......................................................................................................................................... vi  abbreviations used................................................................................................................................ vii  executive summary............................................................................................................................... viii  1  introduction.....................................................................................................................................1  1.1  legislation and national requirements ....................................................................................1  1.2  format of the citp .......................................................................................................................... 2  1.3  frequency of plan preparation ................................................................................................... 2  1.4  institutional and organisational structure ...........................................................................3  2  transport vision and objectives....................................................................................................4  2.1  supporting documents.................................................................................................................. 4  2.1.1  national land transport act (no. 5 of 2009) ..........................................................................5  2.1.2  eastern cape provincial white paper on transport for sustainable development .....6  2.1.3 moving south africa action agenda......................................................................................6  2.1.4 white paper on national transport policy...........................................................................7  2.1.5  integrated development plan (2010/11 review – 9 th edition) .............................................8  2.2  nelsonmandela bay municipality................................................................................................ 8  2.2.1 municipal vision.......................................................................................................................... 8  2.2.2  core values of municipality ..................................................................................................... 9  2.3  goals and objectives ...................................................................................................................... 9  2.3.1  goal of mobility ....................................................................................................................... 10  2.3.2  goal of convenience................................................................................................................ 10  2.3.3  goal of reasonable cost......................................................................................................... 11  2.3.4  goal of minimum side effects ................................................................................................ 11  2.4  strategies .......................................................................................................................................12  2.4.1  public transport....................................................................................................................... 12  2.4.2  road system ............................................................................................................................... 12  2.4.3  parking .......................................................................................................................................13  2.4.4  goods movement and loading and unloading facilities ................................................13  2.4.5  traffic control and enforcement........................................................................................ 13  2.4.6  environment ............................................................................................................................. 14  2.4.7  public participation ................................................................................................................. 14  2.4.8  finance............................................................................................................................... .........14  3  transport register......................................................................................................................... 15  3.1  geographic information............................................................................................................. 15  3.2  socio‐economic information..................................................................................................... 15  3.3  passenger travel behaviour and service level requirements .............................................18  3.4  land‐use information.................................................................................................................. 19  3.5  public transport ........................................................................................................................... 20  3.5.1 minibus taxi............................................................................................................................... .21  3.5.2  bus ............................................................................................................................... ................23  3.5.3  commuter rail .......................................................................................................................... 27  3.5.4  institutional and organisational arrangements ............................................................29  3.5.5  other public transport services ........................................................................................... 31  3.6  road infrastructure.................................................................................................................... 33  3.7  network usage .............................................................................................................................. 35  3.8  transport safety........................................................................................................................... 38  3.8.1  transport safety policy .......................................................................................................... 38ii 3.8.2  the accibase system.................................................................................................................. 38  3.8.3  road accident statistics.......................................................................................................... 38  3.8.4 mitigating traffic safety issues............................................................................................. 40  3.9  freight transport routes ........................................................................................................... 41  3.10  airports ............................................................................................................................... ...........45  3.10.1  port elizabeth airport ........................................................................................................ 45  3.11  harbours ............................................................................................................................... .........48  3.11.1  port of port elizabeth......................................................................................................... 48  3.11.2  port of ngqura .................................................................................................................... 50  3.12  financial information................................................................................................................. 52  4  spatial development framework ................................................................................................ 56  4.1  spatial development framework proposals...........................................................................58  4.1.1  sustainable community planning methodology ..............................................................58  4.1.2  corridors and accessibility .................................................................................................... 59  4.1.3  economic development and growth ...................................................................................59  4.2  implementation and prioritisation .......................................................................................... 61  4.3  incorporating sectoral plans ................................................................................................... 61  4.4  transport implications of the msdf ......................................................................................... 66  4.4.1  transport system of nmbm.................................................................................................... 67  4.4.2  transport implications of individual msdf defined projects .........................................68  4.4.3  transport implications of the msdf..................................................................................... 80  5  transport needs assessment ........................................................................................................ 84  5.1  transport modelling................................................................................................................... 84  5.1.1  background............................................................................................................................... 85  5.1.2  data collection and data management..............................................................................85  5.1.3 model network......................................................................................................................... 86  5.1.4 matrix development ................................................................................................................ 87  5.1.5  base year results ...................................................................................................................... 88  5.1.6  future scenario results.......................................................................................................... 89  5.1.7  required road networks ........................................................................................................ 92  5.2  stakeholder consultation ......................................................................................................... 99  6  public transport operational strategy................................................................................... 100  6.1  the public transport strategy and action plan ................................................................... 100  6.2  integrated public transport system (ipts) ............................................................................. 101  6.2.1  introduction........................................................................................................................... 101  6.2.2  public transport strategic plan ......................................................................................... 102  6.2.3  public transport implementation plan............................................................................. 103  6.2.4  integrated network design ................................................................................................. 104  6.2.5  contract design...................................................................................................................... 106  6.3  public transport business plan................................................................................................ 107  6.3.1  liaison and consultation ..................................................................................................... 107  6.3.2  transformation of the taxi industry ................................................................................ 108  6.3.3  implications for the algoa bus company .......................................................................... 109  6.4  public transport operations and finance ............................................................................. 112  6.4.1  current situation................................................................................................................... 112  6.4.2  proposed operational plan.................................................................................................. 112  6.4.3  vehicle fleet composition..................................................................................................... 113  6.4.4  ticketing system...................................................................................................................... 113  6.4.5  financial overview................................................................................................................. 114  6.5  institutional structures .......................................................................................................... 115  6.5.1  establishment of a transport authority .......................................................................... 116  6.5.2  establishment of a transit administration agency (taa) ..............................................119  6.6  commuter rail............................................................................................................................. 119  6.6.1  national commuter rail plan.............................................................................................. 119iii 6.6.2  functionally defined rail corridors.................................................................................. 120  6.6.3  proposed service level specification for corridors........................................................123  6.6.4  business plan for rail in nmbm region .............................................................................. 124  6.6.5  financial plan:......................................................................................................................... 126  6.7  provincial commuter rail plan................................................................................................ 126  6.7.1  vision............................................................................................................................... ..........126  6.7.2  service............................................................................................................................... ........127  6.7.3  stations ............................................................................................................................... .....127  6.7.4  land use ............................................................................................................................... .....128  6.7.5  feeder services ........................................................................................................................ 128  6.7.6  control ............................................................................................................................... .....128  6.7.7  barriers to progress.............................................................................................................. 128  6.7.8  projects ............................................................................................................................... .....132  6.8  local rail plan ............................................................................................................................. 134  6.8.1  the port elizabeth – avontuur narrow gauge railway (apple express) .....................134  7  transport infrastructure strategy ......................................................................................... 141  7.1  roads infrastructure plan....................................................................................................... 141  7.1.1  road infrastructure status quo ........................................................................................ 141  7.1.2  survey of travel patterns .................................................................................................... 141  7.1.3  evaluation and mitigation .................................................................................................. 142  7.1.4  road condition evaluation.................................................................................................. 147  7.1.5  implementation programme ............................................................................................... 148  7.1.6  roads master plan ................................................................................................................. 154  7.1.7  access management plan...................................................................................................... 156  7.1.8  traffic calming plan.............................................................................................................. 161  7.1.9  road maintenance plan ........................................................................................................ 161  7.2  public transport and ipts projects..........................................................................................161  7.3  nonmotorised transport projects ........................................................................................ 163  7.4  freight transport projects ...................................................................................................... 164  7.5  planning and design................................................................................................................... 164  8  travel demand management...................................................................................................... 165  8.1  typical tdm strategies ..................................................................................................................... 165  8.2  tdm proposals for nmbm............................................................................................................... 165  8.2.1  precincts suited to tdm interventions .............................................................................. 166  8.2.2  tdm strategy proposals for nmbm .................................................................................... 166  8.2.3  directive for a tdm study for nmbm.................................................................................. 170  8.3  references ............................................................................................................................... .....170  9  freight logistics strategy........................................................................................................... 172  9.1  vision, goals and objectives...................................................................................................... 172  9.2  freight transport status quo.................................................................................................. 174  9.3  needs assessment ........................................................................................................................ 178  9.4  operational aspects ................................................................................................................... 179  9.5  freight transport network...................................................................................................... 180  9.6  truck stops...................................................................................................................................181  9.7  freight transport strategy ...................................................................................................... 181  9.8  overloading ............................................................................................................................... .182  9.9  abnormal loads .......................................................................................................................... 186  9.10  hazardous material ................................................................................................................... 189  9.10.1  current situation in hazardous material transport ................................................189  9.10.2  development of hazardous material transport routes...........................................189  9.11  liaison structures ...................................................................................................................... 192  9.12  implementation projects and programmes.......................................................................... 192  9.13  funding............................................................................................................................... ..........193  9.14  monitoring ............................................................................................................................... ...193iv 10  other transport‐related strategies......................................................................................... 194  10.1  non‐motorised transport ........................................................................................................ 194  10.1.1  background......................................................................................................................... 194  10.1.2  definition of nmt ............................................................................................................... 194  10.1.3  nmt in south africa ........................................................................................................... 194  10.1.4  infrastructure ................................................................................................................... 195  10.1.5  planning and integration................................................................................................ 199  10.1.6  needs assessment ............................................................................................................... 200  10.1.7  south african policies and resources............................................................................201  10.2  safety and security strategy .................................................................................................... 202  11  funding strategy and summary of proposals and programmes ........................................ 203  11.1  summary of proposals .............................................................................................................. 203  11.2  funding strategy ........................................................................................................................ 206  11.2.1  background......................................................................................................................... 206  11.2.2  transportation funding requirements ........................................................................ 206  11.2.3  funding sources ................................................................................................................. 209  11.2.4  conclusions......................................................................................................................... 217  11.2.5  recommendations.............................................................................................................. 217  11.3  prioritisation of projects ......................................................................................................... 217  11.4  budget per project and programme ....................................................................................... 219  12  stakeholder consultation ......................................................................................................... 221    list of tables table 3‐2: individual monthly income by population (source: nmbm)...................................................................18  table 3‐3: person trips per day (2009).................................................................................................................. 19  table 3‐4: taxi demand by corridor (2009) ........................................................................................................... 23  table 3‐5: major bus pick‐up points ..................................................................................................................... 24  table 3‐6: average weekday bus vehicle and passenger trips (2010)......................................................................24  table 3‐7: bus demand by corridor (2009) ........................................................................................................... 25  table 3‐8: algoa bus company data 2009/10 ....................................................................................................... 26  table 3‐9: train passenger counts at all stations (2003 ‐ 2010) ...........................................................................27  table 3‐11: uitenhage – port elizabeth prasa timetable (jan 2010)......................................................................28  table 3‐12: commuter rail fares.......................................................................................................................... 28  table 3‐13: new taxi co‐operatives ...................................................................................................................... 30  table 3‐14: taxi associations, membership and vehicles ........................................................................................ 30  table 3‐15: the primary road network (source: pavement management system) ..................................................33  table 3‐16: descriptions of nmbmcordons and count stations (source: transport model update) .....................35  table 3‐17: key accident locations....................................................................................................................... 39  table 3‐18: top accident locations that involved pedestrians ...............................................................................39  table 3‐19: number of accidents and casualties ................................................................................................... 40  table 3‐20: heavy goods vehicle data (06:00 – 18:00) (source: engineering advice & services)..............................41  table 3‐21: facilities at the pe airport ................................................................................................................. 46  table 3‐22: capital income and expenditure for the 2009/10 financial year ..........................................................52  table 3‐23: operational income and expenditure for the 2009/10 financial year ..................................................53  table 3‐24: capital budget for the 2010/11 financial year ...................................................................................54  table 4‐1: transport evaluation of stadium precinct renewal..............................................................................68  table 4‐2: transport evaluation of njoli square .................................................................................................. 69  table 4‐3: transport evaluation of the coega idz ................................................................................................ 70  table 4‐4: transport evaluation of the international convention centre .............................................................73  table 4‐5: transport evaluation of the motherwell urban renewal programme ..................................................74  table 4‐6: transport evaluation of the urban renewal of helenvale ....................................................................75  table 4‐8: transport evaluation of n2 developments ........................................................................................... 77  table 4‐9: transport evaluation of uitenhage cbd .............................................................................................. 78  table 4‐10: transport evaluation of uitenhage cbd ............................................................................................ 78v table 4‐11: transport evaluation of uitenhage cbd ............................................................................................ 80  table 5 - 1: primary road network performance indicators (source: transport model update)..............................89  table 5 - 2: roads required for access and connectivity (source: transport model update) ...................................93  table 5 - 4: notable changes from the nmmm integrated transport plan 2005 – 2010 itp (source: transport model  update) ......................................................................................................................................................98  table 6‐1: bus operating centres ....................................................................................................................... 110  table 6‐2: ipts vehicle fleet composition ........................................................................................................... 113  table 6‐3: summary of financial analysis of ipts (12‐year period of negotiated contract)...................................114  table 6‐4: corridor priorities ............................................................................................................................ 124  table 6‐5: commuter rail financial plan ............................................................................................................ 126  table 6‐6: apple express proposed budget........................................................................................................... 140  table 7 - 2: qualitative description of operating conditions (source: transport model update)...........................142  table 7 - 3: roads experiencing peak hour traffic congestion (source: transport model update) .........................142  table 7 - 4: intersections experiencing peak hour traffic congestion.................................................................... 144  table 7 - 5: road network improvements required (source: transport model update) .........................................145  table 7 - 6: primary road network performance indicators (source: transport model update)............................147  table 7 - 7: the primary road network (source: pavement management system) ..................................................147  table 7‐8: roads required for additional capacity ............................................................................................. 149  table 7‐9: access and connectivity improvements ............................................................................................... 150  table 7 - 10: road maintenance projects ............................................................................................................. 151  table 7‐11: roads requiring rehabilitation ........................................................................................................ 151  table 7‐12: bridge maintenance projects ........................................................................................................... 152  table 7‐13: traffic & signage improvements ....................................................................................................... 153  table 7‐14: typical access characteristics .......................................................................................................... 158  table 7‐15: access separation for urban areas................................................................................................... 159  table 7‐16: access separation for rural areas ................................................................................................... 160  table 7 - 17: public transport projects ................................................................................................................ 162  table 7‐18: non motorised transport projects .................................................................................................. 163  table 7‐19: freight transport projects .............................................................................................................. 164  table 7‐20: transport planning projects............................................................................................................ 164  table 9‐1: nmbm railway lines and current users (source: nmbm) .................................................................. 180  table 9‐2: truck stops & overnight facilities (source: internet) ......................................................................... 181  table 9‐3: sidwell weighbridge statistics (source: nmbm traffic department) ..................................................185  table 9‐4: abnormal load routes ...................................................................................................................... 186  table 9‐5: hazardous material routes ............................................................................................................... 189  table 9‐6: identified freight transport projects ................................................................................................. 192  table 10‐1: nmt network elements ................................................................................................................... 195  table 10‐2: length of facilities constructed and phases ..................................................................................... 195  table 10‐3: phase 13 (2010/11) nmt implementation list................................................................................... 197  table 11‐1: five year funding requirements for major projects ......................................................................... 204  table 11‐2: summary of public transport projects ............................................................................................. 205  table 11‐3: summary of road and transport projects ........................................................................................ 205  table 11‐4: 2011/12 capital budget ................................................................................................................... 206  table 11‐5: funding sources and conditions ...................................................................................................... 209  table 11‐6: nelson mandela bay municipality ‐ 2011/12 funding ....................................................................... 210  table 11‐7: department of roads and transport ‐ 2011/12 funding ................................................................... 211  table 11‐8: department of transport ‐ 2011/12 ptisf funding application.........................................................212  table 11‐9: ptis funding allocation .................................................................................................................. 213  table 11‐10: other sources ‐ 2011/12 funding .................................................................................................. 213  table 11‐11: summary of funding sources ......................................................................................................... 213  table 11‐12: funding shortfall for road and transport projects....................................................................... 214  table 11‐13 provincial project evaluation criteria ............................................................................................ 218  table 12‐1: summary of responses from public consultation meetings ...............................................................221  table 12‐2: ward councillors consultation responses....................................................................................... 223vi list of figures figure 1‐1: format of the citp............................................................................................................................... 2  figure 3‐1: population densities within nmbm .................................................................................................... 15  figure 3‐2: municipal area layout ....................................................................................................................... 16  figure 3‐3: distribution of home languages within nmbm ..................................................................................17  figure 3‐4: current public transport routes........................................................................................................ 22  figure 3‐5: existing roads of metropolitan significance ....................................................................................... 34  figure 3‐6: nmbm cordons and count stations (source: transport model update) .............................................37  figure 3‐7: existing freight routes....................................................................................................................... 44  figure 3‐8: existing airport layout ...................................................................................................................... 47  figure 3‐9: port of port elizabeth (source: google earth).................................................................................... 50  figure 3‐10: port of ngqura (source: google earth) ........................................................................................... 51  figure 4‐1: coega idz materplan (march 2009) ................................................................................................... 72  figure 4‐2: nmbm spatial development framework............................................................................................. 83  figure 5‐1: traffic zones (source: transport model update) ................................................................................86  figure 5‐2: model network for nmbm (source: transport model update) ..........................................................87  figure 5‐3: base year (2010) am peak hour traffic volumes (source: transport model update) ...........................88  figure 5 -4: 2016 operating conditions on fully developed long term road network with ipts (phase 2) in operation  (source: transport model update) .............................................................................................................. 90  figure 5 -5: 2021 operating conditions on fully developed long term road network with ipts (phase 2) in operation  (source: transport model update) .............................................................................................................. 91  figure 5 -6: 2031 operating conditions on fully developed long term road network with ipts (phase 2) in operation  (source: transport model update) .............................................................................................................. 92  figure 5 -8: medium term road improvements (10 years) (source: transport model update) .................................96  figure 5 -9: long term road improvements (20 years) (source: transport model update) ......................................97  figure 6‐1 integrated bus route network .......................................................................................................... 105  figure 6‐2 transit administration structure ...................................................................................................... 119  figure 6‐3: existing and future commuter rail corridors in – nmbm................................................................. 121  figure 6‐4: rating of existing and future commuter rail corridors ‐ nmbm......................................................121  figure 7 -1: 2010 weekday morning peak traffic hour congestion (source: transport model update) ................143  figure 7 -2: road network improvements required (source: transport model update)........................................145  figure 7 -3: 2010 weekday morning peak traffic hour operating conditions after network improvements (source:  transport model update) ......................................................................................................................... 146  figure 7 -4: long term transport network ......................................................................................................... 155  figure 9‐1: primary freight corridors (source: national freight logistics strategy, 2005) .................................174  figure 9‐2: nmbm rail network........................................................................................................................ 177  figure 9‐3: weighbridge at sidwell traffic department ...................................................................................... 184  figure 9‐4: weighbridge control office at sidwell traffic department ...............................................................184  figure 9‐5: abnormal load routes ..................................................................................................................... 188  figure 9‐6: hazardous material routes.............................................................................................................. 191  figure 10‐1: non‐motorised transport ............................................................................................................. 198  figure 11‐1: selected capital budget projects 2011/12 – 2015/16...................................................................... 220vii abbreviations used cbd central business district citp comprehensive integrated transport plan dot department of transport emp environmental management plan idp integrated development plan idz industrial development zone ipts integrated public transport system los level of service lsdf local spatial development framework mltf municipal land transport fund msdf metropolitan spatial development framework ndot national department of transport nlta national land transport act nmb nelson mandela bay nmbm nelson mandela bay municipality nmt non-motorised transport percci port elizabeth regional chamber of commerce and industry prasa passenger rail agency of south africa ptis public transport infrastructure and systems fund sdf spatial development framework ta transport authority tfr transnet freight railviii comprehensive integrated transport plan: 2011/12 executive summary 1 guidelines and overview in terms of section 36(1) of the national land transport act, 2009, (act no. 5 of 2009), the minister of transport has published minimum requirements and guidelines for the preparation of integrated transport plans (citp's). the integrated transport plans prepared by planning authorities (municipalities) must comply, as a minimum, with the requirements. in terms of the above, the nelson mandela bay municipality (nmbm) is required to prepare a type 1 comprehensive integrated transport plan every five years. the citp must be updated annually. the citp covers the five year period from july 2011 to june 2016 and provides an overview of the current transport situation, identified transport needs and the strategies required to address these needs. the citp also addresses the requirements of the national land transport act. 2 transport vision and objectives the vision statement for the citp is adopted from the provincial white paper on transport and has been updated in terms of national, provincial and local policy and is as follows: “to manage and provide efficient, safe, affordable, sustainable and accessible multi-modal transport services and infrastructure which promotes integrated land use development and ensures optimal mobility for the residents and users of the transport system in the metropolitan area.” the objectives for the nmbm citp have been developed from the provincial transport objectives and grouped together under the four generic goals for urban transport, namely: mobility, convenience, reasonable cost minimum side effects. strategies are based on the goals and objectives and direct the preparation and implementation of specific aspects of the transport plan. the strategies for each specific component of the transport system are set out in terms of: public transport road system parking goods movement and loading and unloading facilities traffic control and enforcement environment public participation finance 3 transport register the transport register covers the full spectrum of data collection necessary for the planning of all types of transport infrastructure and operations, which includes the following: geographic information socio-economic informationix comprehensive integrated transport plan: 2011/12 passenger travel behaviour and service level requirements land-use information public transport o minibus taxi o bus o commuter rail o institutional and organisational arrangements o other public transport services, i.e. metered taxis, transport for learners and accessible transport road infrastructure network usage transport safety freight transport routes parking and loading airports harbours financial information 4 spatial development framework the metropolitan spatial development framework (msdf) has been summarised in the citp. the main focal points have been highlighted and an analysis of the implications for the transport system have been analysed in respect of key projects. a map has been prepared indicating the location of these key projects. the following three focal points in the msdf are seen as imperative to achieve restructuring, integration and sustainability: sustainable community planning methodology corridors and accessibility economic development and growth the msdf provides strategic guidance as to the areas where the municipality should focus the allocation of its resources. in order to assist in prioritising projects and the allocation of resources, four main elements of the msdf were isolated as geographic entities, which could give guidance as to where the priority capital investment areas lie. these areas are: core economic areas infill priority areas strategic development areas service upgrading priority areas the msdf is also supported by a number of sectoral plans and topic-specific planning documents. the sectoral plans include those that have major spatial implications for the msdf, along with a number of large developmental projects that are being mooted in and around nelson mandela bay. the msdf, and the individual project proposals specified by the msdf, has been evaluated according to the transport implications of the project alternatives. the selection of project alternatives should be made with reference to the performance of the proposal and transport system in terms of the following objectives: integrationx comprehensive integrated transport plan: 2011/12 safety environmental impact economy accessibility the msdf should be informed by the itp in such a way as to meet the five above mentioned objectives. a spatial framework that performs poorly in terms of these objectives should be discarded or amended. poor integration of land-uses and inadequate accessibility to work opportunities by public transport negatively impact the economy and environment through long average travel times, high fuel usage and wasted time. a number of specific projects defined in the msdf have been evaluated in terms of the above five objectives. it was concluded that overall the sdf performs favourably in terms of its implications on the transport system, as evaluated in terms of the five objectives for good integration of a spatial development framework and the transport system that ultimately supports it. 5 transport needs assessment the transport needs assessment contained in the citp focuses on the following key factors: measures to promote public transport. the needs of learners and persons with disabilities. non-motorised transport. private transport and travel demand estimation. a comprehensive review of the transport demand model for the metropolitan transport system has been undertaken. detailed traffic surveys have been undertaken on the major transport routes and this information has been used to update travel projections along with the latest land use information obtained from the sdf and lsdf’s that have recently been prepared by the nmbm. a number of different transport scenarios have been evaluated for 2010 (the existing system), 2016, 2021 and 2031. various growth scenarios were evaluated as well as different private transport and public transport options. the resulting transport network was evaluated in terms of its operating conditions (level of service). during this evaluation the required upgrades to the transport network were identified for the various target years. the contents and findings of the transport model update report dated february 2011 have been summarised for inclusion into the citp. the lists of identified projects have also been included. the transport needs of the various communities, industries and authorities located within the nmbm area were determined through a consultation process, which is described in detail in chapter 12 (stakeholder consultation). 6 public transport operational strategy the minister of transport announced a national public transport strategy in 2007 to transform the existing basic commuter operations by upgrading transport modal interchanges and by providing integrated rapid public transport networks. the implementation of the strategy has two thrusts, which are: accelerated modal upgrading, and integrated public transport systems (ipts).xi comprehensive integrated transport plan: 2011/12 in 2004, the nmbm started a process of preparing a public transport plan (ptp) as required by national legislation. the ptp reviewed the status of bus, taxi and train services in the nmbm and analysed future scenarios. the plan determined a long term strategy for the public transport system, a short term implementation plan and a funding plan. the public transport plan and the public transport operational plan (which was prepared in 2008) forms an integral part of the comprehensive integrated transport plan. the main elements of these plans are as follow: public transport implementation plan integrated network design institutional structures implementation funding of operations and infrastructure background is provided with regards to the establishment of an integrated public transport system steering committee to oversee and manage the negotiations and the implementation of the integrated public transport system. in march 2009 the forum produced its own strategic business plan that proposed that the implementation of the public transport strategy and action plan should be viewed as the opportunity to achieve the transformation of the present informal-sector taxi industry into a formal-sector business operating public transport services of all kinds under contract to the municipality. the period since then has been one of detailed consideration of the way in which the phased transitional process should be implemented, and of the costs which are implied. the steering committee is of the view that by clearly identifying at the very outset the transitional and transformational elements and making plans to deal with them, it will avoid many of the problems of implementation being encountered elsewhere. in 2006 the prasa prepared a regional rail pan for the nmbm. at present there is one rail corridor in nmbm, namely the existing commuter rail service between port elizabeth and uitenhage. various future rail corridors have been identified in consultation with the nmbm as well as prasa. the future corridors are: port elizabeth – uitenhage (re-aligned between new brighton and despatch) the motherwell loop coega loop motherwell to uitenhage connection stanford road corridor the provincial commuter rail plan has also been assessed since it proposes a strategy for commuter rail that includes various elements in order to provide an optimal result. the following rail projects were previously identified: identify and arrange to protect all rail rights of way in the nmbm and adjacent towns; adjust the pe – uitenhage service; extend the pe service to coega; extend the pe – uitenhage service to the pe airport, walmer and lorraine;xii comprehensive integrated transport plan: 2011/12 plan further extensions and expansions. additionally the following projects have been identified in the 10 year rail plan of the province: port elizabeth – swartkops commuter rail humewood transport hub 7 transport infrastructure strategy the transport infrastructure strategy deals with the development and maintenance of all types of transport infrastructure (major roads, public transport facilities and rail infrastructure) within nelson mandela bay. roads are a fundamental and integral element in our transport infrastructure system, since it ensures accessibility to the whole of the transport network and it promotes the mobility of people and goods. roads therefore play the primary role in meeting transport demand in south africa since a large portion of bulk freight transport and passenger movements take place by road. the nmbm has the responsibility to plan, permit, design, construct, operate, manage and maintain an adequate road network in its area of jurisdiction to ensure sustainable growth. the roads infrastructure plan takes a closer look at the following aspects: road infrastructure status quo survey of travel patterns evaluation and mitigation road condition evaluation implementation programme roads master plan access management plan traffic calming plan road maintenance plan the planning of the ipts includes the provision of additional public transport related infrastructure that is required to complete the dedicated lane system, provide modal interchanges and commuter shelters. a project list has been included which indicates the associated projects and cost estimates. furthermore, the citp includes project lists which contain identified projects and costs estimates for the following transport elements: non-motorised transport projects freight transport projects planning and design projects 8 travel demand management travel demand management (tdm) is a specialised field aimed at reducing travel by private vehicles and encouraging the use of public transport. the advantage of this is that investment can be focused away from road construction to the improvement of public transport services and facilities.xiii comprehensive integrated transport plan: 2011/12 various tdm approaches are available that influence travel behaviour, including: physical infrastructure measures: construct bus lanes, decrease parking; voluntary measures: encourage travel changes through incentives and awareness campaigns promoting for example flexi-time and ridesharing; regulatory measures: force changes in travel behaviour through policy; pricing measures: increase private vehicle travel costs through road user charging and parking pricing; and intelligent transport systems: its can provide information on congestion and alternative modes of transport. strategies have been formulated in the citp for the nmbm to give priority to public transport vehicles, while simultaneously applying constraints to the use of private vehicles. this will be achieved by providing separated median bus lanes on the busy arterial roads and by removing car parking along the sides of these arterial roads. 9 freight logistics strategy this strategy has to identify routes and plan for the movement of goods, hazardous goods (in terms of section 27(5) of the nltta, act 22 of 2000), and abnormal loads, including maritime transport links where appropriate. the ultimate objective of the freight logistics strategy is to improve the efficiency of urban goods movement in and through nmb in line with the objectives of the national freight logistics strategy. this chapter sets out the various components and focus areas of a freight logistics strategy, which includes information that is currently available, as well as recommendations for the further development of a freight logistics strategy for the nmb area. the freight logistics strategy takes a closer look at the following aspects: vision, goals and objectives freight transport status quo needs assessment operational aspects freight transport network truck stops freight transport strategy overloading abnormal loads hazardous material liaison structures implementation projects and programmes funding monitoring 10 other transport related strategies this section of the citp deals with the development of strategies pertaining to non-motorised transport and safety and security.xiv comprehensive integrated transport plan: 2011/12 non-motorised transport (nmt) is either non-mechanised i.e. pedestrians (walking) or mechanised which includes bicycles, wheelchairs, prams, trolleys, carts (human or animal drawn), wheelbarrows, and rickshaws. the non-motorised transport strategy takes a closer look at the following aspects: background definition of nmt nmt in south africa (urban nmt) infrastructure planning and integration (nmb sidewalk and cycle track masterplan) needs assessment south african policies and resources no guidelines currently exist for the preparation of a safety and security strategy for the nmbm, and the dot document ‘technical transport planning guidelines for citp’s to be prepared by type 1 planning authorities (february 2009)’ indicates that further discussions will be held by the guidelines review committee, presumably at a national level, regarding this matter. safe and secure transportation is fundamental to a city like nmb. appropriate road safety education and law enforcement goes hand-in-hand with improved safety and security for both supply and demand of all transport aspects. the safety, security, education and enforcement strategy contained in the itp for the city of cape town 2006 – 2011 prepared in may 2009 has been drawn upon for guidance as to what content a safety and security strategy should include. the city of cape town is considered to have a good safety reputation and would therefore be a good example in this regard. 11 funding strategy and summary of proposals and programmes the major transportation system in the nmbm comprises of the following elements: main roads (freeways and arterials) – designated as proclaimed main roads (pmr’s) by provincial gazette roads of metropolitan significance (roms) – roads other than proclaimed main roads designated by the mtab, as major links in the network and main public transport routes. public transport facilities – terminals, shelters, stops, bus lanes. traffic control systems – traffic signals located on pmr’s or roms projects comprising the above facilities that have been identified in the citp is summarised in the following table. the table includes all projects that have been identified for implementation within the timeframe of the citp i.e. between the 2011/12 and 2015/16 financial years, a five year time-span. projects identified for implementation in the medium and long terms i.e. 10 to 20 years have been excluded, but are indicated in the tables in chapter 7. the table excludes backlog costs that were not budgeted due to affordability levels and therefore does not indicate the actual funding requirements to eliminate infrastructure and maintenance backlogs over the five year period. public transport projects are included.xv comprehensive integrated transport plan: 2011/12 no. project description total project cost – 5 yrs (rand) 1 metropolitan transport planning 41,862,100 2 roads required for additional capacity (short term projects) 354,800,000 3 roads required for access and connectivity (short term projects) 423,500,000 4 roads requiring rehabilitation (short term projects) 210,303,550 5 road maintenance projects 72,600,000 6 bridge maintenance projects 45,000,000 7 public transport projects 3,579,630,000 8 non-motorised transport projects 145,127,500 9 freight transport projects 2,100,000 10 traffic & signage improvements (short term projects) 73,678,625 grand total 4,948,601,775 it is proposed that the citp budget be funded from a number of different sources. the following table indicates the proposed 2011/12 budget including the proposed funding sources. funding code description 2011/12 budget (rand) 900 municipal (subsidy) 22,080,000 901 municipal 71,095,000 928 provincial subsidy 33,120,000 921 state subsidy 948,900,000 959 levies 100,600,000 951 municipal infrastructure grant (mig) 33,600,000 923 public contributions 3,050,000 total 1,212,445,000 the above table indicates a proposed expenditure of some r1.2 billion in the 2011/12 financial year. this figure is inflated due to the state contribution for the implementation of the integrated public transport system of r949 million. without this contribution (the actual approved allocation was reduced to r340 million), the total proposed budget required to implement the balance of the projects identified in the citp would be reduced to some r264 million. this figure is higher than in subsequent years due to the need to attend to urgent infrastructure backlogs. a comparison of the total cost of road and transport projects against the actual budget allocation known at the time of preparing this report, indicates an anticipated funding shortfall of r834,445,000 for the 2011/12 financial year. the actual budget allocation for 2011/12 isxvi comprehensive integrated transport plan: 2011/12 only 31% of the required funding, thus leaving a shortfall of 69%. note however that these figures are inclusive of ipts projects and operations which are funded by national government. in terms of a funding strategy the following is proposed: a) project budgeting be carried out on a three year budget cycle basis to enable proper project programming and to effectively utilise available funding, on the basis that budgets are indicative and are subject to annual review and approval. b) due to the importance of integrated planning, a specific business plan should be submitted to national treasury to address the transport planning process of the comprehensive integrated transport plan, in terms of national requirements, including supporting planning such as the preparation of management systems. c) the funding for maintenance projects be provided in terms of a roads and bridge management system to be prepared and updated every three years in consultation with and subject to the approval of the nmbm and the department of roads and public works. d) funding applications be submitted for individual projects in terms of a structured business plan that will clearly define responsibilities, deliverables and budgetary requirements. the approval of such business plans should be followed by entering into a service level agreement between the funding parties that will define funding contributions, time frames, implementation responsibilities and deliverables. e) alternative funding sources be investigated. it is concluded that: a) the nmbm has prepared a comprehensive integrated transport plan in terms of the national land transport act, 2009. the citp has been approved by the council of the nelson mandela bay municipality and is to be submitted to the provincial government for approval. b) provision has been made in the comprehensive integrated transport plan for the implementation of projects to a total value of r1,212,445,000 in the 2011/12 financial year. (note that this figure is inflated due to the state contribution for the implementation of the integrated public transport system.) it is recommended that to fund the proposed capital budget, funding be sourced from the nelson mandela bay municipality, department of transport, department of roads and public works, provincial department of transport and state treasury in terms of the funding strategy and that: a) project budgeting be carried out on a three year budget cycle basis to enable proper project programming and to effectively utilise available funding, on the basis that budgets are indicative and are subject to annual review and approval. b) due to the importance of integrated planning, a specific business plan should be submitted to national treasury to address the transport planning process of the comprehensive integrated transport plan, in terms of national requirements, including supporting planning such as the preparation of management systems. c) the funding for maintenance projects be provided in terms of a road and bridge management system to be prepared and updated every three years inxvii comprehensive integrated transport plan: 2011/12 consultation with and subject to the approval of the nmbm and the department of roads and public works. d) funding applications be submitted for individual projects in terms of a structured business plan that will clearly define responsibilities, deliverables and budgetary requirements. the approval of such business plans should be followed by entering into a service level agreement between the funding parties that will define funding contributions, time frames, implementation responsibilities and deliverables. e) alternative sources of funding, including user charges on vehicles entering the municipal area in terms of section 28 of the national land transport act, 2009 and the reallocation of funding received from the state in respect of fuel levies be investigated. the full capital budget for the nelson mandela bay metropolitan transport area has been included in appendix “a” attached hereto. the budget also indicates the proposed source of funding. 12 stakeholder consultation the transport needs of the various communities located within the nmbm area were determined through a public consultation process. initially, public meetings were organised and scheduled with the assistance of the community liaison officer (clo) of the infrastructure and engineering department in the 8 ward clusters of nmb. unfortunately only two of these meetings were held by which time the nmbm constituency office requested the rescheduling of the meetings since the process of organising these meetings had not followed the correct municipal procedures. these meetings were scheduled to resume in december 2010 but were subsequently cancelled by the constituency office due to the annual council recess over the december festive season. no follow-up meetings were arranged in 2011 to continue the public consultation process. fortunately, the recent update of the nmbm idp provided an opportunity for stakeholders and the general public to raise concerns and needs with regards to transportation in the metro. the citp provides input into the transport component of the idp and although not ideal, this is considered to have been an acceptable opportunity for the various communities of nmb to provide input, given the challenges faced with the initial public consultation process. a summary of this citp will be included in the next update of the idp. additionally, various industries and authorities within nmb were also consulted to identify their transport related needs. a survey form on which people’s perspective of transport in their areas could be recorded and a data collection sheet on which possible transport projects could be listed were prepared and sent to all ward councillors in the metro during october 2010. feedback was received from some councillors, which has been summarised in the citp.1 comprehensive integrated transport plan: 2011/12 1 introduction 1.1 legislation and national requirements this comprehensive integrated transport plan (citp) has been prepared for the nelson mandela bay municipality (nmbm) in terms of section 36(1) of the national land transport act 2009, (act no. 5 of 2009) (nlta). in terms of the nlta: “all planning authorities must prepare and submit to the mec, by the date determined by the minister, integrated transport plans for their respective areas for the five year period commencing on the first day of the financial year determined by the mec, and must update them in the prescribed manner and as frequently as prescribed”. the nlta section 32(2) furthermore requires that: “integrated transport plans must be in accordance with requirements and in the manner and form as the minister may prescribe in consultation with the mec’s, but the mec may prescribe the content of integrated transport plans in addition to such requirements, and the aforementioned regulations may prescribe different matters for different types or categories of municipalities” in 2007 the minister published minimum requirements for the preparation of integrated transport plans. for the purposes of land transport planning, three types of planning authorities have been distinguished in the regulations. the type of integrated transport plan to be prepared by these planning authorities is as follows: type 1: planning authorities required to prepare comprehensive integrated transport plans (citp) are cities identified by the department of transport as part of its integrated public transport network initiative and who are required to prepare integrated public transport system plans. type 2: all district municipalities are to prepare a district integrated transport plan (ditp). type 3: all other local municipalities are to prepare a local integrated transport plan (litp). the nmbm has been identified by the department of transport (dot) as a part of its integrated public transport network initiative and has prepared an integrated public transport system (ipts) plan. in terms of the above, the nmbm is thus required to prepare a type 1 comprehensive integrated transport plan (citp). the citp prepared by planning authorities (municipalities) must comply, as a minimum, with the requirements. planning authorities are encouraged to do additional planning if they are able to do so, as allowed by their budgets and capacities, in order to better promote the objects of the nlta. planning authorities must also comply with any additional requirements prescribed by the mec. in addition to the requirements published in 2007, the department of transport published technical transport planning guidelines in february 2009 for citp’s to be prepared by type 1 planning authorities. this citp has been prepared to satisfy the requirements of the nlta, minimum requirements and in terms of the guidelines.2 comprehensive integrated transport plan: 2011/12 1.2 format of the citp the overall format of a citp is given in the department of transport (dot) requirements and must contain the following chapters: 1. introduction 2. transport vision and objectives 3. transport register (public transport, traffic, roads and land use) 4. spatial development framework 5. transport needs assessment 6. public transport operational strategy 7. transport infrastructure strategy 8. transport demand management 9. freight transport strategy 10. other transport related strategies (non-motorised transport and public transport related safety and security) 11. funding and implementation strategy 12. stakeholder consultation the following diagram shows the chapters systematically. figure 1-1: format of the citp all aspects on the citp must contain reference to stakeholder consultation. 1.3 frequency of plan preparation the minimum frequency of the preparation of comprehensive integrated transport plans, as set out in the requirements, is five years. the citp must be updated annually and must be synchronised with the integrated development plan (idp) for the municipality. the nmbm last prepared a full comprehensive integrated transport plan in 2005 for the five year period from 2005/06 to 2009/10. this citp was updated annually, the last update being tilted the 2009/10 citp which was prepared in respect of the 2010/11 municipal and introduction transport vision  and objectives transport register spatial  development  framework transport needs  assessment integrated rapid  public transport  network transport  infrastructure  strategy transport demand  management funding strategy freight logistics  strategy nmt / safety and  security3 comprehensive integrated transport plan: 2011/12 provincial dot financial years. the naming of the previous 2009/10 citp and this 2011/12 citp is thus problematic in the sense that it creates an impression that no citp was prepared for the 2010/11 period, which is not the case. the 2011/12 citp is synchronised with the 2011/12 municipal and provincial dot financial years, as well as the latest idp revision. in terms of the nlta, which requires planning authorities to prepare citp’s on a five yearly cycle, this comprehensive integrated transport plan has been prepared for the five year period from 2011/12 to 2015/16. in 2007/08 a public transport plan was prepared to form the public transport component of the citp. this plan has not been revised to date. prolonged negotiations are currently underway with public transport operators in nmb, after which the public transport plan will be revised accordingly. 1.4 institutional and organisational structure the citp has been prepared by the transportation planning sub-directorate of the nmbm infrastructure and engineering directorate. the directorate is currently considering restructuring in order to improve its efficiency and to make optimum use of its resources. an investigation is being undertaken in terms of section 78 of the municipal structures act to determine the most appropriate mechanism (internal or external) to undertake the functions that are being devolved to municipalities in terms of the nlta. the process of the preparation of the citp has been guided by a technical committee comprising of internal and external role-players and chaired by the nmbm. the technical committee reports to the infrastructure, engineering and energy committee of the nmbm as well as the integrated transport plan co-ordinating committee of the provincial government of the eastern cape. residents and commuters of the nelson mandela bay municipality were consulted through a public consultation process.4 comprehensive integrated transport plan: 2011/12 “to manage and provide efficient, safe, affordable,  sustainable and accessible multi‐modal transport  services and infrastructure which promotes integrated  land use development and ensures optimal mobility for  the residents and users of the transport system in the  metropolitan area.”  idp itp nlta minimum  requirements:  national transport  policy principles ec white paper on  transport for  sustainable  development moving south africa  action agenda white paper on  national transport  policy  2 transport vision and objectives the nelson mandela bay municipality comprehensive integrated transport plan deals with the vision, goals and objectives for the metropolitan transport area. the citp vision statement encompasses national, provincial and local policy frameworks and sets out the ideal outcome as a result of the goals and objectives set by the nmbm to provide an efficient transport system for all its inhabitants. the following department of transport planning guidelines for citp’s were used as a guide to confirm and refresh the nelson mandela bay municipality citp vision statement: the vision statement should be formulated within national, provincial and local policy frameworks the vision statement should be a single concise statement guiding transport in the short and long term measurable and achievable objectives should be formulated after taking cognisance of the various supporting documents and planning policies, the citp vision statement for the nmbm is as follows: 2.1 supporting documents according to the south african constitution, legislative powers and responsibilities for transport are shared between local, provincial and national government. it is therefore important to take into consideration the policies of the different spheres of government when preparing the citp. the following flow chart / diagram represent the supporting documents used by the various levels of government and which feed into the citp. the core values and minimum requirements highlighted in these documents were used to formulate the citp vision statement.5 comprehensive integrated transport plan: 2011/12 support socio‐economic growth and development  determine and meet customer needs  provide safe, affordable and improved transport  services  enhance city functions through integrated land use and  transport planning  provide and maintain improved transport  infrastructure  minimise impacts and promote environmental  sustainability  provide accessible transport for all users  consult and involve all stake holders  provide responsive, people centred and integrated  institutional structures  a) enhance city functions through integrated services and  infrastructure.  b) focus on transport corridors and encourage mixed land  use development.  c) prioritise public transport.  d) enhance accessibility.  e) improve maintenance.  f) minimise the environmental impact of transport.  a summary of all the policy statements from the five supporting documents was formulated, which in turn was used to finalise the vision statement. the summary of the combination of key goals from the supporting documents is set out in bullet form as follows: 2.1.1 national land transport act (no. 5 of 2009) the national land transport act (nlta) was promulgated in the government gazette n o . 32110 on 8 april 2009. the nlta repeals the national land transport transition act (no. 22 of 2000) in its entirety. in terms of section 2 of the nlta, the purpose of the act is: to further the process of transformation and restructuring of the transport system to give effect to national policy to prescribe national principles, requirements, guidelines, frameworks and norms and standards to consolidate land transport functions and locate them in the appropriate sphere of government with regards to the citp, the nlta proposes the following minimum requirements in terms of national transport policy principles:6 comprehensive integrated transport plan: 2011/12 “quality transport systems for a better life for all.”  “provide, facilitate, develop, regulate, and enhance  safe, affordable and reliable multi‐ modal transport  systems which are integrated with land uses to ensure  optimal mobility of people and goods in support of  socio‐ economic growth and development in the  province of the eastern cape.”  g) consult all stakeholders.  h) integrated land use and transport planning.  i) correct the imbalances of the past.  j) equitable opportunities should be created for all.  k) provide safe and accessible transport.  l) promote social and economic development.  2.1.2 eastern cape provincial white paper on transport for sustainable development the eastern cape provincial white paper on transport for sustainable development was published in the provincial gazette on 24 july 2001 representing the formal policy of the province on transport issues. the white paper addresses the role and responsibility of transport in establishing and implementing a policy of sustainable development in the province. the vision of the department of transport in the province of the eastern cape has been defined as being able to provide: its mission is defined as follows: this vision and mission is consistent with the reconstruction and development programme. the white paper lists the following as the general objectives to be achieved by the department of transport to fulfil its mission; all these objectives must be achieved with a minimum negative impact on the surrounding environment. 2.1.3 moving south africa action agenda the moving south africa action agenda dictates the national department of transport’s 20 year strategic framework for the transport sector in south africa and is based on the draft report “towards a transport strategy for 2020” and the white paper on national transport policy of 1996. the msa action agenda focuses on the following transport issues: urban passenger transport, rural passenger transport,7 comprehensive integrated transport plan: 2011/12 a) meet the need for accessible, affordable, safe,  frequent, high quality,  reliable, efficient and  seamless transport operations and infrastructure.  b) do so  in a constantly upgrading,  innovative,  flexible and economically and environmentally  sustainable manner.  c) support  and  enable  government  strategies,  particularly  those  for  growth,  development,  redistribution, employment creation and social  integration, both  in south africa and  in the  southern african region. "provide safe, reliable, effective, efficient, and fully  integrated transport operations and infrastructure  which will best meet the needs of freight and passenger  customers at improving levels of service and cost in a  fashion which supports government strategies for  economic and social development whilst being  environmentally and economically sustainable".  a) support the goals of the rdp. b) meet customer needs.  c) improve the safety, security, reliability, quality and  speed of transport.  d) improve  the effectiveness  and efficiency of  transport.  e) invest in transport infrastructure.  f) improve  economic  and  environmental  sustainability.  tourist and long-distance customers, special needs customers and freight transport. the vision for transport in south africa by the year 2020 can briefly be summarised as shown below. the general pattern emerging through the msa action agenda points to a transport system that is customer based (hence customer needs are the foundation of the action agenda), sustainable with low system costs and provides room for service levels to be continually upgraded and expanded in the future. 2.1.4 white paper on national transport policy the white paper on national transport policy was published in august 1996. it describes the transport policies of national government. the vision for south african transport as set out in the white paper is as follows: the following goals are identified in order to make this vision possible:8 comprehensive integrated transport plan: 2011/12 a) correct spatial imbalances  b) combat poverty and unemployment  c) ensure access to basic services for all  d) socio‐economic growth and sustainability  e) a safe, secure, healthy and sustainable environment  f) development of integrated and sustainable settlements  g) responsive, people‐centred and integrated institution  h) democratisation of planning and decision making  i) elimination of growth and maintenance backlogs  “to be a globally competitive and preferred metropole  that works together with the people” 2.1.5 integrated development plan (2010/11 review – 9 th edition) the main purpose of the nmbm integrated development plan (idp) is to enhance service delivery within the municipality. every municipality has an idp which consists of planning mechanisms to ensure that all communities receive the service(s) they require. the nmbm citp forms part of the nmbm idp’s five year implementation framework. the following diagram illustrates where the idp and the citp fit into the overall planning process. (adopted from national department of transport technical transport planning guidelines for citps) the following goals are identified in the idp in order to make the nmbm vision of being a “globally competitive and preferred metropole that works together with the people”, possible: 2.2 nelson mandela bay municipality the nmbm integrated development plan (9 th edition) sets out the vision and the core values of the municipality as follows: 2.2.1 municipal vision the municipality’s long-term vision is as follows:9 comprehensive integrated transport plan: 2011/12 a) courtesy and people first: residents should be  treated with courtesy and consideration at all  times.  b) consultation: residents should be consulted  about service  levels and quality, whenever  possible.  a) service excellence: residents must be made  aware of what to expect in terms of level and  quality of service.  b) access: residents should have equal access to  the services to which they are entitled.  c) information. residents must receive full and  accurate information about their services.  d) openness and transparency: residents should  be informed about government departments,  operations,  budgets  and  management  structures.  e) redress: residents are entitled to an apology,  explanation and remedial action if the promised  standard of service is not delivered.  f) value for money: public services should be  provided economically and efficiently.  f) mobility  g) convenience  h) reasonable cost  i) minimum side effects  2.2.2 core values of municipality the municipality is committed to deliver services within the framework of batho pele principles, as follows: 2.3 goals and objectives the objectives for the nmbm citp have been developed from the provincial transport objectives and grouped together under the four generic goals for urban transport, namely:10 comprehensive integrated transport plan: 2011/12 a) to provide a frequent, safe and reliable public  transport  service with  conveniently  located  termini and stops.  b) to provide adequate parking and loading space in  close proximity to all community and business  activity centres.  c) to promote integration of passenger transport  modes through  interchange  facilities, routes,  schedules and ticketing arrangements.  d) to reduce peak hour crowding at public transport  facilities and on public transport vehicles to  comfortable levels.  e) to provide for non‐motorised transport modes,  such as bicycles and pedestrians. a) to undertake integrated planning of land use and  transport systems in order to minimize the need  for travel.  b) to provide an arterial road system and multi‐ modal public transport system to make all parts  of the metropolitan area accessible.  c) to enhance the viability of all community and  business  activity  centres by  transportation  improvements and traffic management systems.  d) to promote the use of public transport modes  over private car travel.  e) to provide for the transport needs of mobility  disadvantaged groups such as disabled persons.  the transport goals and objectives of the citp are as follows: 2.3.1 goal of mobility objectives: 2.3.2 goal of convenience objectives:11 comprehensive integrated transport plan: 2011/12 a) to minimise  the  total  cost of provision,  operation and maintenance of the metropolitan  transport system.  b) to promote an integrated transport system in  which each mode is used for the purpose to  which it is most efficiently suited.  c) to minimise peak hour congestion costs in the  metropolitan area.  d) to improve affordability of public transport for  users by ensuring operations are economically  efficient.  e) to promote competition as an incentive to  greater efficiency and  lower costs  in  the  provision and operation of transport services.  f) to recover the cost of transport as far as possible  from transport users in proportion to the cost  incurred in use. a) to  improve transport safety and reduce the  accident rate.  b) to provide an adequate level of personal security  for persons using transport facilities.  c) to minimise the negative impact of transport on  the natural and built environment.  d) to promote the development of human resources  and technology to ensure a sustainable transport  system.  e) to provide appropriate institutional structures to  facilitate effective planning and management of  the transport system.  2.3.3 goal of reasonable cost objectives: 2.3.4 goal of minimum side effects objectives:12 comprehensive integrated transport plan: 2011/12 a) promote the use of public transport in preference  to private transport.  b) establish mass transit corridors where  it  is  considered to be the most effective form of  transport to move large volumes of people.  c) provide  infrastructure  where  considered  necessary to support public transport services in  terms of roads, dedicated lanes, terminals, ranks,  stops and shelters.  d) contract with private bus and taxi operators to  provide reliable and efficient public transport  services where these are considered necessary.  e) implement a system of tendering for public  transport  service  contracts which  require  government subsidy support.  a) provide adequate roads to give access to all  developed areas with particular emphasis on  good accessibility to major business districts and  major employment areas.  b) provide adequate major arterials with limited  access that provides a reasonably uncongested  level of service for peak hour traffic movements.  c) select the most cost‐effective road alignments  with due consideration to environmental impact.  d) provide for maintenance of existing roads to  ensure that the  level of service required  is  maintained and optimum use is made of the  limited funds available.  2.4 strategies strategies are based on the goals and objectives and direct the preparation and implementation of specific aspects of the transport plan. the strategies for each specific component of the transport system are as follows: 2.4.1 public transport 2.4.2 road system13 comprehensive integrated transport plan: 2011/12 a) restrict parking during peak periods on selected  arterials to ensure the most efficient use of  available road capacity.  b) ensure the provision of long term and short term  parking by development controls to maintain the  viability of all business activity centres.  a) provide adequate loading and unloading facilities,  preferably off‐street, to serve all business activity.  b) provide adequate road and rail infrastructure to  facilitate the convenient and efficient movement of  goods throughout the metropolitan area with  adequate access to all industrial areas.  c) protect routes required for the transportation of  abnormal loads.  a) provide adequate enforcement to promote the  safe and efficient movement of traffic and to  maintain a safe and secure environment for  pedestrians.  b) provide enforcement  to ensure an equitable  utilization of public parking spaces.  c) use modern traffic control systems to maximize  the efficient use of existing roads by all forms of  transport.  2.4.3 parking 2.4.4 goods movement and loading and unloading facilities 2.4.5 traffic control and enforcement14 comprehensive integrated transport plan: 2011/12 a) take due cognizance of the impact on the natural  and built environment when  considering  any  transportation proposal.  a) convene stakeholder workshops to obtain input  into the transport planning process.  b) keep  the  public  informed  of  all major  transportation proposals through the news media  and public information meetings.  c) promote the use of public transport by the  distribution of appropriate pr material. a) obtain funding for transport infrastructure from  national and provincial government, and private  enterprise,  or  through  capital  loans where  necessary, in order to allow implementation of  transport projects.  b) recover  the  cost  of  providing  transport  infrastructure and services from user charges as far  as possible. 2.4.6 environment 2.4.7 public participation 2.4.8 finance15 comprehensive integrated transport plan: 2011/12 3 transport register 3.1 geographic information the nelson mandela bay municipality (nmbm) is one of six metropolitan municipalities in south africa. it is located on the shores of algoa bay in the eastern cape province, and comprises the city of port elizabeth, the nearby towns of uitenhage and despatch, and the surrounding rural area. the extent of the municipal area is shown in figure 3-2. port elizabeth is one of the largest cities in south africa, situated in the eastern cape province. the city stretches for 16 km along algoa bay, and is one of the major seaports in south africa. 3.2 socio-economic information the nelson mandela bay municipality has a population of approximately 1,1 million and covers an area of 1 950km, with approximately 289 000 households present in the formal residential areas. an additional 35 257 informal households and 49 009 backyard shacks also exist within the metropolitan area. the population densities within the municipal area are shown in the following figure and are based on 2001 census information. figure 3-1: population densities within nmbm number of people per km: 1 /km 1–3 /km 3–10 /km 10–30 /km 30–100 /km 100–300 /km 300–1000 /km 1000–3000 /km 3000 /km indian ocean n16 comprehensive integrated transport plan: 2011/12 figure 3-2: municipal area layout17 comprehensive integrated transport plan: 2011/12 the age distribution in nelson mandela bay municipality reflects a very youthful population, with 55.3% of residents falling in the age group below 30 years, and a male/female ratio of 48:52. table 3-1: population by age group (source: nmbm) age groups 0-9 10-19 20-29 30-39 40-49 50-59 60-69 70-79 80 total % of total population 16.4% 20.3% 18.6% 15.9% 12.9% 7.8% 4.7% 2.4% 0.9% 100% the three main home languages spoken within nmbm are xhosa, english and afrikaans. the geographical distribution of home languages within the nmbm area is shown in the following figure. figure 3-3: distribution of home languages within nmbm legend: afrikaans english xhosa none dominant the unemployment rate among the economically active sector of the community is estimated as being over 35%. although the unemployment rate in nelson mandela bay municipality has shown a steady decline since 1994, it remains higher than the national average (25.3% - 2 nd quarter 2010) for south africa. 20% of residents have no or limited schooling. altogether 112 306 of the 289 000 formal households are classified as indigent (poor), whilst 44% of all households access at least one social grant. indian ocean n18 comprehensive integrated transport plan: 2011/12 the nelson mandela bay municipality population has a 30% hiv/aids prevalence rate, according to antenatal care statistics. income statistics indicate that 66% of residents receive no income, whilst the remaining residents mainly fall within the low to medium income brackets. table 3-2: individual monthly income by population (source: nmbm) income bracket % of population no income 66.0% r1 - r400 3.3% r401 - r800 10.7% r801 - r1 600 6.1% r1 601 - r3 200 5.7% r3 201 - r6 400 4.7% r6 401 - r12 800 2.4% r12 801 - r25 600 0.8% r25 601 - r51 200 0.2% r51 201 - r102 400 0.1% r102 401 - r204 800 0.1% r204 801 or more 0.02% total 100.0% 3.3 passenger travel behaviour and service level requirements in order to be able to forecast future public transport demand for use in planning the best long-term public transport system strategy, it is important to have reliable information on the current volumes of passengers using public transport modes, as well as the actual travel patterns in respect of the origins and destinations of trips, from home to work, etc. this is necessary to optimise the planning of public transport services and other infrastructure requirements within the nmbm. in 2009 a survey was conducted in the nmbm to determine the number of vehicles using the road network in order to determine which roads are congested. the traffic counts classified each mode of passenger transport for example, private cars, buses, taxis, etc. this information has been analysed and summarised in table 3-3. a total of 7 major counting stations and 49 other counting stations were selected to cover operations throughout the metro area. the positions of the counting stations were chosen to determine the number of passengers travelling from the various residential areas and entering or leaving the various employment areas and other destinations. as part of the data collection carried out in 2009 the travel survey indicates an estimated total of 1,33 million person trips per day in the nmbm area. this showed a decrease from 1.4 million people travelling per day in 2004. the passenger trips obtained from the counts show that about 56% use private transport, 42% travel by public transport modes (excluding train services) and only 2% walk. this shows that there has been an increase in use of public transport since 2004, however in terms of numbers, the use of private cars is rising and19 comprehensive integrated transport plan: 2011/12 walking as a mode of transport has decreased. the public transport trips (561 331 per day) are split between the modes as follows: taxis carry 67% and buses carry 33%. the use of taxis as a mode of transport has decreased by 9% and that of buses has increased also by 9% since 2004. it should be noted that this information does not include the number of passenger trips by trains. the trips per mode obtained from the visum transport model data collection process are shown in the following table. table 3-3: person trips per day (2009) mode person trips % (all modes) % private/public % public modes private vehicle 739 746 56 57 - taxi (all types) 372 866 28 43 67 bus 188 465 14 33 walk 23 974 2 - - total 1 325 051 100 100 100 it is also significant to note how mode use varies according to the income of users. walking is the predominant mode of travel in the low income areas while private transport is the predominant mode used in the port elizabeth central / western suburbs and uitenhage / despatch. in the northern areas (gelvandale / bethelsdorp) there is an almost equal modal split between walking, private and public transport. the greatest potential to increase the use of public transport is in the low income areas, where walking is currently the predominant mode. as household income increases for low income categories, there is a shift from walking to use of public transport. survey forms were sent out to the ward councillor’s for distribution in the wards in order to obtain additional information on passenger travel such as origins and destinations, distances, frequency of use of public transport, etc. few forms have been received back and the information is not sufficient to include in this report. 3.4 land-use information the land within the nmbm area is zoned for various uses as shown on the nmbm spatial development framework (sdf). the latest map of the sdf is contained in chapter 4 of this document. these land uses include, but are not limited to, the following: residential office & commercial industrial education parks & gardens undeveloped open space agricultural hospitals institutional and government use, e.g. government offices, cemeteries, etc.20 comprehensive integrated transport plan: 2011/12 3.5 public transport buses and minibus taxis are the predominant public transport service providers in the nmbm area. whilst there is a commuter rail service between port elizabeth and uitenhage, it is only accessible to a relatively small number of residents within walking distance of the stations. this is because the railway was originally constructed as a freight line away from the residential areas. the current public transport routes are shown in figure 3-4. these routes may change as they will be revised as a part of the planning of the integrated public transport system. important parameters for the design of the public transport system are as follows: a) perceived travel time: travel time, or rather perceived travel time, is the most important preference of the traveller. this means that the traveller has different perceptions for different components of the journey. for instance the perception of the importance of time spent riding on board the bus is less than perceived time spent waiting at stops or transfer stations. also a journey with no transfers is perceived as shorter even though the actual journey time may be longer compared to a journey with one or more transfers. the following sub criteria, that influence the perceived travel time, are therefore important design requirements. all day, frequent services – 10-15 minutes headway in peak hours and maximum 30 minutes headway in off-peak hours. travel speed - prioritised street/road operations, shortest possible routes and minimum dwell time at stops. walking distance - optimised distances between stops (400m – 600m). transfers - minimum number of transfers and minimum waiting time. information - convenient real time information at stops and on board buses. b) accessibility the public transport system needs to be accessible to any citizen no matter their physical ability, gender, age or other circumstances. this means that the physical environment must be organised in a way that allows any person to travel from door to door including walking to and from bus stops, grasping information, boarding vehicles, transfer at modal interchanges, etc. c) reliability passengers must have trust in the performance of the public transport system meaning that services are operational and on schedule. passengers need to be informed if a trip is not to be operated. real time service information at stops is one of the best methods to increase passenger confidence in the service. d) comfort and safety it is vital that the passengers feel comfortable and safe all along the journey – from starting point to the final destination. this means that not only public transport stops must be considered in this respect, but also the walkway to and from the house or work place to the public transport stop. the following items require attention: a) on board a public transport vehicle - i.e. seating capacity, pleasant environment and security.21 comprehensive integrated transport plan: 2011/12 b) at public transport stops - i.e. convenient and safe walkways to stops and convenience and safety at stops. 3.5.1 minibus taxi 3.5.1.1 supply information taxi operations in the metropolitan area vary considerably in nature, depending on the area or type of service being provided, and can generally be categorised into the following types of services: minibus taxi’s operating between places of residence and work opportunities. minibus and sedan taxis providing feeder or distribution services in residential areas. sedan taxis providing connector services between motherwell and zwide /kwazakhele. surveys conducted at the 49 taxi ranks in the area for the 2001 current public transport record (cptr) found that about 119 000 passengers boarded taxis daily on 258 routes (destinations). the busiest ranks in order of passenger turnover were griffin street, cleary park and durban road (uitenhage). approximately 46 000 passenger trips originated from these ranks each day. the surveys indicate that, on average, minibus taxis only undertake 3.1 trips per day. this statistic alone is surely an indication of the current over-supply of taxis in the metropolitan area - one of the core reasons for the severe competition between taxi associations for routes and ranks. furthermore, the results of the rank surveys indicate that passenger waiting times at taxi ranks in general, do not exceed 15 to 30 minutes, with only about 5% of all commuters waiting for longer than 30 minutes at a taxi rank. the longer waiting times obviously occur during the off-peak periods when it takes longer for taxis to fill up. fares are determined by the taxi associations and, generally, passengers are not consulted when new fares are determined. the 2009/10 citp indicated that based on information from the eastern cape taxi register, there were 2 347 registered minibus taxis in the nmbm area and only 1 304 (56%) of these had operating licenses according to the provincial operating license board. new licensing information was obtained from the eastern cape taxi register in october 2010, which included all registered minibus taxis in the cacadu region. no distinction is however made between the various areas within the region, therefore it is very difficult to identify the vehicles that operate within nmb. the number of registered minibus taxis within nmb should therefore be investigated in greater detail as part of the next ptp update. nevertheless, based on the licensing information contained in the 2009/10 citp, it meant that about 44% of taxis are operating illegally. it should also be noted that this may be due to the fact that the operating license board has also not issued new licenses pending the finalisation of the integrated public transport system planning. of particular concern regarding the mini-bus taxi fleet in the nelson mandela bay municipality, is the fact that the average vehicle age is approaching 12 years. the average vehicle age of sedan taxis is more than 16 years, which explains the dismal condition that most of these vehicles are in. in view of the aging vehicle fleet, roadworthiness should be a top priority in terms of law enforcement in future.22 comprehensive integrated transport plan: 2011/12 figure 3-4: current public transport routes23 comprehensive integrated transport plan: 2011/12 3.5.1.2 demand information during 2009 a major public transport census was undertaken. the surveys were conducted on major corridors throughout the area between 06:00 to 18:00. the following table indicates the number of vehicle and passenger trips per day by minibus taxi crossing the corridor cordons: table 3-4: taxi demand by corridor (2009) no corridor trips passenger trips in out total in out total a dibanisa road (motherwell) 303 418 721 2233 2615 4848 b commercial road 1040 936 1976 8809 7765 16474 c standford road (livingston hospital) 1650 1739 3389 13574 15920 29494 d cape road 522 225 747 2144 855 2999 e humewood / beach road 1675 804 2479 9863 4070 13933 f standford road (bethelsdorp) 1388 1137 2525 9151 9231 18382 g kwanobuhle access 1430 1230 2660 8592 12190 20782 total 8008 6489 14497 54366 52646 106912 3.5.2 bus 3.5.2.1 supply information the 298 bus routes served by the algoa bus company comprises a total route length of 7 147km. these 298 routes consist of a core of 19 main routes, with various permutations and variations to these routes making up the remaining 279. the majority of bus routes are between 10 and 30 km long, with very few trips exceeding 40 km in length. the average bus trip length is 32 km, which is nearly double that of the average taxi trip length. the bus routes are served by a fleet of 408 buses. the main termini in the metropolitan area are the norwich terminus in strand street, bay station, which is situated beneath the settlers way freeway in victoria quay and algoa road in uitenhage. in addition to the termini, there are 39 major or main stops within the nmbm. the main stops are defined as areas or stops where a large number of passengers board or alight. there are a further 21 smaller bus facilities (not embayments) situated throughout the area and these seem to adequately serve the needs of the bus operator and commuters. the major bus pickup points in nelson mandela bay are shown in the following table.24 comprehensive integrated transport plan: 2011/12 table 3-5: major bus pick-up points bus pick-up point bus pick-up point pier 14 harrower rd berry's corner algoa park korsten greenacres bayview pick 'n pay walmer park cleary park overbaakens booysens park kabega park kwadwesi westering kwamagxaki newton park veeplaas st georges hospital njoli provincial hospital daku rd mercantile hospital ave a livingstone hospital koyana dora nginza hospital qeqe mount pleasant salamntu 17th ave/main road kleinskool rowallan park missionvale bridgemead joe slovo commercial rd entire motherwell lorraine wells estate sherwood 3.5.2.2 demand information the algoa bus company currently transports approximately 65 385 passengers per day during 1 410 daily trips. as shown in the following table, more passengers are transported during the am period than in the pm. there has been a decrease in passenger trips when compared with information obtained in 2008 from 91 728 trips to 65 385, a decline of approximately 28%. table 3-6: average weekday bus vehicle and passenger trips (2010) during 2009 a major public transport census was undertaken. this included traffic surveys on major corridors throughout the area. the surveys were conducted between 06:00 and 18:00. table 3-7 indicates the number of vehicle and passenger trips per day by bus crossing the survey cordons: period vehicle trips passenger trips am period 719 34 125 pm period 691 31 260 total per day 1 410 65 38525 comprehensive integrated transport plan: 2011/12 table 3-7: bus demand by corridor (2009) no corridor name trips passenger trips in out total in out total a dibanisa road (motherwell) 180 196 376 4360 5344 9704 b commercial road 139 333 472 5717 2617 8334 c standford road (livingston hospital) 169 172 341 3626 3893 7519 d cape road 121 114 235 5490 3409 8899 e humewood / beach road 107 82 189 2990 2707 5697 f standford road (bethelsdorp) 82 69 151 2509 1971 4480 g kwanobuhle access 59 52 111 2567 2066 4633 total 857 1018 1875 27259 22007 49266 additional information on the demand and supply of buses in the nmbm was obtained from the algoa bus company and is shown in table 3-8.26 comprehensive integrated transport plan: 2011/12 table 3-8: algoa bus company data 2009/1027 comprehensive integrated transport plan: 2011/12 3.5.3 commuter rail commuter rail services are currently provided between port elizabeth and uitenhage, a distance of 31 km. eleven train stations are situated along this line. on weekdays (monday to friday) the commuter rail service is operated in the morning peak (departure times from 05:30 to 07:50) and afternoon peak (departure times from 14:25 to 18:15). twelve train trips per day are operated on weekdays. a saturday service is operated from uitenhage departing at 06:45 and returning from port elizabeth at 13:45. no train service is provided on sundays or on public holidays. a summary of the number of passengers boarding and alighting at all stations was obtained from surveys carried out by the passenger rail agency of south africa (prasa) for the period 2003 to 2010 and is provided in the following table. table 3-9: train passenger counts at all stations (2003 - 2010) year 2003 2004 2006 2007 2008 2010 in 5801 4949 6079 5393 6958 6961 out 5832 5078 5847 5533 7585 7726 total 11633 10027 11926 10926 14543 14687 average 5817 5014 5963 5463 7272 7344 the figures show that the average number of passenger trips by train on the port elizabeth – uitenhage line was 7 344 per day in 2010 compared to 5 817 per day in 2003. the 2010 surveys therefore indicate a 26.3% patronage increase from 2003 to 2010. the daily ridership on the port elizabeth – uitenhage line was approximately 14 500 passengers in 2010. from the survey information it is evident that the patronage trend fluctuated over recent years. patronage declined in 2004 and 2007, followed by a significant patronage increase in 2008. the reasons for this increase could be attributed to the recent economic downturn and the fuel increase which had a direct impact to the increase of consumer goods and transport fares. comparatively, rail being the most affordable amongst other modes of transport has seen a significant increase in commuter patronage. the following two tables indicate the current timetables for the train services for the 11 stations between port elizabeth and uitenhage. table 3-10: port elizabeth – uitenhage prasa timetable (jan 2010) train no weekdays saturdays 0002 0004 0006 0008 0010 0012 port elizabeth 05h43 14h25 16h12 17h15 18h15 13h45 north end 05h47 14h29 16h16 17h19 18h19 13h49 sydenham 05h51 14h33 16h20 17h23 18h23 13h53 new brighton 05h55 14h37 16h24 17h27 18h27 13h57 swartkops 06h00 14h42 16h29 17h32 18h32 14h02 redhouse 06h06 14h48 16h35 17h38 18h38 14h0828 comprehensive integrated transport plan: 2011/12 train no weekdays saturdays 0002 0004 0006 0008 0010 0012 perseverance 06h12 14h54 16h41 17h44 18h44 14h14 despatch 06h17 14h59 16h46 17h49 18h49 14h19 cuyler manor 06h21 16h50 de mist 06h25 15h05 16h54 17h55 18h55 14h25 uitenhage 06h28 15h08 16h57 17h58 18h58 14h28 table 3-11: uitenhage – port elizabeth prasa timetable (jan 2010) train no weekdays saturdays 0001 0021 0003 0005 0023 0007 0009 0013 uitenhage 05h30 06h35 07h00 16h30 17h35 06h45 de mist 05h34 06h39 07h04 16h34 17h39 06h49 cuyler manor 06h43 16h38 despatch 05h40 06h47 07h10 16h47 17h50 06h55 perseverance 05h46 06h53 07h16 16h53 17h56 07h01 redhouse 05h52 06h59 07h22 16h59 18h02 07h07 swartkops 05h58 07h05 07h28 07h50 17h05 18h08 07h13 new brighton 06h03 06h50 07h10 07h33 07h55 17h10 18h13 07h18 sydenham 06h07 06h54 07h14 07h37 07h59 17h14 18h17 07h22 north end 06h11 06h58 07h19 07h41 08h03 17h18 18h21 07h27 port elizabeth 06h14 07h01 07h21 07h44 08h06 17h21 18h24 07h30 the table below sets out the rail fares applicable up to april 2010. table 3-12: commuter rail fares single week month metroplus metro metroplus metro metroplus metro 4.50 3.50 31.00 18.00 103.00 60.00 10.00 5.00 70.00 27.00 235.00 100.00 3.5.3.1 the port elizabeth – avontuur narrow gauge railway (apple express) the narrow gauge railway from port elizabeth to avontuur was constructed to serve the langkloof, a fertile farming area located to the west of port elizabeth. the line was commissioned in 1907 when track laying was completed to the terminus at avontuur, a rail distance of 285 km from the harbour in port elizabeth. the deep and narrow van staden’s gorge presented the railway engineers with a major challenge. a 77m high, 156m long steel trestle bridge was constructed to span the ravine and remains the highest narrow gauge railway bridge in the world. the railway, with its narrow 610 mm track gauge, differs from the normal gauge (1 067 mm) and is not connected to the rest of the country’s rail network. most29 comprehensive integrated transport plan: 2011/12 of the rail infrastructure is still intact and the line is currently open for traffic to the terminus at avontuur. this classifies it as the longest narrow gauge (610 mm rail gauge) railway in the world. the possibility of providing a commuter rail service on the pe-avontuur narrow gauge railway from pe's western suburbs to the city centre has not been investigated in detail. however, some important issues have been highlighted that must be considered before a detail feasibility study is entered into: locomotive availability is not a problem as the current fleet of 17 class 91 diesel-electric locomotives is under-utilised and can thus be used for hauling suburban commuter trains. however, they do belong to transnet freight rail, which means that long-term lease agreements will be required to ensure locomotive availability - one of the prerequisites for an uninterrupted commuter rail service. passenger rolling stock: the existing vintage coaches used on the apple express are, due to their age (some are older than 100 years) and heritage status, not suitable for use as commuter coaches. more robust coaches, with sliding doors, steel bodies and modern bogies are required. the capital cost of purchasing a fleet of new commuter coaches must be taken into account. also, this is a narrow gauge railway with non-standard equipment, which means that the coaches cannot be purchased "off the shelf". they must be specially designed and built for use on 610 mm gauge track. this will add to the cost. converting redundant freight wagons into commuter coaches is not the answer as passenger rail vehicles are built with "softer" suspensions and use different bogies than those found on general freight wagons. a number of commuter stations will need to be constructed from the airport westwards towards the urban edge. a typical station will consist of a raised platform, some form of shelter and should preferably include ablution facilities. there should be adequate space within the rail reserve for such stations/halts. however, the cost of building and maintaining the required station infrastructure could be quite high. the terminus at humewood road is totally dilapidated and will require extensive upgrading to accommodate commuter traffic in compliance with modern safety standards. a feeder service using busses and or minibus taxis will be needed to transport commuters from humewood road to various destinations in the southern part of the city. the cost of upgrading road infrastructure and providing adequate parking for private vehicles at stations should be included in the economic analysis of the proposed rail commuter service. the possible need for operational subsidies should be investigated. 3.5.4 institutional and organisational arrangements the algoa bus company is the only subsidised bus operator providing commuter passenger services in the nelson mandela bay metropolitan area, operating approximately 408 buses during the weekday peak periods. there are ten (10) registered taxi associations (ta) based in the nelson mandela bay metropolitan area and some have affiliates from surrounding towns in the eastern cape, mainly in the cacadu district. these ta‘s have now been consolidated into 6 co-operatives, 5 primary and 1 secondary co-operative that comprises of the 5 primary co-operatives as shown in the following table.30 comprehensive integrated transport plan: 2011/12 table 3-13: new taxi co-operatives co-operative taxi association geographical area no of vehicles ubunye ngamandla primary co-operative port elizabeth & district taxi association zwide; kwazakhele; new brighton; kwadwesi; kwamagxaki; motherwell; kamvelihle; walmer to cbd; korsten; uitenhage; summerstrand; greenacres; mount pleasant; lorraine and long distance routes. 821 uncedo primary co-operative uncedo service taxi association zwide; kwazakhele; new brighton; kwadwesi; kwamagxaki; motherwell; kamvelihle; walmer to cbd; korsten; uitenhage; summerstrand; greenacres; mount pleasant; lorraine and long distance routes. 413 tinarha primary co-operative uitenhage & district taxi association kwanobuhle; kabah-langa to cbd; korsten; kwazakhele; kirkwood; addo and long distance routes. 458 uncedo service taxi association uitenhage taxi association northern primary co-operative algoa taxi association bethelsdorp; shauderville; clearly park; booyens park; to cbd; korsten; greenacres and long distance routes. 288 northern areas taxi association eastern cape long distance taxi association new primary co-operative western suburbs taxi association korsten to newton park; mangold park; kabega park; sherwood; theescombe; kragga kamma; vetteklip; st albans and long distance routes. 138 norwich long distance taxi association the following table indicates the number of vehicles registered to the ta’s that do not make up the co-operatives. table 3-14: taxi associations, membership and vehicles association no of registered vehicles no of registered members no of vehicles with operating licenses 2010 2010 2010 algoa ta (ata) 297 193 192 port elizabeth and district ta (pedta) 712 507 404 east cape long distance ta (ecldta) 100 62 72 northern areas taxi operators ass (natoa) 120 92 64 norwich long distance ta (noldta) 116 89 5131 comprehensive integrated transport plan: 2011/12 association no of registered vehicles no of registered members no of vehicles with operating licenses 2010 2010 2010 uitenhage & district ta (udta) 263 169 152 uncedo service ta (pe) (usta) 433 292 222 uncedo service ta (uitenhage) (usta) 154 137 51 uitenhage ta (uta) 57 36 34 western suburbs ta (westa) 95 45 59 total 2347 1622 1304 3.5.5 other public transport services 3.5.5.1 metered taxis metered taxis currently cater mainly for the tourism market and remain a largely untapped resource to complement and “fill in” the gaps in the public transport system. this section deals with the positioning of the metered taxi mode, and proposes a set of strategies to encourage its use in nmbm. metered taxis have a low profile in nmbm, and base their operations mainly at the port elizabeth airport where there is some opportunity of serving the tourism market and south african-based business. more taxis operate via a radio call or cell phone system than from a fixed rank, and few are hailed while on the move. most respond to business through clients hailing business by telephone. these operators rely on business contact passed on by advertising brochures at the airport, guesthouses and hotels. many of these operators are often illegal and have little knowledge or regard for the need to apply for operating licenses. neither nmbm nor the operating licensing board have much understanding of the need for metered taxis, or the extent of the vehicle fleet and its operations. the metered taxi mode is in fact considered a low priority either in planning or in regulation, as the challenges in transforming other modes are more acute. strategies for development of metered taxi services have been identified as follows: the metered taxi mode must be transformed and encouraged so as to better service the tourism market and fill the public transport “gaps” in the local market. a database of all operators, vehicles owned and their operating circumstances must be developed, and this must be used to obtain a clear and detailed understanding and record of all operators, both legal and illegal, and the markets being serviced. hotels and other tourism organisations must be made aware of the role of metered taxis, and services that have encroached unlawfully must be removed. this includes shuttle buses that operate metered taxi functions unlawfully and minibus-taxis. the capacity to perform effective enforcement in relation to metered-taxis needs to be strengthened at a local government level. 3.5.5.2 transport for learners in terms of the national land transport act, the transportation of learners is classified as public transport. the eastern cape education department enters into contracts with some32 comprehensive integrated transport plan: 2011/12 operators to provide transport for learners who live further than 5 km from their school. these contracts include recent appointments of minibus-taxi operators, who provide transport to and from schools. applications for operating licenses through the operating licensing board must be made before minibus-taxis are used as learner transport services. learners are expected to make use of the mainstream public transport services and this will be borne in mind by nmbm when designing the public transport system. special fare subsidies for learners using public transport need to be reviewed by the provincial and national departments of transport, because no subsidy is currently provided for learners. in terms of the draft national scholar transport policy, november 2007, the department of transport will retain overall responsibility for scholar transport. the dot will collaborate with the department of education and other sub-structures. the dot will formulate a national policy for scholar transport after consultation with stakeholders. provincial departments of transport must prepare an implementation strategy for inclusion in the provincial land transport framework as well as in the integrated transport plans of local authorities. the local authorities must develop detailed operational plans on the basis of information from schools, and in line with provincial plans. the 2009/10 citp proposed that the nmbm prepare, in consultation with the provincial department of roads and transport, a detailed operational plan for scholar transport for inclusion in the next citp. to date, this proposal has not been taken any further by the nmbm, but it is believed to still be relevant and should therefore be given consideration accordingly. 3.5.5.3 accessible transport the term “mobility - disadvantaged people” (mdp) is somewhat broader than the term “people with disabilities” (pwd). pwd comprises people with sensory impairments, mental deficiencies, physical disabilities and multiple disabilities. each category can have a range of level of disability particularly when considering special requirements for improving overall accessibility for pwd. for example, a person with a physical disability could be ambulatory (capable of walking) or be reliant on a wheelchair. in this regard it is noted that some pwd’s are not necessarily mdp. mdp, whilst inclusive of most pwd’s, comprises also certain aged people, youth, women, illiterates, poor people and residents of the more rural sectors of the metropolitan area. the nmbm is currently planning to implement an integrated public transport system to be operated by new entities in terms of negotiated contracts. in terms of these contracts, it is implicit that the new public transport system will be full accessible for pwd’s, inclusive of vehicles and infrastructure. the nmbm has recently initiated several measures to improve its accessibility for people with disabilities such as: adoption of sabs 0400 of the national building regulation into the town planning scheme. construction of special ramps at intersections and pedestrian crossings for wheelchairs with special surface texture to warn blind people such as on govan mbeki avenue and at shark rock on marine drive. experimental installation of traffic signals with sound to inform blind people.33 comprehensive integrated transport plan: 2011/12 3.6 road infrastructure the primary road network in the nmbm comprises of the roads as shown in the table below. the total length of the primary road network is 4 179.9km compared to the figure shown in the 2009/10 citp of 4 158.7km. the road network has thus been lengthened by 21.2km. table 3-15: the primary road network (source: pavement management system) road category length (km) very good good fair poor very poor under constr-uction road closed national roads 158.4 unknown provincial surfaced roads 450.9 unknown provincial unsurfaced roads 272.6 unknown roads of metropolitan significance (main public transport routes) 482.6 276.3 184.8 4.4 0.6 0 16.5 0 minor roads (surfaced) 2354.2 1278.3 1002.0 50.7 2.3 0.5 6.4 14.0 minor roads (unsurfaced) 461.2 unknown total length (km) 4179.9 1554.6 1186.8 55.1 2.9 0.5 22.9 14 inter city traffic is accommodated on the national route n2 which bisects the nmbm area. the main road network is generally in a fair condition and provides good mobility for commuter and commercial traffic to all parts of the city. in some areas where significant development and growth is occurring, the main road system is in need of upgrading to improve capacity. this is being impeded by a lack of funding for road construction. indications are that there has been a slight improvement in the overall road surfacing and structural condition of roads between 2004 and 2006. the level of service (los) provided by the primary road network is generally good with only 31km of roads being congested during the weekday morning peak traffic hour in 2010. traffic congestion does however occur throughout the area at localised intersections during this period. the minor road network requires some upgrading, however a good level of service is generally provided. due to a backlog in maintenance funding, there is an ever increasing general deterioration in the condition of the road network. the metropolitan road network consists of a hierarchy of national, provincial and municipal roads. the roads which have been classified by the nmbm as being of metropolitan significance by the function that they perform, are shown in the following figure.34 comprehensive integrated transport plan: 2011/12 figure 3-5: existing roads of metropolitan significance35 comprehensive integrated transport plan: 2011/12 3.7 network usage metro wide traffic counts were carried out during 2009 and 2010 to collect traffic input data for the nmbm’s visum transport model update. count stations were located on numerous traffic cordons throughout the metro, as shown in figure 3-6. descriptions of the cordons and count stations are shown in the table below. these 12-hour counts (6:00 – 18:00) were conducted during the months of october 2009, november 2009, july 2010 and august 2010, and differentiated between cars, trucks/light delivery vehicles (ldv’s), minibus, bus, motorcycles and pedestrians. the nmbm transport demand model was developed in 2004 on the ptv visum software platform and is used to determine a suitable transport network in the nmbm area, assess the impact of land use development on the proposed network as well as plan future integrated rapid public transport for the nmbm. the visum transport model was updated as part of the 2011-2015 citp preparation process. the transport model update process and resulting findings are discussed in more detail in chapter 5 of this report. chapter 7 (section 7.1.3) contains further details regarding the road network’s base year performance indicators and the improvements required to relieve traffic congestion. table 3-16: descriptions of nmbm cordons and count stations (source: transport model update) cordons point description a at crossing of dibanisa road and zunga street b at crossing of commercial road and cadle street c in standford road at livingstone hospital west of ablett street d at cape road east of william moffett expressway e in humewood road at apple express station f in standford road east of intersection of standford road and bethelsdorp road g at intersection of matanzima and mel brooks streets count stations point description 1 on old pe/uitenhage road (road r368) northwest of nooitgedacht road 2 on old cape road east of mission road 3 headingly road at corner with caledon street in kunene park 4 on corner of kabega road and frikkie kotze drive in vikingvale 5 kragga kamma road east of circular drive 6 main road east of 17th avenue/william moffett expressway 7 buffelsfontein road east of 17th avenue 8 victoria drive east of glendore road 9 la roche drive west of forest hill road 10 in walmer road at south end fire station36 comprehensive integrated transport plan: 2011/12 count stations point description 11 target kloof road east of chelmsford avenue 12 fontein street south of heugh road 13 william moffett expressway north of alan drive 14 in burt drive east of disa avenue 15 in bramlin markman road between malabar and westering 16 in groot kloof under bridge linking malabar and schauderville 17 langenhoven drive between harrower road and burt drive 18 in harrower road at firestone factory (not counted - road under construction at time of survey) 19 in uitenhage road northwest of ambrose street (not counted - road under construction at time of survey) 20 in grahamstown road at north end cemetery 21 in keaton street at bridge below n2 freeway 22 in standford road at cleary park shopping complex taxi rank 23 mission road north of kuyga township 24 on uitenhage road (r75) southeast of despatch east interchange 25 on trunk road 63 southeast of despatch east interchange 26 ralo street north of uitenhage road entering kwamagxaki 27 on perseverence road north of uitenhage road 28 on perseverence road south of uitenhage road 29 johnson road north of uitenhage road 30 spondo street south of struan way 31 in mati road at railway crossing 32 in sheya kulati road at railway crossing 33 in ferguson road west of grahamstown road 34 on n2 freeway at swarkops river crossing 35 old grahamstown road between swartkops and amsterdamhoek 36 addo road (r335) south of grahamstown road (r102) 37 on coega-uitenhage road (r334) west of tyinira street 38 in hoog street at bridge with r75 39 in chief albert luthuli street at stop with end street 40 in cape road at last t intersection from kwanobuhle 41 in union avenue east of r75 interchange 42 in algoa road east of mel brooks avenue 43 in union avenue west of van der stel avenue 44 in cuyler street at the bridge 45 in durban street west of cuyler street 46 caledon street west of cuyler street37 comprehensive integrated transport plan: 2011/12 count stations point description 47a church street south of high street 47b daniel pienaar drive west of van der stel avenue 48 at crossing graaff reinett road and verwoerd roads 49 at t-junction of ross gradwell street and mpenzana crescent 50 mission road north of old pe – uitenhage road figure 3-6: nmbm cordons and count stations (source: transport model update)38 comprehensive integrated transport plan: 2011/12 3.8 transport safety 3.8.1 transport safety policy chapter 2, part two of the nltta (no 22 of 2000) sets out the national land transport policies related to safety as follows. safety and effective law enforcement must be promoted as vital factors in the land transport management and regulatory systems, and the efforts in this regard of all component authorities and functionaries must coordinate to prevent duplication. the national land transport strategic framework, which is a legal requirement in terms of clause 21 of the national land transport transition act, embodies within its contextual framework strategies within 15 separate functional areas described in terms of outputs and actions to achieve the outputs. these functional areas are inclusive of traffic safety and enforcement. the white paper on national transport policy as published in 1996 addressed the safety component of traffic as follows. improve the safety, security, reliability, quality and speed of transporting goods and people. the eastern cape white paper on transport policy is based on the national strategic objectives and calls for: the promotion of safe, secure, reliable and sustainable transport where appropriate. adequate enforcement to promote the safe and efficient movement of traffic and to maintain a safe and secure environment for pedestrians. improved transport safety. 3.8.2 the accibase system the nmbm safety and security directorate commissioned the preparation of a data base system for accident records, accibase, in 1996/7. this has proven to be a useful tool for analysis and motivation of accident black spot improvement programs. in 2004, the accibase system was expanded to include all records in nmbm, of both port elizabeth and uitenhage, and was made accessible to all transport planners in the nmbm. various deficiencies in data capturing and dissemination of records occur in the accibase system, including the following most pertinent issues: the base map on which accident locations are plotted is out of date and therefore does not indicate recently built roads the quality of completed accident forms is generally poor, particularly in terms of accurately recording collision locations transport modes involved in road accidents are often not specified, for example it is not generally denoted if freight vehicles, buses, taxis, private vehicles and/or pedestrians were involved in particular collisions 3.8.3 road accident statistics to be valuable, accident records need to be comprehensive, complete, accurate and continuous. they are used to:39 comprehensive integrated transport plan: 2011/12 identify high frequency accident locations. identify high severity accident locations. indicate probable causes of accidents. indicate potential traffic management and upgrading measures that can improve traffic safety conditions. monitor effectiveness of improvement measures implemented. accidents over five years from 2005 to 2009 (latest data available) for the 20 locations with the most severe accidents in terms of the severity index (si) are listed in the following table. si is calculated by dividing the equivalent accident numbers, ean, by the total number of accidents occurring at the site. ean is determined from weighting severity according to a nationally recognized formula: fatal x 10, serious injury x 6, minor injury x 3, damage only x 1. table 3-17: key accident locations   location fatal no injury serious slight total ean si 1  dibanisa road 31 1121 158 382 1692 3525 2.08 2  standford road 18 651 64 204 937 1827 1.95 3  old p.e. uitenhage road 10 665 45 218 938 1689 1.80 4  standford road sb 7 1003 45 283 1338 2192 1.64 5  old grahamstown road 6 654 39 120 819 1308 1.60 6  daku road 6 847 43 160 1056 1645 1.56 7  koyana street 5 955 51 178 1189 1845 1.55 8  kabega road 5 1003 52 182 1242 1911 1.54 9  uitenhage road nb 15 1081 37 181 1314 1996 1.52 10  standford road nb 4 1387 51 309 1751 2660 1.52 11  njoli street 3 1052 41 151 1247 1781 1.43 12  marine drive 5 826 33 97 961 1365 1.42 13  durban road 3 1072 22 166 1263 1732 1.37 14  cape road eb 5 1999 30 298 2332 3123 1.34 15  govan mbeki avenue sb 2 1174 33 130 1339 1782 1.33 16  kempston road nb 3 744 13 84 844 1104 1.31 17  main road 1 1173 17 136 1327 1693 1.28 18  govan mbeki avenue nb 0 1283 27 108 1418 1769 1.25 19  cape road wb 1 1476 16 147 1640 2023 1.23 20  ring road 0 1273 7 37 1317 1426 1.08 the following table provides the locations that have the highest numbers of pedestrians involved in accidents in nmbm for the five years between 2005 and 2009. table 3-18: top accident locations that involved pedestrians   location fatal no injury serious slight total ean si 1 tyinira street 8 46 21 28 103 336 3.26 2 standford road 3 48 19 38 108 306 2.83 3 kabega road 2 53 20 39 114 310 2.72 4 bafana street 3 32 6 34 75 200 2.67 5 old p.e. uitenhage road 8 81 17 51 157 416 2.65 6 daku road 5 88 21 64 178 456 2.5640 comprehensive integrated transport plan: 2011/12 7 uitenhage road nb 8 88 14 45 155 387 2.50 8 njoli street 3 105 23 79 210 510 2.43 9 standford road sb 3 68 14 41 126 305 2.42 10 highfield road wb 1 41 9 24 75 177 2.36 the following table provides information of the total number of accidents by accident type for the metropolitan area. this table shows that the total number of traffic accidents increased between 2005 and 2006, after which it decreased from 2006 to 2009. table 3-19: number of accidents and casualties year fatal no injury serious slight total increase/ decrease 2005 153 24627 982 5214 30976 2006 155 29033 1100 4723 35011 13.0% 2007 162 28752 1208 4588 34710 -0.8% 2008 129 25311 1005 4274 30719 -11.5% 2009 117 24541 900 3644 29202 -4.9% the road accident data for 2010 are still in the data capturing process and thus unavailable for use at the time of preparing this report. 3.8.4 mitigating traffic safety issues in order to address the issue of road safety in nmbm, the municipality commissioned a traffic safety plan (tsp). the vision for nmbm with regards to traffic safety is: “to be a city with a constantly decreasing number of fatalities and serious injuries from road accidents, through co-ordinated traffic safety initiatives”. the tsp has the following objectives: reduce vehicle speeds to appropriate levels remove excessive intrusive traffic (for example from rat-running) enhance facilities for pedestrians, cyclists and other vulnerable road users institute a uniform traffic management approach across nmbm create a safer and more liveable environment the policy objectives should be accomplished through the implementation of the following strategies that should be considered a priority by nmbm: calming of residential street to enhance community living adopt a “people first” design strategy for residential areas improve traffic law enforcement implement education programmes for road users, that focus specifically on vulnerable road users improve the traffic management on main roads through or near residential areas introduce an ongoing traffic safety monitoring system.41 comprehensive integrated transport plan: 2011/12 3.9 freight transport routes the nmbm wide traffic count information that was collected in 2009 and 2010 for the visum transport model update was used to extract heavy goods vehicle data. the data was assessed in relation to the total volume of traffic counted at each station, as shown in the table below. the truck/ldv data recorded at each count station was used as a representation of the heavy goods vehicles present on the road network. the number of heavy goods vehicles expressed as a percentage of the total vehicles counted at each station range from 5% to 31%, with the average being 18%. the 85 th percentile of 24% (fields coloured yellow) was used as an indicator for a high presence of heavy goods vehicles along a route or in a specific area. the above traffic data combined with the industrial zones of the nmbm were used to identify freight routes within the metro, as shown in figure 3-7. the identified routes were discussed with the nmbm traffic department in october 2010 and agreement was reached that these are the most likely routes to be used for the transportation of freight by road within nmbm. the route information was subsequently distributed to the local business industry, with assistance from the transport task team of the port elizabeth regional chamber of commerce and industry (percci), in november 2010 for comments. limited feedback was however received from the local business industry in this regard and the identified freight routes were finalised accordingly. table 3-20: heavy goods vehicle data (06:00 – 18:00) (source: engineering advice & services) station/ cordon id count date heavy goods vehicle trips % of total trips total trips in out total in out total 1 july 2010 457 753 1210 28% 1903 2343 4246 2 october 2009 9 20 29 23% 58 68 126 3 october 2009 43 30 73 12% 356 271 627 4 october 2009 756 592 1348 10% 7223 6572 13795 5 october 2009 1162 1095 2257 14% 8310 7992 16302 6 october 2009 1326 1294 2620 12% 10035 11229 21264 7 october 2009 990 911 1901 12% 8770 7161 15931 8 october 2009 906 662 1568 28% 3231 2401 5632 9 july 2010 1055 1199 2254 15% 6953 8002 14955 10 july 2010 1954 1463 3417 20% 10910 6488 17398 11 july 2010 2877 1849 4726 22% 11108 10220 21328 12 october 2009 182 149 331 10% 1521 1719 3240 13 october 2009 1473 1372 2845 15% 9150 10431 19581 14 october 2009 744 1594 2338 20% 4556 6967 11523 15 october 2009 275 399 674 10% 3213 3593 6806 16 october 2009 474 429 903 13% 3687 3409 7096 17 october 2009 1444 2017 3461 14% 12175 11788 23963 18 road under construction at time of count42 comprehensive integrated transport plan: 2011/12 19 road under construction at time of count 20 august 2010 938 755 1693 30% 2909 2653 5562 21 october 2009 542 808 1350 17% 3586 4439 8025 22 august 2010 1242 978 2220 18% 6606 6068 12674 23 october 2009 465 681 1146 23% 2607 2294 4901 24 october 2009 791 993 1784 14% 6663 6365 13028 25 october 2009 1205 1000 2205 25% 4602 4393 8995 26 october 2009 137 144 281 5% 2539 2726 5265 27 october 2009 658 944 1602 23% 3329 3536 6865 28 october 2009 418 438 856 21% 2002 2118 4120 29 october 2009 334 650 984 14% 3033 4079 7112 30 october 2009 888 1005 1893 19% 5301 4629 9930 31 october 2009 1589 2894 4483 19% 10259 13227 23486 32 october 2009 509 537 1046 20% 2614 2699 5313 33 october 2009 996 802 1798 22% 3942 4341 8283 34 october 2009 2354 2587 4941 21% 11636 11925 23561 35 october 2009 348 411 759 20% 1844 1990 3834 36 october 2009 827 971 1798 17% 5038 5347 10385 37 october 2009 349 323 672 28% 1258 1168 2426 38 july 2010 63 107 170 24% 404 316 720 39 july 2010 244 298 542 20% 1984 722 2706 40 july 2010 872 940 1812 31% 3383 2428 5811 41 july 2010 632 703 1335 26% 2873 2219 5092 42 july 2010 1163 1637 2800 25% 5798 5271 11069 43 july 2010 633 1462 2095 12% 6911 11251 18162 44 july 2010 437 545 982 17% 2961 2814 5775 45 july 2010 621 704 1325 21% 3457 2927 6384 46 july 2010 482 1018 1500 15% 4207 6096 10303 47a july 2010 74 166 240 21% 551 568 1119 47b july 2010 511 348 859 12% 3040 4113 7153 48 july 2010 94 100 194 6% 1578 1537 3115 49 july 2010 205 178 383 12% 1599 1490 3089 50 august 2010 290 265 555 17% 1640 1537 3177 a october 2009 901 1214 2115 18% 5785 5990 11775 b october 2009 2334 2224 4558 19% 12338 11541 23879 c october 2009 1690 1844 3534 13% 13176 13395 26571 d october 2009 1367 1193 2560 8% 15358 14774 30132 e july 2010 2048 1285 3333 13% 12610 13118 25728 f november 2009 1645 1588 3233 12% 12147 14490 2663743 comprehensive integrated transport plan: 2011/12 g july 2010 1482 1195 2677 22% 6571 5572 12143 total 100268 16% total 60811844 comprehensive integrated transport plan: 2011/12 figure 3-7: existing freight routes45 comprehensive integrated transport plan: 2011/12 3.10 airports there are three airports in the nmbm area, two of which, uitenhage airport and progress airport, are relatively insignificant in a metropolitan transportation planning context. they do have significance though to civil aviation planning, particularly where consideration is being given to extending port elizabeth airport or to creating a new airport at coega. uitenhage airport uitenhage airport, owned by the local government, is registered for public use with two grass runways, 800m and 700m long. the main runway is considered to have a relatively high pavement strength for this type of airport. uitenhage airport lies between the uitenhage industrial areas and kwanobuhle, about 35km from the port elizabeth central business district. the area around the airport is reserved up to a height of 11 000 feet for general aviation activities only and is classified as a danger area on aeronautical maps. progress airport progress airport is a private airport, located at greenbushes about 20km west of the port elizabeth central business district. this airport has few facilities with two grass runways 800m and 658m long. port elizabeth airport port elizabeth airport, owned and managed by the airports company south africa (acsa), lies 3km southwest of the port elizabeth cbd in the suburb of walmer and is close to the main tourist facilities and hotels on the beachfront. this airport is one of ten in south africa, the only one in the province, with designated international status. 3.10.1 port elizabeth airport 3.10.1.1 overview the total land area of the port elizabeth airport is approximately 420ha. on this land there are currently two paved runways and a third grassed runway. the passenger terminal area is located on the northern side of the main runway, with the general aviation area and the cargo area lying to the west of the terminal area. the terminal building layout is based on a single level handling concept with the key processing areas, e.g. check-in, departure lounge and reclaim on ground level. a basement is provided for baggage make up and technical areas. level 1 provides amongst others offices, restaurants and meeting rooms. the total floor area is about 14,400m 2 . although the building handles predominantly domestic flights it is possible to handle international flights by using mobile passport control desks. departing passengers will be contained in a segregated gate lounge after passport controls, with arriving passengers being screened prior to entering the baggage reclaim area. on the airside of the terminal, separate walking lanes are provided to segregate arriving and departing passengers. the departing corridor / lounge currently provides 10 doors to 5 departure gates in a common use lay-out. the arrival terminal contains two baggage reclaim belts and an international arrival facility for passport control.46 comprehensive integrated transport plan: 2011/12 short and long stay parking areas are located to the north of the terminal buildings as well as car hire facilities. kerb side facilities provide for the following: metered taxi bays coach pick-up / drop- off areas private vehicle pick-up / drop- off areas to the east of the terminal building and beyond the eastern extremity of the east / west runway, is located the air force base hangars and apron for use by military aircraft. the apron gains access to the airport runway via a gate. the road access to this facility is through the military base to the east. vehicles entering this area are therefore subject to the military security procedures at the main entrance to the military base. the current layout of the pe airport is shown in figure 3-8. 3.10.1.2 facilities the following table summarises the main facilities that are provided at the pe airport and highlights some of the current deficiencies that require attention: table 3-21: facilities at the pe airport item facility transport facilities public transport kerb (4 bays) shuttle and metered taxi kerb (25 bays) no public transport holding area (proposed to be constructed) information one information desk. no i-help facilities. additional staff and facilities under review. ticketing for public transport no facilities. to be provided as well as security. to negotiate area, sights, telephone lines, plugs, rental with acsa. baggage holding no, due to security issues car rental yes 1 time, europcar, tempest, avis, budget, hertz, woodford, dollar thrifty parking short and long term pay parking areas. the growth of tourism in the region, along with preparations for the 2010 football world cup, have required a number of improvements including a terminal expansion which can now handle up to two million passengers every year. this facility provides a central retail area as well as a fully compliant international arrivals and departures terminal to complement upgraded amenities for domestic traffic.47 comprehensive integrated transport plan: 2011/12 figure 3-8: existing airport layout48 comprehensive integrated transport plan: 2011/12 3.10.1.3 operations and capacity air travel services are currently provided from the pe airport to / from the following destinations: johannesburg cape town durban east london the current passenger profile is: 75% business and politicians 15% local travel 10% tourists the airport currently handles more than one million passengers per year and over 800 tons of cargo, including flowers, frozen lobster, meat, ostrich skins and mushrooms. 3.10.1.4 airport masterplan the preparation of a long term masterplan for the pe airport is currently being developed and has therefore not been released by acsa. it is envisaged that the masterplan will be developed in the long term, although some of the long term proposals have already been implemented. the following is a short summary of some of the land-side proposals contained in the masterplan. hotel development (complete) multi-storey car park construct extensions to terminal buildings re-align existing internal roads re-align allister miller drive (complete) construct arrival/ departure kerb in front of new terminal construct long term parking areas move freight forwarders relocate car rental facilities (in progress) construct bridge over railway line train and ipts station 3.11 harbours the following information concerning current operations at the port of port elizabeth and the port of ngqura has been drawn mainly from the transnet national ports authority website in january 2011. 3.11.1 port of port elizabeth 3.11.1.1 overview the port of port elizabeth is managed by transnet national ports authority, a division of transnet ltd and is situated in algoa bay on the south-eastern coast of africa, midway between the ports of durban (384 nautical miles north-east) and cape town (423 nautical miles west).49 comprehensive integrated transport plan: 2011/12 the port is striving to be a world class port by adhering to international standards such as isps code. the port has integrating systems as this provides a framework for a holistic management system that can embrace all the processes and elements that need to be controlled. the port has the following accreditations: iso 9001, iso 14001, ohsas 18001 and ams 16001. the port of port elizabeth is the fifth largest port in southern africa, based on tonnage handled, and the third largest in terms of revenue earned. the latest available statistics indicate that the port handled 4,517,673 metric tons of bulk cargo and 909,421 metric tons of breakbulk cargo during the 2008 calendar year, with a total of 1273 vessel arrivals at the port during this period. the port has a container terminal (one of three in south africa), dry bulk terminal, breakbulk terminal, bulk liquid terminal, car terminal, ship repair and fishing industry facilities. over the years, the port has gained a sound reputation for service quality and flexibility, a view shared by parties in the shipping fraternity. most of the cargo channelized through port elizabeth is generated in, or is destined for, the greater algoa bay area, reaching up to the sundays river and langkloof valleys, however, some cargo is transported by rail and road to and from the free state and gauteng. the algoa bay area is heavily industrialised and intensively farmed. traditionally, port elizabeth and nearby uitenhage, which is part of the nmbm, have been the centre of the south african motor industry. as a result the port imports large volumes of containerised components and raw materials for this industry. the bulk of exports comprise agricultural products: timber, wool, textiles, skins and hides in containers, as well as palletised citrus and deciduous fruit. manganese ore, motor vehicle industry related products and steel are also exported. the port of port elizabeth is equipped with vts (vessel tracking systems). the port has a large fishing industry and catch approximately 80% of the squid in sa. in 2008 consideration were given to the rehabilitation of dilapidated fishing industry facilities, but the viability of the project would depend on the findings of a feasibility study. the entrance channel has a depth of 14,5 metres chart datum (lat) and a width of 310 metres. ships intending to anchor in the bay must keep clear of the approach channel. the layout of the port is shown in figure 3-9. 3.11.1.2 transportation the port has direct transport links with the main consumer markets and industrial zones in the southern african continent. electrified railways (20 ton per axel load capacity) and the road network link the port with gauteng as well as south africa’s northern neighbouring states.50 comprehensive integrated transport plan: 2011/12 figure 3-9: port of port elizabeth (source: google earth) 3.11.2 port of ngqura 3.11.2.1 overview the port of ngqura and adjacent coega industrial development zone (idz) 20km east of port elizabeth is south africa's primary location for new industrial investments. the new deepwater port is regarded as the catalyst that will unlock the development potential of the 12 000 hectares of land at the idz by providing the necessary access to international markets. situated on south africa's eastern cape coast, equidistant from american, european and pacific rim destinations, it is ideally placed to serve both local and international markets. the idz is aimed at industries focused on the beneficiation of the country's natural resources, thus promoting the country as an exporter of value-added products. the layout of the port is shown in figure 3-10. 3.11.2.2 infrastructure transnet national ports authority has built a modern deepwater port while the coega development corporation is developing the entire landside infrastructure for the idz. the area is already well serviced by existing transport networks and a skilled labour force. complementing the port of port elizabeth, this port has been built at the mouth of the coega river.51 comprehensive integrated transport plan: 2011/12 comprehensive studies have been completed to establish technical and environmental feasibility of the port. an environmental management system was implemented to manage every aspect of the natural, physical and socio-economic environment of the project. the paleo-channel at the mouth of the coega river in the protected algoa bay provided an opportunity for the economic development of a deepwater port. the port is able to accommodate vessels up to 80 000 deadweight tonnage. two breakwaters and five berths were constructed, plus two container and three general bulk cargo berths, each of 300 meters in length. in october 2009 commercial ship operations (containers) commenced at the new port. with the current economic growth in south africa, the container ports of port elizabeth, durban and cape town would only offer a short-term solution as they are nearing capacity. the need to provide further container capacity has contributed towards the development of south africa's eighth port. figure 3-10: port of ngqura (source: google earth)52 comprehensive integrated transport plan: 2011/12 3.11.2.3 advantages of the new port the following items have been identified as the major advantages for investors in the new port and idz: vast land resources suitable for industrial parks customised for heavy, medium and light industries. purpose-built, world-class infrastructure integration with sa's newest deepwater port, a world-class gateway to international markets. terminals for containers, general cargo and bulk cargo. inter-modal transportation linkages. economic clusters centred on backward and forward integration. customs-secure areas. one-stop-shop investor facilitation. customised employee training programmes. world-class environmental policies and standards. 3.12 financial information financial information relative to income, from the various funding sources, and expenditure for the nmbm roads, stormwater and transportation sub-directorate was obtained from the nmbm budget and treasury department for the 2009/10 and 2010/11 financial years. the capital income and expenditure for the 2009/10 financial year is shown in the following table. table 3-22: capital income and expenditure for the 2009/10 financial year description budget (r) actual (r) % spent (budget) income (capital receipts) public transport infrastructure & systems grant (ipts): opening balance in cashbook as at 1 july 2009 280,641,916.15 cash receipts for 2009/10 financial year 147,078,000.00 available funding for ipts in 2009/10 472,719,916.15 transportation improvements: public contributions opening balance in cashbook as at 1 july 2009 19,342,582.30 cash receipts for 2009/10 financial year 1,312,995.60 available funding for transportation improvements in 2009/10 20,655,577.90 loan funding received for capital projects: loan funding received for 2009/10 financial year 213,106,483.16 available loan funding for 2009/10 213,106,483.16 other grant funding received for capital projects:53 comprehensive integrated transport plan: 2011/12 description budget (r) actual (r) % spent (budget) neighbourhood development grant (ndpg) funding received for 2009/10 financial year 12,065,086.00 available grant funding for 2009/10 12,065,086.00 totals: total capital receipts for the 2009/10 financial year 373,562,564.76 total capital available for funding for the 2009/10 financial year 673,547,063.21* expenditure (capital) roads 574,119,280.00 365,623,851.67 63.68 stormwater 125,867,810.00 58,114,840.25 46.17 transportation 602,214,800.00 550,146,014.12 91.35 total capital expenditure during the 2009/10 financial year 973,884,706.04* note: * the balance of capital expenditure was funded from internal nmbm sources. the above table indicates that capital funds to the value of r299,984,498.45 were carried over from the 2008/9 to the 2009/10 financial year. capital receipts (income) for the 2009/10 financial year was r373,562,564.76, which is r73,578,066.31 more than the carryover funds from the previous year. capital expenditure exceeded the available funds by r300,337,642.83, however this shortfall was apparently funded by other internal nmbm funding sources during the 2009/10 financial year. the operational income and expenditure for the 2009/10 financial year is shown in the following table. table 3-23: operational income and expenditure for the 2009/10 financial year description budget (r) actual (r) income rental of facilities and equipment 55,137 government grants and subsidies 8,241,350 662,229,064 other income 2,070,100 66,205,350 internal charges received 40,547,360 40,547,360 changes in net assets 90,786,950 total income available for funding for the 2009/10 financial year 141,645,760 769,036,911 expenditure employee related costs 52,385,080 51,792,866 depreciation 113,839,210 78,967,66354 comprehensive integrated transport plan: 2011/12 description budget (r) actual (r) repairs and maintenance 79,584,800 67,312,613 finance charges 28,569,200 22,384,158 contracted services 216,000 17,015,370 grants and subsidies paid 1,011,750 0 general expenses 40,113,830 47,596,215 service charges costs - internal 1,114,190 218,316 internal charges paid 7,420,320 7,420,320 less: amounts charged out -73,886,860 -56,385,792 total operational expenditure during the 2009/10 financial year 250,367,520 236,321,729 surplus / shortfall in operational budget for 2009/10 financial year -108,721,760 532,715,182 the above table indicates that the operational income for the 2009/10 financial year was r769,036,911, which is r627,391,151 more than the original budgeted operational income. this can largely be contributed to additional financial assistance the nmbm received in preparation of the 2010 fifa world cup, hence the large resulting surplus amount in the operational budget. since this citp was prepared during the latter half of the 2010/11 financial year, accurate reporting on capital income and expenditure was problematic and therefore the 2010/11 capital budget was used as an indication of planned expenditure during the 2010/11 financial year, as shown in the following table. table 3-24: capital budget for the 2010/11 financial year funding source funding source code budget (r) municipal (subsidy) 900 8,300,000 municipal 901 77,713,180 state subsidy 921 204,336,940 public contributions 923 475,000 provincial subsidy 928 2,250,000 municipal infrastructure grant (mig) 951 131,628,280 levies 959 121,101,870 eshare 961 250,000 loan funded 962 158,441,500 total capital budget for the 2010/11 financial year 704,496,770 the capital budget for the 2010/11 financial year shows a 4.6% increase in comparison with the available capital funds of the 2009/10 financial year. at this stage it is not possible to say whether capital expenditure will again exceed the available funding, although budget revisions were carried out during the 2010/11 financial year to enable budgetary savings.55 comprehensive integrated transport plan: 2011/12 the ndot subsidises the passenger rail service that currently runs between port elizabeth and uitenhage on an annual basis. an annual rail subsidy for the whole eastern cape province is paid to prasa, who in turn pays transnet freight rail (tfr) to run passenger rail services on their behalf in nelson mandela bay and buffalo city (east-london). for the 2009/10 financial year, prasa received a r73m rail subsidy from the ndot for the eastern cape province and paid tfr r61m to run passenger rail services in nelson mandela bay municipality and buffalo city municipality. for the 2010/11 financial year, prasa received a r76m rail subsidy from the ndot for the eastern cape province and paid tfr r67m to run the passenger rail services. unfortunately, the information obtained from prasa does not indicate how much money was allocated to nelson mandela bay municipality and buffalo city municipality respectively. nelson mandela bay municipality currently has one bus operator, namely algoa bus company, which is subsidised by the national department of transport via the eastern cape provincial department of transport. the subsidy for the 2009/10 financial year was r126,54m and the subsidy for the 2010/11 financial year is r143m.56 comprehensive integrated transport plan: 2011/12 4 spatial development framework to ensure sustainable growth and development in nelson mandela bay, it is vital that all strategic planning processes are aligned and fully integrated, so that development does not take place in an ad hoc or fragmented manner. key to this is the development of a city-wide development strategy, which was completed during the 2008/09 financial year. this strategy informs future integrated development planning, which in turn informs the spatial development framework of the municipality. the metropolitan spatial development framework (msdf) contains a number of key sector plans that are necessary for development. the metropolitan spatial development framework in turn informs the regional spatial development frameworks, followed by the local spatial development frameworks, which are more specific and location bound. these frameworks are supported by an integrated land use management system. the metropolitan spatial development framework outlines the desired spatial development of the metropolitan area, as contemplated in section 25(e) of the municipal systems act (act 32, 2000). it also highlights priority investment and development areas, and will therefore serve as a guide to decision-makers and investors. it should be emphasised that the msdf is an integral component of the integrated development plan (idp) and translates this plan into its spatial implications to provide broad, overall development guidelines. this tool must therefore not be used in isolation, but must support decision-making within the context of the idp and city-wide development strategy. the msdf should furthermore not be interpreted as a blueprint aimed at managing physical development, but rather as a framework giving strategic guidance in respect of the location and nature of anticipated future development in nelson mandela bay. desired patterns of land use are indicated, although room still exists for interpretation and further refinement. the msdf is development orientated to allow for growth and changing circumstances and to promote investor confidence. in march 2009, the msdf was approved in principle by the executive mayor. in the 2006/07 financial year, four studies critical to the msdf were commissioned. these are:- a) demographic study this study, which was completed in march 2007 and adopted in august 2007, provides definitive data on population size, growth, migration and emigration. the study includes specific data on the impact of hiv and aids and socio-economic aspects. indications are that the local population is smaller than previously estimated and will grow less than originally anticipated by the year 2020. the information obtained from the study gives certain quality of life information, as well as informal settlement patterns. the information from the study indicates that, based on current trends, there are implications for growth and development in the metropole. arising from this information, certain interventions could be made in order to influence future growth, development and quality of life of citizens. the demographic study results therefore need to be examined to determine the policy and strategic implications of the information arising from the study. this was done in two phases: initially, the information was analysed to determine the long-term implications of the existing trends and, secondly strategic and policy interventions were developed to influence the trends identified in the study. this process was completed by june 2008.57 comprehensive integrated transport plan: 2011/12 b) urban edge, rural management and urban densification study this study, which comprises three parts, was completed towards the end of 2007. the public participation process was finalised in january 2008. in the part one, the permissible subdivision possibilities in the peri-urban areas of nelson mandela bay are identified, taking into account agricultural potential, servicing and environmental aspects. against the objectives that urban sprawl must be curtailed and optimal use made of existing infrastructure, the second part of the study identifies the areas in the metropole in which densification could be permitted. tolerable limits in terms of servicing and other criteria are also identified. the third part of the study entails the refinement of the delineation of the urban edge. c) strategic environmental assessment the municipal systems act requires that the environmental impact of the msdf be evaluated. this study was completed in 2007 and the public participation process was completed in january 2008. development will be promoted by the study, as it will facilitate environmental impact assessments for individual developments. such assessments will also provide developers with information about the broad environmental constraints applicable in nelson mandela bay. this study will lead to the preparation of an environmental management plan, (emp), which will ensure that development in nelson mandela bay will be undertaken in a more sustainable manner. d) land use management system this study has culminated in the development of a land use management policy. the next stage comprised the amalgamation of the twelve zoning schemes applicable in nelson mandela bay into a single set of regulations and procedures. the systems act requires the sdf to address a land use management system that defines the basic principles for development. the results of the above four study areas were collated and fed into the sdf. the msdf represents the various levels of plans to be established. these levels of plans are as follows: a) metropolitan spatial development framework: this framework will address metro-wide issues and provide broad, overall development guidelines. b) local spatial development frameworks: these will be formulated for designated areas or specific sustainable community units. these plans will provide detailed development guidelines to address specific issues at a more local level. c) sustainable community unit plans: these are more detailed plans for pre-defined sustainable community units. the scu plans could coincide with a local spatial development framework, or a number of scu plans could make up a local spatial development planning area. the basis for this planning level and the definition of the scu will be walking distance. d) layout plans: individual layout plans for new development areas must conform to the dictates of the higher levels of planning identified above. these could be for relatively small parcels of land or larger parcels of land. layout plans for privately owned portions of land will be prepared by the nmbm as well as the private sector. the latest spatial development framework map is shown in figure 4-2.58 comprehensive integrated transport plan: 2011/12 4.1 spatial development framework proposals three focal points in the metropolitan spatial development framework are seen as imperative to achieve restructuring, integration and sustainability. 4.1.1 sustainable community planning methodology the existing pattern of development in nelson mandela bay is the result of segregation-based planning. the structure not only separates different racial groupings in geographical terms, but has also resulted in great disparities in standards of living, as well as access to infrastructural services, employment and cultural and recreational facilities. the realities of these imbalances must be taken into account, both as constraints for redevelopment and as a feature that should be addressed and rectified. the sustainable community units (scus) have been introduced to achieve a more balanced structure in nelson mandela bay, in order to reduce discrepancies in terms of service provision and standards; promote integration in socio-economic and functional terms; and provide for economic activities and employment opportunities. the urban areas of nelson mandela bay are being divided into a number of planning units or entities, to be known as sustainable community units. these are defined by the distance that an average person can comfortably walk in half an hour, i.e. a 2 km radius. the planning methodology aims to provide the requirements for a minimum standard of planning and living within those areas; in other words, amenities, facilities and job opportunities must be within walking distance of all residents. all scus in nelson mandela bay are to be linked by a public transport network that will ensure that all areas are accessible to all communities by means of public transport, as is also required in terms of the integrated transport plan. moreover, the planning methodology concept identifies the need to make higher levels of sustainability and integration in nelson mandela bay the primary focus of scu planning. the basis for sustainable community planning lies in the development principles that have been adopted at national, provincial and local government levels, as supported by legislation and government policies. the development goals and principles of particular importance for spatial planning in scus are: a) poverty alleviation and the satisfaction of basic needs c) focus on special needs groups (hiv and aids affected persons, children, the aged, and persons with disabilities) d) gender equality and equity e) the environment (physical, socio-economic) f) participation and democratic processes g) local economic development h) accessibility (public transport and pedestrian focus) i) mixed-use development j) corridor development k) safety and security l) variation and flexibility m) densification n) reducing urban sprawl to achieve both sustainability and integration, six functional elements have been identified as needing attention in relation to the above principles. these six functional elements are: a) housing o) work p) services q) transport59 comprehensive integrated transport plan: 2011/12 r) community s) character and identity focusing on these six elements, minimum standards are pursued to achieve an acceptable planning quality that will result in an improved quality of life for residents in these areas (for more detail on the planning methodology outlined above, refer to the sustainable community planning guide, dated june 2007, also available on the municipal website: www.nelsonmandelabay.gov.za.). 4.1.2 corridors and accessibility the restructuring of nelson mandela bay also envisages the development of corridors along major routes that have the potential for integrated mixed land use development, supported by improved public transport services (e.g. the khulani corridor). a comprehensive integrated transport plan (citp) has been developed as a key component of the msdf. as the primary goal of the citp is to improve accessibility for all residents of nelson mandela bay, it has a strong focus on public transport provision. 4.1.3 economic development and growth this crucial component of the spatial development framework seeks to generate means to support and enhance urban development. various interventions may be utilised to support economic growth and development, based on a number of considerations, such as: the importance of linking the residents of nelson mandela bay to opportunities; directing investments to places where they will have the greatest effect; protecting and enhancing natural and cultural resources for sustainability and enriching the experience of nelson mandela bay; and weaving the growth of nelson mandela bay strongly into the economic fabric of the eastern cape province. a brief synopsis of the proposals relating to economic growth and development that will be contained in the msdf is presented below. these proposals are: (a) implementation of an urban edge or urban growth boundary: it is important to note that an urban edge should not be seen as a rigid regulatory mechanism to retard development initiatives. it is rather a policy statement aimed at redirecting patterns of growth and encouraging all parties involved in development to reconsider all options available. the line put in place will apply for the next few years and may be amended in subsequent reviews of the msdf. the following guidelines for development will apply: (b) land uses within the urban edge: land uses within the urban edge that are consistent with the relevant local precinct plan, the spatial development framework, and the land use management plan and/or town planning scheme will be permitted, subject to the normal procedures and legislation, e.g. environmental considerations and transportation requirements. note that the urban edge does not imply that the entire area can/should be allowed to develop and that development rights are therefore guaranteed. factors such as timing, the availability of services, and the environment must be taken into account when considering applications within the boundary. (c) land uses outside the urban edge: land uses that are peri-urban in nature are more desirable and must therefore be promoted outside the urban edge. where applicable, these will also have to be in line with local and provincial policies (e.g. the rural management policy).60 comprehensive integrated transport plan: 2011/12 (d) peripheral uses: the area located directly outside the urban edge is earmarked for peripheral uses. it is envisaged that a transitional area will develop around the urban edge, which may comprise a range of different peripheral uses. it is proposed that low-intensity land such as agricultural holdings, peri-urban residential uses, low-intensity service industries (typically those occurring on agricultural holdings) as well as urban agriculture be promoted in the fringe area around the urban edge. these uses should support and protect the urban edge and serve as a barrier to restrict the future expansion of the urban environment. it is also necessary to utilise opportunities for urban agriculture in this area optimally, especially close to disadvantaged communities. (e) extensive agriculture: the areas outside the urban edge represent a peripheral use zone identified by the department of agriculture as prime agricultural land where extensive agriculture should be protected and promoted. the provision of services such as health, education and retail must also be catered for in these areas. (f) activity nodes or areas: there are a wide range of activity nodes or areas accommodating a variety of activities. these can be divided into four main core areas, namely: port elizabeth, uitenhage, despatch and the coega idz. in terms of retail, the existing three central business districts (cbds) located respectively in port elizabeth, uitenhage and despatch must be maintained and strengthened to protect public and private investment in these areas. the implementation of business improvement districts is proposed as a strategy to improve safety, security and overall environmental improvement, particularly in the cbds. the industries/commercial undertakings serving nelson mandela bay include the full range of industrial activities, from heavy and toxic industries to light industrial, commercial and warehousing activities. within the context of the four core areas identified, the functional specialisation of these industries/commercial undertakings must be promoted, in terms of both local and regional contexts. the existing residential nodes of rocklands, seaview, st albans and witteklip located outside the urban edge are recognised, but their expansion must be curtailed. furthermore, the use of the properties abutting these residential nodes for agricultural purposes must be encouraged to stimulate economic development within these nodes. (g) infill development priority areas and social housing: the two main priority areas in terms of infill development (utilizing undeveloped/ underdeveloped land in central locations) are the fairview and salisbury park areas, which were the subject of recent land restitution claims. these pockets of land are strategically located, and detailed subdivisions have been undertaken for their development. in addition to the above, social housing within the context of identified restructuring zones, as defined in government policy and draft legislation, has been provided in the msdf. opportunities for social housing will therefore be provided in specific, defined localities that have been identified as areas of opportunity (largely economic), where the poor have limited or inadequate access to accommodation and where the provision of social housing will contribute to redressing the situation that the urban poor live in locations far removed from areas of vibrant economic growth. (h) strategic development areas: a number of major precincts have been identified for future residential expansion, namely:61 comprehensive integrated transport plan: 2011/12 zanemvula (incorporating soweto-on-sea, chatty extensions 2 – 5 and 9 – 17, as well as joe slovo west) walmer gqebera, particularly the methane gas site kwanobuhle south uitenhage east motherwell wells estate hunters retreat (end of walker drive) as not all this land is required immediately, the development of these areas has been phased, based on the availability of bulk service infrastructure. (i) metropolitan open space system: a metropolitan open space system (moss) has been defined for the metropolitan area and is schematically illustrated in the msdf. the current moss is being revisited and a new moss will be formulated in terms of a strategic environmental assessment. (j) transportation: the land use framework, as highlighted above, is supported by a transportation network and public transport system. these proposals are embodied in the comprehensive integrated transport plan and the public transport plan. 4.2 implementation and prioritisation the msdf provides strategic guidance as to the areas where the municipality should focus the allocation of its resources. in order to assist in prioritising projects and the allocation of resources, four main elements of the msdf were isolated as geographic entities, which could give guidance as to where the priority capital investment areas lie. these areas are: (a) core economic areas (b) infill priority areas (c) strategic development areas (d) service upgrading priority areas the msdf is also supported by a number of sectoral plans and topic-specific planning documents, including the following: (a) strategic environmental assessment (b) urban edge/rural management and urban densification policies (c) demographic study update (d) land use management system 4.3 incorporating sectoral plans the various sectoral plans incorporated into the msdf are identified in this section. these sectoral plans, which have major spatial implications for the msdf, are as follows:- (a) housing programme (b) coastal management plan (c) disaster management plan (d) environmental policy (e) infrastructure development plan (f) integrated transport plan (g) integrated waste management plan (h) local economic development plan62 comprehensive integrated transport plan: 2011/12 (i) metropolitan open space system (j) public transport plan (k) tourism master plan furthermore, a number of large developmental projects are being mooted in and around nelson mandela bay. if each were to be developed in a fragmented, isolated manner, successful development would be more difficult to achieve. however, if all the proposed projects were developed comprehensively and in support of one another, a collective momentum would be generated. together, these projects would place nelson mandela bay in a highly competitive position to attract tourism, both nationally and internationally, and would promote domestic economic growth. the major projects identified, are outlined below:- (a) nelson mandela bay multi-purpose stadium precinct the multi-purpose stadium, located in prince alfred’s park on the edge of north end lake was constructed to support the status of nelson mandela bay as a world cup 2010 host city. the stadium precinct is located in the north end allotment area, situated on the outer edge of the cbd, and comprises and area of approximately 1400 ha. the development of the stadium is expected to stimulate upliftment and urban renewal of the surrounding residential and commercial areas. the stadium precinct is to be transformed into a high density mixed-use area, incorporating industrial, residential, recreational, leisure and entertainment land-uses. moreover, prince alfred’s park is well served by and closely located to railway and public transport routes. (b) njoli square development njoli square is situated in the heart of kwazakhele, approximately 10 km to the north of the city’s cbd. despite its name, njoli square is not a square, but in fact a large traffic circle – one of the major transportation hubs in the ibhayi area. as one of the key nodes in the khulani corridor that links motherwell in the north to the port elizabeth cbd in the south, njoli square has attracted significant informal trading as well as semi-formal business, making it the most important commercial node within the greater kwazakhele area. it is the municipality’s vision that njoli square be redeveloped into a dynamic civic centre, to serve as a catalyst to encourage and stimulate private sector investment in the surrounding area. (c) coega idz and port ngqura the coega idz, situated in the northern part of nelson mandela bay, will be a high-tech industrial zone supported by the new deepwater port of ngqura. initially, development within the idz will be concentrated in a nucleus of about 6400 ha (including the deepwater port), known as the core development area, after which it will radiate outwards in a north-westerly direction. (d) mandela bay development agency established in 2003, the mandela bay development agency is a municipal entity whose aim is to project manage the regeneration of the inner city area and the development of the harbour area, with a view of promoting economic and tourism development against this backdrop of urban renewal. however, since 2007, the mbda has been mandated to extend its geographical reach to include other parts of the metropolitan area, such as new brighton, uitenhage and despatch, the happy valley area and the new stadium precinct. exciting projects such as the international convention centre, the freedom statue and the upgrading of the cbd, featured below in more detail, are being driven by the development agency. the mbda has as its primary goal; the revitalisation of the city’s central business district (cbd). due to the movement of commercial activities to the suburbs, the historical city centre of port elizabeth, and now that of the metropolitan area, has been under threat for some years due to the general decline of the cbd in terms of appearance, safety, grime, etc.63 comprehensive integrated transport plan: 2011/12 in an effort to counteract the decline of the port elizabeth cbd and to restore its critical role, the mandela bay development agency, in conjunction with the planning section of the nmbm, has prepared a strategic spatial implementation framework (ssif). this plan recognizes the central area, which covers the harbour/waterfront area, south end, humerail, the cbd, richmond hill, central and north end, as crucial to the growth and development of the city as a whole. it was furthermore decided that the cbd’s of uitenhage and despatch deserve the same approach to their revitalization as the port elizabeth cbd. the two areas of uitenhage and despatch have entirely different dynamics driving their economies and the social fabric of the areas, vastly different to the port elizabeth inner city. it is therefore important that an entirely different ssif was developed for the two towns. this ssif is currently under development. within the ssif for port elizabeth, specific priority areas have been identified; these include the redevelopment of specific streets such as strand street, parliament street and the pedestrianisation of govan mbeki avenue. it also prioritises the redevelopment of the donkin area and the lower baakens valley. these catalytic projects will set the trend for the revitalisation of the cbd. the following reasons underline the need for prioritised attention to the cbd: it is the heart of nelson mandela bay and therefore important to all its citizens and communities; from a historical point of view, the downtown area is one of the most important areas of the city. it is therefore vital that it be preserved and utilized to stimulate tourism and the economy; all transportation infrastructure focuses on the central part of nelson mandela bay, making it easily accessible to all communities; it has traditionally always been an area in which different communities meet, and can therefore play an important role in the integration of nelson mandela bay; it is ripe for redevelopment. many businesses and organisations have moved out or are looking to move out of the central area, and the continuation of this trend could be disastrous in terms of lost opportunities; it is the civic and economic centre of nelson mandela bay and is therefore critical from a local and regional point of view. the image of nelson mandela bay. the unique central area of any city distinguishes it from all other cities. it is the face that is presented to the rest of the world. this area therefore has an important role to play in establishing an identity for nelson mandela bay, internationally, nationally and regionally. the broad objective is to start a sustainable process aimed at achieving the goals of the msdf. other objectives are to develop the city centre economically as an integrated civic hub, also from a transportation point of view. the pedestrianisation of govan mbeki avenue from market square (now renamed the vuyisile mini square) to russell road has been completed in line with the goal of the mbda to improve linkages with the adjacent area and stimulate the revitalization of this core area. similarly, the upgrading of parliament street has been completed and involved the conversion of parliament street into two one-way streets from rose street to lawrence street and from rose street to rink street. the sidewalks were widened outside established restaurants or properties that are suitable for conversion into restaurants to promote an outdoor dining culture. further capital works initiatives planned are the redevelopment of what is known as the tramways building and its precinct, as well as the environmental upgrading of strand street between lower valley road (at the baakens river) and the lillian dedriechs building (brister house) where it becomes victoria quay.64 comprehensive integrated transport plan: 2011/12 (e) international convention centre a major convention centre, to be located in proximity to the beachfront and close to the airport, hotels and beachfront attractions, is proposed. various proposals are being called for with the aim to release land for development purposes, in exchange for the provision of a convention centre. (f) motherwell urban renewal programme the motherwell urban renewal programme represents a multi-faceted approach that will upgrade amenities and services in the sprawling and impoverished area of motherwell, situated approximately 20 km from the cbd of port elizabeth. the programme is aimed at the communities of motherwell nu1-nu12 and nu29-nu32, steve tshwete village, brickfields industrial area, ikamvelihle and the area of motherwell north-east of addo road. the programme aims to address housing shortages through the development of vacant land and infill housing. it is proposed to increase residential densities to up to 80 units/ha in locations situated close to public transport nodes and amenities in order to increase the demand for these facilities, make public transport viable and maximise the utilization of land and municipal services. the programme also promotes mixed-use areas through the development of nodes that will include commercial, social, retail, recreational and industrial land-uses. additional proposals of the motherwell urban renewal programme include greening, making provision for urban agriculture, establishing sites designated for cultural use and improving safety of nmt users through the construction of pedestrian bridges and pathways and provision of lighting. (g) helenvale urban renewal programme helenvale has been identified as an area urgently in need of upgrading. it was accordingly decided to establish the helenvale urban renewal programme, based on the motherwell urban renewal programme. this programme has also adopted a multi-faceted approach to the upgrading of amenities and services in helenvale and to fostering employment and community participation. (h) urban agriculture the urban agriculture project will allow poor and disadvantaged communities to secure food and to enter into an economic activity, as part of the municipality’s long-term vision to develop agriculture into a strategic economic sector. (i) beachfront development totalling approximately 100 km of beach and coastline, its beachfront is the city’s greatest natural asset. this largely underdeveloped and unexploited area has the potential of forming the foundation of a thriving tourism, recreation and holiday industry. the integrated beachfront development plan, which focuses on the 25 km stretch of beach from st george’s strand in the north to flat rock in the south, aims to maximise the strengths and opportunities of the beachfront area and to prevent unplanned ad hoc development, which could impact on the prime beachfront area. (j) embizweni bluewater beach / st george’s strand beach node this node, situated between bluewater bay and st george’s strand, is earmarked for development primarily for tourism purposes and will include, inter alia, a holiday resort, a hotel, a conservation area, camping facilities, a residential area and a tourism cultural centre. (k) resort developments (maitland and van stadens river mouth, beachview and springs resort) with the exception of the springs resort, which fell under the erstwhile uitenhage municipality, the abovementioned resorts were previously all administered by the former western district65 comprehensive integrated transport plan: 2011/12 municipality. since the amalgamation of the various local authorities and the formation of the nelson mandela bay municipality, these resorts are now administered by the latter municipality. however, as this is not seen as a core function of the municipality, steps have been taken to privatize these resorts and to allow them to be upgraded as fully functional holiday destinations. (l) n2 developments this development initiative straddles the n2 at the western entrance to the city and envisages the development of a multi-use facility. the envisaged development includes residential, industrial, commercial, tourism and recreational uses. (m) gateways and beautification project this project was introduced to enhance the image of nelson mandela bay, to attract tourism and business as well as to boost confidence and economic spin-offs. the project entails the beautification of major transportation routes, such as the n2, the settlers freeway and the pe / uitenhage road. the project also envisages the establishment of features in the form of distinct boundary markers at strategic entrances to the city area and at the airport that will announce to travellers that they have arrived at nelson mandela bay. (n) greening of nelson mandela bay this project entails the beautification of the previously disadvantaged areas by tree-planting, as well as physical improvements and community education. (o) red location cultural precinct a tourism village incorporating a museum, art centre, market and library is proposed in the historic red location area of new brighton. the museum component of the tourism village, known as the red location museum of struggle, was officially opened in november 2006. (p) colchester this gateway town to nelson mandela bay is the site envisaged for an entrance feature and general redevelopment to include various tourism attractions as well as economic activities. (q) van der kemp’s kloof van der kemp’s kloof has been identified as a priority area for biodiversity conservation in terms of the nelson mandela metropolitan open space system and is in the process of being proclaimed as a nature reserve. to promote environmental awareness, it is also proposed to provide facilities in the kloof, such as hiking trails, picnic areas and recreational dams, in a holistic and environmentally sensitive way. (r) revitalisation of uitenhage cbd (uddi) this project entails the revitalisation of the uitenhage core area by upgrading and improving the cbd and adjacent areas. the upgrading of the exterior of the town hall has been completed, and plans are in place to upgrade the node between the town hall and the uitenhage library. (s) north end beachfront land reclamation an exciting project complementary to the city’s vision is the reclamation of the north end beachfront, which became eroded following the development of the pe harbour. this erosion has subsequently had to be curbed by the use of dolosse to protect the freeway and railway lines serving the city. a littoral drift estimated at approximately 150 000 cubic metres of sand per annum moves northwards along the coastline from cape recife. over the years, this sand movement has built up king’s beach. as it moves past the breakwater, it silts the harbour entrance, which has to be dredged at a cost of some r7 million per annum. the continual cost of dredging the harbour entrance and the dumping of the sand dredged in deeper waters is sufficient to render a sand bypass scheme, similar to that used at the port of ngqura, a viable alternative.66 comprehensive integrated transport plan: 2011/12 prior to the construction and subsequent extension of the harbour, the beaches to the west of the harbour extended approximately 200 metres further out to sea than today. the intention is to make use of the sand bypass system to replenish, in phases, the coastal zone west of the harbour with sand, and to open up this reclaimed area for development. uses considered suitable include a marina with supporting residential and commercial components. together with the nelson mandela bay multi-purpose stadium being built at prince alfred’s park, the reclamation and subsequent development of the north end beachfront will act as a strong catalyst for the urban renewal of much of the north end area, with particular emphasis on the commercial and industrial land situated in between. (t) greater addo national elephant park and bavianskloof conservancy the greater addo national elephant park and the baviaanskloof mega-reserve projects seek to develop and increase the sustainability of two prime conservation areas in the eastern cape. although located outside the jurisdiction of the nelson mandela bay municipality, their successful development will be a vital part of the arsenal of tourism and natural attractions offered to visitors to the region. (u) zanemvula project an intergovernmental initiative to fast track the provision of 14 500 homes to assist in reducing the 80 000 housing backlog in nmbm is underway. the project focuses on creating new settlements for housing the approximately 3000 families that lived in the soweto-on-sea veeplaas flood plain. major upgrades of non flood plain areas in the vicinity are also planned. the project is governed by a memorandum of understanding and agreements that ensure co-operation for delivery by the nmbm, the provincial and national departments of housing, and thubelisha homes, the implementation arm of the national department of housing. the project will be implemented as a sustainable human settlement in line with the prescripts of the breaking new ground strategy of the national department of housing, as well as the sustainable community planning methodology of the nmbm. 4.4 transport implications of the msdf according to the technical transport planning guidelines for citps prepared by the department of transport, the msdf should be influenced by the citp. specifically, the alignment of an integrated public transport system (ipts) should inform land development, thereby providing proposed developments access to existing and operational public transport facilities. additionally, the citp can indicate the necessary intensification requirements of commercial, residential and activity land-uses that would make an ipts viable. low density, dispersed developments beyond the reach of public transport corridors have numerous negative impacts on the transport system, including long trip-times to public transport nodes, poor non-motorised transport (nmt) opportunities and the promotion of private vehicle use. these developments should consequently not be prioritised for development until they are linked to the public transport system or employment opportunities are provided within or close to the development and urban densities are increased to sustainable levels. the msdf, and the individual project proposals specified by the msdf, should be evaluated according to the transport implications of the project alternatives. selection of project alternatives should be made with reference to the performance of the proposal and transport system in terms of the following objectives: integration safety environmental impact economy67 comprehensive integrated transport plan: 2011/12 accessibility the msdf should be informed by the citp in such a way as to meet the five above mentioned objectives. a spatial framework that performs poorly in terms of these objectives should be discarded or amended. poor integration of land-uses and inadequate accessibility to work opportunities by public transport negatively impact the economy and environment through long average travel times, high fuel usage and wasted time. the following sections summarise the transport system of nmbm, evaluate the specific projects defined in the msdf in terms of this transport system, and finally consider the appropriateness of the msdf. 4.4.1 transport system of nmbm 4.4.1.1 public transport corridors the public transport system of the nmbm consists of various bus services and a rail network. the bus services include an integrated rapid public transport network (ipts), express bus lines and main bus lines. these services are supported by local feeder services. the three principle routes for the first phase of implementation of the ipts are described below: motherwell – njoli – korsten – greenacres kwamagxaki – njoli – cbd cleary park – korsten – cbd the express bus service consists of the following routes: motherwell to the port elizabeth cbd with a link to greenacres motherwell to the uitenhage cbd port elizabeth cbd through despatch to uitenhage cbd a number of main bus lines provide public transport services to those areas not serviced by the ipts or express bus lines. these routes are presented below: along buffelsfontein road and heugh road from walmer to humewood william moffett expressway cape road marine drive bramlin road (and the proposed bramlin road extension to standford road) port elizabeth cbd to motherwell njoli square to uitenhage cbd through cleary park currently, only one commuter rail service exists in nmbm, between the port elizabeth cbd and uitenhage. future rail corridors that are envisioned to be developed in the long term include: realignment of the port-elizabeth cbd – uitenhage link through new brighton and despatch the motherwell loop the coega loop motherwell – uitenhage connection stanford road corridor68 comprehensive integrated transport plan: 2011/12 4.4.1.2 road network the main road access routes through nmbm are: n2 national road settlers way freeway (m4) uitenhage main road (r75) swartkops despatch road dibanisa road cape road 4.4.2 transport implications of individual msdf defined projects this section evaluates the performance of specific projects that are defined in the msdf in terms of the transport implications of these projects and according to the objectives stated previously for the performance of the project and transport system, namely: integration, safety, environmental impact, economy and accessibility. only projects that will have a substantial impact on the transport system are considered in this section. the locations of these projects are highlighted on the sdf plan, at the end of this section. (a) nelson mandela bay multi-purpose stadium precinct it is envisioned that the precinct surrounding the recently completed 2010 world cup multi-purpose stadium in north end will become a high density mixed-use area, incorporating industrial, residential, recreational, leisure and entertainment land-uses. the stadium precinct is therefore expected to become attractive as a destination node and will also produce trips. moreover, high volumes of additional trips to the precinct are to be expected when the stadium is used for sporting and other recreational events. the stadium precinct is well served by public transport. all three of the first phase ipts routes traverse the area defined by the precinct, on kempston road (motherwell – greenacres route), uitenhage road (kwamagxaki – cbd route) and harrower road (cleary park – cbd route). additionally, two express bus routes along kempston road and uitenhage road pass through the precinct. the precinct area is also bounded by a railway line and the settlers way freeway on the east, allowing easy access to the area by rail from the north end and sydenham stations, and by road via the kempston road and mount road interchanges. the high trip volumes expected during events at the stadium and the increased trips produced by upgrading the stadium precinct are therefore adequately catered for in terms of both public and private transport. the following table indicates a broad evaluation of the transport implications of the stadium precinct renewal: table 4-1: transport evaluation of stadium precinct renewal objective performance integration the stadium and its precinct are well integrated into nmbm with public transport routes and have good accessibility via the arterial road network to all parts of the city. additionally, the area is centrally located close to the cbd, minimising travel times from most areas of the city. safety ipts and express bus routes are aligned along existing roads and have been designed to provide safe transport and accessibility to stations; therefore these routes do not impose additional community severance risks or associated safety hazards. environmental impact the high public transport connectivity of the stadium precinct reduces the need for private vehicle travel to and from the area, reducing traffic volumes and fuel usage. additionally, the envisaged mixed-use nature of the precinct will reduce69 comprehensive integrated transport plan: 2011/12 the need for travel to other parts of nmbm. economy the development of the stadium precinct will encourage job creation in the area. work opportunities within the precinct will be accessible to the residents of the immediate area, as well as people from the greater nmbm due to the public transport network. accessibility the stadium precinct is very well serviced by public transport and the arterial road system, allowing easy access to the area from all districts in nmbm. the development of the nelson mandela bay multi-purpose stadium precinct performs favourably according to each of the five objectives for the integration of the project and the transport system. the stadium and its precinct are positioned centrally close to the cbd of port elizabeth, thereby taking advantage of the public transport system to ensure integration and accessibility of the area with the greater nmbm and reducing environmental impact through reduced private travel needs. additionally, the safety of public transport and nmt users was considered in the design of the project, and the project has positive economic benefits. (b) njoli square development njoli square is an important commercial node situated in the geographical centre of kwazakhele, consisting primarily of informal trading and semi-formal business. nmbm plans to develop njoli square into a vibrant civic centre that is expected to stimulate additional development in the area surrounding the square. njoli square is located along the khulani corridor that forms part of the ipts linking motherwell, kwazakhele and the northern reaches of the port elizabeth cbd. the ipts route from motherwell and the route between kwamagxaki and the cbd intersect at njoli square, making the square a significant public transport node. the presence of this transport node in conjunction with the commercial importance and future development opportunities at njoli square are expected to result in a hub that experiences high trip volumes, particularly of public transport and nmt. the following table indicates a broad evaluation of the transport implications of the development of njoli square: table 4-2: transport evaluation of njoli square objective performance integration njoli square is a central node in the ipts and therefore integrates the greater kwazakhele region with other areas of nmbm. additionally, the square is centrally located in kwazakhele, minimising travel times of the majority of residents to this public transport node. safety njoli square is in fact a traffic circle, with the ipts station and supporting amenities expected to be situated on the island of the circle. this poses significant safety risks to pedestrians who must cross the circling road to reach the island. environmental impact the economic development of njoli square will provide work, retail and recreational opportunities within kwazakhele thereby reducing the need to travel to surrounding zones for these purposes, minimising fuel usage and time spent travelling. economy the development of njoli square will not only benefit current vendors in the area, but also increase job opportunities within the predominantly residential area of kwazakhele. accessibility the upgrade to njoli square will make public transport and therefore the rest of nmbm accessible to the residents of kwazakhele.70 comprehensive integrated transport plan: 2011/12 the development of njoli square performs favourably according to four of the five objectives for the integration of the project and the transport system. the intersection of two ipts lines provides good integration and accessibility for kwazakhele, while development stimulation of the area should have extensive economic benefits. care must however be taken to consider the safety of pedestrians who need to cross the circling roads of the traffic circle. adequate numbers of pedestrian crossings and possibly signalised crossings should be implemented. (c) coega idz and port ngqura the development of a high-tech industrial zone at coega, supported by the newly developed ngqura port will produce numerous job opportunities, and will therefore generate a large number of trips in the area. the coega industrial development zone (idz) is located approximately 20 km from port elizabeth cbd, necessitating long travel distances from southern neighbourhoods of nmbm. communities that are however well positioned to take advantage of the increased work availability and anticipated economic growth created by the coega idz include the greater motherwell area, wells estate and bluewater bay. refer to the masterplan dated march 2009 for the coega development, shown in figure 4-1. the main approach routes to the coega area include the n2 freeway, neptune road, dibanisa road, addo road (mr450), mr460 (from uitenhage) and the old grahamstown road (mr435). it is intended that public transport access to the coega idz will be served by the proposed public transport system of nmbm by extending existing bus and mini-bus routes into the coega area and proposing new routes where applicable. an internal public transport system is proposed for the idz that will interface with the nmbm public transport routes at transfer facilities. the network of internal routes and stops will provide accessibility within the development. a long term plan to provide a commuter rail service to coega is being considered, however this service may only become viable towards 2030 when the core development area of the idz is fully developed. this commuter rail service would be provided as an additional loop on the proposed motherwell extension of the commuter rail line from aloes station. a freight rail network within the coega idz is also proposed for implementation. the following table indicates a broad evaluation of the transport implications of the development at coega: table 4-3: transport evaluation of the coega idz objective performance integration coega is remote and relies on the arterial road network for integration into nmbm. good road connectivity via the n2, dibanisa road, addo road and mr460 from uitenhage, is achieved. integration by public transport is supported by the public transport system proposed for nmbm; however extensions of this system to the coega idz may need to be considered to provide adequate connectivity to nmbm. integration by pubic transport will be further supported when the long term planned commuter rail link is constructed between motherwell and coega. motherwell and wells estate are situated close to coega, allowing greater integration between these communities and coega than the rest of nmbm. safety wells estate and the area of motherwell north east of addo road, ikamvelihle, are positioned to close enough to coega idz to allow nmt movement. safe nmt facilities would therefore need to be implemented on addo road and dibanisa road. environmental impact the remote location of coega necessitates long travel distances and therefore high fuel and time costs for commuters from the city centre. coega is however close to motherwell, reducing travel time to employment for this community. economy the industrial development at coega coupled with the new port of ngqura will spur economic investment in the area. coega is located close to motherwell and wells estate, and can therefore provide a number of job opportunities to these remote residential areas.71 comprehensive integrated transport plan: 2011/12 accessibility public transport accessibility to coega is provided by local feeder and taxi services. enhanced accessibility of coega would be assured through the development of the proposed rail link. internal feeder services would then be employed to ensure access to train stations from all areas of coega. the coega idz and port ngqura development represent vast economic investment potential for nmbm. in order to allow communities of nmbm to benefit from the job opportunities provided by coega, the area must be well integrated into nmbm. the arterial road system is positioned to accommodate the large number of anticipated trips to coega, providing both private vehicle access and the public transport corridors for bus routes. care must be taken to preserve the rail reserves and proposed rail station sites within the idz until commuter rail facilities are constructed. local accessibility within the idz to public transport stops and interchange stations is well provided for by the planned internal public transport system.72 comprehensive integrated transport plan: 2011/12 figure 4-1: coega idz materplan (march 2009)73 comprehensive integrated transport plan: 2011/12 (d) international convention centre a major convention centre with over 2000 seats is to be constructed at the boardwalk, a multi-purpose recreational development that consists of a casino, conference facility, hotels, restaurants, retail and commercial activities and entertainment facilities. the boardwalk is located adjacent to the beachfront, close to the airport, hotels and beachfront attractions. private vehicle access to the boardwalk is positioned on second avenue, easily reached from marine drive, a proclaimed main road. a main bus line is routed along marine drive, where a bus and taxi lay-by is situated on either side of the road close to the pedestrian entrance of the boardwalk, also located on marine drive. safe pedestrian movements across marine drive are ensured by raised pedestrian crossings and traffic signals. the following table indicates a broad evaluation of the transport implications of the convention centre project: table 4-4: transport evaluation of the international convention centre objective performance integration the boardwalk is well integrated into nmbm by a dedicated public transport route along marine drive. adequate parking and access to the property for private vehicles also exists. safety provision is made for safe nmt movement between public transport stops and the boardwalk. environmental impact the boardwalk is located close to the cbd, minimising travel times from most areas of the city, including the airport. additionally, the boardwalk development incorporates hotels, reducing the need for conference delegates to travel to accommodation. economy the conference centre will attract revenue to the area. accessibility the development site is well serviced by public transport and the arterial road system, allowing access to the site from all areas in nmbm. constructing the convention centre within the development area of the boardwalk offers numerous advantages for the project regarding private, public and non-motorised transport. the infrastructure required to integrate the convention centre into nmbm already exists, with road accesses linking to the arterial road system of nmbm, public transport routes and stops defined along marine drive and safe crossings and entrances for nmt users to the boardwalk. (e) motherwell urban renewal programme motherwell is located approximately 20 km from port elizabeth cbd and 15 km from uitenhage. many residents of motherwell are forced to travel to these centres for employment and retail and recreational facilities. to mitigate this, the motherwell urban renewal programme promotes the development of mixed-use nodes that include commercial, social, retail, recreational and industrial land-uses. further, motherwell is situated close to the coega idz, presenting potential work opportunities closer to motherwell. the programme also aims to address housing shortages through the development of vacant land and infill housing at relatively high residential densities of up to 80 units/ha (current densities are between 19 and 23 units/ha). high densities are particularly appropriate in zones situated close to public transport nodes and social and retail amenities as it increases the demand for these facilities and makes public transport viable. public transport currently available to residents in motherwell includes bus and taxi services. it is proposed that the ipts will extend to motherwell, with a planned modal interchange at the motherwell shopping centre. an express bus route between motherwell and uitenhage as well as a route to the port elizabeth cbd will also use this interchange. taxis are expected to operate a feeder service in the area which is hoped will strengthen the retail node at the74 comprehensive integrated transport plan: 2011/12 shopping centre. there are at present no rail services or stations in the motherwell area, however, the prasa plans to construct a commuter line from the aloes station to motherwell and to eventually extend this line into a loop through the coega idz. road access to motherwell is provided by dibanisa road, the mr460 from uitenhage and the n2 via the st georges street interchange. improved access to motherwell will be ensured by the proposed road link between weinronk way and tyinira street, which will also provide enhanced integration between motherwell, wells estate and bluewater bay. the following table indicates a broad evaluation of the transport implications of the motherwell urban renewal programme: table 4-5: transport evaluation of the motherwell urban renewal programme objective performance integration motherwell is isolated from port elizabeth but improved public transport in motherwell resulting from residential densification and the ipts will ensure better integration of motherwell and other areas in nmbm. safety safety of particularly nmt users is to be enhanced by the motherwell urban renewal programme through the construction of nmt pathways, pedestrian bridges and lighting provision. additionally a proposed pedestrian bridge is to be constructed over addo road to provide nmt access between ikamvelihle and motherwell. environmental impact the economic development expected to result from the renewal programme will provide work, retail and recreational opportunities within motherwell, thereby reducing the need to travel to surrounding zones for these purposes and reducing fuel usage and vehicle emissions. improved public transport in motherwell resulting from densification and the ipts will reduce travel times for the majority of residents. economy the motherwell urban renewal programme promotes economic growth through encouraging mixed-use nodes that provide commercial, retail and industrial opportunities, thereby increasing potential job numbers in motherwell. coega is located close to motherwell, and can therefore also provide nearby job opportunities to this remote community. accessibility accessibility to the ipts nodes from areas in motherwell not adjacent to the bus lines will be provided by taxi operations. future phases of ipts implementation should consider extending the network to the northern areas of motherwell. the northern most zones of motherwell are currently situated in excess of 4 km from the nearest proposed ipts node at motherwell shopping centre. the urban renewal of motherwell has numerous advantages regarding the integration of the area and the transport system. residential densification and housing infill promotes public transport efficiency, enabling more people to live close to public transport corridors, strengthening the integration and accessibility of the area. proposals to upgrade road reserves and provide lighting will increase the safety and attractiveness of nmt. accessibility to public transport in motherwell should be improved by extending the ipts to the northern areas of motherwell, which are currently underserved by formal public transport, with only local taxi services and an express bus route to uitenhage, operating in the area. (f) helenvale urban renewal programme helenvale, a primarily high density residential area characterised by small erven and houses, is situated approximately 8 km north-west of the cbd of port elizabeth. the majority of the residents of helenvale suffer from extreme poverty and are subjected to limited service delivery and economic opportunities. the helenvale urban renewal programme aims to upgrade amenities and services in helenvale, as well as encourage employment. the programme includes housing strategies for infill developments on vacant land and the formalisation of shacks in the area. additionally, the redevelopment of the civic core or precinct of helenvale is proposed, with projects to upgrade the community centre to a multi-purpose centre, enhance75 comprehensive integrated transport plan: 2011/12 public parks and improve the road reserves through paving, street lighting and public transport stops. access to helenvale is provided by standford road, gail road and the future extension of bramlin road. however, steep topography and limited intersections make access to standford road difficult. most residents of helenvale are dependant on public transport and the area is well served by taxi and bus routes. additionally, helenvale is also favourably positioned along the ipts route from cleary park to the port elizabeth cbd on standford road. ipts stations in helenvale are situated at gail road and fichardt street. a main bus line on bramlin road passes through the northern parts of helenvale. the following table indicates a broad evaluation of the transport implications of the urban renewal of helenvale: table 4-6: transport evaluation of the urban renewal of helenvale objective performance integration the ipts route located adjacent to helenvale on standford road will greatly improve the integration of helenvale with nmbm. safety the proposed improvement of road reserve paving and lighting in helenvale will enhance the safety of specifically nmt users. the alignment of the bramlin road extension along which a main bus line is routed, will create a barrier between the north and south of helenvale, posing a safety risk for pedestrians crossing this road. environmental impact the helenvale urban renewal programme will enhance the visual aspect of the area and improve social circumstances through the development of public spaces and the community centre. economy the improvement of the civic core of helenvale through the upgrade of the community centre and beautification of parks and road reserves will act as a catalyst for economic growth in the area, providing job opportunities and improving access to retail and social facilities. accessibility the accessibility to public transport will be augmented by the proposed upgrade of the pedestrian environment and public transport stops. the urban renewal of helenvale has similar advantages as the motherwell urban renewal programme regarding the integration of the area and the transport system. the current high residential density, coupled with housing infill projects will promote public transport efficiency, enabling more people to live close to public transport corridors. proposals to upgrade road reserves and provide lighting will increase the safety and attractiveness of nmt. accessibility to public transport in helenvale is improved by the ipts and main bus route and the upgrading of taxi stops. the proposed alignment of the extension of bramlin road, along which a main bus line is routed, will create a severance boundary between the western side of helenvale and the rest of the community. a number of pedestrian desire lines, visible on aerial photographs, cross the well defined road reserve of the bramilin road extension. it is proposed that the alignment of the bramlin road extension be redirected to the far western boundary of helenvale. alternatively, safe pedestrian crossings must be located at short intervals on this road. further, pedestrian movement across standford road between helenvale and algoa park can also be identified by studying pedestrian desire lines. there are currently two pedestrian crossings situated approximately 650 m apart that cross stanford road, a six lane proclaimed main road. desire lines indicate that a further, signalised crossing should be provided between the current crossings close to fichardt street. alternatively a pedestrian bridge should be provided because of the width of standford road.76 comprehensive integrated transport plan: 2011/12 (g) embizweni bluewater beach / st george’s strand beach node a tourism development is proposed for the beachfront situated between bluewater bay and st george’s strand. the development is anticipated to include a holiday resort, a hotel, a conservation area, camping facilities, a residential area and a tourism cultural centre. both bluewater beach and st georges strand are blue flag beaches, and represent potential for increased tourism to the area north of the port elizabeth cbd. this stretch of coastline is easily reached by road via two interchanges on the n2, namely the bluewater bay and st george’s strand interchanges. public transport to the area is supplied by a bus route that operates between the city and st george’s strand. it has been proposed that a pedestrian bridge be constructed over the n2 to improve nmt connectivity between wells estate and the beach. the following table indicates a broad evaluation of the transport implications: table 4-7: transport evaluation of embizweni objective performance integration integration of the beach node into nmbm is provided by the arterial road network, with easy access from the n2 by private vehicle transport and public transport that is provided by a feeder line bus and taxi service. safety a pedestrian bridge over the n2 will provide enhanced safety for people walking or cycling to the proposed development from wells estate. fences should be erected along the n2 road reserve boundary to prevent pedestrians from crossing at other locations. environmental impact this stretch of beach is already used for recreational purposes. services are in place, including roads, parking areas and ablutions, required for the beaches to obtain blue flag status; therefore, further environmental impacts are negligible. economy a tourism node will provide job opportunities to the nearby communities of wells estate and motherwell which have very low employment rates. accessibility a local feeder line operates at st george’s strand. the area is also accessible to residents of bluewater bay and wells estate by nmt by way of the anticipated pedestrian bridge. the development of the beachfront tourism node performs favourably according to each of the five objectives for the integration of the project and the transport system. adequate public transport to the area is already established and access via the st georges interchange on the n2 is provided. additionally, the safety of nmt users is considered through the design of a pedestrian bridge over the n2. (h) n2 developments the n2 development is a proposed mixed-use area located at the western entrance of port elizabeth, straddling the n2. the envisaged development will include mixed residential and convenience retail neighbourhoods, a large shopping centre, offices, light industrial, commercial, tourism and recreational land uses. a number of the trips generated by the development are expected to be internal trips, because of the mixed use nature of the development. however a number of external trips are also anticipated to be attracted by the industrial zone and large shopping centre. access to the development from the arterial road network will be provided by two proposed interchanges on the n2 freeway. the interchange west of the development will interface with the proposed western arterial, while the eastern interchange will connect with the anticipated extension of the redhouse-chelsea arterial between kragga kamma road and cape road. access to neighbourhoods south of the proposed development will be granted via the extension of walker drive. future access to the development by public transport could be supported by the ipts, which has a main bus line extending eastwards on cape road. a local feeder line route could be extended to the proposed development, which should include plans for a minibus77 comprehensive integrated transport plan: 2011/12 terminus. additionally, the development area is traversed by the narrow gauge railway line, the apple express. the developer has applied to transnet for the construction of a new station on the railway within the development site. it would then be possible to introduce a rail commuter service from this station to humewood station. the following table indicates a broad evaluation of the transport implications: table 4-8: transport evaluation of n2 developments objective performance integration the development site is well integrated into nmbm via the arterial road network to all parts of the city. improved integration by public transport should be considered. safety the proposed development area is severed by the n2 freeway, numerous arterial roads and a railway. care must be taken to integrate the various zones separated by these boundaries to allow safe and easy motorised and nmt movement between them. environmental impact convenient neighbourhood retail centres eliminate the need for residents to travel far distances for everyday necessities. additionally, the integration of commercial, residential and industrial zones within the development area promote short home-work trips, thereby reducing fuel consumption and travel time. economy economic opportunities are presented through the provision of office space as well as retail, commercial and light industrial zones. accessibility accessibility to convenience retail is well planned for with various neighbourhood shopping centres. private vehicle accessibility via the arterial road network is well supplied. public transport accessibility is limited to local feeder taxi operations, but the possibly of a rail connection is anticipated the development straddles the n2 and two interchanges on the n2 are proposed to provide access to the development, thereby allowing excellent private vehicle integration of the area and nmbm via the arterial road network. accessibility to the proposed development by public transport is limited. this is a green field development, consequently no public transport routes to the area exist. the area is however not far from the main bus line on cape road, which can be reached by local feeder bus services from the new development. nmt must be specifically catered for within the development area, because the high number of boundaries, in the form of high order roads and a railway line, could prevent natural movement of pedestrians and cyclists if not explicitly considered. (i) revitalisation of uitenhage cbd (uddi) the revitalisation of uitenhage cbd is a project that entails the enhancement of the uitenhage core area by upgrading and improving the cbd, particularly market square. the project includes the redevelopment of the historical railway sheds, close to the cbd, into an interactive science and technology centre and multi-use site consisting of business premises, shops, a hotel, flats and entertainment facilities. uitenhage is well integrated into the rest of nmbm by uitenhage main road (r75 trunk road), the swartkops despatch road (r367) and cape road (r334). a main bus line operates on the r75 between the uitenhage and port elizabeth cbds, and two express bus routes that travel from the uitenhage cbd to motherwell and port elizabeth cbd respectively, provide public transport connectivity. a commuter rail service is provided between port elizabeth and uitenhage, which is operated only on weekdays during the morning and afternoon peak travel periods. the following table indicates a broad evaluation of the transport implications of the revitalisation of the uitenhage cbd:78 comprehensive integrated transport plan: 2011/12 table 4-9: transport evaluation of uitenhage cbd objective performance integration the cbd of uitenhage is well integrated into nmbm by high order trunk roads, the r75 and r367, allowing integration by private vehicle and public transport which operates on these roads. additionally, the rail service supports this integration. safety the revitalisation of the cbd will lead to enhanced nmt safety. environmental impact uitenhage is isolated from port elizabeth by distance. an interactive science centre and other recreational facilities to be developed in uitenhage will lessen the need for residents to travel to port elizabeth for entertainment, reducing fuel consumption. economy the revitalisation of the cbd will encourage investment, while the redevelopment of the railway sheds will provide job opportunities and attract businesses to the area. accessibility local feeder lines that operate throughout uitenhage will provide access to the cbd for the residents of uitenhage, while main and express bus lines and the rail network ensure access to the uitenhage cbd from other areas of nmbm. the revitalisation of uitenhage cbd performs favourably according to each of the five objectives for the integration of the project and the transport system. public transport to uitenhage from surrounding areas of nmbm is already established, with bus and rail services operating in the area. the trunk road network between uitenhage, despatch and port elizabeth is also well established. (j) north end beachfront land reclamation the north end beachfront land reclamation project is an ambitious proposal to replenish the coastal zone west of the harbour with sand from the planned sand bypass system, and to develop this reclaimed area. the considered uses for the reclaimed area include a marina and supporting residential and commercial components. the area earmarked for reclamation is the section of coastline directly adjacent to the nelson mandela bay multi-purpose stadium at prince alfred’s park. this area is set to become a vibrant, cosmopolitan tourism hub of nmbm that will stimulate the urban renewal of north end and surrounding areas, attracting and producing numerous trips, especially between the reclamation site and the stadium precinct, which are both recreational areas. the land reclamation development site is well served by public transport, situated adjacent to the first phase ipts route between kwamagxaki and the port elizabeth cbd on uitenhage road. additionally, there is an express bus route along uitenhage road. access by rail is provided at the north end and sydenham stations, while road access is granted from settlers way freeway via the kempston road and mount road interchanges. the following table indicates a broad evaluation of the transport implications of the land reclamation project: table 4-10: transport evaluation of uitenhage cbd objective performance integration the area proposed for the land reclamation project is well integrated into nmbm by public transport routes and the arterial road network to all parts of the city. additionally, the area is centrally located close to the cbd, minimising travel times from most areas of the city. safety provision must be made for safe nmt movement between the stadium precinct and the reclaimed beachfront, which are separated by settlers way freeway and railway lines.79 comprehensive integrated transport plan: 2011/12 objective performance environmental impact the high public transport connectivity available in the area adjacent to the development reduces the need for private vehicle travel, reducing traffic volumes and fuel usage. economy the proposed land-uses for the reclaimed site will create work opportunities which will be accessible to the residents of the immediate area, as well as people from the greater nmbm due to the ipts. accessibility the development site is well serviced by public transport and the arterial road system, allowing access to the site from all areas in nmbm. the north end beachfront land reclamation project performs favourably according to most of the five objectives for the integration of the project and transport system. the development area is centrally positioned, close to the cbd of port elizabeth, and can thereby take advantage of the ipts to ensure integration and accessibility of the area with the greater nmbm, and lessen environmental impact through reduced private travel needs. a large amount of nmt movement between the land reclamation site and the stadium precinct is expected as both of these areas will be tourism hotspots and are in close proximity to one another. the safety of nmt users moving between these sites must be considered in the design of the project, especially because the development areas are separated by the settlers way freeway and a railway line. (k) zanemvula project the zanemvula project is a section 29 national department of human settlements project that will address the housing needs of approximately 10 000 families living in the soweto-on-sea and chatty areas in the nelson mandela bay. the project has three main components, listed below: the in-situ upgrading of settlements in the soweto-on-sea/veeplaas area a green field development in the chatty and joe slovo areas the construction of a multi-purpose community centre at soweto-on-sea. soweto-on-sea, the site of the in-situ upgrade component of the zanemvula project, is situated north-west of ibhayi and is bounded by the chatty river to the north, the salt works and swartkops despatch road to the west and the old pe uitenhage road is on the eastern border. existing housing densities in soweto-on-sea are too high for adequate services to be provided. a de-densification scheme is being implemented, moving residents living below the chatty river floodplain and in very dense zones, to chatty and joe slovo, the green field site of the zanemvula project situated 12 km west of soweto-on-sea. this component of the project incorporates the construction of new subsidised houses and supporting infrastructure and amenities such as schools, parks, clinics and economic and job creation infrastructure. soweto-on-sea is accessed via the old pe uitenhage road and uitenhage main road (r75) which bisects the development area. local distribution routes include koyana street and johnson street. the ipts route between njoli square and kwamagxaki is routed along koyana street, providing good public transport connectivity for the area. additionally, an express bus line passes through the area on the uitenhage main road and a local feeder line is routed along the old pe uitenhage road. access to chatty is granted by the old pe uitenhage road, standford road and nooitgedacht road. a main bus line passes on the outskirts of the chatty area, routed on the old pe uitenhage road, from cleary park to uitenhage cbd. the following table indicates a broad evaluation of the transport implications of the zanemvula project:80 comprehensive integrated transport plan: 2011/12 table 4-11: transport evaluation of uitenhage cbd objective performance integration the in-situ redevelopment component of the zanemvula project at soweto-on-sea is well integrated into nmbm by the arterial road network and the ipts that is routed through the middle of the area. chatty is integrated into the arterial road network by the old pe uitenhage road along which the main bus line is also routed. safety the soweto-on-sea development area is bisected by the r75. this is a wide road with two carriageways and two lanes in each direction, creating a formidable community severance barrier. a pedestrian bridge should be considered to link these areas. environmental impact the in-situ redevelopment zone and the green field site of the zanemvula project are both located far from the cbd of port elizabeth, necessitating long travel time and fuel usage to reach the cbd. the proposal to provide vital local amenities such as schools, clinics and economic and job creation infrastructure will however reduce the need to travel from the development zones for most everyday requirements. economy the proposed schools, clinics and economic and job creation infrastructure will provide job opportunities in the zanemvula development zones. accessibility accessibility to public transport is well provided in most of soweto-on-sea. local feeder routes, the ipts and an express bus route operate in the area. accessibility between the western and eastern sectors of the area must be considered and improved. the accessibility of the chatty development needs to be upgraded to ensure better access to the main bus line that is routed on the border of the area. the soweto-on-sea redevelopment area has good private vehicle and public transport integration into nmbm. accessibility within this zone will be improved by the construction of a pedestrian bridge over the r75 between the eastern and western sectors that are currently segregated. public transport availability from and within the chatty development is limited. this is a green field development, consequently no public transport routes to the area exist. the area is however not far from the main bus line on the old pe uitenhage road, which can be reached by local feeder bus services from the new development. both development sites are located far from the cbd of port elizabeth, so public transport availability is vital to ensure the integration of these communities and nmbm, as well as to secure job opportunities for the residents in other areas of nmbm. 4.4.3 transport implications of the msdf it was stated in the introduction to section 4.4 that the msdf should be informed by the citp in such a way as to meet five objectives that pertain to the transport implications of the development strategies of the msdf; namely integration, safety, environmental impact, economy and accessibility. this section considers the transport implications of the directive policies put forward by the msdf of nmbm in terms of the frameworks ability to meet these five objectives. the msdf has three main focus areas, described at the beginning of this chapter; these are: sustainability and the restructuring of the city, corridors and accessibility, and economic development and growth. the first focal point, restructuring the city, is proposed to be undertaken through the implementation of sustainable community units (scus). scus are envisioned to operate as self sufficient neighbourhoods, incorporating basic amenities, facilities and job opportunities within its boundaries defined by a 2 km radius, determined as the distance that can comfortably be covered when walking for half and hour. spatial restructuring according to scu directives should reduce the cost and need to travel for everyday purposes. thirteen81 comprehensive integrated transport plan: 2011/12 development goals for the spatial planning of scus are defined and were listed in section 4.1.1 of this chapter. six of those goals play an intrinsic role in improving the transport system; namely: accessibility (to public transport and pedestrian opportunities), mixed-use development, corridor development, safety and security, densification and reducing urban sprawl. the second focal point of the msdf is to develop corridors along major transport routes. these corridors are to be flanked by mixed-use development and be supported by improved public transport routes, such as the khulani corridor that extends from the nmbm 2010 stadium to njoli square and motherwell. these corridors thereby promote accessibility to a number of amenities, facilities and jobs, as well as improve mobility within the city. the third focus of the sdf details proposals regarding economic development and growth. these proposals include the implementation an urban growth boundary (shown on the sdf plan), the strengthening of public and private investment in the three cbds of nmbm, promoting infill development, and expanding residential precincts within strategic development areas. through these three focal points, the msdf provides the policy structure to achieve all five objectives of the operation of the transport system within the development framework. the strategic development projects included in the msdf implement the core development focus areas. a number of projects, such as the njoli square development, the motherwell urban renewal programme, and the zanemvula project to name a few, include strategies to promote mixed-use development, increase urban density and develop infill housing on currently vacant land, especially along transport corridors. these approaches have numerous advantages in terms of the transport system that covers all of the objectives for projects mentioned above. improved integration is assured by promoting public transport development, which is made viable by increasing housing densities as more people can make use of fewer public transport stops. the safety of nmt users is enhanced by upgrading the road reserves as well as through densification: by placing more residences and businesses adjacent to the access routes, human presence on the street is increased thereby enhancing pedestrian security. environmental impact is mitigated by reducing travel distances and time spent travelling by promoting mixed-use developments and public transport. dense, mixed-use neighbourhoods allow economic opportunities and community facilities to be located closer to a greater number of residents, thereby making the provision of facilities more cost effective. accessibility to public transport and facilities is also improved by dense, mixed-use development strategies on defined transport corridors. one area which was lacking in a number of projects was specific reference to nmt, the safety and security of pedestrians, cyclists and wheelchair users and community segregation by barriers such as high order roads and rail lines. these factors should be a very important, widely discussed and visible component of the sdf, which has a mandate to focus on accessibility to services and public transport. the economic situation of the majority of residents in nmbm makes them captive to public transport and/or nmt. public transport itself encourages the use of nmt for the initial trip phase, from home to public transport stop, and the final trip phase, from stop to destination. it is therefore vital for the effectiveness of a public transport system, that nmt users can safely and securely reach public transport. community segregation is another issue that should be held in high regard by the sdf, as segregation restricts access to some parts of the community, reducing ability to reach public transport and community facilities. examples of projects were segregation could be problematic include coega idz (nmt integration between eastern regions of motherwell and wells estate with the coega development need to be assured) and helenvale (the new alignment of the bramlin road extension will segregate the community).82 comprehensive integrated transport plan: 2011/12 overall, however, the sdf performs favourably in terms of its implications on the transport system, as evaluated in terms of the five objectives for good integration of a spatial development framework and the transport system that ultimately supports it.83 comprehensive integrated transport plan: 2011/12 figure 4-2: nmbm spatial development framework coega idz uitenhage cbd embizweni beach node north end beachfront land reclamation n2 developments helenvale stadium precinct njoli sq zanemvula soweto-on-sea motherwell zanemvula chatty overlay legend location of sdf project ipts routes express bus routes main bus lines84 comprehensive integrated transport plan: 2011/12 5 transport needs assessment the transport needs assessment focuses on the following key factors: a) measures to promote public transport the public transport operation strategy (chapter 6) has been specifically developed to be customer orientated and to be user friendly and efficient. fundamental design parameters have been formulated to promote the use of public transport including integrated ticketing, minimisation of transfers, rapid journey times and safe bus stations. b) the needs of learners and persons with disabilities learners are expected to make use of the main public transport services and this will be borne in mind when designing the public transport system. a transport needs assessment for disabled people has been derived from personal interviews with an extensive variety of people and organisations concerned about the provision of accessible transport for people with disabilities and mobility disadvantaged people. the nmbm has commenced with the improvement of public transport facilities and sidewalks to be accessible to people with disabilities. c) non-motorised transport the sidewalks and cycle tracks masterplan has developed a non-motorised transport network consisting of sidewalks and cycle paths. further information is contained in chapter 10. d) private transport and travel demand estimation a comprehensive review of the transport demand model for the metropolitan transport system has been undertaken. detailed traffic surveys have been undertaken on the major transport routes and this information has been used to update travel projections along with the latest land use information obtained from the spatial development framework and local spatial development frameworks that have recently been prepared by the nmbm. a number of different transport scenarios have been evaluated for 2010 (the existing system), 2016, 2021 and 2031. various growth scenarios were evaluated as well as different private transport and public transport options. the resulting transport network was evaluated in terms of its operating conditions (level of service). during this evaluation the required upgrades to the transport network were identified for the various target years. the results from the transport model have been documented separately in a technical report. the list of identified projects has been included in chapter 7 (transport infrastructure strategy). 5.1 transport modelling the contents and findings of the transport model update report dated february 2011 have been summarised for inclusion into the citp.85 comprehensive integrated transport plan: 2011/12 5.1.1 background the existing ptv transport model was developed in 2003 and underwent minor updates in 2004/2005 and 2006. in 2010/2011 the model underwent a comprehensive review and update in order to address road infrastructure planning and public transport provision for input into this citp. the nmbm identified the following reasons for updating the current transport demand model: the existing transport demand model for nmb was outdated. need for 12-hour and afternoon (pm) peak traffic matrices. fulfil ndot citp minimum requirements. the most notable base year improvements are: updated base year land-use information for improved trip distribution. classified 12-hour cordon counts used to validate base year model. improved alignment with gis data (nmbm gis road layer). up to date sdf information utilised. 5.1.2 data collection and data management the transport model is dependent on the comprehensiveness, quality and applicability of the relevant data. the following data was collected for the base year (2010): traffic data - 2007 census data; nmbm traffic counts; cordon counts; travel time surveys. network data - nmbm gis centreline; network attributes; ipts; coega idz network. population data - nmbm sdf; 2007 demographic update study. land use data - property valuation records; land use surveys; discussions with nmbm representatives. educational institutions - national department of education; surveys to confirm data. for modelling purposes all population and land use data, e.g. educational facilities, needed to be allocated to various traffic zones, as shown in figure 5-1. the valuation data sourced from the nmbm was used as a basis to determine the number of residential units per traffic zone by following these steps: identify residential properties. determine number of residential units per traffic zone. convert residential units to population. the following data was collected for the future scenarios (2016, 2021 and 2031): land use data – nmbm sdf 2009; lsdf’s; coega idz transportation plan 2007. population data - nmbm sdf 2009; lsdf’s. network data – additional links as per sdf, lsdf and coega idz transportation plan; long term road network from the previous nmbm citp; environmentally sensitive areas.86 comprehensive integrated transport plan: 2011/12 figure 5-1: traffic zones (source: transport model update) 5.1.3 model network a network model representing the transport system must describe the spatial and temporal structure of the transport supply. for this reason, the network model consists of several network objects which contain relevant data about the link network. the most important network object types are zones, nodes, links, turns and connectors. the following figure shows the nmbm network classified according to model link types.87 comprehensive integrated transport plan: 2011/12 figure 5-2: model network for nmbm (source: transport model update) 5.1.4 matrix development traffic demand matrices can only be determined partially by surveys. for this reason, mathematical models are used to model the real demand ratios, which calculate traffic flows between planning area zones on the basis of the population structure and behaviour data, the spatial utilisation structures and the transport system. ptv visum is used for the model update. visum is a program for computer-aided transport planning which serves to analyse and plan a transportation system. visum supports planners to develop measures and determines the impact of these measures. the demand matrices in the existing nmbm model were developed in visum. in visum 10 and onwards it is possible to run the entire model from trip generation to assignment and analysis in one programme. visum 11 allows the development of tour-based demand models which is similar to the activity based modelling in visum. the tour-based demand model is a disaggregated, behaviour-oriented demand model which allows the planner to include all kinds of data relating to socio-demography and traffic policy issues. visum calculates three logical work units namely: trip generation - the conversion of land use and population data into person trips that start and end within each traffic zone.88 comprehensive integrated transport plan: 2011/12 trip distribution - the origin-destination pattern of travel is determined. modal split – the allocation of the total person trips to the different modes of transport. these three logical units are not processed separately in succession, but are interlocked. especially steps 2 and 3, trip distribution and mode choice are carried out simultaneous in a single procedure. in all three work units two important concepts have been implemented: calculation on the basis of groups with homogeneous behaviour and activity chains. the matrix development is followed by assignment to the model network and model validation. many of the parameters used in visum were used in the latest model update since it was assumed that the travel characteristics (in terms trip generation, destination choice and mode choice) of individuals would not have changed significantly since 2006. 5.1.5 base year results the base year trip matrices, as described in the preceding section, were assigned to the base year network and the assigned traffic volumes are shown in the following figure. figure 5-3: base year (2010) am peak hour traffic volumes (source: transport model update)89 comprehensive integrated transport plan: 2011/12 the road network was evaluated in terms of operating conditions. the network operating conditions were assessed in terms of level of service (los). the measure used to provide an estimate los was v/c (volume / capacity ratio). during evaluation, required road upgrades were identified to relieve congestion. the matrices were then assigned to the base year network with the identified road upgrades for comparison purposes, as can be seen in the following table. table 5-1: primary road network performance indicators (source: transport model update) year 2010 2010 road network network 2010 2 010 with upgrades network length (km) 2,245 2,392 network statistics (am peak hour) total vehicle hours 20,185 15,477 total vehicle kilometres 699,013 684,693 ave speed (km/hr) 35 44 ave travel time (min) 14min46sec 11min19sec lane-km’s at los (am peak hour) a &b 2,623 2,882 c 26 33 d 33 13 e 24 7 f 7 3 total 2,713* 2,938* * total length of road network analysed by visum transport model (2010). chapter 7 (section 7.1.3) contains further details regarding the road network’s base year performance indicators and the improvements required to relieve traffic congestion. 5.1.6 future scenario results once the model was developed and calibrated for the current situation (or base year), it was used to predict future travel behaviour within nmbm. the model takes the following into account: population growth and the distribution of the increase in population future land use development in principle the trip generation, trip distribution and modal split steps were performed in a similar manner to the base year matrix development.90 comprehensive integrated transport plan: 2011/12 the results for the new target years differ from the previous model’s results for future scenarios, which is to be expected. the most notable changes with regard to future input data from the previous model are: lower population projections. updated land use projections. the target year trip matrices for 2016, 2021 and 2031 were assigned to the following network scenarios: 2010 network with identified road upgrades implemented. required long term road network with ipts (phase 2) in operation. required long term road network without ipts (phase 2) in operation, i.e. the ipts lanes are constructed but the system is not operational. required long term road network with ipts (phase 2) in operation but excluding environmentally sensitive road proposals. fully developed long term road network with ipts (phase 2) in operation. figure 5-4: 2016 operating conditions on fully developed long term road network with ipts (phase 2) in operation (source: transport model update)91 comprehensive integrated transport plan: 2011/12 the fully developed long term road network will not experience congestion problems, other than the short sections on main and heugh roads. figure 5-5: 2021 operating conditions on fully developed long term road network with ipts (phase 2) in operation (source: transport model update) the fully developed long term road network will not experience congestion problems, other than the short sections on main and heugh roads and the cotswold interchange.92 comprehensive integrated transport plan: 2011/12 figure 5-6: 2031 operating conditions on fully developed long term road network with ipts (phase 2) in operation (source: transport model update) the fully developed long term road network will not experience congestion problems, other than the short sections on main and heugh roads and freeway interchanges. 5.1.7 required road networks the evaluation of alternative road networks to provide access and connectivity, as well as solutions to the traffic congestion problems, resulted in the identification of short, medium and long term road infrastructure requirements. these road improvements are above and beyond the require network improvements for the base year.93 comprehensive integrated transport plan: 2011/12 table 5-2: roads required for access and connectivity (source: transport model update) priority reference number project short term road improvements (5 years) s1 kwanobuhle southern arterial phase 1 and 2 s2 stanford road extension to bloemendal arterial s3 bloemendal arterial from stanford to old pe-uitenhage road s4 tyinira street construction (bluewater bay to motherwell town centre) s5 construct link road from grahamstown road to kwazakhele s6 restitution avenue (glen hurd drive) s7 van der stel street extension medium term road improvements (10 years) m1 kwanobuhle southern arterial phase 3 m2 stanford road extension to algoa road, uitenhage m3 realignment of mr 448 m4 construct diaz road arterial between diaz road and redhouse chelsea arterial m5 new ramps and cd roads at n2, rowallan park / sherwood long term road improvements (20 years) l1 construct link road between union avenue and the mr460 l2 green street ramps table 5-3: roads for additional capacity and ipts (source: transport model update) priority referenc e number project short term road improvements (5 years) s8 extend bramlin street from malabar to uitenhage road s9 construct additional lane for ipts on standford road (cotterell street to cleary park) s10 construct additional lane for ipts on njoli road (ntshekisa road to daku road) s11 construct additional lane for ipts on daku road s12 construct additional lane for ipts on dibanisa road 2nd carriageway phase 1 (nzunga street to brickworks) s13 construct additional lane for ipts on ntshekisa road (ferguson road to njoli road) s14 construct additional lane for ipts on sheya khulati drive / ferguson road (kempston road to ntshekisa road) s15 construct additional lane for ipts on langenhoven drive (harrower road to cape road)94 comprehensive integrated transport plan: 2011/12 s16 construct glendore road from circular drive to buffelsfontein road medium term road improvements (10 years) m6 upgrade cotswold interchange m7 extend william road through cotswold to cape road m8 walker drive extension to cape road long term road improvements (20 years) l3 construct additional lane for ipts on koyana street up to ralo street l4 construct additional lane for ipts on dibanisa from nzunga to khazimla l5 upgrade addo interchange l6 upgrade creek interchange l7 construct additional lane for ipts on beach road l8 construct additional lane for ipts on heugh road / walmer boulevard l9 construct additional lane for ipts on 10th avenue l10 construct additional lane for ipts on main road l11 construct additional lane for ipts on buffelsfontein road l12 construct additional lane for ipts on william moffett from buffelsfontein to main road l13 construct additional lane for ipts on cape road95 comprehensive integrated transport plan: 2011/12 figure 5-7: short term road improvements (5 years) (source: transport model update)96 comprehensive integrated transport plan: 2011/12 figure 5-8: medium term road improvements (10 years) (source: transport model update)97 comprehensive integrated transport plan: 2011/12 figure 5-9: long term road improvements (20 years) (source: transport model update) the required network proposed shown above differs from the proposals in the nmmm integrated transport plan 2005 – 2010. this is to be expected since the input data for future scenarios changed significantly due to the availability of existing data for 2010 and detail input available from the new sdf as well as lsdf’s within nmbm. the following table highlights significant changes from the nmmm integrated transport plan 2005 – 2010. current proposals that were not previously included are included in this document because: capacity problems in the specific area. future access and connectivity requirements. ipts lanes.98 comprehensive integrated transport plan: 2011/12 table 5-4: notable changes from the nmmm integrated transport plan 2005 – 2010 itp (source: transport model update) no. project change reason for change 1 motherwell southern bypass from mr460 to dibanisa road not part of new proposals population projections used in the 2004 model, developed for the nmbm integrated transport plan 2005 – 2010 itp included significant residential development to the west and north west of motherwell (projected 2020 population of around 80,000 persons). this area generated high traffic volumes that were attracted to areas with high existing and projected employment opportunities such as the cbd, uitenhage and the coega idz. current planning does not make provision for this large-scale development in this particular area at the rate initially envisaged and therefore these roads are not required until 2031. 2 realign mr460 to 4 lanes from tyinira street to mr435 3 extend second carriageway of mr460 (tr63 - mr461) 4 second carriageway algoa road (mr448 - mr458) 5 widen the n2 between kragga kamma road and creek interchange to 6 lanes not part of new proposals the diaz road arterial provides additional capacity for east-west movements.99 comprehensive integrated transport plan: 2011/12 5.2 stakeholder consultation the transport needs of the various communities located within the nmbm area were determined through a public consultation process. initially, public meetings were organised and scheduled with the assistance of the community liaison officer (clo) of the infrastructure and engineering department in the 8 ward clusters of nmb. unfortunately only two of these meetings were held by which time the nmbm constituency office requested the rescheduling of the meetings since the process of organising these meetings had not followed the correct municipal procedures. these meetings were scheduled to resume in december 2010 but were subsequently cancelled by the constituency office due to the annual council recess over the december festive season. no follow-up meetings were arranged in 2011 to continue the public consultation process. fortunately, the recent update of the nmbm idp provided an opportunity for stakeholders and the general public to raise concerns and needs with regards to transportation in the metro. the citp provides input into the transport component of the idp and although not ideal, this is considered to have been an acceptable opportunity for the various communities of nmb to provide input, given the challenges faced with the initial public consultation process. additionally, various industries and authorities within nmb were also consulted to identify their transport related needs. the main stakeholders included the following: nmbm nmbm (rail) - roads & stormwater operations nmbm traffic department industrial highway carriers (abnormal loads) percci transport task team (freight) prasa chapter 12 (stakeholder consultation) provides further details with regards to the stakeholder consultation process and feedback received.100 comprehensive integrated transport plan: 2011/12 6 public transport operational strategy 6.1 the public transport strategy and action plan the minister of transport announced a national public transport strategy in 2007 to transform the existing basic commuter operations by upgrading transport modal interchanges and by providing integrated rapid public transport networks. the transformation would include the following, as stated in the public transport strategy and action plan (ptsap): upgraded modal fleet, facilities, stops and stations; extended hours of operation to 16 to 24 hours; operating peak frequencies of 5 to 10 minutes, off-peak frequencies of between 10 to 30 minutes and hourly night services; provision of a transport network so that 85% of all residents in urban areas are within 1 km of a rapid public transport network by 2020. safe and secure operation monitoring from intelligent transport control centres; electronic fare integration and single ticketing when making transfers; integrated feeder services including walking, cycling and taxi networks; integration with metered taxi services and long distance intercity services; and a car competitive public transport option which will enable the introduction of managed peak period restricted car use. the implementation of the strategy has two thrusts, which are: accelerated modal upgrading, and integrated public transport systems (ipts). modal upgrading focuses on the 3 – 7 year transitional period with regard to improving the quality of the public transport fleet and its current operations. ipts focuses on the 4 – 20 year period and aims to implement high quality route networks. the implementation strategy is to upgrade both commuter rail services and bus and minibus services to rapid rail and road rapid transit levels of quality in all major cities. the dot has developed an action plan for the strategy, with a focus on implementing phase 1 of the integrated rapid public transport network projects in 12 cities and 6 districts during the years 2007 to 2010. also included in the action plan is the phasing in of an authority controlled network of integrated, high quality public transport services that are car competitive. this requires the concurrent implementation of three critical activities by each of the selected cities and district municipalities, as follows: a network operational plan which includes integrating the road based and non-motorised systems with the rail priority corridors (if relevant), the development of a business plan which must include negotiations with existing operators and labour (especially the minibus sector) for both road based and prasa priority corridors. the establishment of a transport authority with the capacity to manage the network in terms of performance contracts with fare revenues accruing to the authority (road based system) and managing performance agreements with prasa for the rail priority corridors in particular. the nmbm has over a number of years worked toward achieving the goals of the ptsap as outlined above and has prepared a public transport plan, the details of which are outlined below. the following steps have been identified to meet the goals of the ptsap and the ptp:101 comprehensive integrated transport plan: 2011/12 a) by end 2011 – catalytic projects it is intended that contracts with the operators be concluded by the end of 2011 with operations to commence in 2012. these contracts will dictate, amongst others, the level of service and types of vehicle that will need to be provided by the operators. it is intended that five (5) contracts will be concluded with the primary co-operatives and five (5) additional contracts with the algoa bus company. the contracts will be based on the geographical areas within the city. the services to be provided by the operators will be co-ordinated between and on routes so as to provide an integrated system to the commuters while eliminating on road competition. the services will be significantly upgraded to be formal, scheduled and well managed with significant modal upgrading of the existing fleets of vehicles. the nmbm will establish an entity that will be responsible for the regulation, monitoring, marketing and management of the system and its facilities. this entity will also implement and manage an integrated electronic fare collection system. b) key issues to be achieved in this period are the following: all public transport to be operated under contract to the nmbm. taxi and bus services operated by professional management. taxi vehicle numbers reduced and recap compliant. drivers under formal employment conditions. new articulated buses operated by the taxi co-operatives. 10km rapid transit lanes used by buses and minibuses. an administration agency established. c) 2011 to 2014 – basic network during this period the services provided under contract will be rationalised to deliver optimally efficient services using the appropriate mix of vehicles. all new vehicles introduced will be universally accessible to all persons. the construction of rapid transit lanes will be gradually extended and priority measures for rapid transit vehicles will be introduced on all routes which have dedicated lanes. d) 2014 – 2022 – sustainable and accessible network this period will see the consolidation of the system into the intended end state. rapid transit services will be operated on all viable corridors and the fleet will be at its optimal level to provide the full efficiency that can be achieved. the system will become financially sustainable, depending on passenger growth and fare revenue. operators may, during this period, consider joint operating entities that may further increase the financial sustainability of the system. 6.2 integrated public transport system (ipts) 6.2.1 introduction in 2004, the nelson mandela bay municipality (nmbm) started a process of preparing a public transport plan (ptp), as a component of a comprehensive integrated transport plan (citp), for its area of jurisdiction, as required by national legislation. the preparation of the ptp was overseen by a steering committee on which role-players such as the nmbm, drt,102 comprehensive integrated transport plan: 2011/12 dot, public transport operators etc were represented. the ptp was completed in 2006 and includes a proposed long-term strategy for the public transport system in the nmbm and a proposed phased implementation plan, which is integrated with the citp to provide a comprehensive multi-modal solution for the future transport needs of the metropolitan area. the ptp reviewed the status of bus, taxi and train services in the nmbm and analysed future scenarios. the plan determined a long term strategy for the public transport system, a short term implementation plan and a funding plan. the long term strategy is based on the nmbm’s 2020 vision, taking into account national and provincial transport policies. the ptp of the nmbm presents a long-term strategy for developing a preferred public transport system with the following goals and objectives: “to provide an efficient, safe, affordable, sustainable and accessible multi-modal public transport system which supports social and economic development to ensure optimal mobility and improved quality of life for the residents and users of the transport system in the metropolitan area”. one of the main means to achieve these objectives is to provide effective all day public transport services along defined development corridors. this creates a system of interaction where land use and transport systems support each other in a way that stimulates the use of public transport and improves accessibility to work, commerce and social services. it is further in line with the national policy on corridor development, focusing on high density, mixed land use catering for maximum use of public transport when travelling. the strategies for developing the public transport system within the nmbm are based on a number of important principles. these principles encapsulate many of the intentions laid out in the nltta for public transport in the long term. these principles are: customer oriented transport system integrated transport system densification of transport corridors contracts for public transport services operation phased introduction in co-operation with the industry regulatory framework supporting public transport the public transport plan and the public transport operational plan (which was prepared in 2008) forms an integral part of the comprehensive integrated transport plan. the main elements of these plans are summarised in the following sections. 6.2.2 public transport strategic plan the long-term development proposal for the public transport system is based on the results from an analysis of several possible scenarios. the conclusions from the scenario analysis are that an integrated public transport system with scheduled services, based on trunk bus routes with complementary feeder and main route systems will, in the next 10 years, best serve the communities of nmbm. the public transport system will have the “extended” khulani corridor (motherwell – njoli – korsten – cbd – greenacres - cleary park) as the back bone onto which the other services will be built. the long-term public transport system will be characterised by some important qualities. the system will consist of integrated and regulated public transport which will be modern and attractive, offering seamless travelling with through-ticketing on contracted scheduled103 comprehensive integrated transport plan: 2011/12 services. the public transport corridors will encourage high density development through quality, high frequency, scheduled, public transport services which, in turn, will attract more people to use the public transport system. a trunk bus network will be developed in the defined public transport corridors. certain of these routes will have dedicated median bus lanes and will be operated on integrated rapid public transport network (ipts) principles with modern, articulated buses. these will cater for people with special needs, such as persons in wheelchairs and the system will aid general mobility by incorporating the concept of universal accessibility. the trunk routes will be supplemented by express, main, feeder and special services with an extensive network operated by normal buses, minibuses, and midi-buses. it is also intended that a number of these vehicles will be adapted to provide facilities for special needs passengers. the trunk bus and feeder operations will integrate at attractive interchanges where passenger transfers can be made in a safe and secure environment. the interchanges will also be important nodes of commercial attraction and will be located close to suburban business activities and in the city centre. these interchanges will stimulate further economic development in their immediate surrounds an expanded railway system will not attract enough passengers in the next 10 years to justify the large investments required. the existing commuter rail service between uitenhage and port elizabeth will be retained and supported by feeder services at uitenhage, de mist, despatch, swartkops and new brighton stations. in the national rail plan, the prasa has indicated that in 3 to 5 years the motherwell commuter rail extension could be constructed and therefore, the reserve for the railway alignment should be kept. an extended railway service will not be justified before 2015, except for a possible extension into motherwell. the rail plan identified a number of corridors that will form the basis of the long term rail network. these include the motherwell corridor, the northern motherwell / uitenhage link, the kwazakhele corridor and the standford corridor. these corridors are indicated in section 6.6. 6.2.3 public transport implementation plan an integrated and modern public transport system throughout the nmbm area will be implemented in stages. the implementation will be dependent on the reform of the current public transport system as well as funding for investment in public transport infrastructure and subsidies for the operation of the system. the reality of a limited local budget guided the initial views on the characteristics of the proposed new system. it was accepted that about half of the current bus fleet of 400 vehicles consisting of regular rigid body buses in good condition would have to be used and only a limited number of modern buses could initially be introduced into the system. furthermore, limited funding requires cost effective designs as far as the construction of dedicated bus lanes are concerned. median bus lanes are therefore initially considered only in high congestion areas close to the city centre. along other sections, where buses in the interim will run in mixed traffic, bus prioritisation will be provided at traffic signals for reduced running time and reliable performance of the system. after extensive discussion and evaluation concerning whether to have central or split stations in the median ipts lanes and whether to have high floor or low floor buses, it was finally decided to opt for low floor buses with doors on both sides. this will enable these buses to stop at the central platforms in the median lanes as well as at the kerbside on sections of the trunk routes which are too narrow for median lane construction or for high platform construction on the kerbside.104 comprehensive integrated transport plan: 2011/12 the implementation planning for a scheduled public transport service is currently being undertaken in consultation with all stakeholders. the nmbm area has been divided into five contract areas based on current operations. services in each area will form the basis of an operating contract for the provision of the new scheduled services in that area. operators, including the existing minibus taxi operators and algoa bus company, wishing to operate in the new public transport system are being encouraged to establish formal, legal, entities with which the eastern cape department of transport, or a duly established transport authority, can conclude the contractual agreements. in order to empower the current minibus operators to formalise their business, and to guarantee their participation, a negotiated contract is preferred to an open tender process. if these negotiations do not result in acceptable agreements, within the stipulated timeframe, an open tender process will be followed. the contracts will incorporate a mechanism to recapitalise the minibus fleet, in accordance with the national government’s taxi recapitalisation project, in a phased manner, for use in providing the new services. vehicles that are identified as unlicensed will be withdrawn from operation by enforcement actions. throughout the duration of public transport contracts the operations must be monitored with regard to the service delivered and the patronage. this is necessary to ensure that the entities operate according to the contract conditions and to protect the contracted operators from illegal operations. a process will be implemented whereby the compliance of operators with the conditions of their operating licenses will be checked on an ongoing basis. various intelligent transport systems (its) projects will be implemented that will include integrated ticketing and revenue collection, public transport prioritised traffic control, security camera system monitoring of all major facilities, control room and electronic passenger information. 6.2.4 integrated network design the integrated public transport network, shown in figure 6-1 consists of integrated rapid public transport network (ipts) routes, express bus lines and other main bus lines supported by local feeder services. a) ipts routes the ipts-routes along the “extended khulani corridor” form the backbone of the system. this system of ipts-routes runs predominantly through previously disadvantaged areas connecting motherwell, kwamagxaki and cleary park with korsten, greenacres and the inner city cbd. three principal routes are identified for the first phase of implementation, as follows: motherwell – njoli – korsten – greenacres kwamagxaki - njoli – cbd cleary park – korsten – cbd this initial part of the ultimate network is well located also to serve the new 2010 soccer world cup stadium, located within the triangle of roads forming the inner city ipts system. it is the intention of nmbm to eventually expand the “extended khulani corridor” into the ultimate metropolitan wide ipts system, which will also include uitenhage road, cape road, standford road (north of cleary park) and heugh road/buffelsfontein road.105 comprehensive integrated transport plan: 2011/12 figure 6-1 integrated bus route network b) express bus routes in addition to the ipts routes, express bus services will be provided to reduce travel time where needed. one example is from motherwell to the cbd where travelling along the ipts route via njoli will take almost one hour compared to less than half an hour for the express route along the n2 freeway. the motherwell express services will also be linked to greenacres/newton park joining the ipts system along kempston road from the n2 freeway.106 comprehensive integrated transport plan: 2011/12 another express bus service will be provided from uitenhage/despatch to the pe cbd with a link to greenacres/newton park. this express service will run along the uitenhage main road joining the ipts system at kempston road and govan mbeki avenue. due to the limited road width available on most of the trunk routes it will not be possible to allow overtaking at stops within the ipts section, therefore the express services must operate predominantly along separate alignments where possible. in the common sections on the inner city system, express services must stop at each stop. c) main bus lines main bus lines are defined to provide direct services between important destinations not covered by either the ipts or express bus systems. these are routes such as motherwell to cbd via deal party, which is an important work destination. another main bus line connects njoli square and cleary park. from cleary park a main bus line will provide services to uitenhage. the cape road and heugh road routes will be operated by main bus lines in the first phase before the ipts system is introduced along these routes. the same applies to the route from the cbd to summerstrand which will also be operated as a main bus line. d) local feeders local feeder services will operate in the suburbs providing access to the trunk bus system but also allowing people to travel locally within the area. this system of local feeders is the ultimate component of the integrated transport system allowing full service coverage of the entire city. the objective is that all citizens should be within a walking distance to the nearest bus stop of not more than 400 meters. e) other services the integrated route network defined above forms the foundation of the system which will be operated to provide all day frequent scheduled services. the system covers the entire city area allowing citizens to travel to any destination within the city even though transfers will be needed. the calculations of vehicle fleet and operations take cognizance of the fact that the base system provides services for the total envisaged travel demand. however, some of this travel demand may also be catered for by providing special services in the morning and afternoon peaks taking people to schools or larger working areas. these kinds of services will be elaborated on in the detailed operational design that is currently being undertaken. 6.2.5 contract design through the implementation of the public transport plan the nmbm intends to transform, formalise and integrate the current inadequate public transport system in nmbm into an efficient, reliable and safe public transport system. it was decided that only contracted operators will be able to participate in this first contract period of the new public transport system and benefit from subsidies and the improved infrastructure that is being provided. in order to do this the nmbm will implement the integrated public transport system in co-operation with current operators, i.e. algoa bus company, pepboa and minibus taxi operators. contracts for public transport services are normally awarded on the basis of competitive tenders. during transition periods, however, negotiated contracts may be awarded on the basis of negotiation with an incumbent operator. the city will be divided into five contract areas within which contracts will be awarded to entities mutually formed by the operators.107 comprehensive integrated transport plan: 2011/12 in order to empower current operators to sign operating contracts, the nmbm supports forming of mutually owned entity or entities. this will facilitate converting current licenses and interim contracts into operating contracts for a defined period of time e.g. seven years. in terms of utilisation of assets the intention is to use the existing fleet of vehicles, i.e. regular buses and mini buses, as far as possible on main routes and local feeder routes, while new buses will be purchased and phased in for services along the ipts routes. 6.3 public transport business plan 6.3.1 liaison and consultation strong opposition to the ptp was encountered from the established taxi industry which was apprehensive about the implications of the change. this opposition reached a peak towards the end of 2008. the taxi industry in nmbm rejected its elected leadership and appointed in its place a forum representative of the whole taxi industry in the city. political intervention called for the establishment of an integrated public transport system steering committee. the steering committee was duly established to oversee and manage the negotiations and the implementation of the integrated public transport system (ipts). the steering committee sat on a number of occasions during the period of protest to facilitate negotiations and agreements between the parties, which culminated in the signing of a memorandum of understanding in may 2010. this steering committee appointed a technical working group in which technical issues were discussed and proposed. such proposals are then referred to the steering committee for ratification before they are formally adopted. in march 2009 the forum produced its own strategic business plan that proposed that the implementation of the public transport strategy and action plan should be viewed as the opportunity to achieve the transformation of the present informal-sector taxi industry into a formal-sector business operating public transport services of all kinds under contract to the municipality. in order to manage the process of change and deal with the apprehensions of existing taxi operators, there should be a period of transition with safeguards at each phase of the transition. the forum insisted that the whole of the nmbm taxi industry should be included in the overall implementation plan rather than being dealt with on a route-by-route basis. it also considered that the operating entities should be cooperatives rather than companies. the public transport plan steering committee approved this approach, with the addition that the position of the established bus operator, algoa bus company (abc), should also be safeguarded. abc has made it clear that if it is to continue to provide public transport to residents of nelson mandela bay then it will require its bus fleet to be recapitalised as part of the proposed negotiated contract including the transitional period demanded by the taxi industry. the period since then has been one of detailed consideration of the way in which the phased transitional process should be implemented, and of the costs which are implied. the steering committee is of the view that by clearly identifying at the very outset the transitional and transformational elements and making plans to deal with them, it will avoid many of the problems of implementation being encountered elsewhere.108 comprehensive integrated transport plan: 2011/12 6.3.2 transformation of the taxi industry five primary cooperatives were registered in september 2009, one for each of the groups of routes forming part of the integrated public transport network (iptn). early in 2010, these five cooperatives combined to register the laph'umilanga transport service secondary cooperative ltd, whose objective it would be to finalise negotiations with nmbm and to provide professional support to the primary cooperatives as they become operational. the laph'umilanga secondary cooperative presented a strategic business plan to the nelson mandela bay public transport steering committee. the objectives of the business plan are to: assist the nmbm to implement its integrated public transport system, an integral part of which will be a road rapid transit system at the same time, to protect the rights of existing taxi owners, drivers and others engaged in the taxi industry." the concerns of the informal sector taxi operator can be summarised as being: a fear that they are being asked to commit irrevocably to something that is outside the realm of their experience, and that they may lose out as a result of the proposed combined operations with experienced and subsidised formal sector bus companies; and more basically, a concern that they might lose the income on which they have come to depend. the first of these concerns is addressed by a period of transition during which there will be a programme of transformation to take the taxi industry from the informal to the formal sectors of business, and which during its early stages includes a ‘fall-back’ position. the second is covered by government guarantees of “no loss of legitimate profit”’. the transition period is expected to take some three years, starting in 2010. there will from the very start be improvements in standards of service and in efficiencies of operation. road rapid transit systems will be included where, as and when justified by demand. the result will be that by 2014 the whole of the nmbm area will be serviced by an optimally-efficient integrated public transport network – the ‘basic network’ described in the public transport strategy and action plan. it was accepted by the public transport plan steering committee that the operating entities will be “cooperatives” rather than companies. this format is more acceptable to the taxi industry in the transformation phase. all existing members of the ten taxi associations will become members of the appropriate cooperative. it is proposed that there will be two preparatory phases for the transformation of the taxi industry i.e. the “negotiation” and “start-up” phases. the initial negotiation phase will lead to the signing of contracts for operations. this will be followed by the start-up phase during which detailed implementation planning will be carried out with operations beginning thereafter, originally intended before the end of 2010.109 comprehensive integrated transport plan: 2011/12 there will be three operational phases as follows: a) phase 1: cooperative management in this phase the cooperative takes over management of vehicles owned by members. the vehicles remain the property of the individual owner. this provides a 'fall-back position' for existing operators. if the initiative fails to deliver the promised benefits, they will have the assurance that they may return to their present position. b) phase 2: cooperative ownership individual ownership is phased out as vehicle finance repayments are completed. the cooperative acquires and owns: the existing vehicles new vehicles including buses. c) phase 3 : the end-state implementation of the full ipts including road rapid transit. the step-by-step implementation programme may take up to five years. however, this five-year period may be considerably shortened if the early stages go as planned, and particularly if government guarantees are honoured. the taxi industry places great reliance on the government guarantees of “no loss of legitimate profits or legitimate jobs”. laph'umilanga considers that the profit guarantee must cover (a) the transitional period of some three years and (b) the 12-year period of the proposed negotiated contract. the amount of the guarantee is being negotiated within the steering committee and the dot requires that the actual income and operating costs be independently verified. an option is for existing operators to be offered a lump sum in compensation rather than ongoing monthly payments - effectively, an exit package. 6.3.3 implications for the algoa bus company algoa bus company (abc) is a mass passenger transport company operating within the metropolitan boundaries of nelson mandela bay, which is situated within the eastern cape province of south africa. this company operates its services from five (5) operating centres of which three (4) are situated within port elizabeth and one (1) within uitenhage. the head office of this company is located on one of these operating centres namely perl road depot. the algoa bus company is registered as a section 21 company – i.e. “incorporated not for gain”. the entire shareholding of the algoa bus company was transferred on behalf of the community to a newly created holding company named e’zethu, meaning “our own”, which is registered under section 21 of the companies act – not for gain. it therefore follows that the entire community of the port elizabeth / uitenhage metropolitan area have become the sole and absolute owners of the algoa bus company. the mission of the algoa bus company is “to provide reliable, affordable, safe & cost-effective public passenger transport in the nelson mandela bay metropolitan area”.110 comprehensive integrated transport plan: 2011/12 the directors and management support the department of transport’s vision in respect of integrated public passenger transport systems and tendered services provided that any form of integration or tender is based on the principle of cost-efficiency and overall user benefit and not merely to meet private, or political aspirations at the ultimate cost of the tax payer or commuter. the company plays an extremely important role in the community of port elizabeth and uitenhage. currently in excess of 400 000 passengers per week make use of the services provided and this number is steadily increasing. algoa bus company is, with 400 buses, by far the largest single role player in the passenger transport market in the eastern cape. it is also the only company (apart from the limited rail service) to operate a scheduled service at fixed fares in accordance to a published timetable in the nelson mandela bay municipality. algoa bus company currently provides secure and permanent work to 765 direct employees in a highly unionised and controlled industry and is an equal opportunity employer, which favours internal promotion and places a high priority on its human resources programme with future emphasis being directed towards communication, development and training, at all levels. the algoa bus company operates within the nelson mandela bay metropolitan area, which covers an area of approximately 1 000 square kilometres and has an estimated population of 1 200 000. the algoa bus company is the only major bus operator within this metropole and has a route network of approximately 630 kilometres that covers basically thirty (30) suburbs and industrial areas. services to the port elizabeth / uitenhage areas are being rendered from the following five operating centres. table 6-1: bus operating centres operating centre no. of buses perl road depot * 66 bay depot * 116 maku depot 97 dwesi depot 87 uitenhage depot 34 total 400 * these operating centres are fully equipped with workshop facilities and office buildings. all operational information is however currently being processed on a central basis. planning in terms of positioning this company in order to comply to tender / contract services are in progress which will enable individual operating centres to generate their own route information. this company also makes use of two municipality owned transfer stations, i.e.: market square bus station and bay station. approximately 50% of buses purchased from this company’s predecessor namely pe tramways are still in use. these buses are high in age and require immediate replacement. this situation was further aggravated by the fact that no finances were available for111 comprehensive integrated transport plan: 2011/12 preventative maintenance programmes during the early years of the newly established company. notwithstanding the high average age of the fleet, these vehicles additionally experienced an increase in this deterioration as a direct result of the lack in funding. the fact that this company is situated close to the ocean furthermore aggravated the deterioration process to such an extent that urgent attention will have to be given to improve the condition of vehicles in order to ensure the safety of the passengers conveyed. further to the above, the deteriorated fleet would have been recapitalised with the introduction of the ipts. a delay in establishing the ipts which was envisaged for early 2009, and the subsequent further extension of the implementation to a date in future (three to five years from now) in order to accommodate the taxi industry will further aggravate this position. it can therefore be concluded from the above that major expenses over the short and medium term will have to be incurred in order to upgrade the condition of the fleet. consequently most of the profits currently generated are utilised for this purpose. the objective of this company is therefore to recapitalise 50% of the fleet, subject to the availability of funds, in order to improve services and safety standards. algoa bus company will need to recapitalise these older buses with buses suitable for application in the ipts, (i.e. low floor/low entry, doors fitted to both right- and left-hand sides etc.) at an estimated cost of r2,5 million each rather than the r1,4 million for a standard commuter bus (prices are current and exclusive of vat). algoa bus company therefore requests the dot to obtain the necessary funds for the re-capitalisation (which will form part of a capital subsidy) of the company’s deteriorated fleet in line with the specifications for buses to be used in the ipts described in the interim / negotiated contract for algoa bus company. it is envisaged that abc will need to install right-hand side doors on 206 of its existing buses so as to make them compatible with the ipts requirements. it is envisaged that this cost will be r8,4 million as per current quotation. please note that there is only one supplier that can provide retrofit kits for the conversion of the typical algoa bus company fleet. in order to continue rendering a safe, reliable and affordable bus passenger transport service to the communities of the nelson mandela bay metropole, it is absolutely essential that approximately 50% of the fleet of algoa bus company needs to be recapitalised. the cost for the purchase of 200 low-floor, low entry bogey buses at the current price of r2.47m per bus amounts to r494 million. in order to alleviate the pressure on the financial resources of government, it is suggested that the recapitalisation of the fleet be done over a period of three to five years to coincide with the “transitional period” for the implementation of the integrated public transport system in nelson mandela bay metropole. the recapitalisation of the electronic ticket machines (etms) cannot be done over a period of time as the conversion to the modern etms has to be treated as a once-off project to ensure uniformity. it must further be noted that in order to comply with the requirements of the ipts, it would be necessary to convert the 206 newest vehicles in the algoa bus company to have doors on the left and the right hand side at a cost of approximately r8.4 million (quotation: r40 515 per bus).112 comprehensive integrated transport plan: 2011/12 6.4 public transport operations and finance 6.4.1 current situation there are currently approximately 3 200 minibus taxis and 400 standard algoa bus company buses providing commuter services on a daily basis in the nmbm area. the operators operate mostly on the same routes and in competition with each other as their fares are similar. the main differences between the existing taxi and bus operations are that the former do not provide a scheduled service and work on a cash basis. the bus operator on the other hand provides a scheduled service with a ticketing system based on prepaid passes, as well as cash fare payment. a further difference is that the algoa bus company receives a subsidy from government in terms of an interim contract (managed by the provincial department of transport) for the scheduled services provided; whereas the taxi industry operates without government subsidisation. in addition to the above operators, there are approximately 30 independently owned standard buses and coaches, belonging to private bus operators affiliated to the port elizabeth private bus owners association (pepboa). these buses are used mainly for charter purposes and for hire by private organisations and schools. the nmbm has recently procured 24 new low-floor articulated buses with doors on both sides, which were used during the 2010 fifa world cup event in the city and will now be used for the integrated public transport system (ipts), once negotiated contracts have been agreed between the municipality and the operators. the problems associated with the current competitive situation where there is an oversupply of taxis, is that drivers drive fast and tend to overload vehicles to obtain sufficient fares from passengers to pay the daily income demanded by the taxi owner, as well as paying for fuel and having money left for themselves. the current public transport operations are also adversely affected by increasing traffic congestion on the roads leading into the city centre, resulting in vehicles moving more slowly and some drivers becoming aggressive and driving recklessly, which leads to collisions, injuries and fatalities. 6.4.2 proposed operational plan a draft operational plan for the nelson mandela bay municipality’s ipts was developed in december 2008 and revised in december 2009 following intensive negotiations with the public transport operators. in terms of this plan the ipts will consist of an integrated and regulated system of trunk and local distribution routes. the high volume trunk routes will have dedicated median public transport lanes that will be operated with multi-door, low floor, wheelchair accessible buses. these trunk route services will be supplemented by express, main, local and special services operated by normal buses, minibuses and midi-buses. the various services will integrate at modal interchanges which will also be commercial hubs. the key distinction between the 2008 and 2009 operational plans is that the dedicated median lanes will be utilised by buses and taxis to provide a scheduled service. the intention is to co-ordinate the use of buses and taxis, depending on the needs of the system (e.g. buses during peak times and minibuses during off peak times).113 comprehensive integrated transport plan: 2011/12 the rationale for this co-ordinated approach is as follows: to provide a service that meets the current public transport requirements of the nmbm area, while at the same time being flexible enough to adapt to increasing commuter densities; to utilise as many of the existing public transport industry’s compliant vehicles as possible during the transition period; and to allow for the transformation of the taxi industry. 6.4.3 vehicle fleet composition the 24 articulated buses purchased by nmbm will be operated by the taxi co-operatives, and will replace the taxis that would have operated on the median lanes in peak hours. this is necessitated by the operational needs of the new system, which requires that articulated buses with wheelchair access operate on these lanes in both peak and off peak times. since taxi owners will be compensated according to their current profits, it should be irrelevant to them whether their vehicles operate on the bus lanes. it must be stressed that the nmbm will be responsible for determining the operating schedule, as per the contract. the composition of the vehicle fleet will change during the initial transitional period until an optimally efficient fleet is obtained. there will be a decrease in the number of minibuses when compared to the current situation and midi-buses with wheelchair accessibility will be introduced on all the local routes. the older regular buses will be replaced by wheelchair accessible bogey buses with doors on both sides, so that they can be used on the express routes as well as in the median lanes. the composition of the fleet required to provide the envisaged public transport service is likely to change as follows: table 6-2: ipts vehicle fleet composition type of vehicle current situation transitional period (year 2) full ipts (year 5) articulated buses 0 24 117 bogey buses 0 171 219 regular buses 407 190 111 midi-buses 0 138 284 mini-buses 3200* 1438 1118 total 3607 1961 1849 the taxi industry has indicated that there are currently about 3 200 taxi’s operating in the nmbm area. this figure is currently being verified. 6.4.4 ticketing system the pre-purchase of smart card tickets will be a requirement for all passengers using ipts vehicles. this will eliminate the handling of cash by drivers and the issuing of tickets when passengers board a bus, which will speed up the operation of the system as a whole. smart cards or money value cards are electronic tickets which can be topped up or purchased at ticket sales machines at terminals, transfer stations or other ticket sales agents in town. smart cards can also be linked to a passenger’s personal bank account.114 comprehensive integrated transport plan: 2011/12 the personal smart card may be uploaded to a money value chosen by the passenger. the cost of each trip will be deducted automatically from the card when passing through a turnstile at a bus station or boarding a vehicle at the kerbside. when the metro is divided into more than one fare zone the smart card will be presented when boarding as well as when alighting, enabling the system to determine the correct fare to be deducted. initially, it will be a single fare system until the bus stations have been constructed and equipped with electronically operated turnstiles. the smart card system will allow for the completion of a journey even though the value of the card may have been reduced to less than the cost of the last trip. the amount owing will be deducted the next time the individual tops up the value of the smart card. in order to avoid misuse of the cards the traveller needs to pay for the card or deposit a certain amount of money to ensure that the deficit is covered. 6.4.5 financial overview it is anticipated that the proposed ipts will generate ticket sale revenue of approximately r26,6 billion over the 12-year negotiated contract period. capital expenditure by the transport administration agency (taa) and the various operating entities is anticipated to be r2,9 billion, while their operating expenditure is estimated to exceed r22 billion. this equates to total cash outflows of r24,9 billion over the 12-year contract period. this means that the ipts will realise a consolidated cash surplus of r1,7 billion over the 12-year period. however, the inclusion of the proposed compensation payments to the taxi industry, totalling approximately r5,1 billion, will result in the ipts realising a consolidated cash shortfall of r3,4 billion over the period. the cash inflows and outflows of the proposed ipts can be summarised as follows: table 6-3: summary of financial analysis of ipts (12-year period of negotiated contract) description capital costs (r’000) operating costs (r’000) total (r’000) total estimated cash inflows 26 604 685 sub-total 26 604 685 total cash outflows taa (574 575) (2 521 234) (3 095 810) abc (1 254 614) (6 371 215) (7 625 829) primary co-operatives (1 033 436) (13 138 503) (14 171 943 sub-total (2 862 625) (22 030 952) (24 893 582) surplus 1 711 101 compensation to taxi industry (5 092 575) shortfall (3 381 474) notwithstanding the afore-going, it must be remembered that the ipts is only expected to generate a cash surplus in year 7 if compensation payments are excluded, and year 9 if the compensation payments are included. the revenue generated by the ipts will primarily be based on ticket sales. the other potential sources of revenue include proceeds from advertising and government subsidisation. these have however been excluded for present purposes.115 comprehensive integrated transport plan: 2011/12 assuming 450,000 passenger trips per day; a flat ticket price of r8 and 300 operating days per year, it is estimated that the ipts will generate ticket revenue in excess of r1 billion in the first full year of operation. it is assumed further that passenger trips will increase by 4% per annum over the 12-year negotiated contract period and that ticket prices will increase by 7.5% per annum. ticket revenue over the 12-year period of the negotiated contract will accordingly exceed r26,6 billion. based on the forecasts included in the business plan the cumulative operating subsidy required for the 12-year contract period is estimated to be approximately r5,3 billion if compensation to the taxi industry is included (i.e. the estimated cash flow shortfall during years 1 to 9 referred to above), or r2,7 billion if compensation is excluded (i.e. the estimated cash flow shortfall during years 1 to 7 referred to above). when considering the subsidisation required, it should be borne in mind that government currently subsidises the algoa bus company in the amount of approximately r143 million per annum, or r1,7 billion over the same 12-year period. this is significant when one considers that the number of subsidized passenger trips per day is likely to increase from 90 000 to 450 000 in the first year of operations. the required subsidy also needs to be seen in light of the fact that the new system will: significantly increase the coverage area, frequency and operating hours of the service; incorporate the entire taxi industry which is currently operating on an unsubsidised basis (i.e. some 3 200 operators); dramatically improve the safety, reliability and efficiency of the public transport service available to the public. it should also be considered that this initiative has a significant empowerment cost. the direct ‘compensation’ claimed by the taxi industry amounts to approximately r300 million per annum (or r5 billion over the 12-year negotiated contract period). there are also indirect empowerment costs inherent in the proposed model (e.g. multiple co-operatives; co-operatives to take over payments of vehicles; capacity building etc.). however, it is important to consider the potential impact / benefits of such a broad-based black empowerment initiative. the proposed ipts has been designed in consultation with the taxi industry and as such it is likely to be accepted and supported, although this cannot be guaranteed. in addition, the formalisation of the taxi industry in the area will have a direct economic benefit to some 4,000 black individuals (i.e. the estimated number of taxi drivers plus the taxi vehicle owners). other related benefits include: the primary co-operatives will employ some 5 800 individuals. all employees will be formally employed and as such will benefit from the protection afforded by labour legislation; the formalisation of the taxi industry into legal entities should assist with access to finance and hence aid further investment and the pursuit of other business opportunities; a potential broadening of the tax base for the country. 6.5 institutional structures any operational activity takes place within the ambit or framework of an institutional structure. this section provides detail on the envisaged institutional structures that are proposed to deal with the operational aspects of the public transport system in nmbm.116 comprehensive integrated transport plan: 2011/12 specific to this section is the proposed establishment of a transport authority, the establishment of a transit agency and the establishment of an operational entity. 6.5.1 establishment of a transport authority the national land transport transition act (act no 22 of 2000) (nltta) made provision for a municipality to establish a transport authority (ta) to administer, plan, manage and monitor the public transport system. the nltta stipulated that the ta should be established if its effect was “to improve transport service delivery in the local sphere of government by grouping transport functions into a single, well-managed and focussed institutional structure” (section 10(3)). furthermore the ta must have been established in consultation with the mec and could consist of a governing body and a transport executive under a ceo. an investigation into the establishment of a ta for the nmbm was commenced in 2008 and a report was presented to the metropolitan transport advisory board on 30 june 2008. the report examined possible organisational structures for the transport authority and the functions it will perform. the proposed structure included land and development, transportation and roads and stormwater. examples of transport authorities in other cities were also given. the report concludes with recommendations for the establishment of the ta and the preparation of a business plan. following further consultation and deliberations by the transport authority working group, two options were put forward – the “internal” option with the municipality performing the functions itself, or the “external” option with the functions of the ta being outsourced to one or more municipal entities. there then followed a meeting with the municipal manager who advised that section 78 (1) of the municipal systems act, 2000, should be followed before a decision can be made on an appropriate internal mechanism, or whether to pursue an external mechanism. the national land transport act (act no 5 of 2009) was promulgated in the government gazette on 8 april 2009. this act repeals the national land transport transition act in its entirety. the nlta makes no specific reference to the establishment of a “transport authority” however “planning authorities” are required to prepare integrated transport plans and to carry out the constitutional transport functions listed in parts b of sections 4 and 5 of the constitution, supply directions to the entities responsible for operating licences and to perform any other transport related functions assigned to them in terms of the constitution and the nlta. section 11 (1) (c) of the nlta lists the responsibilities of the municipal sphere of government, which are similar to those functions that would have been undertaken by a transport authority, were it to be established. the nlta further provides for the establishment of an intermodal planning committee to co-ordinate public transport between modes and a land transport advisory board to advise the municipality on land transport matters. it is clear from the provisions of the nlta that, although the establishment of a “transport authority” is no longer specifically mentioned, the responsibilities and functions to be under taken by planning authorities (municipalities) must still be performed and that sufficient and appropriate technical capacity and expertise must be provided to perform the required functions. the municipal systems act, 2000 provides in section 78 (1) for an investigation to be carried out in order to reach a decision on an appropriate internal mechanism, or whether to pursue an external mechanism to carry out these functions. the municipality must first assess, in terms of section 78(1)—117 comprehensive integrated transport plan: 2011/12 the indirect costs, benefits and expected effect on the environment, human health, well-being and safety; their capacity and future potential capacity to furnish the necessary skills and resources; the extent that the re-organisation of its administration and human resource capacity can be used; the likely impact on development, job creation and employment patterns; the views of organised labour; and the political and community views. it may also take into account developing trends in sustainable provision of municipal services generally. it may then decide to provide the services internally or explore the possibility of an external mechanism. under section 76 of the systems act the municipality may provide a municipal service through an external mechanism by entering into a service delivery agreement with a number of bodies or institutions, including “any other institution, entity or person legally competent to operate a business activity”. section 77(b) of the systems act provides that a municipality must review and decide on the appropriate mechanism to provide a municipal service in the case of an external mechanism where— an existing municipal service or part of that service is to be significantly upgraded, extended or improved, and such upgrade, extension or improvement is not addressed in the service delivery agreement; if the service delivery agreement is anticipated to expire or terminate within the next 12 months; where a new municipal service is to be provided; when requested to do so by the local community or when a review of its idp requires a review of the delivery mechanism. the required section 78 assessment has been commenced. to date a “status quo” report has been completed as well as a report on the interim re-organisation of the internal structure of the roads, stormwater and transportation directorate of the municipality to enable it to rationalise and streamline its functions in view of critical staff shortages and the functions that it must perform in the interim. a copy of the organogram that is under consideration by the municipality is reproduced below for information. it is anticipated that the section 78 assessment will be completed early in 2011 following which it will be submitted to the municipality for consideration and discussion. consultations with organised labour will also be required. this may take another 6 months before a final decision is taken.118 comprehensive integrated transport plan: 2011/12119 comprehensive integrated transport plan: 2011/12 6.5.2 establishment of a transit administration agency (taa) a transit administration agency, similar to transmilenio in bogotá, colombia, will be established. the taa will be responsible for administering and promoting the integrated rapid public transport system in the nmbm. should the nmbm lack the capacity to establish a taa internally, it could be set up as an independent entity, preferably a non-governmental organisation (ngo), which will provide services to the municipality in terms of a contract. the agency will be branded with a publicly acceptable name and logo and to the general public will be the contact for all public transport within the area. the proposed organisation structure of the transit administration agency is shown in the following figure. figure 6-2 transit administration structure the taa is considered to be a component of the functions to be undertaken by a planning authority and its establishment is dependant on the outcome of the section 78 assessment that is currently being undertaken. 6.6 commuter rail 6.6.1 national commuter rail plan in 2006 the prasa prepared a regional rail pan for the nmbm. the following principles for the role of rail were established, based on the national, provincial and local, policy framework. a) spatial development support: existing rail corridors are to be supported by densified spatial development along the corridors. although the possibility of developing the public transport system to include an extended railway service should be guaranteed for possible further implementation, no120 comprehensive integrated transport plan: 2011/12 indication is given of whether densified spatial development should also support these proposed corridors for extension. b) rail network operational support: trunk bus services are proposed to be the backbone of the nmbm public transport system. as such, the existing rail network will mainly draw patronage from areas within a walkable distance from stations with some lower capacity vehicles feeding into this system. c) operational network efficiency: rail network proposals should be considered in terms of the possibility of improving the existing rail network and public transport network efficiency. d) financial considerations: the existing rail system should be retained and improved operationally only until the future of this service is established. all new high capacity services, however, will be trunk bus services until a business case can be made for the introduction of additional rail services. 6.6.2 functionally defined rail corridors at present there is one rail corridor in nmbm, namely the existing commuter rail service between port elizabeth and uitenhage. various future rail corridors have been identified in consultation with the nmbm as well as prasa. 6.6.2.1 regional rail plan the prasa has conducted a national rail plan to guide the development of commuter rail services. a component of this plan deals with the nelson mandela bay municipality. a number of existing and future rail corridors were evaluated against set criteria, and were categorised in order of importance. the corridors that were evaluated include: uitenhage to port elizabeth (re-aligned routing) the motherwell loop (phased spur and then loop) the coega loop the motherwell to uitenhage link the stanford road corridor the existing and future commuter rail corridors are schematically shown in figure 6-3.121 comprehensive integrated transport plan: 2011/12 figure 6-3: existing and future commuter rail corridors in – nmbm in terms of future expansion to the rail network, the motherwell rail loop rated as the highest priority as a category “a” corridor. the existing commuter rail service between uitenhage and port elizabeth cbd has been categorised as a category “b” corridor. the results of the multi-criteria evaluation process are illustrated in the following figure. figure 6-4: rating of existing and future commuter rail corridors - nmbm category b –existing category b – future category c – future category a – future corridor rating 83 73 72 62 56 53 0 10 20 30 40 50 60 70 80 90 motherwell loop including the njoli square link stanford road corridor coega loop re-aligned uitenhage - cbd includes: new brighton - dispatch realignment uitenhage - cbd motherwell to uitenhage connection corridor rating uitenhage – cbd re-aligned motherwell loop coega loop motherwell – uitenhage link stanford road corridor122 comprehensive integrated transport plan: 2011/12 the role of commuter rail in the nmbm is consistent and aligned with the public transport plan for the metropolitan area i.e. that the existing commuter rail service to uitenhage from the port elizabeth cbd should be retained, with limited expansion to serve motherwell. in the longer term, this service can be expanded to include a loop to serve coega. the regional rail plan will be subjected to extensive internal (department of transport / prasa) and external (local and provincial authorities) review and will be updated accordingly. it should however be noted that the commuter component of the regional rail plan has been developed in collaboration with the local and provincial authorities and has already been shared with the eastern cape rail committee and the nmbm. the future corridors are: port elizabeth – uitenhage (re-aligned between new brighton and despatch) the motherwell loop coega loop motherwell to uitenhage connection stanford road corridor. a description of these corridors follows: a) port elizabeth – uitenhage (re-aligned): the realigned route of this corridor runs through the more densely populated areas of new brighton towards despatch. the proposed future route tends to improve the accessibility of the existing alignment. the remainder of the route uses the current alignment between port elizabeth and new brighton and between despatch and uitenhage. a rail reserve did exist on the proposed alignment through new brighton, but formal and informal residential development has filled the reserve since. b) the motherwell loop: the proposed corridor uses the existing double electrified line between port elizabeth and new brighton, but includes a re-alignment of the route via the western side of the swartkops power station. this will provide a commuter service to the new brighton residential area and also links to the proposed khulani development corridor. the route proceeds further eastwards using the existing single electrified line before it branches off into motherwell near the wells estate development. it loops through motherwell with a number of stations proposed, before it links back into the main freight line near aloes station. previous studies recommend a phased approach to the corridor development. this implies that a spur with three to four stations will be developed as a first phase. c) coega idz loop: the proposed coega loop links onto the motherwell loop and goes through the industrial development zone, before it links back into the existing main line near coega station. d) motherwell to uitenhage connection: this proposal links the motherwell loop with uitenhage and is dependant on the existence of the motherwell loop or spur. e) stanford road corridor: this corridor will link port elizabeth with uitenhage using the approximate alignment of stanford road. the rail corridor will replace the existing rail route between port elizabeth and uitenhage.123 comprehensive integrated transport plan: 2011/12 6.6.3 proposed service level specification for corridors each identified corridor was evaluated and rated against a list of ten criteria. the set of criteria are commonly applied to all rail corridors identified throughout the prasa regions. they are: the level of support from national/provincial/metro citp policies for the rail corridor. current patronage and stated user requirements the scope for off-peak services given mix of uses en route scope for two way peak services based on the character of the nodes the overall travel demand patterns in the travel corridor the expected permanence of spatial and nodal features that could support a rail service the factors favouring growth in market share for road based public transport modes the factors favouring growth in market share for the rail mode the engineering feasibility for enhancing rail service specification the operational feasibility for enhancing rail service specification the guidelines for the regional rail plan calls for the categorization of each one of the rail corridors into one of four investment categories. the categories are defined in the guidelines as follows: category a: top corridor (require quantum leap in service level increase – in essence this category would provide the best rail service there is to offer in rail.) category b: the status quo (maintain the minimum service levels – better than the present) category c: is there a case for rail on this corridor? the category would require further investigation/feasibility studies to determine classification. category d: there is simply no case for rail. in the regional context the corridors were rated as follows: category a: the motherwell loop is the highest planning priority for implementation. the loop should be phased with a spur into motherwell as the highest priority. category b: the stanford road and coega loop corridors are also identified as important planning priorities. the coega loop is dependent upon the implementation of the motherwell loop. category c: the re-aligned port elizabeth to uitenhage corridor as well as the current rail corridor between pe and uitenhage were rated as lower priorities. it seems the realignment of the current route (new brighton – dispatch) will not yield the expected benefits. the connection between uitenhage and motherwell falls in the same category. because the current rail route runs within a major part of the future motherwell loop corridor, the route should be elevated to the b category. the high cost to re-introduce a service later is also prohibitive of the termination of current services. the following table summarises the proposed corridor priorities and service levels as defined above.124 comprehensive integrated transport plan: 2011/12 table 6-4: corridor priorities corridor category service level uitenhage to cbd (current) b 3 motherwell loop a – planning priority with a spur a the 1st phase 1 stanford road corridor b- planning priority to be determined coega loop b- planning priority to be determined uitenhage to cbd re-aligned between new brighton and despatch c – planning to be determined motherwell to uitenhage connection c– planning to be determined 6.6.4 business plan for rail in nmbm region the following strategies for the development of the commuter rail corridors have been developed as part of the business plan: a) uitenhage to port elizabeth (current rail corridor) the outcome from the ten criteria matrix analysis showed that the current corridor should be terminated as a heavy rail public transport mode. the continuous drop in patronage also indicates that the mode is not serving an optimum role. although the number of services was reduced since year 2000, the service execution is not the major reason for the low patronage, but rather the inaccessibility of the system compared to competing modes. given the long-term role of rail in the city and corridor development strategies as explained below, it is recommended that the service be continued and operated at a los 3. the implications for the operating cost and current subsidy level should be minimal. the service on the existing route between swartkops and uitenhage can be terminated in the longer term once the stanford road rail corridor has been introduced. short term: 2011 to 2013: the minimum service levels (as defined in the rail plan) should be introduced, with specific emphasis on the following: service availability: the eradication of root causes for the unreliability of traction power and signals will improve service availability. the implementation of the national railway security strategy in nmmm will help to improve on passenger anxiety to use the system the introduction of automatic fare collection and control as per the national prasa roll-out plan. the development of a nmmm special needs passenger plan is critical. this must be done within the national framework and guidelines as developed by prasa. a new station between north end and sydenham (darling street station) is required. the station will serve the new multi-purpose stadium that has been constructed at the prince alfred stadium precinct. the location of the new station may require the rationalisation of the two existing stations on either side of the darling street site. medium term: 2013-2017: the service needs to be optimised to support and compliment the nmbm public transport plan, which includes the introduction of a new rail service from motherwell. it is envisaged that trains from uitenhage will not turn around at swartkops, but rather continue to the port125 comprehensive integrated transport plan: 2011/12 elizabeth cbd. the services must however be scheduled to support connecting bus services and the trains from and to motherwell. long term: 2017 – 2021: the rail service between uitenhage and port elizabeth cbd via the existing route may be terminated once a new rail corridor along stanford road has been introduced. b) motherwell loop the first phase of the motherwell loop namely the spur, with a limited number of stations, should be implemented as the highest priority. the last technical study namely the route identification and station location report is now outdated. a feasibility study is of critical importance that should address at least the following: the optimum number of stations required during the first phase the extent of the spur into motherwell the nature and timing of the extension of the spur into a motherwell loop and/or the coega loop as the second phase. updated cost estimate the nature of the service and rolling stock required versus the financial viability/affordability implementation guidelines short term: 2011 to 2013: detail planning should follow the feasibility as discussed above. the process can however be fast tracked, depending on the nature of the outsourcing process. medium term: 2013 to 2017: a los 1 service with custom designed rolling stock is envisaged between motherwell and the cbd. enough stations should be included to sufficiently address the mobility needs of motherwell and also link to the khulani corridor in new brighton. (previous studies suggest a minimum of four stations, which include the station near new brighton). the extension of the spur into the coega loop or motherwell loop should be addressed in the medium term. long term: 2017 to 2021: during the longer term rail should serve a high-density transport corridor, with two-way 18-hours per day movement between port elizabeth cbd, new brighton, motherwell and coega. c) stanford road corridor the nmbm public transport plan proposes the stanford road corridor as part of a trunk bus network. the bus mode must be seen as the optimum choice for the short to medium term, with rail to replace the buses in the long term. this study supports the view that the rail reserve be kept for use when the trunk bus service reaches capacity. a detail feasibility study is required. d) coega loop demand forecasts show that the coega loop will add approximately 120% more traffic to the motherwell spur by 2020. the following unknowns complicate planning: an exact estimate of the rate of development within the coega industrial development zone security policy issues that may prevent the use of rail as a public transport mode within the industrial development zone.126 comprehensive integrated transport plan: 2011/12 a detail feasibility study will be required within the next 5 years. it is however recommended that the extension of the motherwell spur into the coega loop takes preference above a motherwell loop (closing the motherwell spur between motherwell and aloes station). short term: 2011 to 2013: a detail feasibility study is required, which could be included in the terms of reference for the motherwell spur study. the study should address the abovementioned unknowns as well as the interface of the coega loop extension with the motherwell spur first phase implementation strategy. medium term: 2013 to 2017: introduce a new rail service once the coega development necessitates such a rail service, but only after the motherwell loop is in operation. 6.6.5 financial plan: the financial plan details the corridor budget and the investment framework requirements as shown in the following table. table 6-5: commuter rail financial plan corridor financial plan (r – millions) 2011 2012 2013 2014 2015 - 2019 uitenhage to cbd 10 20 10 motherwell spur 34 6 100 400 360 stanford road corridor 10 20 coega loop 15 6.7 provincial commuter rail plan 6.7.1 vision in nmbm the vision for public transport is: “to manage and provide efficient, safe, affordable, sustainable and accessible multi-modal transport services and infrastructure which promotes integrated land use development and ensures optimal mobility for the residents and users of the transport system in the metropolitan area.” the public transport policy contains elements of: customer oriented transport systems integrated transport systems densification of transport corridors spatial development prioritising public transport regulatory framework supporting a reformed public transport contracts with private bus companies for operation of scheduled services phased introduction in co-operation with the industry establish an appropriate institutional structure to manage public transport (transport authority) improved infrastructure127 comprehensive integrated transport plan: 2011/12 in the nmbm the use of the rail service has declined as the spatial development of the area has changed and the existing port elizabeth – uitenhage corridor no longer represents a high priority for public transport and this is shifting to the port elizabeth – coega - motherwell corridor. it is also of interest to note that extensive road infrastructure has been provided to connect residential townships with related industrial and urban centres and this has largely supplanted the need for rail based commuter transport as has been provided in the past. these visions and policies need to be translated into an effective strategy for commuter rail that includes the following elements in order to provide an optimal result: the type of service and related ticket cost in the short, medium and long term. the types and extent of stations and related activities. the management of land use and development planning to develop population densities that are adequate to sustain the service. the development, management and operation of the feeder services. how services will be controlled, managed, procured and operated. the vision and strategy will require that several issues be clarified to provide a consistent direction and framework and these will have to transcend the many institutional boundaries that exist at present. 6.7.2 service a possible vision for the services is to have rapid services at maximum 10 minute intervals from 5 am to midnight. this should involve newer, faster, modern rolling stock with multiple traction units in most of the coaches that is capable of much greater acceleration rates and can half the journey times of the current services. the coaches should afford comfortable seating and much more standing room with hold-on bars and straps to be able to accommodate greater passenger volumes during peak times. the extent of the services should be carefully evaluated and linked into road based initiatives such as ipts services. the type of service envisioned should suite the mode being used where a ipts service is suited to moving between 2 000 and 4 000 passengers per hour while a rail service can deliver up to 100 000 passengers per hour but only becomes viable at around 5 000 passengers per hour. one of the issues related to the service and type of coach would be the track gauge where wider coaches with much greater individual capacity are readily available on standard gauge but not on cape gauge. as individual rail coaches are very expensive and the costs are primarily related to motorised bogies and control gear, this means that the cost-effectiveness in terms of rand per passenger capacity is much greater for a wider standard gauge coach than for a narrow cape gauge coach. 6.7.3 stations stations need to be carefully located and developed to maximise opportunities for park and ride as well as commercial opportunities. this means that the station precinct will need to be carefully developed and its development rights and related incomes should remain with the transport authority to be used to fund future developments and expansion. stations should be linked to other commercial developments in the city via well developed pedestrian walkways and sidewalks that encourage walking between these facilities and the station.128 comprehensive integrated transport plan: 2011/12 where possible, stations should all involve at least a 2 level building where the upper level is for ticket dispensing and related commercial activities and the lower level is for station platforms that are accessible via escalators and lifts for disabled. at ipts interfaces the stations should be linked to ipts stops at the lower level that are accessible via passages for transfers and via the first level for the purchase of new tickets. 6.7.4 land use the land use surrounding the stations should be carefully developed to maximise the opportunity for ridership. this is already problematic for both services described above as the railway line skirts the low density adjacent townships instead of passing through high density township developments. 6.7.5 feeder services the feeder services to the train stations will need to be carefully developed and managed to ensure optimal throughput and a user friendly service at all interface and modal interchange points. 6.7.6 control the entire public transport scene within a city needs to be controlled by a single city-based body to ensure long term continued effectiveness of all the essential elements that are outlined above. the operators of services should provide them to meet the specification of the controlling body which will in turn have to have unfettered access all avenues that are available to it to reduce subsidies and increase ridership. this body will obviously have to have access to funds and subsidies, much of which will have to be provided through central government. 6.7.7 barriers to progress there are many barriers to progress in respect of developing and sustaining good quality commuter rail. it is obvious that achieving the vision will entail substantial changes to the status quo and the barriers to such progress are outlined below. 6.7.7.1 political how the facility and service will be managed in the difficult institutional environment where rail competencies all reside at the national level while all transport, planning, land use and developmental competencies reside within the local authorities. it is common knowledge that optimal high volume rail transport facilities require that all of these competencies are combined within a single jurisdiction or at least pursued under a single coherent overarching framework. 6.7.7.2 institutional issues a) ownership issues the current rights of way are owned by tfr while the stations are rented by prasa and the local authorities control the development rights. in order for a rail commuter service to be successful and sustainable, station developments should be controlled by the authority that is responsible for all the above elements of policy. in this way effective transport orientated developments (tods) can be created at stations that generate rental income and that help to give effect to all of the above policy elements. in many instances crossings of roads, utilities and services require a coordinated approach to ensure that expansions and extensions of rights of way are cost-effective. in addition, a rational and coordinated approach is required to preserve and protect future rights of way and to ensure that land use and transport are integrated.129 comprehensive integrated transport plan: 2011/12 b) owners rights relative to planning desires land use and related developments must be carefully controlled in order to ensure that rail transport corridors become effective avenues of transport. such developments should try to increase mixed usage of transport and reduce complete dependence on home-work-home trips in order to increase the utility of the operations. this means that satellite industrial and commercial developments should be encouraged that reduce the overall need for transport while encouraging the use of transport in a typical off-peak direction. furthermore, new developments that will lead to a reduction in ridership and require the creation of new transport corridors should be limited wherever possible. continued urban sprawl should also be avoided and densities should be increased to reduce distances from stations and increase ridership opportunities. issues that will need to be resolved are the extent of rights of sanction for new developments that will encourage competing services and reduce the utility of state subsidised transport. c) operator issues and subsidies there are many issues related to rail transport operations that will need to be addressed. the first is the standards, frequency and speed of service and the related cost implications and how these will be financed and paid for. in the case of buses some of the finance comes from central treasury. in the case of commuter rail almost all finance comes from central treasury via the department of transport to its agency, prasa. another major issue related to operations is who audits that operations and standards that are agreed are actually achieved, and what are the rights and powers of sanction in the event of non-compliance. at present this is all in the hands of central government with no apparent sanction for non compliance. in south africa the situation in respect of feeder services and related subsidies and centralised ticketing systems is particularly problematic with the taxi industry being a law unto itself. all public transport improvements are hamstrung by fears of taxi operator reactions and related self interest issues. the relatively weak police and justice services also provides little in the way of support in this regard. d) customer care a service that provides a high level of customer care will include many aspects such as: through ticketing readily available ticket purchase information and ease of procurement. discounts for regular commuters. well lit, secure stations with adequate secure parking. easy and safe pedestrian and cycle access. real time train arrival displays with adequate destination information. information on through trips and integration with other modes of transport with real time information displays. comfortable, safe and fast rides. provision for disabled. provision for baggage. readily available food and coffee shops for waiting passengers. highly visible disembarking passengers to facilitate meeting and greeting.130 comprehensive integrated transport plan: 2011/12 very few of these exist at present in view of the fragmented nature of public transport in the cities concerned. 6.7.7.3 technical issues a) rolling stock it should be noted that the gautrain has opted to use a standard gauge (1.435m) as distinct from the cape gauge (1.067m) that is used in most of south africa. the rationale for this is that all high speed and light rail rolling stock in the world uses standard gauge and can easily be bought to standard designs from global suppliers. a typical modern commuter train would run on standard gauge and have 3 to 4 coaches with a high proportion of the axles being motorised to achieve high acceleration and deceleration rates. each coach would have a capacity of around 100 sitting and a further 100 standing. where clearance permits and on standard gauge track, double-decker coaches could be provided to increase capacity at little additional cost. one of the major technical issues is whether good quality commuter rolling stock of the type referred to above can be obtained economically for the existing cape gauge track or whether tracks will have to be upgraded to standard gauge to obtain suitable rolling stock. b) speed profiles typical existing “old style” prasa locomotive-hauled commuter trains have an acceleration and deceleration rate of 0.15m/s/s and a top speed of 90km/h and a modern commuter train with equivalent acceleration/ deceleration rates of 1m/s/s have a top speed of 80km/h. the figures show that for short distance of around 1 km between stations the modern train takes less than half the time of the old while for a 2km distance between stations the new train takes roughly half the time. the figures also show that, whatever the maximum speed of the “old train” this is rarely achieved as the train spends most of its time accelerating and decelerating between stations. this means that the same service as is currently being provided with old trains could be provided with fewer new trains. alternatively, services could be provided at a higher frequency with that same number of trains. the service would also be competitive with road based public transport in respect of travel time to destinations. shorter trains with fewer coaches and quicker turnaround times could also make it possible to increase the service frequency along sections with higher passenger volumes by running more trains along these sections. desirable service levels will involve a train every 5 minutes in the peak. average travel speed is a function the maximum permitted speed and the distance between stations. as the diagram shows, maximum speed may be of academic interest only if the train cannot attain it. correct matching of acceleration rate, maximum speed, and distance between stops depends on the intended market and service level. this could range from around 40km/h for metro-type commuter services to 70 km/hour or more for regional-type commuter services. this distinction is made because commuter traffic in the two eastern cape cities tapers off beyond the well-developed areas, but trains nevertheless also serve the outlying areas beyond. some compromise would therefore need to be considered. to minimize costs by remaining within industry-standard train types, this would most likely result in metro-style trains with 80km/h dominating the selection, with some sacrifice (i.e. lengthening) of journey times for outlying commuters. .131 comprehensive integrated transport plan: 2011/12 6.7.7.4 environmental impact assessments this should be relatively minor for existing lines if not new infrastructure is created. however, where new services are accompanied with line upgrades on old existing tracks that only carry a few trains per week at present, the environmental impact in terms of noise could be significant and will require careful investigation and public participation. the experiences gained with the gautrain project could be of benefit in this regard. 6.7.7.5 energy supply and sustainability. in spite of the fact that coal fired electricity is at a premium in south africa at present, the long term viability of coal exceeds that of liquid fuels. hence electric trains are to be preferred over taxis or buses. in addition, where trains carry significantly higher volumes on dedicated rights of way, the energy efficiency per passenger is much greater than for road based transport. therefore, there is a case to be made for viewing rail based public transport as a long term sustainable option instead of buses and taxis. 6.7.7.6 service expansion over time the existing service is of a very limited nature and is slowly being eroded by competing road transport that appears to be much more effective due to lower initial costs and greater flexibility. however, the existing services have substantial lengths of dual track that could be used to provide a much faster and more frequent service. in both cities this will entail coming to arrangements in respect of freight where this will need to be moved when the commuter service is not running between midnight and 5 am. if this is achieved then more frequent and longer trains could be provided to cater for as many passengers as are ever likely to occur. the existing rights of way provide many opportunities for service expansion that could see play a major role in public transport in the medium to long term. a possible strategy may be to develop ipts services that can be converted to rail when the volumes become unmanageable with buses. this will entail developing such services on alignments that are suitable for rail and that minimize conflicts with other vehicles. 6.7.7.7 operational issues a) through ticketing issues. in view of the high volumes required for rail to be successful, it is essential that bus and train services complement one another and that tickets can be used inter-changeably or that through-tickets can be purchased that include both modes of transport. now that taxis are getting larger with the recapitalisation programme, it should be possible to start viewing taxis as buses with scheduled services to and from train stations. this will however require careful control to avoid competing services. it may represent opportunities where taxi tickets could be subsidized if they include transfers onto train. the entire process of purchasing and using tickets will need careful development and local planning to ensure effectiveness. the ipts initiatives could help to initiate suitable systems that could be expanded into other areas once they have proven to be successful. b) feeder services feeder services will be essential in view of the sprawling nature of housing developments and low densities. however, in most cases, the rail service connects some relatively remote residential areas with an urban cbd and it may be a relatively simple matter to arrange a feeder service within the townships to the stations132 comprehensive integrated transport plan: 2011/12 c) signalling the entire signalling process and control requires a good operations centre and good technology and operators. d) security security at stations and trains will require major upgrades to provide a world-class service that is popular and attractive. e) maintenance costs and sustainability this is inextricably linked with the entire rail system development of southern africa as rail maintenance requires a substantial industry to ensure cost-effectiveness. in this regard the following elements of maintenance require highly developed technical skills that will need to be sustained. f) track provision and maintenance the following maintenance elements will need to be addressed in a coherent manner. provision and maintenance of electrical supply rolling stock maintenance traction maintenance signal maintenance g) rentals from commercial activities this represents a substantial opportunity if tods are developed at stations where the land and related air rights belong to the transport authority. 6.7.8 projects the projects are centred on using the existing rail services as a basis and expanding these over time into coherent rail commuter transport operations. the following projects were identified as part of the previous citp update: identify and arrange to protect all rail rights of way in the nmbm and adjacent towns. adjust the pe – uitenhage service extend the pe service to coega extend the pe – uitenhage service to the pe airport, walmer and lorraine plan further extensions and expansions additionally the following two projects have been identified in the 10 year rail plan of the province: port elizabeth – swartkops commuter rail humewood transport hub all of the above projects are described in more detail at a pre-feasibility level below. a) rights of way as indicated above there are many valuable rights of way at present. the province, cities, tfr and prasa should jointly undertake a detailed study of all of these rights of way and the related land ownership issues. all rights of way that may have a future role in the cities should be identified and protected from any encroachment. furthermore any developments adjacent, over or under these properties should be carefully controlled by the cities to not affect the future utility of the property in terms of public transport and any related opportunities.133 comprehensive integrated transport plan: 2011/12 this should include tracks and reserves, stations and station and port precincts. b) pe – uitenhage this service is currently relatively poor with infrequent trains and negative growth ridership. it is in danger of being totally supplanted by road based public transport in spite of the fact that the railway right of way is well located for commuter transport. therefore, consideration should be given to providing a very rapid short distance service with 5 to 10 minute frequencies through the pe cbd between the pe harbour and –say- swartkops although the precise extent and timing will need to be determined from ridership surveys and the pace of ipts developments that are planned and that are being implemented by the nmbm. such a service would provide a comprehensive short to medium distance service through the cbd, past the new swc2010 stadium and to the industrial developments along burman road. it will also service the new brighton and kwazakhele townships. it will require the construction of some new stations and also extensive good quality and secure pedestrian facilities to provide comfortable links from major activity centres such as govan mbeki road, for example, to the stations. it could initially be linked to a ipts at each end such as between motherwell and swartkops and between to provide for passengers further afield. this will require more modern rolling stock, improved and additional stations, security, ticketing, feeder services and customer care. access to the stations should also be made more attractive to encourage higher levels of commercial developments along the line and should form part of the re-vitalization of the cbd. a new station should be built at the harbour, south-east of the present port elizabeth station, to service new tourism developments in the harbour area and to link with the ipts service planned between this point and summerstrand and between this point and walmer. the entire area encompassing the existing apple train shunting yard and related railway sidings at the harbour should be developed as a transport orientated development (tod) which allows for very quick and efficient modal interchange, through ticketing and park and ride. c) pe – coega if the new service proposed in pe is shown to be attractive the new rolling stock should be used to replace the service to uitenhage and then a further service along the existing freight rail to coega could be considered. it is suggested that a site at coega also be developed as a tod and that this form the interface with a ipts service to motherwell that should be developed along a right of way which can gradually be improved over time until it can form the right of way to extend the train service from coega to motherwell. d) pe – airport the existing apple express right of way passes closely by the pe airport. however, most businesses in walmer are located along main and heugh roads, which are about 500m from the apple express reserve. therefore it is suggested that future developments in the area be located closer to the apple express reserve so that the pe service can be extended from harbour to lorraine on a new formation and track within the apple express reserve and replace the planned walmer ipts service over time. this will entail a few road over rail bridges at the airport and further west for this service to run on a dedicated right of way with no interference with road traffic. alternatively a few at grade signalized crossings could be considered depending on traffic volumes.134 comprehensive integrated transport plan: 2011/12 e) further expansions the above all involve operations on existing rail rights of way that are dedicated to rail with minor conflicts with road transport. if the services are proved to be effective substantial expansion as light rail could be considered to replace bus services as volumes increase and congestion related to road transport gets worse. consideration could also be given to automated level crossings with traffic lights and booms. in particular, if these are placed immediately adjacent to stations they could encourage park and ride and the train speeds will be low in case conflicts do occur. f) port elizabeth – swartkops commuter rail (ecdrt 10 year rail plan) this project involves reducing the extent of the service to stop at swartkops instead of going all the way to uitenhage and the upgrading of the service on the existing route to represent a user-orientated metro service. it involves the construction of several new stations to limit walking to 500m. five additional stations would have to be built and the old ones refurbished as well as the line extended to the new harbour terminal at the southern end. g) humewood transport hub (ecdrt 10 year rail plan) this project involves the development of a major transport hub that has been identified by others at the derelict humewood narrow gauge terminal site. the hub should form a terminal for interfacing road, rail and ship traffic and can serve as a major tourist destination and transport terminal. on completion, it can have the following characteristics: there are currently both narrow gauge and cape gauge lines on the site, which makes the construction of a dual gauge terminal possible. the flagship fast rail train, all shosoloza meyl trains, the apple express and all other commuter and tourism trains could make use of this terminal. in addition, it could also be developed as transport orientated development. the proposed terminal could also provide an interface to a ipts or rail service along the apple express rail reserve to the pe airport and beyond. 6.8 local rail plan 6.8.1 the port elizabeth – avontuur narrow gauge railway (apple express) this section deals with the apple express narrow gauge railway and its future potential for tourism. an estimate is given of the capital investment required to provide the necessary infrastructure in order to safely accommodate increased passenger numbers on the apple express. this information has been sourced from a report compiled by africon engineering international entitled “taking the apple express to 2010 and beyond” and is dated december 2007. the following is an extract of the salient points from this report. the narrow gauge railway from port elizabeth to avontuur was constructed to serve the langkloof, a fertile farming area located to the west of port elizabeth. the line was commissioned in 1907 when track laying was completed to the terminus at avontuur, a rail distance of 285 km from the harbour in port elizabeth. at present the port elizabeth – avontuur railway is still operational, however, revenue-earning freight operations are marginal, which impacts negatively on its sustainability from a business perspective. the line is also home to a well-known tourist train, aptly named the apple express. although threatened with closure, various options have been investigated in an effort to sustain the railway, including possible concessioning. local businesses and other concerned135 comprehensive integrated transport plan: 2011/12 role-players intervened and the port elizabeth apple express (peae) was registered in march 2003 as a non-profit section 21 company to take over the operation of the apple express tourist train in compliance with spoornet’s safety standards. the apple express has operated with a subsidy from spoornet up to 2010. due to the withdrawal of the subsidy, the line is now faced with closure and political intervention is seen as the only solution to keep the train operational as a national heritage treasure. 6.8.1.1 benefit to local communities the port elizabeth – avontuur railway can still be used in a manner which will benefit both urban and rural communities along its route. this narrow gauge railway is unique in many ways and should be preserved for the following reasons: it is a well-known international tourism icon, mainly due to its tourist train, the apple express; the apple express as a tourist attraction could complement other tourism businesses in the towns, villages and hamlets through which it travels; the potential to significantly increase revenue from rail-based tourism exists; the potential to increase freight operations and thus shift traffic from road to rail exists. in the process road maintenance costs on the r62 can be reduced; the possibility of providing a commuter rail service between settlements along the line is worth investigating, considering that public transport services in the region vary from poor to non-existent; at this stage it is still an operational railway line, probably the last of its kind in the world. for this reason it should be afforded heritage status; most of its infrastructure is still intact. the line is currently open for traffic all the way to the terminus at avontuur, over a rail distance of 285 km. this classifies it as the longest narrow gauge (610 mm rail gauge) railway in the world. it is possible for both steam and diesel locomotives to operate on the line. this enables the use of diesel traction on tourist trains during dry periods. (note: with steam operations there is an inherent fire risk when the vegetation along the track is very dry.) in the langkloof the railway runs more or less parallel to route 62, which is now being promoted as a major tourism corridor between port elizabeth and cape town. rail tours between destinations along the line can thus complement and add value to other tourism ventures in the proximity of the railway. 6.8.1.2 recommendations for the transformation of the apple express in order to transform the apple express into a viable business entity, the following actions, with suggested timeframes, are required: the immediate priority is to secure funding to the amount of r 8.095m for the recapitalisation of the apple express. restructuring of the existing section 21 company is necessary to ensure inclusion of all stakeholders. this process should be completed by february 2008. once funding has been obtained, restoration of the remaining unserviceable/damaged passenger wagons (13 in total) must be accelerated to ensure that sufficient rolling stock is available for operating two tourist train sets by mid-2008. a third train set should be operational by november 2008 and a fourth by march 2009. repair and restoration of steam locomotives should continue without delay. this will ensure locomotive availability for special steam excursions.136 comprehensive integrated transport plan: 2011/12 with the availability of sufficient rolling stock and suitably qualified staff, the apple express should be marketed both locally and internationally and the number of tourism trips increased accordingly. facilities at rural stations in both the langkloof and gamtoos valley need to be upgraded to accommodate tourists arriving by train. long term lease agreements with the infrastructure owner (transnet) will be a prerequisite before any funding can be committed. the locomotive depot at assegaaibosch station should be converted into a live steam museum to preserve an important part of south africa’s rich railway heritage. if done properly, the depot and its collection of vintage steam locomotives could be turned into a “must see” attraction for rail enthusiasts from all over the world. if possible, the museum should be ready to receive its first visitors by the beginning of 2010. the depot can also be used as a training facility for railway personnel. a long term lease agreement with the infrastructure owner (transnet) will be a prerequisite before any funding can be committed. to cater for the anticipated growth in rail passengers, a strategically located passenger-friendly embarkation point is needed at the port elizabeth end of the line, preferably near the city’s beachfront, before 2010. humewood road could be used as a central station for tourist operations as both 610 mm and 1 067 mm gauge lines enter the station yard. however, should spoornet go ahead with its plans to demolish humewood road station, the land behind the tank farm in the harbour area can be developed as a station for rail tourists, as both 610 mm and 1 067 mm track traverse the area. the feasibility of extending apple express operations onto normal gauge track should be investigated. this could eventually link up with rail tours to the sunday’s river valley and to the alicedale/grahamstown area. the future apple express should be managed along strict business principles to minimise losses and maximise profits. surplus funds should be used to keep the vintage coaches and locomotives serviceable and in their original condition. at present the port elizabeth – avontuur railway is still operational, however, revenue-earning freight operations are marginal, which impacts negatively on its sustainability from a business perspective. the line is also home to a well-known tourist train, aptly named the apple express. the apple express was started as a tourist train by the then south african railways (sar) in 1965 with regular weekend trips to loerie. since the late 1980s its status as a tourist icon in the eastern cape was further entrenched with the annual great train race, where relay teams of athletes competed with the train over a 70 km distance between port elizabeth and loerie. although threatened with closure, various options have been investigated in an effort to sustain the railway, including possible concessioning. local businesses and other concerned role-players intervened and the port elizabeth apple express (peae) was registered in march 2003 as a non-profit section 21 company (registration no. 2003/005178/08) to take over the operation of the apple express tourist train in compliance with spoornet’s safety standards. 6.8.1.3 freight rail services the port elizabeth – avontuur railway is currently the only narrow gauge line in south africa still operated on a commercial basis as a freight railway. in its heyday up to 20 trains a day hauled export fruit from the langkloof to the pre-cooling sheds at the port elizabeth harbour during the fruit season. with the gradual deregulation of the transport industry between 1977 and 1990, private road transport companies managed to secure most of the revenue-earning traffic that was previously carried by rail. from 1927 to 2000 the primary traffic on the lower section of the137 comprehensive integrated transport plan: 2011/12 line consisted of unit trains hauling limestone from quarries in the gamtoos valley to the ppc cement factory at new brighton, port elizabeth. these operations ceased in may 2000 and the loss of this revenue-earning traffic drastically reduced the financial viability of freight operations. since 2004 annual freight tonnages have declined at a steady rate. the only remaining freight operations consist of unit timber trains hauling pulpwood from the assegaaibosch and humansdorp areas to a dual-gauge marshalling yard in the port elizabeth harbour. a fleet of 17 class 91 diesel locomotives are available for operations on the port elizabeth – avontuur railway. these locomotives are owned by transnet freight rail (previously spoornet) and some of them are currently used to haul train loads of timber from the assegaaibosch and humansdorp areas to port elizabeth. the diesels are also used to pull the apple express when steam locomotives are out of service or during dry periods when steam operations are suspended because of the fire risk. a recent feasibility study carried out by the madiba bay development agency examined the viability of the operation of freight services on the line to transport mainly fruit and wood. for this to be successful, improvements to infrastructure and rolling stock would be required. the railway could be operated by the private sector and financial viability would depend on the availability of a provincial / state subsidy for capital and operating costs. 6.8.1.4 commuter services the feasibility of providing a commuter rail service on the pe-avontuur narrow gauge railway has been investigated by the madiba bay development agency. there is limited potential for a commuter service on some sections of the route particularly within the nelson mandela bay area (including a possible link to the pe airport) and between loerie and patensie. the study concluded that a substantial subsidy would be required for the commuter service to be viable. important issues have been highlighted that must be considered: locomotives are available; new passenger rolling stock is required as the existing vintage coaches used on the apple express are, due to their age (some are older than 100 years) and heritage status, not suitable for use as commuter coaches converting redundant freight wagons into commuter coaches is not viable due to different suspensions; a number of new commuter stations will need to be constructed; the terminus at humewood road will require extensive upgrading; a feeder service using buses and or minibus taxis will be needed to transport commuters from humewood road to various destinations in the southern part of the city. upgrading road infrastructure and providing adequate parking for private vehicles at stations is required; 6.8.1.5 the apple express a) tourism operations current operations of the apple express consist mainly of weekend day-trips from port elizabeth to thornhill and back. shorter trips to chelsea junction, mostly for school groups, are also offered. longer trips into the langkloof and along the patensie branch line are limited to special steam safaris. at this stage the frequency of such excursions is more or less one trip per annum. nelson mandela bay tourism assists the peae with the marketing of excursions and with passenger bookings and ticket sales.138 comprehensive integrated transport plan: 2011/12 passenger numbers varied from approximately 700 in 2002 to 7 700 in 2006 with 30% being children. in 2005/06 the combined income from ticket sales and special excursions covered only 86% of expenditure, an improvement from 2004/05 when the corresponding figure was 51%. however, during both these periods the peae did show a profit, mainly because of income from billboard advertising. it must be noted that the profitability of rail tourism ventures on the narrow gauge railway will be adversely affected should there be a sudden and drastic increase in spoornet charges. at this stage many of the other costs such as administration and implementation of the safety management system are carried by members of the section 21 company. the peae, being a non-profit organisation, invests all profits into the restoration of rolling stock. of the 8 steam locomotives available, only one is operational and two others can be restored should funds become available. there are 11 passenger wagons in service with a combined seating capacity for 188 passengers. one of these coaches has been modified to accommodate disabled people. one wagon is being refurbished, while another 13 wagons could be restored and placed back in service providing an additional seating capacity for about 120 passengers. diesel locomotives are available if the steam locomotives are out of commission. improvements to fixed infrastructure and other assets are required in order to provide adequate facilities and to comply with safety standards. capital investment is required to enable the number of tourist trains to be increased from one to four and to provide adequate facilities for passengers travelling aboard the apple express. it is estimated that an amount of r8.1 million is require for the most essential items including restoration of rolling stock, improvements of rail infrastructure and upgrading of stations. details of operating costs and potential revenue from the apple express tourism related operations are not given here as they are part of the business plan for the railway. this information is contained in the abovementioned reports. as explained above the future of the apple express is in serious doubt due to a lack of finances. b) rolling stock a fleet of 17 class 91 diesel locomotives are available for operations on the port elizabeth – avontuur railway. these locomotives are owned by transnet freight rail (previously spoornet) and some of them are currently used to haul train loads of timber from the assegaaibosch and humansdorp areas to port elizabeth. the diesels are also used to pull the apple express when steam locomotives are out of service or during dry periods when steam operations are suspended because of the fire risk. of the 8 steam locomotives available, only no 131, a class ngg16, is operational. a class ng 15, no 119, is currently being restored. another class ng 15, no 124, is also in a restorable condition, should funds become available. there are 11 passenger wagons in service with a combined seating capacity for 188 passengers. one of these coaches has been modified to accommodate disabled people. one wagon is being refurbished, while another 13 wagons could be restored and placed back in service providing an additional seating capacity for about 120 passengers. c) infrastructure139 comprehensive integrated transport plan: 2011/12 improvements to fixed infrastructure and other assets are required in order to provide adequate facilities and to comply with safety standards. the following is required: humewood road station: although the peae leases humewood road’s station building from propnet, the steam facilities at the station are currently unusable and unsafe due to vandalism and theft. there are dual gauge tracks in the station yard (610 mm and 1 067 mm), which makes it a suitable boarding point for both the apple express narrow gauge and normal gauge tourist trains. should transnet go ahead with its plans to demolish humewood road station, the land behind the tank farm in the harbour area can be developed on a commercial basis which could include a station for rail tourists, as both 610 mm and 1 067 mm track traverse the area. humewood diesel depot: the diesel depot at humewood is currently home to the fleet of class 91 diesel locomotives, as well as the thf steam locomotives leased by the peae. the depot has well-equipped but underutilised workshops and service facilities for both steam and diesel locomotives. it is essential that these facilities remain available for the servicing, refurbishment and storage of apple express rolling stock. the extension of normal gauge tracks from humewood road station into the diesel depot should be investigated. this will enable the depot to be used as a combined service facility for both narrow and normal gauge locomotives. extending the tracks and providing normal gauge sidings inside the depot and depot yard is estimated to cost about r500 000. in addition, an inspection pit and ash pit is needed for steam locomotives based at the depot. to provide these pits will cost about r200 000. other stations: the upgrading of rural railway stations should include but not necessarily be limited to the following: chelsea, loerie, assegaaibosch, joubertina and avontuur. fortunately no major repair work is required at any of these stations, as the buildings and facilities are still intact. renovation work will primarily consist of minor repairs to electrical fittings and plumbing installations, repainting of buildings and cleaning up of station yards and gardens. it is recommended that local contractors and local labour be employed to do this work. the old sub-depot for steam locomotives at assegaaibosch station could easily be converted into a live steam museum. the coaling stage, water tanks, locomotive shed and turntable are still in place and should be re-commissioned to service the steam locomotives which will haul special excursion trains into the langkloof. the unused sidings in the locomotive depot can be used for the static display of historic narrow gauge steam locomotives that are no longer in service. this will help to preserve part of south africa’s rich rail heritage for future generations. the steam depot at assegaaibosch could also be used as a training facility for railway personnel – there are several unused buildings available which can easily be converted into class rooms and accommodation facilities. renovation work at the stations mentioned above is estimated at about r3.5m. in addition restoration work at the locomotive sub-depot at assegaaibosch will be in the order of r2m. most of the station buildings and other facilities along the line are owned by transnet. long term lease agreements will therefore need to be secured prior to the renovating/upgrading of any transnet property.140 comprehensive integrated transport plan: 2011/12 d) capital investment the following table provides a summary of the immediate capital investment required to expand current apple express operations on the port elizabeth – avontuur railway. these costs should now be reassessed and escalated to current 2011 prices: table 6-6: apple express proposed budget the items listed in the above are limited to the high priority needs to increase the number of tourist trains from one to four and to provide adequate facilities for passengers travelling aboard the apple express. it is envisaged that long term capital expenditure (say from 2010 onwards) could be funded by profits from financially viable rail tourism operations. details of operating costs and potential revenue from the apple express tourism related operations are not given here as they are part of the business plan for the railway. this information is contained in the abovementioned report by africon engineering international. 6.8.1.6 recommendations the study carried out by the madiba bay development agency has indicated that there is potential for the improved utilisation of the narrow gauge railway for freight, tourist and commuter services provided that funds are available for upgrading of rolling stock and infrastructure. an operational subsidy would be necessary to attract interest from the private sector to operate and maintain the railway line. the eastern cape provincial government has prioritised rail transport in the province and has expressed an interest in the development and possibly the provision of funding for the narrow gauge railway. it is therefore recommended that the madiba bay development agency, supported by the relevant directorates of the nelson mandela bay municipality, should enter into discussions with the provincial department of roads and transport with a view to jointly developing a business plan for the narrow gauge railway. the implementation of enhanced and expanded tourist services should be prioritised for operation by 2011/12. item cost restoration of passenger rolling stock r 845,000 loco no 131 - major service & overhaul r 250,000 loco no 119 - replacement of boiler tubes & restoration work r 250,000 loco no 124 - replacement of boiler tubes, smokebox & restoration r 300,000 extension of 1 067 mm track into humewood diesel depot r 750,000 inspection pit & ash pit for steam locos at humewood diesel depot r 200,000 upgrade of rural stations r 3,500,000 conversion of assegaaibosch loco depot into live steam museum r 2,000,000 total r 8,095,000 apple express: proposed capital budget for 2008 & 2009141 comprehensive integrated transport plan: 2011/12 7 transport infrastructure strategy the transport infrastructure strategy deals with the development and maintenance of all types of transport infrastructure (major roads, public transport facilities and rail infrastructure) within nelson mandela bay. according to the dot document ‘technical transport planning guidelines for citp’s to be prepared by type 1 planning authorities (february 2009)’, this chapter must as a minimum requirement include a plan for the movement of hazardous substances by road along designated routes within the municipal area. please note that this item is dealt with extensively in chapter 9 (freight logistics strategy). 7.1 roads infrastructure plan roads are a fundamental and integral element in our transport infrastructure system, since it ensures accessibility to the whole of the transport network and it promotes the mobility of people and goods. roads therefore play the primary role in meeting transport demand in south africa since a large portion of bulk freight transport and passenger movements take place by road. the nmbm has the responsibility to plan, permit, design, construct, operate, manage and maintain an adequate road network in its area of jurisdiction to ensure sustainable growth. 7.1.1 road infrastructure status quo the primary road network in the nmbm is discussed in chapter 3 (section 3.6) of this report and consists of a hierarchy of national, provincial and municipal roads as indicated in the following table. table 7-1: the primary road network (source: pavement management system) road authority road category length (km) south african national roads agency (sanral) national roads 158.4 provincial department of transport provincial surfaced roads 450.9 provincial department of transport provincial unsurfaced roads 272.6 nelson mandela bay municipality roads of metropolitan significance (main public transport routes) 482.6 nelson mandela bay municipality minor roads (surfaced) 2354.2 nelson mandela bay municipality minor roads (unsurfaced) 461.2 total length (km) 4179.9 7.1.2 survey of travel patterns travel patterns refer to the number of person trips, trip purpose and time of trip for each origin-destination. travel pattern surveys, also called origin-destination surveys, form an integral part of the development of a transportation model. metro wide traffic counts were carried out during 2009 and 2010 to collect traffic input data for the nmbm’s visum transport model update. the accuracy of the update of the transport model was greatly dependant on the comprehensiveness, quality and applicability of the collected traffic data. twelve-hour counts (6:00 – 18:00) were conducted during the months of october 2009, november 2009, july 2010 and august 2010, and differentiated between cars, trucks/light142 comprehensive integrated transport plan: 2011/12 delivery vehicles (ldv’s), minibus, bus, motorcycles and pedestrians. count stations were located on numerous traffic cordons throughout the nmbm. for further details regarding the traffic data collection and management processes, please refer to chapter 3 (section 3.7) and chapter 5 (section 5.1.2) of this report. 7.1.3 evaluation and mitigation the visum transport model results indicate that the majority of the road network currently operates at an acceptable level of service los (los d or better) (“see the table below for a description of the term level of service”) during the weekday morning peak traffic hour, as shown in figure 7-1. only 31km of roads are currently congested during the weekday morning peak traffic hour. traffic congestion does however occur throughout the area at localised intersections during this period. table 7-2: qualitative description of operating conditions (source: transport model update) los qualitative description a free flow; individual drivers are virtually unaffected by the presence of other vehicles on the road. b a region of stable traffic flow but the presence of other vehicles on the road begins to be noticeable. c a region of stable flow; individual drivers begin to be significantly affected by other vehicles. d the onset of unstable flow; the two opposing directions of traffic begin to operate separately as overtaking becomes extremely difficult. e operating conditions are at/or near the capacity level. f unacceptable to drivers, traffic volumes greater than the available capacity, operations characterised by stop-and-start waves. a limited number of roads have been identified that operate at los e or worse, which is regarded as the critical level that result in unacceptable traffic congestion and delays, during the peak traffic period. the roads currently experiencing peak hour traffic congestion are listed in the following table. table 7-3: roads experiencing peak hour traffic congestion (source: transport model update) no. road 1 bramlin street, linton grange 2 haworthia drive, malabar 3 linton grange interchange (n2) 4 kragga kamma road, sunridge 5 walker drive, sherwood 6 maqanda street, ibhayi 7 uitenhage road, algoa park 8 creek interchange (n2) 9 carrington road, charlo143 comprehensive integrated transport plan: 2011/12 10 main road, walmer 11 william moffet expressway, walmer 12 buffelsfontein road, walmer 13 heugh road, walmer figure 7-1: 2010 weekday morning peak traffic hour congestion (source: transport model update) the output data from the update of the visum transport model is at a macro level and is therefore unable to identify congested intersections, only congested roads (links). however, the nmbm has recently appointed four consulting engineering firms to investigate numerous intersections across the metro, and to assess them in terms of accident statistics, current traffic volumes, intersection capacity, etc. although these investigations were still underway at the time of preparing this citp, the provisional findings and intersection rankings were obtained in order to carry out a desktop prioritisation exercise for inclusion into the citp. the following table therefore provisionally indicates the top 20 problematic144 comprehensive integrated transport plan: 2011/12 intersections within the nmbm, and is subject to review following the completion of the nmbm’s current intersection investigations. upon finalisation of the intersection investigations, suitable remedial measures should be identified and implemented according to the intersection’s overall priority within the main road network. table 7-4: intersections experiencing peak hour traffic congestion no. intersection 1 old cape road / samantha way / bramlin street 2 cape road / william moffett expressway 3 bramlin road / godetia drive 4 burt drive / third avenue 5 old grahamstown road / r367 perseverance 6 beetlestone street / haworthia drive 7 kragga kamma road / rondebosch road 8 circular drive / carrington road 9 old grahamstown road / john tallant road 10 disa avenue / newton street 11 uitenhage road / ralo street 12 caledon street / church street (uitenhage) 13 circular drive / van eck street 14 stanford road / bethelsdorp road 15 durban street / cuyler street (uitenhage) 16 salamntu street / qeqe street 17 circular drive / centenary road (willow) 18 r367 perseverance / redhouse-chelsea arterial 19 stanford road / marock road 20 koyana street / qeqe street the network improvements shown in the following figure and table are required to improve the base year (2010) operating conditions, according to the transport demand model.145 comprehensive integrated transport plan: 2011/12 figure 7-2: road network improvements required (source: transport model update) table 7-5: road network improvements required (source: transport model update) reference number improvement description b1 widen bramlin arterial to 4 lanes b2 upgrade linton grange interchange b3 upgrade john tallant / n2 interchange b4 widen buffelsfontein road and heugh road to 4 lanes from titian road to 3rd avenue b5 upgrade the william moffett expressway from main road to buffelsfontein road (4 lanes dual carriageway) b6 widen kragga kamma road between kabega road and cape road to 4 lanes b7 widen walker dive, kabega road and frikkie kotze drive to 4 lanes146 comprehensive integrated transport plan: 2011/12 the following figure shows that the proposed improvements relieve congestion on links that otherwise would operate at los e or worse. figure 7-3: 2010 weekday morning peak traffic hour operating conditions after network improvements (source: transport model update) in addition to the evaluation in terms of operating conditions, the following outputs are provided in table 7-6 as performance indicators for the existing road network: total vehicle-hours of travel (excluding centroid connectors) total vehicle-kilometres of travel (excluding centroid connectors) average speed ; and average travel time total lane-kilometres per level of service category the model results show a definite improvement in all areas once the proposed improvements are in place.147 comprehensive integrated transport plan: 2011/12 table 7-6: primary road network performance indicators (source: transport model update) year 2010 2010 road network network 2010 2 010 with upgrades network length (km) 2,245 2,392 network statistics (am peak hour) total vehicle hours 20,185 15,477 total vehicle kilometres 699,013 684,693 ave speed (km/hr) 35 44 ave travel time (min) 14min46sec 11min19sec lane-km’s at los (am peak hour) a &b 2,623 2,882 c 26 33 d 33 13 e 24 7 f 7 3 total 2,713* 2,938* * total length of road network analysed by visum transport model (2010). the visum transport model also assessed future traffic scenarios for the years 2016, 2021 and 2031, taking into account the latest population and employment forecasts, land-use developments and planned network upgrades. for further details regarding the assessment and improvements required for the future scenarios, please refer to chapter 5 of this report. 7.1.4 road condition evaluation the primary road network in the nmbm comprises of the roads as shown in the table below, along with the length of road identified in each road condition category. table 7-7: the primary road network (source: pavement management system) road category length (km) very good good fair poor very poor under constr-uction road closed national roads 158.4 unknown provincial surfaced roads 450.9 unknown provincial unsurfaced roads 272.6 unknown roads of metropolitan significance (main public transport routes) 482.6 276.3 184.8 4.4 0.6 0 16.5 0148 comprehensive integrated transport plan: 2011/12 road category length (km) very good good fair poor very poor under constr-uction road closed minor roads (surfaced) 2354.2 1278.3 1002.0 50.7 2.3 0.5 6.4 14.0 minor roads (unsurfaced) 461.2 unknown total length (km) 4179.9 1554.6 1186.8 55.1 2.9 0.5 22.9 14 the main road network is generally in a fair condition and provides good mobility for commuter and commercial traffic to all parts of the city, whilst the minor road network requires some upgrading, however a good level of service is generally provided. due to a backlog in maintenance funding, there is an ever increasing general deterioration in the condition of the road network. the nmbm has a pavement maintenance system (pms) and a bridge management system (bms) in place which is used to effectively plan a long-term strategy for the maintenance of proclaimed urban main roads, other roads of metropolitan significance and bridges. the pms and bms contain the results of technical assessments of the condition of the road infrastructure and bridges, like what is shown in the previous table, and it enables a prioritised long-term maintenance strategy to be implemented for the routine maintenance of roads, resurfacing of roads and maintenance of bridges. the pms and bms also identifies major maintenance projects which are the subject of more detailed technical investigations. these may involve the reconstruction of some roads or extensive rehabilitation of roads. the latest pms data was collected during 2009 and the pms system updated accordingly in 2010. a prioritised and costed list of road maintenance projects for the 5 year period from 2010 to 2014 was analysed and the projects identified for implementation in year 1 were used to identify road maintenance and road rehabilitation projects for the 5 year planning period of this citp. the pms is due to be updated in 2011. at the time of preparing this report no bms data was available for inclusion. the bms is due for a major update in 2011, following its previous update in 2006. accurate bridge maintenance data should thus be available following the planned 2011 update. 7.1.5 implementation programme the projects that have been identified through the visum transport model update to improve the capacity and connectivity deficiencies in the road network, as well as other relevant planning, improvement and maintenance projects, have been evaluated collectively and the feasible projects have been prioritised for inclusion in the nmbm budgetary process for 2011/12 to 2015/16. the road network infrastructure requirements and costs required to alleviate the traffic congestion problems identified in the modelling process are shown in the following tables:149 comprehensive integrated transport plan: 2011/12 table 7-8: roads required for additional capacity priority no. project total cost (rand) current budgeted projects (2011/12 – 2013/14) short term (3 years) urgent projects 1 traffic improvements n2: cotswold interchange 300,000 2 traffic improvements n2: standford interchange 300,000 3 traffic improvements n2: kragga kamma interchange 300,000 4 widen heugh road to 4 lanes, from 3 rd avenue to 10 th avenue, walmer 64,000,000 sub-total 64,900,000 proposed future projects short term (5 years) urgent projects 5 extend bramlin street from malabar to uitenhage road 47,600,000 6 upgrade linton grange interchange 5,000,000 7 upgrade john tallant / n2 interchange 40,000,000 8 widen buffelsfontein road and heugh road to 4 lanes from 10 th avenue to titian road. 104,200,000 9 upgrade the william moffet expressway (17 th avenue) from main road to buffelsfontein road (4 lanes dual carriageway) 7,000,000 10 widen kragga kamma road between kabega road and cape road to 4 lanes 19,200,000 11 widen walker dive, kabega road and frikkie kotze drive to 4 lanes 20,800,000 sub-total 243,800,000 short term (5 years) 12 widen bramlin road to 4 lanes, linton grange 26,900,000 13 construct glendore road from circular drive to buffelsfontein road, broadwood 19,200,000 sub-total 46,100,000 medium term (10 years) 14 upgrade cotswold interchange 5,000,000 15 extend william road through cotswold to cape road 7,200,000 16 extend walker drive to cape road 42,300,000 sub-total 54,500,000150 comprehensive integrated transport plan: 2011/12 priority no. project total cost (rand) long term (20 years) 17 upgrade addo interchange 5,000,000 18 upgrade creek interchange 5,000,000 sub-total 10,000,000 total 419,300,000 table 7-9: access and connectivity improvements priority no. project total cost (rand) current budgeted projects (2011/12 – 2013/14) short term (3 years) urgent projects 1 norvic drive extension 3,000,000 2 ring road (between baird and cuyler street) 11,000,000 3 access road to chatty developments (standford road extension) 53,000,000 4 john tallant extension from seyisi street to old grahamstown road, kwazakele 100,000,000 5 fairview / lorraine arterial: montmedy to overbaakens 12,500,000 6 glen hurd drive upgrading phase 1 (east of william moffett) 23,000,000 7 h45 redhouse - chelsea arterial: walker drive to n2 125,000,000 sub-total 327,500,000 proposed future projects short term (5 years) urgent projects 8 kwanobuhle southern arterial phase 1 & 2 33,600,000 9 bloemendal arterial from standford road to old uitenhage road, booysen park 28,800,000 10 van der stel street extension, kabega park 33,600,000 sub-total 96,000,000 medium term (10 years) 11 kwanobuhle southern arterial phase 3 28,800,000 12 mr448 from matanzima road to bloemendal arterial 67,200,000 13 upgrade & realign old pe-uitenhage road (mr448) from booysens park to redhouse-chelsea arterial (mr444) 67,200,000151 comprehensive integrated transport plan: 2011/12 priority no. project total cost (rand) 14 construct diaz road arterial between diaz road and redhouse chelsea arterial 100,000,000 sub-total 263,200,000 long term (20 years) 15 second carriageway algoa road (mr448 - mr458) 29,800,000 16 construct link road between union avenue and the mr460 (north of despatch) 43,200,000 17 construct new access ramps at green street / m4 settlers freeway 54,600,000 sub-total 127,600,000 total 814,300,000 the road maintenance requirements and costs are shown in the following table. table 7-10: road maintenance projects no. project total cost (r) current budgeted projects (2011/12 – 2013/14) 1 mr425 settlers freeway repairs 600,000 2 sidewalks & road markings maintenance 700,000 3 resurfacing of subsidised roads 50,000,000 4 matanzima road, mel brookes to matanzima 3,300,000 5 upgrade main road through swartkops 18,000,000 total 72,600,000 there are several major roads in the metropolitan area that require major rehabilitation or reconstruction because the layer-works have failed. these roads are shown in the following table. table 7-11: roads requiring rehabilitation priority no. project total cost (r) current budgeted projects (2011/12 – 2013/14) short term (3 years) urgent projects 1 rehabilitation of roads (algoa rd, penford rd, tyityaba str, lee samuel dr, lindsay rd, brickfields rd, & avenue c & e) 75,000,000 2 rehabilitation of william moffett expressway 67,300,000 3 magennis street (uitenhage) 20,000,000 4 baird street (uitenhage) 6,000,000152 comprehensive integrated transport plan: 2011/12 priority no. project total cost (r) 5 harrower road (mount road) 500,000 sub-total 168,800,000 proposed future projects short term (5 years) urgent projects 6 old pe-uitenhage road (bethelsdorp) 18,113,150 7 struanway (new brighton) 3,655,080 8 njoli street (ibhayi) 253,660 9 caledon street (uitenhage) 1,475,430 10 kabega road (kabega) 1,017,720 sub-total 24,515,040 short term (5 years) 11 voortrekker street (despatch) 1,884,740 12 rich street (uitenhage) 1,365,320 13 daku road (new brighton) 446,270 14 bethelsdorp road (bethelsdorp) 787,270 15 graaff-reinet road (uitenhage) 7,252,300 16 jongilanga street (motherwell) 601,260 17 cuyler street (uitenhage) 3,486,120 18 ngonyama street (motherwell) 1,165,230 sub-total 16,988,510 total 210,303,550 the following table shows the bridge maintenance projects and related costs that have been included in the nmbm’s capital budget for 2011/12 to 2013/14. table 7-12: bridge maintenance projects no. project total cost (r) current budgeted projects (2011/12 – 2013/14) 1 remedial works: pell street interchange 20,000,000 2 rehabilitation of bridge structures 25,000,000 total 45,000,000 in addition to the above, other projects relative to the road network have also been evaluated and the feasible projects prioritised for inclusion in the nmbm budgetary process. the following table lists the traffic and signage improvements required.153 comprehensive integrated transport plan: 2011/12 table 7-13: traffic & signage improvements priority no. project total cost (r) current budgeted projects (2011/12 – 2013/14) short term (3 years) urgent projects 1 road works 17,783,625 2 intersection improvements 12,500,000 3 intersection upgrading - william moffett / main road walmer 6,500,000 4 traffic calming measures 12,500,000 5 new traffic signals 8,500,000 6 expansion of the scoot traffic signal system 20,000 7 tm24 guidance signs 750,000 8 development area traffic improvements - west suburbs 450,000 9 development area traffic improvements - newton park 375,000 10 development area traffic improvements - walmer 300,000 sub-total 59,678,625 proposed future projects (intersection improvements) short term (5 years) urgent projects 11 old cape road / samantha way / bramlin street 3,000,000 12 cape road / william moffett expressway 5,000,000 13 bramlin road / godetia drive 2,000,000 14 burt drive / third avenue 2,000,000 15 old grahamstown road / r367 perseverance 2,000,000 sub-total 14,000,000 medium to long term (10 - 20 years) 16 beetlestone street / haworthia drive 1,000,000 17 kragga kamma road / rondebosch road 1,000,000 18 circular drive / carrington road 1,000,000 19 old grahamstown road / john tallant road 3,000,000 20 disa avenue / newton street 2,000,000 21 uitenhage road / ralo street 1,000,000 22 caledon street / church street (uitenhage) 2,000,000 23 circular drive / van eck street 1,000,000 24 stanford road / bethelsdorp road 2,000,000 25 durban street / cuyler street (uitenhage) 2,000,000 26 salamntu street / qeqe street 1,000,000 27 circular drive / centenary road (willow) 2,000,000154 comprehensive integrated transport plan: 2011/12 priority no. project total cost (r) 28 r367 perseverance / redhouse-chelsea arterial 2,000,000 29 stanford road / marock road 2,000,000 30 koyana street / qeqe street 1,000,000 sub-total 24,000,000 total 97,678,625 a selection of the projects listed in this section has been indicated on a map (selected capital budget projects 2011/12 – 2015/16) in chapter 11, along with a phased implementation programme and budget. 7.1.6 roads master plan the roads master plan is an invaluable and necessary planning tool to protect future transport reserves for road and rail, and so will ensure that expropriation of expensive properties is not necessary to provide the future required right of way. a review of the long term road network for the nmbm has been carried out in conjunction with the visum transport model update. this review addresses network issues resulting from spatial development proposals, land use changes and road capacity improvements. the long term transport network for the nmbm is shown in figure 7-4 and it contains the conceptual alignment of future planned roads, as well as the proposed long term rail network that is included in the national rail plan.155 comprehensive integrated transport plan: 2011/12 figure 7-4: long term transport network156 comprehensive integrated transport plan: 2011/12 7.1.7 access management plan an access management plan (amp) ensures an efficient and safe road network that supports sustainable development. the national guidelines for road access management (ram) is a guideline that provides standards for the integration of land use and the transport network, enhancing the supporting role of transport infrastructure and aiming to reduce congestion. ram informs an amp. the draft amp for nmbm was produced in 2008. the previous section, the road master plan, defines the road hierarchy of existing and planned future roads. the road hierarchy determines the access versus mobility function of each road link. this section builds on the hierarchical definition of the road network, specifically focussing on how the hierarchical class of each road stipulates access specifications and management standards. this section specifically defines access characteristics, environments, standards and access management criteria for each road class, as defined in the previous section. 7.1.7.1 access characteristics this section indicates the access characteristics for each hierarchical road class, such as the provision of property access, parking and intersection spacing. table 7-14 indicates the nature of each class of road and provides the typical access characteristics for an urban environment that are required to maintain the function of the road class. 7.1.7.2 access environments it is important to recognise the spatial context of a road. two environments are stipulated in access guidelines, namely urban and rural. these zones are demarcated by the urban edge specified in the sdf, with the urban area falling inside the urban edge, and rural areas located beyond the urban edge. the unique character of urban and rural environments is affected by the size of an erf’s boundary fronting an access road, which in turn is defined by the spacing of property accesses. the access spacing for urban and rural areas should therefore be differentiated in the access guidelines. a table defining access separation for each environment is presented by table 7-15, for urban areas, and table 7-16, for rural areas. an example of the different access separation standards for urban and rural areas is the variation in ideal spacing for a class 3 road (activity arterial) which is 250m to 500m for urban areas, and 1,6km for rural areas. while an ideal access separation that conserves the primary function of a road is strived for, ideal standards can not always be met in reality. allowable access separation standards are permissible on roads if ideal access standards can not be applied. a third category of allowable access separation is also provided that takes historic access spacing into account. this method is only applied in an existing situation were no access alternative is available. the tables defining access separation for each environment distinguish access standards for the ideal, allowable and historic cases. 7.1.7.3 access standards an access is defined as a road providing entry or egress from a public road, including interchanges (which are not including in the amp), intersections of roads, private roads and property accesses. access separation is defined as the space between two access points, measured as the distance between the road reserve boundaries of the accesses. access spacing is defined as the distance measured between centre-lines of adjacent accesses. the tables presented below provide access separation distances, as it is more conservative than access spacing. the guidelines do not allow low volume driveways access onto high mobility roads, and therefore do not provide property access separation in these cases, only road intersection separation.157 comprehensive integrated transport plan: 2011/12 the engineering criteria that were considered when defining access separation distances include: signal spacing to allow for signal progression stopping sight distance, an important criteria for safety gap acceptance distances for right turning vehicles functional boundary distance (no accesses should occur within the functional boundary of an intersection) left turn conflict reduction 7.1.7.4 access management the amp guideline should be employed during the following municipal process: land applications: the subdivisions and land transactions (salt) process involves applications for changes in land use, often incorporating subdivisions, consolidations, rezoning, and sale of erven, that could include applications for access onto roads. these applications for changing land use can provide the opportunity to improve access management. land use transport planning: o local spatial development frameworks (lsdfs): amp indicates ideal access spacing required for sufficient access in areas. additionally, the amp can influence the type of development allowed along particular roads, depending on the access specifications. o corridor development: the amp defines how to develop high use and mixed land use that fronts onto mobility corridors without affecting the mobility function of the road. developments are not allowed to have direct access from the mobility corridor, while nmt access to high mobility public transport located along the corridor should be ensured. retrofitting programmes: portions of road that do not meet access standards should be retrofitted. this should typically be done in conjunction with other construction projects, such as public transport lane implementation or road widening initiatives.158 comprehensive integrated transport plan: 2011/12 table 7-14: typical access characteristics nmbm access class access typical urban access characteristics class number name key factor access to property parking traffic calming inter-section control median intersection spacing (block lengths) max. urban accesses per block ideal allowable 1 freeway maintain speed for regional capacity not allowed not permitted no interchange (rural: priority) yes, dual carriageway (rural: not necessarily) 4.5 km - 9km (urban), approx 13km etc (rural) none none 2 mobility arterial maintain speed for metropolitan capacity (urban intersections: practical signal spacing for progression, access: functional boundary distance) not allowed not permitted no co-ordinated signals, priority for through route (rural: priority) yes, provide (rural: not necessarily) 600-900m for signals none 630-800m: 2 marginal accesses 600-630m: 1 marginal access 3 activity arterials reduce conflict of turning movements with pedestrians while maintaining some speed for localised travel limited and marginal discouraged (unless unavoidable in historic area) no, except for traffic circles traffic signals, traffic circle or priority yes, provide 200-500m none 450-500m: 3 marginal accesses 345-449m: 2 marginal accesses 240-344m: 1 marginal access 200-239m: 0 marginal access 4 activity street promote direct land use activity while reducing conflict of turning movements with pedestrians (urban access: stopping sight distance) permitted, subject to spacing yes very limited use traffic signal, traffic circle or priority not necessarily 200-300m 300m: 4 accesses 200m: 2 accesses 300m: 6 accesses 200m: 4 accesses 5 residential collector access to development individual houses and small developments yes on street use permitted priority or traffic circle no - - 6 local street access to houses (egress conflict - pemet) individual houses yes on verge use permitted priority or mini-circle no - - 7 non-motorized nmt mobility as required no no pedestrian signal no 500 m maximum 500 m maximum159 comprehensive integrated transport plan: 2011/12 table 7-15: access separation for urban areas nmbm access class access separation environments (minimum access separation (m)) urban class ideal (based on ndot) allowable (see assumption for median) historic number name road intersection property access road intersection property access filling station access intersection separation access downstrea m of an intersection with a bus stop access downstream of intersection with no bus stop access upstream of an inter-section access downstream filling station with bus stop (see fig. 7.5 of ndot) access downstream filling station, no bus stop access upstream filling station 1 freeway approx. 4 km in nmbm, interchanges only (dependent on sanral) not permitted interchanges 1.6 km (ndot) n/a minimum spacing required (340 m ndot - intersection not an interchange) fig. a1, table 2.7 (pemet) (235 m (ndot - intersection not interchange)) fig. a1, table 2.7 (pemet) (280 m (ndot - intersection not interchange)) existing sub-standard intersections must be retrofitted. if not possible, no constraint to through traffic, side traffic to have sufficient acceleration/deceleration lanes. 2 mobility arterial 600-800m (i.e.-80km/h: signalised ultimately) not permitted 600-800m (_ 20%- ndot) based on practical signal spacing for progression at these speeds 285 m 200 m 230 m 245 m 160 m fig a1, a2, a3 (pemet) 205 m fig a1, a2, a3 (pemet) where no alternative exists, permit access without additional trips (min spacing for existing low vol. driveways 40m(pemet)), consolidate with adjacent erven to reach 'allowable' separation (min. property access:90m min. spacing for larger than low vol. driveways as lilo, i.e. a single res 1 site, min intersection spacing: 130m i.e. gap in median) 3 activity arterials 250-500m none. (property access restricted to side and back of property) 200m - 500m (spacing signal co-ordination difficult, hence lower speeds - ndot) (500m limits signal progression to about 60km/h) 145 m (190m preferred) 105 m (130m preferred) 135 m (160m preferred) 115 m (165m preferred) 75 m (105m preferred) fig. a2, a3 (pemet) 125 m (145m preferred) fig. a2, a3 (pemet) where no alternative exists, permit access without additional trips (min spacing for existing low vol. driveways 30m(pemet)), consolidate with adjacent erven to reach 'allowable' separation (min. property access:90m min. spacing for larger than low vol. driveways as lilo, i.e. a single res 1 site, min intersection spacing: 90m upstream, 130m downstream i.e. gap in median) 4 activity street 250-300m 60m 200-300m (300m limits signal progression to about 45km/h) 45-65m recommended for stopping sight distance, and combined accesses are recommended. (filling station: fig a4(pemet) where no alternative exists, permit access without additional trips (min spacing for existing low vol. driveways 25m(pemet)), consolidate with adjacent erven to reach 'allowable' separation (min. property access:90m min. spacing for larger than low vol. driveways as lilo, i.e. a single res 1 site, min intersection spacing: 90m upstream, 130m downstream i.e. gap in median) 5 residential collector 150-200m 150-200m access separations of the order of 45 m (ndot) 6 local street 150-200m 45 m 25 m are recommended (pemet - egress conflict) (outside scope of guideline) 7 non-motorized outside scope. see pedestrian and bicycle facility guidelines (department of transport, 2002)160 comprehensive integrated transport plan: 2011/12 table 7-16: access separation for rural areas nmbm access class access separation environments (minimum access separation (m)) rural (i.e. outside urban fence) class ideal (based on ndot) allowable (based on ndot) historic number name road intersection property access road intersection access unsignalised intersection separation (signals not permitted) property access filling station 1 freeway 4km in nmbm, interchanges only. not permitted interchanges: 1.6-2.4 km side roads: 15-30 km (ndot), priority to through traffic, or one access per large farm/ adjacent farm accesses combined as far as possible not permitted fig. a1, table 27 (pemet) existing farm access may remain. if land use changes, ideal should be aimed for or if large redevelopment, environment should be considered for reclassification 2 mobility arterial 1.6 km not permitted 1.6 km-800m min (priority) 800m min fig. a1, table 27 (pemet) retrofit existing accesses to allowable (at least to urban conditions) existing farm access may remain. if land use changes, ideal should be aimed for, or allowable, or if large redevelopment, environment should be considered for reclassification 3 activity arterials 1.6 km not permitted 1.6 km-800m min (priority) 800m min fig. a1, table 27 (pemet) do these exist e.g. fitches corner 4 activity street n/a n/a n/a n/a n/a n/a 5 residential collector n/a n/a n/a n/a n/a n/a 6 local street n/a n/a n/a n/a n/a n/a 7 non-motorized161 comprehensive integrated transport plan: 2011/12 7.1.8 traffic calming plan traffic calming plans involve the planning of the introduction of traffic calming measures on lower order roads in specific areas (mostly residential areas), to improve road safety for the road users in these areas. typical traffic calming measures include speed humps, width restrictions, raised pedestrian crossings, landscaped medians and roundabouts. these measures improve road safety through the reduction of average vehicle speeds, reduced through traffic and enhancing the local environment through reduced noise and air pollution. the traffic calming plan for nmbm traffic calming residential streets for communities was produced by letsunyane associates in 2008. this document details the traffic calming policy of nmbm and provides guidelines for the implementation of traffic calming initiatives, including problem identification, initial scoping studies and plan development. according to this document and the access characteristics of particular road classes, traffic calming may only be implemented on class 5 and 6 roads, i.e. residential collector roads and local streets (referred to as local distributors and access roads respectively in the traffic calming plan). very restricted traffic calming implementation is permitted on class 3 and 4 roads, activity arterials and activity streets, but measures are limited to traffic circles. the scope for discussion of the traffic calming plan is therefore limited in this document as the citp only considers roads of metropolitan significance (roms) which do not include residential collectors and local streets. it is however important for transport authorities and planners to be aware that a plan for traffic calming in nmbm is defined. 7.1.9 road maintenance plan the nmbm is responsible for the maintenance of the metro’s road infrastructure and to ensure that it remains serviceable. therefore, routine maintenance needs to be undertaken on a day-to-day basis, which includes the following: grass cutting repair of potholes and cracks road signs maintenance road paint marking maintenance cleaning of stormwater structures maintenance of traffic signals the pavement management system (pms) is utilised to assist with the above. 7.2 public transport and ipts projects the planning of the ipts includes the provision of additional public transport related infrastructure that is required to complete the dedicated lane system, provide modal interchanges and commuter shelters. the project list and the related cost estimates are shown in the following table.162 comprehensive integrated transport plan: 2011/12 table 7-17: public transport projects no. project description total cost (rand) current budgeted projects (2011/12 – 2013/14) 1 standford road ipts lanes (aubrey to n2) 198,000,000 2 standford road ipts lanes (korsten to cleary park) 85,800,000 3 langenhoven drive ipts lanes 70,620,000 4 sheya khulati drive / ferguson road ipts lanes 115,500,000 5 ntshekisa road ipts lanes 42,900,000 6 njoli road ipts lanes 82,500,000 7 daku road ipts lanes 75,900,000 8 dibanisa road 2nd carriageway phase 1 66,000,000 9 tyinira street construction 123,310,000 sub-total: ipts bus lanes 860,530,000 1 uitenhage modal interchange 33,000,000 2 cleary park modal interchange 55,000,000 3 motherwell modal interchange 55,000,000 4 ziyabuya modal interchange 33,000,000 5 njoli square modal interchange 55,000,000 sub-total: ipts modal interchanges 231,000,000 1 govan mbeki avenue 74,800,000 2 standford road 44,000,000 3 kempston road 35,200,000 4 fettes / harrower road 26,400,000 5 langenhoven drive 8,800,000 6 sheya khulai drive / ferguson road 17,600,000 7 ntshekisa road 26,400,000 8 njoli road 35,200,000 9 daku road 44,000,000 sub-total: ipts shelters 312,400,000 1 ticketing system 681,400,000163 comprehensive integrated transport plan: 2011/12 no. project description total cost (rand) 2 transport administration authority 302,000,000 3 operator compensation 1,100,000000 sub-total: ipts operational costs 2,083,400,000 1 ipts planning 27,500,000 2 ipts infrastructure design 61,600,000 sub-total: planning & design 89,100,000 1 public transport infrastructure (bus embayments and investigation of other minor public transport facilities) 1,500,000 2 taxi rank in govan mbeki suburb design and implementation of taxi rank) 500,000 3 public transport facilities (construct roof over taxi rank in motherwell nu 1 & bus embayments) 1,200,000 sub-total: other public transport facilities 3,200,000 total: public transport projects 3,579,630,000 a selection of the projects listed in this section has been indicated on a map (selected capital budget projects 2011/12 – 2015/16) in chapter 11, along with a phased implementation programme and budget. 7.3 non motorised transport projects the projects indicated in the flowing table have been identifies in the sidewalks and cycle tracks masterplan for implementation. table 7-18: non motorised transport projects no. project total cost (r) current budgeted projects (2011/12 – 2013/14) 1 sidewalks & cycle tracks 6,127,500 2 construction of footbridges 32,500,000 3 provision of sidewalks and cycle tracks 105,000,000 4 facilities for the disabled 1,500,000 total 145,127,500164 comprehensive integrated transport plan: 2011/12 7.4 freight transport projects the following projects have been identified in the freight logistics strategy (chapter 9). table 7-19: freight transport projects no. project project description total cost (r) proposed future projects (short term 5 years) 1 freight logistics strategy prepare a comprehensive freight logistics strategy for nmb based on the information provided in the 2011/12 citp. 500,000 2 uitenhage road railway bridge improve stormwater drainage on the neave industrial service line at the uitenhage road railway bridge. 500,000 3 vehicle load screening areas construct screening areas with level hard surfaces at the four identified locations within nmb. 200,000 4 load handling facilities provide facilities for the readjustment of loads on overloaded vehicles at the nmbm traffic department. 100,000 5 abnormal load route audit audit of abnormal load routes to identify current and potential obstructions. 100,000 6 massload carrying capacity of bridges and culverts bridges and culverts on abnormal load routes to be inspected and tested in terms of their load bearing capacity. 500,000 7 containment facilities provide facilities at the nmbm traffic department to contain vehicles that transport hazardous material. 200,000 total 2,100,000 7.5 planning and design a sum of r5 million per annum is require to fund transport planning, including the preparation of comprehensive integrated transport plan and management systems, as well as to carry out feasibility studies and preliminary designs. this is shown in the following table. table 7-20: transport planning projects no. project total cost (r) current budgeted projects (2011/12 – 2013/14) 1 tdm & its 5,862,100 2 planning and design of main roads 5,000,000 3 miscellaneous investigations & designs -roads and stormwater 6,000,000 4 metropolitan transport planning 25,000,000 total 41,862,100165 comprehensive integrated transport plan: 2011/12 8 travel demand management travel demand management (tdm) refers to various transport strategies that encourage efficient, sustainable transport. the aim of tdm is to reduce the number of vehicle trips and trip times, while still supporting the person trip demand. tdm strategies give priority to the use of public transport, while simultaneously applying constraints on the use of private vehicles. the benefits of tdm include reduced congestion on roads, the promotion of public transport and a reduction of the environmental impact of transport activities through the decrease in fossil fuel usage and consequently vehicle emissions. additionally, because tdm reduces private vehicle trip demand on particular routes at certain times, traffic volume decreases and expensive infrastructure upgrades to increase the physical capacity of highways can be postponed or negated. 8.1 typical tdm strategies various tdm approaches are available that influence travel behaviour, including: physical infrastructure measures: construct bus lanes, decrease parking; voluntary measures: encourage travel changes through incentives and awareness campaigns promoting for example flexi-time and ridesharing; regulatory measures: force changes in travel behaviour through policy; pricing measures: increase private vehicle travel costs through road user charging and parking pricing; and intelligent transport systems: its can provide information on congestion and alternative modes of transport. these strategies influence commuters to change their travel behaviour, such as the decision to make a trip, mode choice, trip timing and vehicle occupancy. most tdm programmes incorporate a combination of strategies that are particularly suited to the population and area in which they are being implemented. tdm programmes can be implemented for a wide range of areas, for example an entire city, a specific corridor, a small local area such as a commercial zone, or a single building. the most effective tdm programmes, however focus on smaller areas and are employer-based, that is they target specific businesses with the aim of employers encouraging tdm programme execution. the availability of alternative transport options, such as public transport, non-motorised transport (nmt) and ridesharing possibilities, are essential for the effective implementation of tdm strategies. tdm itself does not provide for the implementation of public transport or nmt systems, but it is vital that effective and attractive alternative transport modes exist for tdm to be successful in changing travel behaviour to favour these modes. 8.2 tdm proposals for nmbm nelson mandela bay is well positioned to make use of tdm because of the integrated rapid public transport network (ipts) that will be operational in nmbm. a tdm programme in conjunction with the ipts project will encourage additional ridership of the public transport system by stimulating the transfer of commuters from private vehicles to public transport. the previous update of the citp for nmbm, dated july 2008, indicated that the only tdm measures that were to be considered by nmbm included the provision of separated median bus lanes and the removal of on-street parking for private vehicles along busy arterial roads. these measures would indeed influence trip behaviour by making public transport more efficient and decreasing the convenience of private vehicle use. however, additional tdm166 comprehensive integrated transport plan: 2011/12 strategies should be considered for wide-spread implementation throughout nmbm in order to significantly reduce demand on the arterial road network and promote public transport use. this section broadly identifies various tdm strategies that could successfully be implemented in nmbm, but a more extensive investigation into tdm implementation and operation is proposed if tdm is to have a significant influence on travel behaviour in nmbm. 8.2.1 precincts suited to tdm interventions as discussed previously, the most effective tdm programmes focus on small local areas such as a commercial zone or single building, and are employer-based, targeting businesses. additionally, tdm should be focussed in commercial areas where single occupant private vehicle use accounts for the majority of vehicle trips and a public transport system is or will be operational in the immediate vicinity, as these areas represent the greatest potential for the influence of tdm. according to these conditions, the following commercial zones are positioned to particularly benefit from intensive tdm programmes: newton park; walmer; port elizabeth cbd; greenacres and cape road; uitenhage cbd; and alexander park industrial area (including vw factory, south of uitenhage). the implementation of tdm measures in these areas will aid in alleviating recurring congestion, associated with the morning and afternoon peak periods, on the roads linking residential areas to the commercial zones earmarked for tdm implementation. a number of these roads currently experience unacceptable levels of service (los), of los e or less. they are extracted from table 7-3 and presented below. a description of los is presented in table 7-2 of this document. main road, walmer william moffett expressway, walmer buffelsfontein road, walmer heugh road, walmer additionally, a number of intersections experience congestion during peak hour traffic, as listed in table 7-4. the congested intersections that will benefit from tdm programmes in the above stated areas, include: intersections of cape road with bramlin street, william moffett expressway,; intersection of burt drive and third avenue; intersection of disa avenue and newton street; intersection of caledon street and church street (uitenhage); intersection of durban street and cuyler street (uitenhage); 8.2.2 tdm strategy proposals for nmbm a number of tdm strategies could be implemented in nmbm, each with varying practicality, success rates, installation periods and costs. an investigation into tdm was conducted for the city of cape town in 2006 for inclusion in the itp for the city. six tdm strategies were identified for implementation. 1 these tdm applications have been prioritised in terms of practicality of implementation and provide a good platform for the development of a widespread tdm programme for implementation in nmb.167 comprehensive integrated transport plan: 2011/12 a) park and ride b) programmes for large employers c) marketing and education d) policies and tax incentives e) high occupancy vehicle (hov) promotion f) congestion pricing and its programmes a description of the above listed strategies and the potential to implement them in nmbm is discussed in the following paragraphs. (a) park and ride park and ride lots are facilities usually provided at public transport stations, that allow commuters to travel to public transport opportunities (such as rail and bus services) or carpool meeting points, by private vehicle and then leave the vehicle in a safe parking area until the commuter returns at the end of the work day. safe and conveniently located park and ride facilities can encourage commuters to convert from private vehicle usage to public transport and car pools if these services are available. the effectiveness of park and ride is therefore dependant on an attractive and effective public transport system. additionally, factors such as the distance that commuters must travel to the park and ride, apparent safety of the facility, congestion levels, as well as visibility and marketing strategies of the park and ride, greatly influence the success of park and ride facilities. it is important to study the necessary and desired extent of park and ride facilities in nmbm so that they can be planned together with the ipts stations that are currently being developed in nmbm. the provision of adequate, safe, visible and well advertised park and rides can increase public transport usage and provide a platform for ridesharing and carpooling. the costs associated with park and ride facilities include land procurement costs, facility construction costs, annual maintenance and security costs, as well as the cost of an ongoing marketing campaign. it is therefore impossible to produce a cost estimate or time frame for the implementation of park and ride as a tdm measure until a comprehensive study has been done by nmbm to determine the extent of park and ride provision. (b) programmes for large employers large employer programmes (leps) are tdm strategies that focus on large organisations with numerous employees. leps are generally very successful because specific tdm measures can be implemented that meet the particular needs of a certain demographic of commuters and worksite characteristics. the following list summarises lep strategies: financial incentives for employees (for example public transport allowances or parking benefits for employees using a carpool) rideshare matching within the company company subsidy of a public transport (bus or taxi) service that caters only to employees of the company alternative working hours (such as flexi-time or compressed work week schedules) telecommuting, where employees work at home and use telecommunications such as internet and email marketing and promotion of tdm within the company promoting nmt by providing bicycle parking facilities, showers and change rooms provision of a company vehicle for business travel during office hours to avoid the need for employees to drive to work168 comprehensive integrated transport plan: 2011/12 an lep must be developed for nmbm as well as for each specific organisation involved in the programme through consultation with the employees. consultants that prepared the business plan for the role-out of an lep in the city of cape town estimated that the lep preparation process would take approximately nine to ten months. it was suggested that a period of 12 months then be allowed for supporting the implementation of the leps and monitoring the progress of the programmes. the consultants estimated that this entire process would cost r570 000 in 2011 current value (r350 000 in 2006). 4 the known success of leps in conjunction with their relative low cost and quick implementation time make leps a viable tdm strategy for nmbm in the short term. (c) marketing and education marketing is used to persuade people to utilise tdm strategies and public transport by changing perceptions of public transport and providing awareness of the benefits of alternative travel options. marketing and education are therefore essential components of tdm. marketing material and media that should be included in the tdm marketing strategy include flyers or brochures, television and radio advertisements, roadside billboards and a tdm website and call centre. marketing of tdm should be considered as an ongoing activity. additionally, specific marketing assignments and informational material should be developed for each tdm action, especially when a new tdm strategy is launched. the budget for tdm marketing can only be estimated when a tdm programme is developed and a marketing plan has been prepared. (d) tax and financial incentives and policies incentives such as financial payouts or increased costs, tax deductions and legislation can influence people to implement tdm strategies. financial and tax incentives include: increase in parking price for non-hovs decreased public transport cost for the disabled, elderly and scholars tax relief by claiming public transport subsidies as a tax deduction these measures require support by provincial and/or national legislation. other legislative policies that can promote tdm are: policy incentives to promote mixed land-use and in-fill development reassess and reduce standards for parking requirements at developments reconsider current legislation that makes carpooling difficult (such as the requirement of a professional driving permit when transporting people) tax incentives and policy changes invoke long processes to write new legislation and obtain political consensus. this would therefore need to be long term tdm strategy that will require input from a number of role players. studies are required to determine the extent to which nmbm would benefit from the implementation of the tax incentives and policy updates, however it is assumed the requirement for these measures does not warrant nmbm starting the process of legislation renewal in the immediate future. (e) hov promotion hov is promoted by encouraging ridesharing or carpooling, with the objective of increasing the number of passengers in a vehicle. the benefits of hov include a reduction in the road space and parking required while maintaining the same volume of person trips, and a reduction in vehicle emissions and fuel usage, because fewer vehicles travel. three main interventions can encourage people to share vehicle use, including: construct hov lanes that can only be used by hovs and therefore provide a better level of service to these vehicles. this strategy is expensive because of169 comprehensive integrated transport plan: 2011/12 the infrastructure requirements and ongoing enforcement costs. specific bus lanes have been constructed in nmbm for the ipts, but the use of these lanes for private hovs would not be appropriate as this will disrupt public transport movement. establish and advertise a phone-in service and/or a website that supplies information about car-pooling and provides a ride-matching database for commuters who want to share rides, this is the simplest and most easily implemented hov intervention. develop programmes and provide incentives that encourage higher vehicle occupancies and discourage single vehicle occupancy. the most appropriate hov intervention for nmbm in the short term would be to promote hov travel through advertisement thereof and by developing media to share information and provide a ride-matching service. this strategy can be implemented relatively quickly and cheaply. an example of this type of hov intervention was investigated for the city of cape town. the study suggested that this intervention would take approximately 15 months to implement, with an initial cost of r1,4-million in 2006 (roughly r2,25-million today if a growth factor of 10% per annum is assumed) and monthly operating expenses of about r37 000 in 2011 present worth. 2 further studies are needed to justify these figures for implementation of this intervention in nmbm. (f) congestion pricing and its programmes congestion pricing and its programmes are tdm measures that are expensive to implement and require a large amount of infrastructure. congestion pricing entails charging motorists a fee to use a particular road or enter a certain zone at specific times of the day when congestion occurs. in this way congestion pricing encourages a shift of trips to alternative routes, modes or off-peak times. congestion pricing systems have extensive technological requirements, including its, for vehicle identification (for example radio frequency tags in each vehicle, or automatic number plate recognition systems) or require manned toll plazas for fare collection. its are communication technology applications that are used for transport engineering purposes. its can also be used to perform a tdm function through information dissemination: drivers are influenced to delay trips to off-peak times, avoid trips or make use of alternative routes if congestion is high. infrastructure requirements of its tdm programmes include data collection devices (such as loop detectors and video surveillance), a transport management centre where this data can be processed, and information dissemination devices and strategies such as tdm websites, radio or television broadcasts, and variable message signs on the transport network. its applications are already in use in nmbm, implemented by the traffic control centre. the existing urban traffic control system is managed by the transportation division of the infrastructure and engineering directorate and is operated from the central control room at the south end fire station on walmer boulevard. the traffic control centre has two mandates, namely to respond to traffic emergencies and complaints, and perform a traffic management service, managing traffic lights and traffic control systems such as scoot which is implemented on cape road and govan mbeki avenue. the safety and security centre is also operated from the central control room at the south end fire station. this centre monitors feed from numerous cctv cameras strategically located around nmbm and has analysing software that is able to detect traffic congestion, among other things. further its applications are to be implemented in nmbm with the integrated public transport system (ipts). an ipts control/call centre is to be developed that will monitor, control and manage the ipts, as well as communicate transport service information to the public.170 comprehensive integrated transport plan: 2011/12 the infrastructure and technological requirements of congestion pricing and its programmes render this manner of tdm very expensive to implement, maintain and operate. however, nmbm has a number of the required its systems in place. the applicability for its tdm implementation in nmbm should be investigated further to establish if this is a solution that should be implemented in the near future or if it is a long term proposal. other cities in south africa, including cape town have recently procured its programmes that perform a tdm function. 8.2.3 directive for a tdm study for nmbm the introduction to this chapter discussed the benefits of tdm, which include reduced congestion on roads, the promotion of public transport and a reduction of the environmental impact of transport activities through the decrease in fossil fuel usage and consequently vehicle emissions. tdm can therefore assist the city in achieving its green goals and the objectives of the nmbm citp, namely mobility, convenience, reasonable cost and minimum side effects of the transport system. a detailed tdm study is therefore recommended to determine if and which tdm strategies could significantly and positively influence the transport system of nmbm. the previous section described a number of tdm projects. from this preliminary research it is assumed that the best tdm programme for implementation in nmbm would be a multi-strategy programme that focuses on a variety of tdm approaches which can be implemented in a short period of time at relatively low cost. strategies that should be considered for the programme include hov promotion by developing media to share information about hov and ride-matching services, development of park and ride facilities, a large employer programme and obviously an advertising and marketing campaign that will support the other three strategies. it is recommended that a tdm study for nmbm be performed by appropriately qualified transport practitioners. the scope of this study should include the following key objectives: identify potential tdm strategies that can be implemented together to form a comprehensive tdm programme for nmbm. evaluate the effectiveness of the tdm measures to determine if implementation is warranted. this can be done by considering the impacts and success of tdm programmes implemented in other cities, or through an economic evaluation comparing current cost of congestion and the implementation and operational costs of the proposed tdm strategies to the expected monetary benefits of the project (such as reduced congestion, fuel usage and environmental benefits). produce a comprehensive business plan for the implementation of the various tdm strategies included in the programme. estimate a budget proposal for the tdm programme of nmbm. it is assumed that phase 1 of the tdm study for nmbm will require funding of r250 000. a possible second phase of the evaluation study for tdm will focus on the economic evaluation of specific tdm projects defined by the first phase, and is estimated to cost r300 000. 8.3 references (1) its engineers, influencing travel behaviours, towards a travel demand management strategy, city of cape town, august 2006. (2) ts engineers, influencing travel behaviours, towards a travel demand management strategy, business plan: increasing hovs, city of cape town, august 2006.171 comprehensive integrated transport plan: 2011/12 (3) its engineers, influencing travel behaviours, towards a travel demand management strategy, business plan: park and ride facilities, city of cape town, august 2006. (4) its engineers, influencing travel behaviours, towards a travel demand management strategy, business plan: targeting large employers, city of cape town, august 2006.172 comprehensive integrated transport plan: 2011/12 9 freight logistics strategy in accordance with the guidelines set out in the dot document ‘technical transport planning guidelines for citp’s to be prepared by type 1 planning authorities (february 2009)’, the nmbm has to develop a freight logistics strategy covering the transportation of goods to, from and through the area by road, rail or ship. this strategy has to identify routes and plan for the movement of goods, hazardous goods (in terms of section 27(5) of the nltta, act 22 of 2000), and abnormal loads, including maritime transport links where appropriate. the dot’s ‘national freight logistics strategy of 2005’ document should also be consulted during the development of the freight logistics strategy. the ultimate objective of the freight logistics strategy is to improve the efficiency of urban goods movement in and through nmbm in line with the objectives of the national freight logistics strategy. this chapter sets out the various components and focus areas of a freight logistics strategy, which includes information that is currently available, as well as recommendations for the further development of a freight logistics strategy for the nmbm area. 9.1 vision, goals and objectives the freight logistics strategy has to be developed within the broad framework of a vision, goals and objectives based on national, provincial and nmbm policies and objectives relating to freight transport. the relevant policy documents are as follow: national: national freight logistics strategy – nfls (dot, 2005) provincial: provincial freight strategy (draft - not yet adopted by provincial dot, thus unable to obtain copy of draft report) nmbm: nmbm 2006/7 – 2010/11 idp (2010/11 review 9 th edition, 2010) the vision statement of the national freight logistics strategy is as follows: “to provide safe, reliable, effective, efficient and fully integrated land freight transport operations and infrastructure which best meet the needs of customers at improving levels of service at an equitable cost in a fashion which supports government strategies for economic and social development while being environmentally and economically sustainable.” the nmbm’s long term vision as contained in the idp is as follow: “to be a globally competitive and preferred metropole that works together with the people.” the amended citp vision statement as contained in chapter 2 of this report is as follow: “to manage and provide efficient, safe, affordable, sustainable and accessible multi-modal transport services and infrastructure which promotes integrated land-use development and ensures optimal mobility for the residents and users of the transport system in the metropolitan area.” with consideration of the above, a clear vision statement has to be developed for the freight logistics strategy. this vision must set a standard of excellence, be easy to understand and173 comprehensive integrated transport plan: 2011/12 bring with it a responsibility to make it happen. key role-players must also be consulted during this process. an example vision statement derived from the above statements could be as follow: “to manage and provide efficient, safe, affordable, sustainable and fully integrated freight transport services and infrastructure within the metropole, which best meet the needs of customers in a fashion which supports economic and social development while being environmentally and economically sustainable.” the goals and objectives of the freight logistics strategy must be developed within the context of the national and provincial freight logistics strategy objectives. the goals should be the desired direction towards which the urban freight transport system must evolve, whilst the objectives should be specific targets that would assist the achievement of the freight logistics strategy’s vision. the objectives of the national freight logistics strategy are as follow: economic objectives re-evaluation of freight transport’s role in economic development lower transport costs efficient transport systems infrastructure development promotion of bee safety of goods in transit development of strategic transportation corridors promotion of intermodalism reduction of control overloading promotion of small, medium and micro enterprises (smme’s) removal of infrastructural bottlenecks trade facilitation and co-ordination social objectives meeting basic needs alleviating poverty creating jobs developing human resources improving access of rural procedures environmental objectives reduce congestion reduce infrastructure damage reduce exhaust emissions reduce external items like accident costs in light of the above it may be appropriate to develop and group the freight logistics strategy’s objectives under the same three generic goals used in the national freight logistics strategy, namely economic objectives, social objectives and environmental objectives.174 comprehensive integrated transport plan: 2011/12 9.2 freight transport status quo nmbm forms part of the national freight network which consists of 7 primary freight corridors across south africa, with gauteng being the main business hub in the country. the nmbm freight corridor links to the cape town – gauteng corridor, as is shown in the following figure. figure 9-1: primary freight corridors (source: national freight logistics strategy, 2005) according to the national freight logistics strategy (2005), 5 million tons of freight was moved along the nmbm corridor in 2003 and a 39% growth in the volume of freight transported along this corridor is expected by 2020. the predominant commodities transported along the nmbm corridor are: processed food maize chemicals iron, steel and ferro-alloys railway equipment motor vehicles the modal services available for the movement of freight to, from and within nmbm area are rail, road, aviation and maritime. the manufacturing industry is a key industry within the nmbm area and consists of the following sectors: automotive (new vehicles & vehicle components) agro processing (dairy, food processing, wool & mohair) clothing & textiles (fabric and upholstery, industrial hosing, medical fabrics, etc.)175 comprehensive integrated transport plan: 2011/12 chemicals (liquid fuels, plastic products, inorganic chemicals, etc) metal & minerals (ferrous and non-ferrous metals) each sector generates and attracts a varying number of freight trips during its daily operations, which is classified as freight movements. the major freight trip generators within the metro are: port of port elizabeth deep water port of ngqura coega industrial development zone (idz) nelson mandela bay logistics park (nmbmlp) port elizabeth airport (air cargo) motorcar manufacturers (volkswagen sa & general motors sa) container terminals in industrial areas all of the major freight trip generating facilities are adequately linked to the city’s main road network, and the relatively new facilities such as the port of ngqura, coega idz and nmbmlp have had new road networks planned and constructed around them for this purpose, as shown in figure 3-7. it is anticipated that as the economic environment improves locally, new facilities such as these will experience further expansion developments over the next few years. the rail network within nmbm, as shown in figure 9-2, are owned and managed by two organisations, namely transnet freight rail (formerly known as spoornet), which manages the national rail network, and the nmbm. the nmbm owns, manages and maintains approximately 70km of railway lines within the nmbm area. the port of port elizabeth is linked with the national rail network at noupoort (some 400km to the north) through the existing electrified railway lines that are located along the eastern edge of the city. two other electrified routes lead to east london via cookhouse and blaney and to cape town via oudtshoorn, george, mossel bay and worcester. the apple express, a narrow gauge railway, links the port of port elizabeth with the deciduous fruit growing area langkloof. the national railway line located to the north of the city runs through the coega idz, and although there is no existing railway station in the idz , future plans include the provision of an expanded rail network and stations within the idz to transport goods and passengers to, from and within the idz. in order to obtain updated status quo information on freight movements within the metro, it is recommended that a combination of the following surveys be carried out on a 3% sample of the commercial vehicle population in the nmbm: classified traffic counts on all the major freight routes. mail-out mail-back questionnaires. surveys and interviews with managers of manufacturing plants, truck drivers and terminal operators. truck origin-destination surveys. consult expert groups comprising of operators, law enforcement officers and industry representatives.176 comprehensive integrated transport plan: 2011/12 once this survey information has been collected it would be possible to determine or confirm the following: characteristics of heavy vehicle types and freight movements. patterns of heavy vehicle movements. major freight corridors. major freight origins and destinations. although the traffic count station and industrial zoning data was used to assist with the identification of freight transport routes within the metro, there seems to be a limited amount of useful freight transport data and hence the above aspects cannot be identified with certainty. it is therefore considered essential to carry out the recommended surveys for the specific purpose of obtaining current and useful freight transport data.177 comprehensive integrated transport plan: 2011/12 figure 9-2: nmbm rail network178 comprehensive integrated transport plan: 2011/12 9.3 needs assessment the transport requirements for each sector of nmbm’s manufacturing industry depends on various factors, e.g. customer operations, lead times, operating policies and freight type. it is therefore essential to assess the transport needs of each of these sectors in order to develop the freight logistics strategy. the needs assessment should include: audit of infrastructure deficiencies and congestion. needs for traffic management. obstacles along roads (e.g. overhead clearances). loading & off-loading facilities in cbd and non-cbd areas. availability & need for truck stops and intermodal transfer facilities. this needs assessment can be done through a visual inspection process, whilst a transport needs questionnaire should be distributed to the various industry sectors on an annual basis to obtain current and useful freight transport data. useful sources of information would be the local business industry and chamber of commerce (percci). upon completion of a formal needs assessment which includes the above requirements, projects have to be identified that would address the needs of the freight industry by improving nmbm’s freight transport system. the identified projects should be incorporated into the nmbm’s annual implementation programme. the following freight transport needs were identified in the 2005 - 2010 integrated transport plan: the co-ordination of freight transport within nmbm through the establishment of an inter-departmental co-ordination committee at the nmbm. enforcement of vehicle overloading regulations. establishment of freight corridors within the nmbm area for use by freight vehicles. establishment of hazardous material routes between suppliers and users within nmbm. establishment of abnormal load routes, which was subsequently done. incident management system for freight transport within nmbm. during october and november 2010 discussions were held with key role-players in the freight transport industry (percci, nmbm traffic department and nmbm roads & stormwater operations (rail)) to discuss needs relative to freight transport within nmbm. the newly identified freight route information was distributed to members of the percci transport task team in november 2010 for comments, along with a freight questionnaire requesting information about freight types, origin / destination, routes used, tonnage, operational needs, abnormal loads and hazardous materials. very limited feedback was however received from the local business industry in this regard. the following matters were raised by members of the percci transport task team: members are of the opinion that the port of ngqura is not currently operating efficiently, mainly due to a lack of heavy-lift cranes and associated equipment, which increases the turnaround time of container ships in the port. six heavy-lift cranes are present, two for each of the three berths, whilst four cranes per berth are considered to be ideal. the following needs relative to overloading were identified by the nmbm traffic department:179 comprehensive integrated transport plan: 2011/12 overloading enforcement needs to be performed outside of normal working hours and over weekends. the level of overloading enforcement has to increase by performing more weight checks. continuous training of loads unit traffic officers. limited space at the nmbm traffic department to impound offensive vehicles. lack of facilities for the readjustment of loads on overloaded vehicles at the nmbm traffic department, e.g. cranes, waiting room, etc. screening areas with level hard surfaces are required within nmbm where the loads unit can use portable weigh mats to check vehicle loads. the recommended screening areas are: victoria drive near arlington tip (walmer); n2 freeway at st george’s strand interchange (wells estate); old cape road near jack’s store (greenbushes); uitenhage-cape road near kruisrivier road (uitenhage). the following needs relative to abnormal loads were identified by the nmbm traffic department and a local company that specialise in the movement of abnormal loads: the identified abnormal load routes should be kept clear from obstructions, e.g. vegetation, overhead signs, etc. the dimensional requirements of abnormal loads to be borne in mind when making road infrastructure changes or improvements along abnormal load routes. bridges and culverts on abnormal load routes should be inspected and tested frequently in terms of their load bearing capacity. the construction of physical traffic calming features, especially traffic circles, on abnormal load routes should be avoided. these features tend to be difficult to navigate and can damage the tyres of an abnormal load vehicle when it is fully loaded. the following needs relative to hazardous material were identified by the nmbm traffic department: lack of facilities at the nmbm traffic department to contain vehicles that transport hazardous material. need exist for the training of traffic officers to deal with vehicles that transport hazardous materials. identification of specific hazardous material routes within nmbm. the following needs relative to rail were identified by nmbm roads & stormwater operations (rail): the continuous theft of railway infrastructure increases maintenance costs of railway lines. increases maintenance funds are therefore required. improved stormwater drainage is required at the uitenhage road railway bridge on the neave industrial service line. adequate funding for the annual wooden sleeper replacement programme. 9.4 operational aspects freight transport operations within nmbm should be seen from the perspectives of the various role-players, namely the nmbm, businesses, transport companies, heavy vehicle drivers, local residents and road users. as part of the freight logistics strategy, the following operational aspects should be investigated through interaction with the above role-players: land-use planning180 comprehensive integrated transport plan: 2011/12 freight network planning loading and off-loading facilities day-time and night-time operations law enforcement safety and collision hotspots truck stops & overnight facilities 9.5 freight transport network the modal services available for the movement of freight to, from and within nmbm area are rail, road, aviation and maritime. the movement of freight by road within nmbm comprise of the following: movement of goods to and from the port of port elizabeth, port of ngqura and railway for export, import and national distribution. movement of goods to and from nmbm from and to other national destinations. internal distribution of goods consumed and produced within the nmbm area. movement of goods to and from the port elizabeth airport. the areas within nmbm zoned for industrial use are shown in figure 3-7, and the majority of these areas are located adjacent to the metro’s arterial road network. these industrial areas are therefore easily accessible for the movement of freight by road and the arterial road network is able to accommodate these movements. the identification of freight routes within nmbm, as shown in figure 3-7, is considered beneficial to freight transporters, law enforcement officers and the nmbm, as it would place the focus on specific routes with regards to monitoring, maintenance and law enforcement. the main movement of freight by rail within nmbm comprises of the following: port of port elizabeth container traffic national distribution. port of port elizabeth container traffic local distribution. manganese ore from hotazel to port of port elizabeth. fruit and timber to port of port elizabeth (apple express). the following table provides details about the municipal railway lines and the business that currently utilise these lines for freight transport. table 9-1: nmbm railway lines and current users (source: nmbm) service line name line number businesses served markman 340383 african hide trading general motors sa – private siding 340359 markman market – no service redhouse / perseverance 343242 south african breweries (sab) deal party 342106 protea chemicals cape gas centre valor fruit processors the reclamation group (reclam) afrox transnet container depot sasko181 comprehensive integrated transport plan: 2011/12 service line name line number businesses served struandale 342998 easigas ppc neave 341444 meadow feeds eastern cape uitenhage 343382 alexander park industrial – no service 343595 curry – no service the two motorcar manufacturers located in nmbm, namely volkswagen sa & general motors sa, also utilises the city’s rail network for the transportation of their new vehicles to the port of port elizabeth for export purposes. general motors sa has a private siding on their property in markman from where vehicles are loaded. volkswagen sa makes use of the loading platforms at the uitenhage railway station to load their vehicles. the freight logistics strategy should further investigate the utilisation of the rail network within nmbm for the movement of freight. transnet freight rail has indicated that approximately 40% of the capacity of the existing rail network are being utilised at present. ample spare capacity does therefore seem to exist on the nmbm rail network, although limited bottlenecks do exist. 9.6 truck stops truck stops and overnight facilities are a necessity for long distance heavy vehicle drivers, since it provides them with the necessary facilities to rest, eat and refuel their vehicles. the details and locations of truck stops within nmbm are shown in the following table. table 9-2: truck stops & overnight facilities (source: internet) name address andy’s truck port 127 grahamstown road, deal party, port elizabeth total deal party 223 old grahamstown road, deal party, port elizabeth swartkops truck stop autonet yard, old grahamstown road, swartkops caltex pe truckers inn 1 st george’s street, wells estate 9.7 freight transport strategy as part of this freight logistics strategy, a freight transport strategy must be prepared that includes the following issues: road-user charges. environmental aspects (e.g. carbon-footprint policy). movement of abnormal loads and hazardous materials. application of new freight transport technology. re-planning of the urban structure. the freight transport strategy must support the policies and objectives set by the national and provincial freight logistics strategy reports, and as a minimum include the following: brief status quo assessment. brief summary of relevant national and provincial strategies. specific principles and objectives to be achieved. proposed strategy.182 comprehensive integrated transport plan: 2011/12 short and long term action plans, including specific projects. the 2009/10 citp’s freight logistics strategy contained updated information about the freight transport proposals presented in the 2005 - 2010 integrated transport plan, namely: the establishment of an inter-departmental committee between the infrastructure and engineering directorate and the safety and security directorate to address specific freight transport problems in the nmbm area. this committee was not set up at the time the 2009/10 citp was prepared. this proposal has not been acted upon (october 2010). the establishment of a specialist overloading control team to effectively address the problem of vehicle overloading. this proposal has been implemented by the nmbm traffic department through the establishment of the loads unit (october 2010). the establishment of a network of freight transport corridors that can be the subject of regular monitoring and the provision of adequate signage. this proposal has not been acted upon (october 2010). the preparation of a master plan for a network of roads and bridges to serve the movement of freight by heavy vehicles. this proposal has not been acted upon (october 2010). the preparation of a comprehensive freight transport strategy, in consultation with the local business industry and chamber of commerce, was recommended. this proposal has not been acted upon (october 2010). a map indicating abnormal load routes was included in the 2009/10 citp. the 2009/10 citp’s freight logistics strategy also addressed the issues of overloading, abnormal loads and hazardous materials to some extent. these issues have subsequently been reviewed during the preparation of the 2011 – 2015 citp. 9.8 overloading an overloading management system was implemented in nmbm in 1995 and initially yielded significant results with at least an average of 100 vehicles being weighed per month. however, this management system never fully developed due to lack of manpower. presently the overloading law enforcement team, the loads unit, consists of 6 full time traffic officers that perform overloading enforcement on an ad hoc basis from monday to friday during normal working hours. many overloading offences are however believed to occurring during weekends. the most frequent overloading offenders tend to transport maize, sand, building material, cement and asphalt. the routes within nmbm on which overloaded vehicles are normally encountered are: n2 freeway (west and north). uitenhage road (r334) / cuyler street in the vicinity of kruisrivier road, uitenhage. redhouse road, perseverance. main road, perseverance. mission road. m4 settlers freeway. strathsomer street / highfield road. r334 in vicinity of coega hotel (tankatara). the nmbm traffic department currently has two portable weigh mats available for use to screen a vehicle’s weight on site. the portable weigh mats are however not frequently used due to a lack of suitable screening areas. therefore, current detection practices within183 comprehensive integrated transport plan: 2011/12 nmbm involve visual identification of potential offenders by traffic officials, after which the potential offenders are escorted to the permanent weighbridge at the sidwell traffic department for legal verification. the 22m long weighbridge and control office at the sidwell traffic department is fully operational and the facilities are in a moderate condition. these facilities were last upgrade in 1995. the provincial traffic department has a traffic control centre located on the n2 at kinkelbos near the north eastern boundary of the metropolitan area. this centre is part of a nationwide overloading control program and is situated to intercept heavy vehicle traffic to and from the north and east on the n2, n10 and r72. records were obtained from the nmbm traffic department for the sidwell weighbridge from 2006 to 2010 to assess its utilisation. table 9-3 indicates the number of overloading offences in relation to the number of vehicles weighed on a monthly basis. from these statistics it is evident that the current usage of the weighbridge is about half of what it use to be in the 2006/07 financial year.184 comprehensive integrated transport plan: 2011/12 figure 9-3: weighbridge at sidwell traffic department figure 9-4: weighbridge control office at sidwell traffic department185 comprehensive integrated transport plan: 2011/12 table 9-3: sidwell weighbridge statistics (source: nmbm traffic department)186 comprehensive integrated transport plan: 2011/12 9.9 abnormal loads the dot’s trh11 dimensional and mass limitations and other requirements for abnormal load vehicles (aug 2009) defines abnormal loads as “an indivisible (for practical purposes) object that, due to its dimensions and/or mass, cannot be transported on a vehicle or vehicles without exceeding the limitations of the dimensions or mass as described in the national road traffic regulations, 2000”. the trh 11 fulfils an important role as it assist road authorities and carriers to assess and minimize the risks created through the movement of abnormal vehicles on the road network. the abnormal load routes included in the 2009/10 citp were reviewed and discussed with the nmbm traffic department and a local company that specialise in the transportation of abnormal loads. some of these routes were found to be problematic for abnormal roads due to recent road infrastructure changes and improvements which now act as obstructions. the new iptn bus lanes and associated infrastructure in the pe cbd was highlighted as a major obstruction for abnormal loads from the cbd area, limiting the number of usable egress routes. the majority of abnormal loads originate at the port of port elizabeth and consist of loads with either abnormal width or abnormal height. the loads with abnormal height are considered to be most problematic as they are severely affected by overhead objects like bridges or cables. the port entrances able to accommodate abnormal loads are the green street entrance and the valley road entrance. the port of ngqura is not currently licensed to handle heavy goods loads, only container loads, therefore no abnormal loads are currently moved from this port. major road network expansions and improvements are currently underway in the vicinity of the port of ngqura, which should have the ability to accommodate abnormal loads in future if their goods license situation changes. six abnormal load routes have subsequently been identified within nmbm, which are the routes currently used and preferred by the various role-players. these routes are detailed in the following table and figure 9-5. table 9-4: abnormal load routes name route description notes cross-city route from buffelsfontein road; 17 th avenue; william moffett expressway; cape road; mount road; diaz road; kempston road; standford road; chase drive to uitenhage road. route suitable for wide loads but not high loads. new overhead sign on the william moffett expressway, near oak road, is a height obstruction. route congestion during peak traffic periods. foreshore route green street; govan mbeki avenue; mount road; m4 settlers freeway; n2 freeway (north). route suitable for wide loads but not high loads. height obstruction (5.2m) caused by new bridge over n2 freeway north of st george’s street.187 comprehensive integrated transport plan: 2011/12 name route description notes pe port – city north route green street; govan mbeki avenue; mount road; diaz road; kempston road; standford road; chase drive; mati road; ferguson road; grahamstown road; john tallant road; n2 freeway (north). route suitable for wide loads but not high loads. height obstruction (5.2m) caused by new bridge over n2 freeway north of st george’s street. pe port – city west route valley road; south beach terrace; walmer boulevard; heugh road; buffelsfontein road; seaview road; kragga kamma road; lakeside road; seaview road; old cape road; rocklands road; uitenhage road; cuyler street; caledon street; union avenue. for cape town via graaff-reinet use r75 tofile street (north). for johannesburg via addo and paterson use r75 tofile street (north); r334 daniel pienaar street; r335 st george’s street (north). main abnormal load route out of nmbm suitable for wide loads and high loads. new overhead sign on buffelsfontein road, opposite kings court mall, is a height obstruction. pe port – markman route green street; govan mbeki avenue; mount road; diaz road; kempston road; standford road; chase drive; mati road; struan way; daku road; dibanisa road; st george’s street. route suitable for wide loads and high loads. optional extension of route for high loads (5.2m) to north is continue with dibanisa road (r102) past coega hotel; once over coega river take new road to the right which leads to new bridge at n2 freeway to join the n2 freeway (north). pe port – uitenhage route green street; govan mbeki avenue; mount road; diaz road; kempston road; standford road; chase drive; uitenhage road; r75 tofile street; algoa road. route suitable for wide loads but not high loads.188 comprehensive integrated transport plan: 2011/12 figure 9-5: abnormal load routes189 comprehensive integrated transport plan: 2011/12 9.10 hazardous material 9.10.1 current situation in hazardous material transport the movement of hazardous material cultivates varying responsibilities for the nmbm. like in many other municipalities in the country, there are currently limited enforcement measures in place to regulate the movement of dangerous goods within or through nmbm. no specific hazardous material routes currently exist, therefore the movement of dangerous goods within nmbm are handled on an ad-hoc basis by the nmbm traffic department and the south end division. the nmbm traffic department does however not have adequate facilities to contain offensive vehicles that transport hazardous material, therefore limited controls are enforced on these vehicles at present. the nmbm has a central control room, located at the south end station, which directs and deals with the co-ordination of movement of dangerous goods. the nmbm fire department trains its staff on the registration, monitoring and enforcement of dangerous goods companies. the hazmat is the responsibility of the south end division and co-ordinates all activities or responses with other divisions. the specially equipped fire stations in the nmbm are south end and uitenhage. the other stations do not have some of the specialised equipment necessary for handling hazardous material incidents. the unit keeps abreast of latest technology and has fully trained staff members at its disposal. a disaster contingency plan for transportation of hazardous materials was prepared in march 2010 for nmbm. this plan identifies manufacturers of hazardous materials and lists hazardous materials that are transported in or through nmbm. it records the roles and responsibilities of various stakeholders to mitigate disaster risk, provides contact numbers of these organisations and defines a generic response and recovery procedural flow diagram that is implemented during an incident. 9.10.2 development of hazardous material transport routes three hazardous material routes have been identified within nmb as detailed in the following table and figure 9-6. table 9-5: hazardous material routes name route description notes cross-city route n2 freeway through nmbm. wide road reserve present, thus ideal safety barrier between hazardous load and properties adjacent to road. ideal through route for nmbm. foreshore route m4 settlers freeway between n2 freeway and port of port elizabeth. wide road reserve present, thus ideal safety barrier between hazardous load and properties adjacent to road. link between port of port elizabeth and n2 freeway. pe – uitenhage route from n2 freeway; r75 uitenhage road; r75 tofile street; algoa road. wide road reserve present, thus ideal safety barrier between hazardous load and properties adjacent to road. link between port elizabeth and uitenhage.190 comprehensive integrated transport plan: 2011/12 the effectiveness of the hazardous material routes defined in the previous table can be evaluated by considering the proximity and accessibility of major hazardous installations (mhis) to the routes. mhis include sources, storage and handling facilities of hazardous materials. the following mhis have been identified in nmb and are indicated on figure 9-6: easigas, eveready road, sidwell umicore, john tallant road, deal party aeci coating faculties, struandale afrox, burman road, deal party bulk oil sites, port elizabeth harbour, central air products, 2 metcalf street, deal party ibhayi breweries, 47 kohler street, perseverance plascon automotive, bedford street, neave delta motor corporation, kempston road, sidwell vita foam, north end water technologies, neave township delta motor corporation, struandale the rose foundation, paterson road, north end safetech, fresh produce terminal, port elizabeth harbour safcor panalpina, oakworth drive, humerail safcor freight (pty) ltd, 54 york road, north end water reclamation works, driftsands fish water flats, john tallant road, swartkops rennies cargo terminal, 5 darby street, deal party bayer animal health, 54 york road, north end cadbury, harrower road, kensington rocklands poultry, kruisriver road, uitenhage a number of the mhis are located in industrial areas close to the n2 (deal party), r75 (struandale industrial) and m4 settlers freeway (port elizabeth harbour). these mhis are well situated to make use of the defined hazardous material routes and their locations allow access to these routes via relatively short links that are situated within industrial zones. a few mhis in north end, kensington and neave industrial (plascon automotive, cadbury, safcor freight and bayer) are situated further from the defined hazardous material routes. freight to and from these locations should use standford road and harrower road, linking with the n2, because these are higher order roads with large road reserves. land uses adjacent to these roads are also primarily industrial and commercial, isolating hazardous materials from residential areas.191 comprehensive integrated transport plan: 2011/12 figure 9-6: hazardous material routes192 comprehensive integrated transport plan: 2011/12 9.11 liaison structures an urban freight transport consultative forum must be established with the purpose of acting as the liaison structure for the different role-players in the freight industry within nmbm. this forum should also promote more efficient and cost-effective transport within the nmbm area. the 2009/10 citp contained a proposal for the establishment of an inter-departmental committee between the nmbm’s infrastructure and engineering directorate and the safety and security directorate to address specific freight transport problems in the nmbm area. this committee should address the following matters: road freight transport operations road maintenance legislation policing judicial / legal matters insurance financial matters. this proposed committee has to date not been set up, primarily due to a lack of resources. it is however recommended that further efforts be made to establish the proposed committee. 9.12 implementation projects and programmes a programme must be developed for the implementation of identified freight transport projects within nmbm. this programme should contain a description of the identified projects, the proposed actions and a 5 year implementation budget. the 5 year budget should be detailed for the first year, with summarised information presented for years 2 to 5. the budget should also make provision for future maintenance and replacement costs expected until the end of the life of a project. no specific programme or budget dedicated to freight transport projects currently exist within the nmbm. potential freight transport projects identified from information collected during the preparation of this citp is shown in the following table: table 9-6: identified freight transport projects no. project project description total cost (r) general 1 freight logistics strategy prepare a comprehensive freight logistics strategy for nmbm based on the information provided in the 2011/12 citp. 500,000 railway 2 uitenhage road railway bridge improve stormwater drainage on the neave industrial service line at the uitenhage road railway bridge. 500,000 vehicle overloading193 comprehensive integrated transport plan: 2011/12 no. project project description total cost (r) 3 vehicle load screening areas construct screening areas with level hard surfaces at the four identified locations within nmbm. 200,000 4 load handling facilities provide facilities for the readjustment of loads on overloaded vehicles at the nmbm traffic department. 100,000 abnormal loads 5 abnormal load route audit audit of abnormal load routes to identify current and potential obstructions. 100,000 6 massload carrying capacity of bridges and culverts bridges and culverts on abnormal load routes to be inspected and tested in terms of their load bearing capacity. 500,000 hazardous materials 7 containment facilities provide facilities at the nmbm traffic department to contain vehicles that transport hazardous material. 200,000 total 2,100,000 9.13 funding the freight logistics strategy should identify the available funding sources from each sphere of government, together with the anticipated shortfalls. existing and possible new funding sources, such as road user charges for example, should also be identified. no existing or new funding sources for specifically freight transport projects have been identified by the nmbm to date. 9.14 monitoring the identified freight transport related projects must be monitored on a regular basis to ensure that the anticipated goals are achieve, through the development of key performance indicators (kpi’s) for each project against which success can be measures. no programme is currently in place for the monitoring of freight transport projects within nmbm.194 comprehensive integrated transport plan: 2011/12 10 other transport-related strategies 10.1 non-motorised transport 10.1.1 background non-motorised transport is often taken for granted in the planning of transportation networks and the land use arrangements associated with this type of transport. walking plays an important role in the lives of many south africans and it is often the only means of transport, particularly for people living in rural areas. it is not only the most affordable method of travelling, but nmt has the least impact on the environment, is the most sustainable way to travel and has health benefits. the benefits of nmt for a society are numerous thus they are promoted within the nelson mandela bay in its many forms. with the advent of urban sprawl where commuting distances are increasing, there exists a greater potential to promote the usage of cycling than to encourage pedestrians to walk further. the majority of the population is poor, and with motorised transport costs increasing and the aspect of overloading and road safety, cycling as a means of non-motorised transport should be addressed. cycles are generally affordable and if promoted correctly, this potential can only increase 10.1.2 definition of nmt non-motorised transport includes all modes of transport that are not propelled by a motor. non-motorised transport (nmt) is either non-mechanised i.e. pedestrians (walking) or mechanised which includes bicycles, wheelchairs, prams, trolleys, carts (human or animal drawn), wheelbarrows, and rickshaws. non-motorised transport can include personal travel (such as walking or cycling), passenger transport (e.g. rickshaws, wheelbarrows for transporting the elderly or ill to health care facilities in rural areas) and the transport of goods (e.g. wheelbarrows, head loads, carts, etc). these are all important means of transportation but often get forgotten in planning. walking and cycling are the most predominant mode of nmt within the nelson mandela bay municipality with animal drawn transport being the least predominant and found mostly in low income communities. 10.1.3 nmt in south africa the national household travel survey of 2003 (nhts) revealed that non-motorised transport is a significant form of transport in south africa. indeed this should not come as a surprise. almost every trip to public transport, even to many private car trips, begins and ends with a walking trip. the nhts indicated that south africans accessing public transport walk between 12 and 30 minutes on average to access a public transport service. in addition, nmt as a primary mode is vitally important as almost a quarter of all south africans walk to work. 10.1.3.1 urban nmt nmt in urban areas generally takes the form of walking, and to a lesser extent, cycling. as vehicles are more prevalent in urban environments, nmt can be disadvantaged where wide busy roads make walking and cycling difficult (where no infrastructure is provided) and unsafe (due to the conflict with fast-moving vehicles). the design of urban areas in south african cities has generally favoured the car as the preferred type of transport, making it difficult to walk through an area or between properties and forcing people to walk on roads rather than on a pathway.195 comprehensive integrated transport plan: 2011/12 as formal infrastructure, such as sidewalks and cycle ways, are found in urban environments the design of these networks becomes important. continuity in the network, “directness” of routes, and the engineering design of the pathway can contribute significantly to the usefulness of the infrastructure. universal design principles should always be used in designing and building the infrastructure so that as many people, including those with special needs (such as users of wheelchairs, prams, etc) can make use of the infrastructure. 10.1.4 infrastructure a pedestrian sidewalk and cycle path masterplan was prepared for the nmbm in june 2005 and this citp includes several projects involving the provision of sidewalks and cycle ways throughout the metropolitan area in support of non-motorised transport, which will also help to achieve the goals of travel demand management. figure 10-1 shows the sidewalks and cycle paths in nmb as per the above masterplan. funding to implement the masterplan was applied for from the municipal infrastructure grant (mig) programme. in the 2009/10 financial year (phase 11) 31.02 km of cycle tracks and sidewalks have been implemented in the nmbm at a total cost of r27.88 million. to date 138.65km of nmt infrastructure facilities have been constructed within the nmbm and 24.24km is planned for phase 13 in the 2010/11 financial year at a cost of r24.248, as shown in the following tables. at the time of preparing this report, the 2011/12 implementation budget for the nmt projects to be included in phase 14 was unavailable for inclusion into this report. the pedestrian sidewalk and cycle path masterplan has developed a non-motorised transport network consisting of the following elements. table 10-1: nmt network elements item length sidewalks primary routes 200 km secondary routes 112 km tertiary routes 98 km total 410 km cycle paths primary nmt routes 380 km the following table shows the breakdown of the lengths of the facilities constructed. table 10-2: length of facilities constructed and phases phase length (km) phase 1 32.19 phase 2 3.41 phase 3 11.11 phase 4 13.24 phase 6 5.11 phase 7 6.36 phase 8 8.01 phase 9 15.55196 comprehensive integrated transport plan: 2011/12 phase length (km) phase 10 12.66 phase 11 31.02 total 138.65197 comprehensive integrated transport plan: 2011/12 table 10-3: phase 13 (2010/11) nmt implementation list198 comprehensive integrated transport plan: 2011/12 figure 10-1: non-motorised transport199 comprehensive integrated transport plan: 2011/12 10.1.5 planning and integration the nmbm has prepared the pedestrian sidewalk and cycle path masterplan independently of the citp. the masterplan provides for the provision of non-motorised facilities on all arterial and collector routes throughout the metropolitan area and takes into account the required accessibility of major land uses such as shopping centres, educational institutions, public buildings etc. this masterplan will be revised and updated in due course. furthermore, the nmbm is currently in the process of developing a nmt policy to aid the planning, design and implementation processes of nmt projects in nmb, e.g. projects identified in the masterplan. in addition to the above, the 2005 integrated transport plan proposes that the use of bicycles be promoted through the shova kalula project, an initiative that is being actioned by the provincial government. it is proposed that this initiative be actively pursued. the planning of nmt facilities in the nmbm has generally been limited in the past, and the need has now arisen to develop an overall masterplan framework in which these systems can be developed. a vast majority of the population especially those in disadvantaged areas, rely solely on nmt facilities (cycling to a very limited extent) to reach their places of preference and need. these areas are particularly large in extent and travel distances are increasing and the need for further development arises. travel routes in certain areas are congested and non-motorized traffic is consequently exposed to accidents. the masterplan included: develop goals and objectives including needs assessment, promotion of usage, safety and facility improvement assess the potential of the existing land use to incorporate bicycle and pedestrian facilities service areas determination based on maximum travel distances existing facilities inventory potential constraints and opportunities potential policies for new housing major travel corridors and roadway inventory conduct surveys to determine needs formulate standards evaluation of proposed pedestrian and bicycle network and, a masterplan / network of routes. the masterplan has also identified the following issues in terms of nmt in the nmbm: industrial activities mainly relating to the motor industry account for 43 % of the major trip attractor coverage within the metro; a distinct pattern exists when the inter connectivity is evaluated throughout the metro from the maximum travel distances for non-motorised transport. direct linkages exist between existing communities except for between despatch and kwamagxaki/kwadwesi and to a certain extent between walmer and summerstrand and similarly between motherwell and ibhayi; it has been determined that more than 1 295 km of sidewalks have been provided throughout the metro;200 comprehensive integrated transport plan: 2011/12 disadvantaged areas only account for 19.3 % of the distribution of sidewalks in the metro; the three most high risk roads within the metro appear to be njoli street, koyana street and daku roads; 73% of pedestrian accidents occur in streets; the dominant mode of transport in the nmbm to school or work is by walking (53 %). this is followed by using motorised transport (18 %) to deliver pupils to schools; 40 % of persons who walk, are from the disadvantaged areas north of the metro. conversely, 55% (303 cyclists) use bicycles as their main transport mode from the southern areas of the metro. 31 % use bicycles from the northern areas of metro; non-motorised movement at intersections indicated that 94% is pedestrian activity, with 6% related to cyclists and 0.03% being disabled (wheelchairs); weza street in motherwell, and uitenhage road at johnson road had the highest pedestrian movement specific standards have also been set in terms of prioritizing and implementation of nmt in the nmbm, these are: nmt facilities are categorised into primary, secondary and tertiary routes the categorisation was based on nmt movement volumes minimum width of a paved sidewalk is 1.2m primary nmt routes will have a 1.8 m wide sidewalk on either side of the road (off road) secondary nmt routes will have a 1.5 m sidewalk on one side of the road (off road) tertiary nmt routes will have a 1.5 m sidewalk on one side of the road (off road) a cycle path of 1.2 m wide will be incorporated within the road width along both sides of primary nmt routes. exceptions where width constraints dictate may result in portions of cycle paths (1.2 m) combined with sidewalks on either side of the road in some, cases a cycle path of 2.5 m wide may be incorporated along specific primary nmt routes separate from the road i.e. recreational facilities walkway ramps should have a maximum slope of 8 %, a minimum width of 1.0m and maximum cross slope of 2% handrails are required at slopes greater than 8% a ranking system should be applied to determine priorities for nmt facilities. this is based on gradient, flood, pedestrian accident, non-motorised volume and motorised volume ranking parameters 10.1.6 needs assessment 10.1.6.1 analysis of land usage and major trip attractors in order to provide a defined approach in the assessment, the nmbm is classified into three main geographical jurisdictions namely port elizabeth, despatch and uitenhage. in each case the major trip attractor is the central business district (cbd) which in most cases includes commercial, provincial and local governmental institutions. these areas are accessed by either freeways and/or by roads of metropolitan significance (roms). in some cases, these cbd's are accessed by railway and harbour networks. surrounding these jurisdictions, commercial and industrial activities generally take place - such as the north west of the port elizabeth's cbd and the south of uitenhage's cbd. further a field urban sprawl has developed into residential areas with nodal shopping centres, small businesses and health care facilities. major parks and public open spaces are201 comprehensive integrated transport plan: 2011/12 found along topographical features. schools are generally located in residential areas with educational facilities found on the periphery. 10.1.6.2 analysis of existing land use prior to 1994, the majority of disadvantaged communities lived along the perimeter of towns and cities and had to be bussed to places of work. subsequent to 1994, freedom of movement is not prejudiced and communities are free to move. however, informal and low cost development still occurs along the boundaries as populations increase, thus increasing trip distances. as fuel prices increase and motorised transport become less affordable, there is and increased need to develop non-motorised transport facilities amongst these communities. although certain sidewalk infrastructure is in place, a clear understanding is required to assess the impact of major trip attractors within the nmbm. the fundamental approach is to evaluate the existing land usage and analyse the movement of people between residences and their applicable attractors, for example: industrial activities - motor industry, pharmaceutical; educational facilities - schools, colleges, technikons and universities; commercial facilities- shopping centres, garages and multi store centres; health and welfare facilities-hospitals, clinics and pension payout points; recreational and sporting facilities-parks, sports fields, the beach front, etc; transportation centres - taxi ranks, bus stations, airports, harbour and railways tourism sites. 10.1.7 south african policies and resources 10.1.7.1 national framework the national land transport strategic framework makes nmt a legal requirement (clause 21of the nltta). 10.1.7.2 national guidelines for planning and infrastructure design the pedestrian and bicycle facility guidelines prepared by the department of transport, deals primarily with pedestrians and cyclists and acknowledge the needs of persons with special needs. the guidelines highlight a number of key issues to consider in the provision of pedestrian and bicycle facilities and provides excellent detail for planning and designing facilities for pedestrians, cyclists and wheelchair users by providing guidance and engineering detail, and ends with a planning process for nmt. both the rural and urban environments are acknowledged. previous guidelines were the pedestrian facility guidelines: manual to plan, design and maintain safe pedestrian facilities, 1993, report no 92/126; and guidelines for the planning and design of bicycle facilities, 1987, report no pg 3/87. the contents of the guidelines are: part a: pedestrian and bicycle controls part b: pedestrian and bicycle crossings202 comprehensive integrated transport plan: 2011/12 part c: pedestrian and bicycle ways part d: pedestrian and bicycle amenities and support part e: pedestrian and bicycle places part f: pedestrian and bicycle planning appendices: pedestrian and bicycle road signs and markings, and bibliography the guidelines for human settlement planning and design (department of housing/csir) provides a good resource for guiding planning with regards to the development and incorporation of nmt into the design of areas (particularly urban). chapter 5 of the guidelines provide good examples of how to plan and retrofit areas. the national road traffic act (act 93 of 1996, as amended) and regulations sadc and south african road traffic signs manual (department of transport, 1999); and south african road safety manual (department of transport, 1999) are also relevant. 10.2 safety and security strategy according to the dot document ‘technical transport planning guidelines for citp’s to be prepared by type 1 planning authorities (february 2009)’, this chapter must as a minimum requirement include reference to the development of a safety and security strategy for the nmbm. however, according to the above document, no guidelines currently exist for the preparation of such a strategy and it indicates that further discussions will be held by the guidelines review committee, presumably at a national level, regarding this matter. it is possible that a practical model for the development of a safety and security strategy will result from the current ipts developments in the various metropolitan areas throughout south africa. safe and secure transportation is fundamental to a city like nmb. appropriate road safety education and law enforcement goes hand-in-hand with improved safety and security for both supply and demand of all transport aspects. the safety, security, education and enforcement strategy contained in the itp for the city of cape town 2006 – 2011 prepared in may 2009 has been drawn upon for guidance as to what content a safety and security strategy should include. the city of cape town is considered to have a good safety reputation and would therefore be a good example in this regard. the following aspects are considered vital in the development of a safety and security strategy: incident management – e.g. the handling of road accidents on the main road network. disaster management – dealing with wide spread disaster situations, e.g. flood. special event management – handling pre-planned events, e.g. music concerts. pedestrian safety – priority strategies could for example be: o institutional integration o planning o road environment o awareness o education o enforcement traffic safety – increased efforts to improve road safety within the city, e.g. roadworthy vehicles. passenger safety – passenger safety measures in place on new ipts buses and at stations.203 comprehensive integrated transport plan: 2011/12 11 funding strategy and summary of proposals and programmes 11.1 summary of proposals the major transportation system in the nmbm comprises of the following elements: main roads (freeways and arterials) – designated as provincial proclaimed main roads (pmr) by provincial gazette roads of metropolitan significance (roms) – roads other than provincial proclaimed main roads, designated in the citp as major links in the network and main public transport routes. public transport facilities – terminals, shelters, stops, public transport lanes. traffic control systems – traffic signals located on pmr’s or roms projects comprising the above facilities that have been identified in the citp are summarised in table 11-1. the table includes all projects that have been identified for implementation within the timeframe of the citp i.e. between the 2011/12 and 2015/16 financial years, a five year time-span. projects identified for implementation in the medium and long terms i.e. 10 to 20 years have been excluded, but are indicated in the tables in chapter 7. the table excludes backlog costs that were not budgeted due to affordability levels and therefore does not indicate the actual funding requirements to eliminate infrastructure and maintenance backlogs over the five year period. public transport projects are included. the provincial government has not devolved full responsibility for proclaimed main roads to the nmbm. on the contrary, the provincial government retains responsibility for these roads as the road authority and requires that any changes to these roads, including structural changes to the road itself, or land uses changes adjacent to these roads, be referred to the province for approval. standards and requirements have been established by the provincial government and regulations on access, signage and technical standards have been set by the province on pmr’s. although the nmbm undertakes the maintenance and development of pmr’s, on behalf of the provincial government, there are several roads within the metropolitan boundary that are still entirely the responsibility of the provincial government. these include roads such as provincial trunk roads 63 and 15, addo road, old cape road, kragga kamma road (portion) and several others. there are also a significant number of minor roads falling in rural areas that were previously included in the district council area (prior to the establishment of a metropolitan municipality) and have not been handed over to the nmbm. the provincial government is responsible for the financing of the maintenance and development of these roads. the department of roads and public works has initiated a process to reclassify all provincial roads and to devolve responsibility of all roads within the metropolitan area to the nmbm. the citp provides for the development of the major transport network including provincial proclaimed main roads and other projects of metropolitan significance.204 comprehensive integrated transport plan: 2011/12 local transport infrastructure (local roads and facilities) is entirely the responsibility of the nmbm. the following table lists a selection of major projects, excluding public transport projects, most of which were previously included in the 2009/10 comprehensive integrated transport plan. the estimated cost of the projects has been updated and a motivation for each project is included in the table. it should be noted that several projects are urgent and affect the structural integrity of bridge structures, the accessibility of economic development areas and road safety. table 11-1: five year funding requirements for major projects ref. no. project description total cost (r - m) motivation new metropolitan transport planning 25 planning and administration 19930001 mr 425 settlers freeway repairs 0.6 elevated freeway structure in dire need of structural rehabilitation (urgent) 19930002 resurfacing subsidised roads 50 roads in a poor condition requiring urgent annual maintenance 19980211 norvic drive extension 3 access road to a development area. 20010260 mel brooks (baird to cuyler) 11 required to relieve traffic congestion and improve access to major industries (vw) 20060251 access road to chatty developments (standford rd and bloemendal arterial) 53 access road to development areas. 20070137 rehabilitation of algoa road, penford road, tyityaba street, lee samuel drive, lindsay road, brickfields road, & avenue c & e 75 access roads to various development and industrial areas. 19990144 william moffett expressway rehabilitation 67.3 dual carriageway road serving a major development area in a very poor condition requiring urgent reconstruction. 20010257 magennis street reconstruction 20 road serving major industries (vw) in a poor condition. 20010018 20010019 20010020 traffic improvements n2: cotswold, standford and kragga kamma interchanges 0.9 required to relieve congestion on existing roads. 19940204 buffelsfontein / heugh road widening 64 major traffic congestion. new widen buffelsfontein road and heugh road to 4 lanes from 8th avenue to titian road. 104.2 required to relieve congestion on existing roads. 20060186 remedial works: pell street interchange 20.00 elevated freeway structure in dire need of structural rehabilitation (urgent) 19980253 intersection improvements 12.5 required to relieve congestion and/or improve road safety on existing roads.205 comprehensive integrated transport plan: 2011/12 ref. no. project description total cost (r - m) motivation 19980220 traffic calming measures 12.5 required to improve road safety on existing roads. 20070132 new traffic signals 8.5 required to relieve congestion on existing roads. 20060020 provision of sidewalks and cycle tracks 105 required for the promotion of non-motorised transport. 20090079 construction of footbridges 32.5 required for the promotion of non-motorised transport. the following table indicates a summary of the proposed public transport projects required for the further implementation of the integrated public transport system over the next five years: table 11-2: summary of public transport projects no project description total project cost – 5 yrs (r) 1 pt work package: ipts bus lanes 860,530,000 2 pt work package: ipts shelters 312,400,000 3 pt work package: ipts modal interchanges 231,000,000 4 pt work package: ipts operational costs 2,083,400,000 5 pt work package: ipts planning & design 89,100,000 ipts work packages total 3,576,430,000 the following table indicates a summary of the road and transport projects and total costs that have been included in the five year capital programme. the table excludes backlog costs that were not budgeted due to affordability levels and therefore does not indicate the actual funding requirements to eliminate infrastructure and maintenance backlogs over the five year period. note that non-ipts related public transport projects are not included in the following table and amounts to r3,200,000 for the five year period 2011/12 to 2015/16. table 11-3: summary of road and transport projects no. project description total project cost – 5 yrs (r) 1 pl1 metropolitan transport planning 41,862,100 2 r2 road maintenance 72,600,000 3 t1 access & connectivity improvements 423,500,000 4 t2 rehabilitation of major roads 210,303,550 5 t3 road capacity improvements 354,800,000 6 t4 rehabilitation of bridge structures 45,000,000 7 t5 traffic & signage improvements 73,678,625 8 t6 non-motorised transport facilities 145,127,500 9 t7 freight transport 2,100,000 grand total 1,368,971,775 the nmbm capital budget for 2011/12 - 2013/14 and the ‘budget proposals for the 2011-14 mtef ptis grant’ report dated 29 july 2010 have been used to prepare a capital budget for the citp for the five year period 2011/12 – 2015/16. the full budget has been included in appendix “a” attached hereto. the budget also indicates the proposed sources of funding.206 comprehensive integrated transport plan: 2011/12 11.2 funding strategy 11.2.1 background funding sources for the implementation of the projects included in the citp by the nelson mandela bay municipality are regulated in terms of national legislation and annual expenditure ceilings are regulated by national treasury. traditional sources are however supplemented by grants from provincial and national level. transportation projects included in the proposed citp are therefore funded from a number of different sources, some of which are conditional on expenditure being confined to specific project categories. the implications of this are that while some project categories appear to be adequately funded, others fall short of requirements resulting in backlogs of varying severity. the lack of adequate funding in certain categories places severe political pressures on the nmbm, which is sometimes not able to meet funding requirements from its own sources. there is also a historical situation where the nmbm does not have full jurisdiction over some of the transportation infrastructure e.g. provincial proclaimed main roads, where the provincial government remains as the road authority. it is thus impossible for the nmbm to fully fund the maintenance and improvement of all infrastructure entirely from its own sources. 11.2.2 transportation funding requirements the funding requirements as budgeted i.e. not including the full needs and backlogs in excess of affordability levels, for the 2011/12 financial year are indicated in the following table. table 11-4: 2011/12 capital budget no. project no. id project description proposed budget (r) 2011/12 1 20070244 ipts bus lanes 0 sub-total pt work package: ipts bus lanes 0 1 20060229 govan mbeki avenue (russell road to kempston road) 74,800,000 2 20060229 kempston road (n2 to harrower road) 35,200,000 3 20060229 fettes road / harrower road (govan mbeki avenue to kempston road) 26,400,000 sub-total pt work package: ipts shelters 136,400,000 1 20070124 cleary park modal interchange 55,000,000 2 20070124 motherwell modal interchange 55,000,000 sub-total pt work package: ipts modal interchanges 110,000,000 1 ticketing system 157,400,000 2 transport administration authority 302,000,000 3 operator compensation 220,000,000 sub-total pt work package: ipts operational costs 679,400,000 1 20060243 ipts planning 5,500,000 2 ipts infrastructure design 17,600,000207 comprehensive integrated transport plan: 2011/12 no. project no. id project description proposed budget (r) 2011/12 sub-total pt work package: ipts planning & design 23,100,000 1 20090081 public transport infrastructure (bus embayments and investigation of other minor public transport facilities) 500,000 2 20000088 taxi rank in govan mbeki suburb (design and implementation of taxi rank) 500,000 3 20060019 public transport facilities (construct roof over taxi rank in motherwell nu 1 & bus embayments) 600,000 sub-total pt work package: other public transport facilities 1,600,000 sub-total public transport (pt) work packages 950,500,000 1 20070235 planning and design of main roads 1,000,000 2 20043188 miscellaneous investigations & designs - roads and stormwater 1,200,000 3 - metropolitan transport planning 5,000,000 sub-total pl1 metropolitan transport planning 7,200,000 1 19930001 pemet h91 mr425 settler's freeway repairs 200,000 2 20030648 sidewalks & road markings maintenance 500,000 3 19930002 resurfacing of subsidised roads 10,000,000 4 20090037 matanzima road 300,000 5 19980319 upgrade main road through swartkops 8,000,000 sub-total r2 road maintenance 19,000,000 1 19980211 norvic drive extension 3,000,000 2 20010260 mel brooks (between baird and cuyler street) 4,000,000 3 20060251 access road to chatty developments (standford rd and bloemendal arterial) 3,000,000 4 20050050 john tallant road (grahamstown to seyisi) 4,000,000 5 20020073 fairview/lorraine arterial: montmedy to overbaakens 500,000 6 20010023 glen hurd drive upgrading (phase 1) 23,000,000 7 19940201 redhouse - chelsea arterial: walker drive to cape road 18,000,000 sub-total t1 access & connectivity improvements 55,500,000 1 20070137 rehabilitation of algoa road, penford road, tyityaba street, lee samuel drive, lindsay road, brickfields road, & avenue c & e 25,000,000 2 19990144 rehabilitation of william moffett expressway 37,300,000 3 20010257 magennis street reconstruction 5,000,000 4 20030195 baird street reconstruction (mitchell to mel brooks) 1,000,000 sub-total t2 rehabilitation of major roads 68,300,000 1 20010018 minor traffic improvements n2: cotswold interchange 300,000208 comprehensive integrated transport plan: 2011/12 no. project no. id project description proposed budget (r) 2011/12 2 20010019 traffic improvements n2: standford interchange 300,000 3 20010020 traffic improvements n2: kragga kamma interchange 300,000 4 19940204 h103: heugh road (mr427) widening (3rd- 10th avenue) 24,000,000 5 new extend bramlin street from malabar to uitenhage road 2,000,000 6 new upgrade linton grange interchange 1,000,000 7 new upgrade john tallant / n2 interchange 15,000,000 8 new widen buffelsfontein road and heugh road to 4 lanes from 8th avenue to titian road. 2,000,000 9 new upgrade the william moffett expressway (17th avenue) from main road to buffelsfontein road (4 lanes dual carriageway) 1,000,000 10 new widen kragga kamma road, from kabega road to cape road, to 4 lanes, kragga kamma 2,000,000 11 new widen walker drive, kabega road and frikkie kotze drive to 4 lanes, sherwood 2,000,000 sub-total t3 road capacity improvements 49,900,000 1 20060186 remedial works: pell street interchange 8,000,000 2 20070246 rehabilitation of bridge structures 5,000,000 sub-total t4 rehabilitation of bridge structures 13,000,000 1 19980253 intersection improvements 2,500,000 2 20060160 intersection upgrading - william moffett/main road walmer 6,500,000 3 19980220 traffic calming measures 2,500,000 4 20070132 new traffic signals 1,700,000 5 20030549 expansion of the scoot traffic signal system 20,000 6 19940195 tm24 guidance signs 150,000 7 19980210 development area traffic improvements - west suburbs 150,000 8 19980209 development area traffic improvements - newton park 125,000 9 19980255 development area traffic improvements - walmer 100,000 sub-total t5 traffic & signage improvements 13,745,000 1 20090079 construction of footbridges 5,000,000 2 20060020 provision of sidewalks and cycle tracks 30,000,000 3 20050042 facilities for the disabled 300,000 sub-total t6 non-motorised transport facilities 35,300,000 1 freight transport 0 sub-total t7 freight transport 0 grand total 1,212,445,000209 comprehensive integrated transport plan: 2011/12 11.2.3 funding sources it is proposed that the citp budget be funded from a number of different sources. these sources and the conditions under which funds are allocated or made available to the nmbm are set out in the following table: table 11-5: funding sources and conditions no. funding agency fund project type to be funded funding conditions 1. nelson mandela bay municipality rate and general, roads subsidy, levies maintenance and construction of municipal transportation infrastructure inclusive of roads, public transport facilities and traffic control systems. 100% of the cost of municipal transport infrastructure and 40% * of the cost of provincial proclaimed main roads and transport infrastructure of metropolitan significance included in an integrated transport plan, is funded. 2. province of the eastern cape: departments of roads and public works and transport transfer payments to local authorities, provincial urban transport fund (putf), provincial roads budget. maintenance and construction of transportation infrastructure inclusive of roads, public transport facilities and traffic control systems. 100% of the cost of provincial proclaimed main roads that are entirely under the jurisdiction of the province and 60% * of the cost of transport infrastructure of metropolitan significance included in a comprehensive integrated transport plan, is funded. 3. province of the eastern cape: department of housing and local government state treasury provincial budget. special community related facilities. a grant may be made on submission of a business plan for a specific project. the project may be fully or partially funded. 4. department of transport public transport infrastructure and systems fund (ptis) public transport systems and infrastructure. a grant is made in terms of a funding application (priority statement) for the implementation of specific public transport related projects. the grant is conditional on the funds being restricted to the implementation of approved projects and any shortfall being funded by the municipality. 5. state treasury municipal infrastructure grant (mig) municipal transport infrastructure required to provide a basic level of service. a grant is made in terms of the funding of specific projects contained in a business plan and usually related to the provision of essential basic services. 6. private sector public municipal public contributions are made to fund210 comprehensive integrated transport plan: 2011/12 no. funding agency fund project type to be funded funding conditions contributions transport infrastructure. the provision of specific infrastructure required to provide improved road capacity and accessibility to private development in terms of an approved traffic impact study. the contribution may be to meet 100% of the cost or an agreed percentage with the municipality contribution being the balance. *subject to the availability of a 60% subsidy from the dot the status of funding applications from certain of the above sources is as follows: 11.2.3.1 nelson mandela bay municipality the nelson mandela bay municipality has allocated the funding shown in the following table in its capital budget for the implementation of transportation projects in the 2011/12 financial year. however, this amount has not been approved by council. table 11-6: nelson mandela bay municipality - 2011/12 funding no. project roads subsidy (900) rate and general (901) levies (959) 1 public transport (pt) work packages 0 1,000,000 0 2 pl1 metropolitan transport planning 2,000,000 1,000,000 1,200,000 3 r2 road maintenance 4,080,000 500,000 8,300,000 4 t1 access & connectivity improvements 10,400,000 0 23,500,000 5 t2 rehabilitation of major roads 2,400,000 0 62,300,000 6 t3 road capacity improvements 0 49,900,000 0 7 t4 rehabilitation of bridge structures 3,200,000 0 5,000,000 8 t5 traffic & signage improvements 0 13,695,000 0 9 t6 non-motorised transport facilities 0 5,000,000 300,000 10 t7 freight transport 0 0 0 sub total 22,080,000 71,095,000 100,600,000 total allocation (r) 193,775,000 the above table is indicative that the nmbm has budgeted a total amount of r171,695,000 (89% of the total) for the implementation of projects of metropolitan significance and r22,080,000 (11%) as a 40% contribution, assuming that the balance of 60% of the cost will be provided as a provincial subsidy. the full amount of r193,775,000 should be eligible for a counter subsidy of 60%.211 comprehensive integrated transport plan: 2011/12 11.2.3.2 department of roads and public works and department of transport the provision shown in the following table has been made in the 2011/12 budget for projects to be funded by the provincial departments of roads and public works and transport. although this amount has not been approved by the province, the budget provision will form the basis of an application by the nmbm for the required funding: table 11-7: department of roads and transport - 2011/12 funding no. project rate and general (928) 1 pl1 metropolitan transport planning 3,000,000 2 r2 road maintenance 6,120,000 3 t1 access & connectivity improvements 15,600,000 4 t2 rehabilitation of major roads 3,600,000 5 t3 road capacity improvements 0 6 t4 rehabilitation of bridge structures 4,800,000 7 t5 traffic & signage improvements 0 8 t6 non-motorised transport facilities 0 9 t7 freight transport 0 total allocation (r) 33,120,000 the nmbm has finalised its three year capital budget, inclusive of approved dot funding. it was assumed that a total subsidy sum of r33,120,000 for 2011/12 will be forthcoming in the form of a subsidy from the provincial departments of roads and public works and transport. section 27 of the nlta makes provision for the establishment of a municipal land transport fund (mltf), the funding for which is sourced from moneys appropriated by the minister, the mec, user charges and interest on invested cash balances and any other moneys received in terms of or for the purposes of the act. the mltf may be used to implement the comprehensive integrated transport plan. historically the relevant provincial government departments have allocated subsidy funding to the nmbm for the implementation of the citp. the funds allocated have declined and the level of funding from this source is now insufficient to meet the cost of escalating maintenance of proclaimed main roads and roads of metropolitan significance. between the 2002/03 and 2007/08 financial years the subsidy allocation from the provincial government averaged some r7.3 million per annum and declined to r2 million in 2007/08. subsequently, funding was granted for some specific urgent projects e.g. the pell street interchange (r8 million) in 2010/11. at the same time, maintenance backlogs and construction costs of road improvement projects have escalated to full reconstruction projects due to a historical lack of adequate maintenance.212 comprehensive integrated transport plan: 2011/12 funding from provincial sources for the full implementation of the citp is clearly inadequate and cannot meet current and future needs for transport infrastructure and facilities as urban growth takes place. the lack of sufficient funding for the implementation of the citp has several consequences: the citp implementation programme cannot be completed within timeframes determined in road and bridge management systems and this leads to accelerated deterioration of facilities and increased maintenance costs, the nmbm must fund urgent projects from its own budget. this places a severe strain on resources and funding has to be diverted from other social budgetary needs. the development of the city is impeded. severe traffic congestion resulting in poor accessibility, wastage of fuel and time. this affects economic productivity. the provincial government is requested, taking the above consequences into consideration, to provide an amount of r33,120,000 as its contribution in the 2011/12 financial year. 11.2.3.3 department of transport in 2005, the (national) department of transport invited major cities to submit applications for the funding of improvements to the transport system from the public transport infrastructure and systems fund (ptisf) ahead of the fifa 2010 world cup. it was stipulated by the dot that funding would be allocated primarily for the development of the public transport system. the funding applications submitted provide for the provision of new public transport infrastructure (public transport lanes, terminals, public transport roads, traffic control systems etc.). it should be stressed that no funds were allocated for road maintenance, roads requiring upgrading for capacity considerations, roads required to provide access to new development areas, roads in industrial areas etc. this funding has provided the opportunity for the nmbm to pursue the implementation of an integrated public transport system (ipts) and associated facilities that would otherwise have been unaffordable utilising existing sources of funds alone. an application was submitted to the department of transport for the funding of the projects shown in the following table for implementation in the 2011/12 financial year (the costs in the table have been updated to current). the projects shown have been included in the citp budget. table 11-8: department of transport - 2011/12 ptisf funding application no. project state subsidy (921) 1 pt work package: ipts shelters 136,400,000 2 pt work package: ipts modal interchanges 110,000,000 3 pt work package: ipts operational costs 679,400,000 4 pt work package: ipts planning & design 23,100,000 total allocation (r) 948,900,000 the above funding is part of an ongoing funding programme for the implementation of an ipts in the nmbm and forms part of a multi year budget. funding applications (priority213 comprehensive integrated transport plan: 2011/12 statements) have already been submitted to the department of transport for the funding of public transport projects over the next three to five years, and the minister has gazetted the provisional approved amounts. further applications will be submitted in due course. the funding shown in the following table has been allocated to date. note that the nmbm has been advised that the funding allocation applied for 2011/12 i.e. in the above table, has been reduced to r340 million. table 11-9: ptis funding allocation phase year allocation (r mill) cumulative total (r mill) 1 2005 / 2006 53.65 53.65 2 2006 / 2007 68.60 122.25 3 2007 / 2008 131.20 253.45 4 2008 / 2009 305.48 558.93 5 2009 / 2010 147.08 706.01 6 2010 / 2011 323.06 1029.07 7 2011 / 2012 340 1369.07 11.2.3.4 other funding funding from the following other sources is included in the 2011/12 budget: table 11-10: other sources - 2011/12 funding no. project municipal infrastructure grant (mig) (951) public contributions (923) 1 public transport (pt) work packages 600,000 0 2 t1 access & connectivity improvements 3,000,000 3,000,000 3 t5 traffic & signage improvements 0 50,000 4 t6 non-motorised transport facilities 30,000,000 0 sub total 33,600,000 3,050,000 total allocation (r) 36,650,000 11.2.3.5 summary of funding sources the following table indicates the proposed 2011/12 budget including the proposed funding sources. table 11-11: summary of funding sources funding code description 2011/12 budget (rand) 900 municipal (subsidy) 22,080,000 901 municipal 71,095,000 928 provincial subsidy 33,120,000214 comprehensive integrated transport plan: 2011/12 funding code description 2011/12 budget (rand) 921 11.2.4 state subsidy 11.2.5 948,900,000 959 levies 100,600,000 951 municipal infrastructure grant (mig) 33,600,000 923 public contributions 3,050,000 total 1,212,445,000 the above table indicates a proposed expenditure of some r1.2 billion in the 2011/12 financial year. this figure is inflated due to the state contribution for the implementation of the integrated public transport system of r949 million. without this contribution (the actual approved allocation was reduced to r340 million), the total proposed budget required to implement the balance of the projects identified in the citp would be reduced to some r264 million. this figure is higher than in subsequent years due to the need to attend to urgent infrastructure backlogs. 11.2.5.1 funding strategy it is clear that the total funding requirement for the implementation of the comprehensive integrated transport plan will be distributed over a number of sources. it is therefore important that the utilisation of the funding be optimised and that it be directed at specific needs in order to achieve sustainability. although a large allocation of funding has been provided by the national government for the implementation of the new ipts, this source of funding does not meet the requirements for ongoing maintenance of the transport system that relies to a large extent on the provision of funding for this purpose by the provincial government. the following table indicates the anticipated funding shortfall for the 2011/12 financial year when comparing the total cost of required projects with the actual budget allocation known at the time of preparing this report. table 11-12: funding shortfall for road and transport projects no. project description 2011/12 total project cost (rand) 2011/12 actual budget allocation (rand) 2011/12 shortfall (rand) 1 public transport (pt) work packages: infrastructure & planning ipts operational costs 271,100,000 679,400,000 200,000,000 140,000,000 71,100,000 539,400,000 2 pl1 metropolitan transport planning 7,200,000 0 7,200,000 3 r2 road maintenance 19,000,000 1,000,000 18,000,000 4 t1 access & connectivity improvements 55,500,000 9,000,000 46,500,000 5 t2 rehabilitation of major roads 68,300,000 0 68,300,000 6 t3 road capacity improvements 49,900,000 0 49,900,000 7 t4 rehabilitation of bridge structures 13,000,000 8,000,000 5,000,000 8 t5 traffic & signage improvements 13,745,000 0 13,745,000215 comprehensive integrated transport plan: 2011/12 9 t6 non-motorised transport facilities 35,300,000 20,000,000 15,300,000 10 t7 freight transport 0 0 0 grand total 1,212,445,000 378,000,000 834,445,000 from the above table it is evident that a funding shortfall of r834,445,000 is anticipated for the 2011/12 financial year. the actual budget allocation for 2011/12 indicates that only 31% of the required funds will be available, thus leaving a funding shortfall of 69%. note however that these figures are inclusive of ipts projects and operations which are funded by national government. funding from government sources is usually granted for the implementation of specific deliverables and funding applications must be accompanied by motivations and business plans in which priorities, programmes and outcomes are specified. this format of application has not, in the past, been followed in the case of the comprehensive integrated transport plan, particularly in the case of funding allocations by the province for the maintenance and improvement of proclaimed main roads, for example. a recent precedent that has been set is the signing of a service level agreement between the department of roads and public works and the nmbm for the funding and construction of addo road (main road 450). a further complication is that while funding is allocated by the department of transport on a multi year basis (subject to annual review) and is gazetted in terms of the division of revenue act, funding from provincial sources for implementation of projects contained in the citp, while indicative figures are available on a multi year basis, is only made known on an annual basis. municipal budgets are prepared on a three year cycle, enabling multi year budgeting, subject to annual ceilings. the municipal budget is often prepared on the assumption that applications for external funding will be successful. this ties up municipal funds on the expectation of matching subsidies, and when these are not received, budget adjustments are required in order to divert or consolidate municipal funds to other projects, often too late to effectively utilise these funds before the end of the financial year. in terms of a funding strategy the following is proposed: a) project budgeting be carried out on a three year budget cycle basis to enable proper project programming and to effectively utilise available funding, on the basis that budgets are indicative and are subject to annual review and approval. b) due to the importance of integrated planning, a specific business plan should be submitted to national treasury to address the transport planning process of the comprehensive integrated transport plan, in terms of national requirements, including supporting planning such as the preparation of management systems. c) the funding for maintenance projects be provided in terms of a roads and bridge management system to be prepared and updated every three years in consultation with and subject to the approval of the nmbm and the department of roads and public works. d) funding applications be submitted for individual projects in terms of a structured business plan that will clearly define responsibilities, deliverables and budgetary requirements. the approval of such business plans should be216 comprehensive integrated transport plan: 2011/12 followed by entering into a service level agreement between the funding parties that will define funding contributions, time frames, implementation responsibilities and deliverables. e) alternative funding sources be investigated as detailed in the following section. 11.2.5.2 future funding for transport authorities the nmbm is currently in the process of investigating the possible establishment of a transport authority or a municipal service entity to undertake the transport functions in terms of section 11(1)(c) of the national land transport act, 2009 (nlta). section 27(1) of the nlta provides for the establishment of a municipal land transport fund (mltf) which must be used to defray the cost of the functions to be carried out. the following moneys shall be paid into this fund: money appropriated by the minister; money appropriated by the mec; user charges collected in terms of section 28 of the fund; interest on invested cash balances. section 28 of the nlta provides for a municipality to impose user charges (levies) and to pay the income into the mltf. the user charges in terms of the nlta can be raised on: specified classes of motor vehicles entering specified portions of the municipal area at specified times; land, buildings or other developments that generate the movement of passengers; the parking of motor vehicles in a building or on land in specified portions of the municipal area; parking spaces for, or the use of ranks, stops and terminals by motor vehicles. in 1998 the metropolitan transport advisory board resolved that, subject to the approval of the nelson mandela bay municipality, a levy be implemented on all vehicles licensed in the nelson mandela bay municipal area. this resolution was preceded by a detailed investigation that covered the following aspects: the amount of the levy and the potential income that could be generated the likely economic impact the phasing in of the levy the method of collection of the levy public participation and the views of the business community. this levy has not been implemented to date mainly due to difficulties that arose in the method of collection of the levy and the lack of enabling legislation (the old urban transport act, 1977 was being reviewed at the time). in light of the current situation in respect of funding of transportation systems and infrastructure, it is proposed that the implementation of the levy should be further investigated for implementation. a transport development levy on new land developments is already being imposed by the nelson mandela bay municipality and in terms of the nlta, the income generated from this source must be paid into the mltf. a review of the tdl system is currently in the final stages. the allocation of funding from the national levy imposed on fuel sales to the improvement of the transport system has been proposed by several of the main metropolitan municipalities,217 comprehensive integrated transport plan: 2011/12 primarily the city of cape town. the income from this levy is administered by national treasury as a part of the fiscus. this revenue is raised directly from user charges on motor vehicles that in turn use the transport network. it is therefore argued that the maintenance and construction of the transport network should be funded from this source. the nelson mandela bay municipality receives funding from the state that is derived from the national fuel levy. it is therefore proposed that this funding be allocated to the provision and maintenance of the transport system and be paid into the mltf. 11.2.6 conclusions it is concluded that: a) the nmbm has prepared a comprehensive integrated transport plan in terms of the national land transport act, 2009. the citp has been approved by the council of the nelson mandela bay municipality and is to be submitted to the provincial government for approval. b) provision has been made in the comprehensive integrated transport plan for the implementation of projects to a total value of r1,212,445,000 in the 2011/12 financial year. (note that this figure is inflated due to the state contribution for the implementation of the integrated public transport system.) 11.2.7 recommendations it is recommended that to fund the proposed capital budget, funding be sourced from the nelson mandela bay municipality, department of transport, department of roads and public works, provincial department of transport and state treasury in terms of the funding strategy and that: a) project budgeting be carried out on a three year budget cycle basis to enable proper project programming and to effectively utilise available funding, on the basis that budgets are indicative and are subject to annual review and approval. b) due to the importance of integrated planning, a specific business plan should be submitted to national treasury to address the transport planning process of the comprehensive integrated transport plan, in terms of national requirements, including supporting planning such as the preparation of management systems. c) the funding for maintenance projects be provided in terms of a road and bridge management system to be prepared and updated every three years in consultation with and subject to the approval of the nmbm and the department of roads and public works. d) funding applications be submitted for individual projects in terms of a structured business plan that will clearly define responsibilities, deliverables and budgetary requirements. the approval of such business plans should be followed by entering into a service level agreement between the funding parties that will define funding contributions, time frames, implementation responsibilities and deliverables. e) alternative sources of funding, including user charges on vehicles entering the municipal area in terms of section 28 of the national land transport act, 2009 and the reallocation of funding received from the state in respect of fuel levies be investigated. 11.3 prioritisation of projects the eastern cape provincial government has prepared a project prioritisation procedure to be used to evaluate project submissions from the various district and local municipalities.218 comprehensive integrated transport plan: 2011/12 the procedure can be used to compare the priority of projects from the different areas on an equal basis. the procedure comprises an evaluation of each project based on certain criteria. while the merits of the prioritisation procedure are understood, several of the criteria are difficult to apply in a developed “metropolitan” context and appear to be more applicable to a rural or local town context. the nelson mandela bay municipality has already set its priorities in terms of the draft 2011/12 capital budget that has been prepared in terms of the integrated development plan. priorities have also been set in terms of the ipts planning process and the pavement and bridge management systems. it would serve little purpose to prioritise projects based on other technical or “external” criteria when the budget has already been finalised. should it be a requirement that each and every project must be evaluated, should the project require provincial funding to be allocated to it, then an extensive data collection process will have to be undertaken. this cannot be achieved within the current timeframes and allocated budget, and has not been included as part of this citp update. the project prioritisation procedure prepared by the provincial department of transport comprises an evaluation of each project based on the criteria shown in the following table. table 11-13 provincial project evaluation criteria category criteria infrastructure projects: project evaluation roads projects traffic volumes – roads road condition/project type road network considerations social / development impact bus and taxi facilities passenger volumes facility condition bus/taxi route considerations development impact railway projects passenger and freight volumes rail condition / project type rail network considerations social / development impact of railway line harbours and ports shipping movements per day harbour condition/project type shipping network considerations social / development impact of port project airports projects flights per day – airports airport condition/project type airport network considerations social / development impact of airport project non-motorised transport number of users of non-motorised facilities facility condition / project type – non-motorised transport network considerations social / development impact the social development impact of each project is based on a separate evaluation of criteria including: health services219 comprehensive integrated transport plan: 2011/12 community services agriculture commerce and industry education cultural tourism population finally each of the above criteria is evaluated on a points system and the final scoring per project is summarised and submitted along with other details of the project. 11.4 budget per project and programme the full capital budget for the nelson mandela bay metropolitan transport area has been included in appendix “a” attached hereto. the budget also indicates the proposed source of funding. figure 11-1 indicates a selection of current budgeted and short term (5 years) future proposed projects included in the capital budget and implementation programme (chapter 7, section 7.1.5) for the period 2011/12 to 2015/16.220 comprehensive integrated transport plan: 2011/12 figure 11-1: selected capital budget projects 2011/12 – 2015/16221 comprehensive integrated transport plan: 2011/12 12 stakeholder consultation the transport needs of the various communities located within the nmbm area were determined through a public consultation process. initially, public meetings were organised and scheduled with the assistance of the community liaison officer (clo) of the infrastructure and engineering department in the 8 ward clusters of nmb. unfortunately only two of these meetings were held by which time the nmbm constituency office requested the rescheduling of the meetings since the process of organising these meetings had not followed the correct municipal procedures. these meetings were scheduled to resume in december 2010 but were subsequently cancelled by the constituency office due to the annual council recess over the december festive season. no follow-up meetings were arranged in 2011 to continue the public consultation process. fortunately, the recent update of the nmbm idp provided an opportunity for stakeholders and the general public to raise concerns and needs with regards to transportation in the metro. the citp provides input into the transport component of the idp and although not ideal, this is considered to have been an acceptable opportunity for the various communities of nmb to provide input, given the challenges faced with the initial public consultation process. a summary of this citp will be included in the next update of the idp. additionally, various industries and authorities within nmb were also consulted to identify their transport related needs. the main stakeholders included the following: nmbm nmbm (rail) - roads & stormwater operations nmbm traffic department industrial highway carriers (abnormal loads) percci transport task team (freight) prasa the feedback obtained form these stakeholders mainly relate to freight transport, road and rail infrastructure, and operational matters, and is therefore incorporated into the relevant chapters of this citp accordingly. a survey form was prepared on which people could record their perspectives of transport in their local area, along with a data collection sheet on which possible transport projects could be listed. these forms were distributed to all ward councillors in the nmbm during october 2010. the feedback received from various wards is shown in the following tables. table 12-1: summary of responses from public consultation meetings ward comments cluster a (ward 53 & 60) the meeting was attended by the councillor and the community structure. concerned that there was no one from the nmbm to introduce the process. requested the update of the itp to be in line with the idp process to avoid duplication. the councillor was unhappy with the fact that the consultant appointed to prepare the citp was arranging public meetings, stating222 comprehensive integrated transport plan: 2011/12 that this was not in line with municipal procedures. requests for traffic calming measures along schools in the area were received. public transport that serves these areas to be made a priority, preferably an ipts route that will serve the area. survey forms and project nomination forms were distributed but these were not received back. a taxi rank is required in the area. cluster b (ward 40) the meeting was attended by the ward councillor only and a request was made to postpone the meeting in order to include other stakeholders. no follow up meeting ever occurred. cluster b (ward 1 – 9) the meeting was well attended by ward councillors. a request was made for the removal of some bus stops in summerstrand. items on the idp should be part of the itp. request for the summerstrand study to be made available to the ward councillor. ipts on cape road in the long term planning. survey forms were distributed and most of these were received back. the contents of these forms have been summarised in the following table.223 comprehensive integrated transport plan: 2011/12 table 12-2: ward councillors consultation responses ward no councillor road no / name description of project / required corrective measures 5 mr davis clevedon road traffic calming measure/see correspondence from may 2008 various roads westbourne road/claredon road - access to claredon road north end /sydenham increase the public transport serving this area various roads installation of traffic calming measures in various roads in ward 5 campbell street construct a traffic circle at the lansdowne intersection stanley street parking space in front of shops st phillips place a cul-de-sac 20m from cnr of stanley and create a parking bay 6 retief odendaal william moffett rehabilitation of william moffett circular drive widening of circular drive glen hurd drive upgrade glen hurd drive new road proposed new road lorraine / fairview arterial 7 mr m c roberts norvic drive speed restriction measures on “s” bend in front of percci building burt drive linking of alexander rd to 3 rd ave / burt drive westview drive resurfacing – concrete roads to asphalt roads cape road resurfacing – conyngham rd to 1 st avenue newton park 8 g rautenbach circular drive construct double lanes between kragga kamma and carrington road kabega road upgrading of kabega road between kragga kamma and glenroy drive kragga kamma road extension of bus embayments off kragga kamma tarring of vacant land to accommodate public transport woodlands & weybridge resurfacing metz & macon rd resurfacing various roads construction of bus embayments throughout ward 8 centenary road extend right turn lane at circular drive various roads installation of traffic calming measures in ward 8 13 mr hermaans hartebees street traffic calming measures required ibex - chamlos stormwater drainage224 comprehensive integrated transport plan: 2011/12 ward no councillor road no / name description of project / required corrective measures pienaar street kerbing required 51 pw terblanche cnr aalwyn / nemesia rd to be investigated carinus drive accidents – s bend (needs to be investigated) cnr mosel / north str traffic regulator1 comprehensive integrated transport plan: 2011/12 appendix a five year capital budget for the nelson mandela metropolitan transport area.