The Road to Safety

Implementation Business Plan

April 2002 – March 2003

(Minister of Transport Abdulah M. Omar, at the launch of the Road to Safety Strategy, Randburg, 20 November 2001)

The Road to Safety 2001-2005 was launched by Deputy President Jacob Zuma and the Minister of Transport Abdulah M. Omar, on the 20 November 2001. The strategy represents a set of carefully measured, balanced and prioritized actions that are practical, affordable and do-able.

It is the culmination of nearly two years of work by national, provincial and metropolitan Departments of Transport, during which time there has been wide and intensive consultations with many, many people. The strategy builds on the successes achieved by the Arrive Alive campaign, which has since its inception in October 1997 has seen a decline in road deaths by an average of 7.5% year on year.

These indicators clearly show that attention to the key areas of enforcement, coordination, communication and partnership are beginning to reap rewards. This has been a very encouraging development, although a huge task remains: More than 9 000 people are killed on our roads every year and many thousands more are seriously injured and the cost to our economy is in the order of R14 billion a year.

At the launch, the Minister of Transport underlined the importance of giving immediate effect to translating the strategy into actions that will have visible, measurable effects.

This is the objective of this business plan.

The business plan is the culmination of detailed planning and research by the Department. It sets out an achievable plan of action, and identifies key deliverables which will ensure timeous delivery on the commitments made in the strategy, for the ultimate and sustainable reduction of the carnage on South Africa’s roads. The business plan ensures that, in the words of the Minister, "…The Road to Safety is a living document that is already making hard demands on all those at the delivery end who have been tasked with getting results".

Core Elements of the Strategy

The strategy has been formulated relative to the Department of Transport’s mission (as articulated in the 1996 White Paper on Transport Policy). The strategic objective is:

Four key thematic areas have been defined as areas of action:

Enforcement and Law Compliance,

Operator, Vehicle and Driver Fitness,

Infrastructure, Management and Information Systems, and

Communication, Public Education and Participation.

These thematic areas are related to each of the three components of the national roads and the associated conditions of entry and exit to this network, i.e.:

The Road Environment,

The Road User, and

The Vehicle.

A set of measures are applied to each of the abovementioned areas to ensure that all the actions mutually reinforce one another. These measures include ensuring that:

Appropriate legislative and regulatory norms are in place (standards and rules),

The right systems and institutions are in place (institutional reform and quality monitoring),

Compliance is increasingly achieved (including enforcement, education, communication and public participation).

This framework is depicted in the following graphic:

Project Implementation Framework

The project implementation approach has been designed by logically grouping and prioritizing project clusters in a manner which encourages delivery of the outputs of the Strategy. The following projects clusters have been identified:

This business plan covers projects incorporated in the Road to Safety Project Hub. The following key focus areas are managed in the Hub:

Summary of Key Focus Areas

The following summarizes the core elements of each of the above-mentioned focus areas. Specific objectives, deliverables, timescales and budget are presented in the appended summary pages.

Driver Fitness

Mission

To ensure an acceptable level of competency of drivers through the enhancement of the driving licence system and effective adjudication of offenders.

Problem Statement

Poor competency of licenced drivers is due to numerous factors which include:

Fraud and corruption within the driver licencing system which also includes collusion between driving schools and examiners;

The standard of operation of Driving Licence Testing Centres not being consistent and twenty percent of DLTCs being non compliant;

An annual inspection by the inspectorate is inadequate to address ongoing fraudulent practices and the inspectorate does not have the capacity to increase the inspection frequency;

The inspectorate has no power to suspend or cancel the registration of an examiner or testing center;

Professional drivers are examined to the same standard as ordinary drivers;

After serious offences or repeat offences drivers may have their licences suspended however there is no requirement to retest unsafe drivers to prove their competency.

Strategic Objectives

Driving Licence Testing Centres:

Upgrade non compliant sites

Reduce opportunities for fraudulent and corrupt practices through the implementation of a best practice model, and by amending legislation to geographically bind DLTCs and require annual re-registration.

Inspectorate of DLTCs:

Expand the capacity of the DLTC Inspectorate

Drivers:

Revise and update the K53 practical test, training material and manuals

Develop a system for the retesting of repeat or serious offenders

Investigate the formalisation and regulation of driving schools

Projects to be implemented during 2002/2003

Upgrading of DLTCs

Expansion of the capacity of the DLTC Inspectorate

Financial administration of DLTC revenue

Revision of K53 test

Retesting of repeat offenders

Develop best practice model for DLTCs

Driving school formalisation and regulation

Vehicle Fitness

Mission

To ensure an acceptable level of safety and legality of vehicles through the enhancement of the vehicle testing system.

Problem Statement

The poorly managed privatizing of the vehicle testing industry led to a situation of widespread corruption due to high levels of competition and poor controls. The value of roadworthiness certification is now questionable and the use of public owned facilities has declined to the extent that most are cross subsidized and grossly underutilized. The inspectorate has failed to carry out the duties intended by the empowering legislation.

Whilst the technical standard and code of practice is specified for Testing Stations, no common business practice is applied. Hence it is not known what measures the management of a Testing Station has in place to ensure acceptable customer service levels or to detect the fraudulent issuing of roadworthiness certificates. Individual provinces and registering authorities are at present developing best practices which should be shared and consolidated nationally.

An estimated 300 000 stolen vehicles are registered and live on South African roads due to the poor standard of physical verification at vehicle testing stations. Furthermore, the integrity of data in the NaTIS is poor and many legitimate vehicles fail verification because of historical data entry errors. There is a need for a secure, incorruptible process of verification and a clean up of the NaTIS database. Additionally, the SAPS require more secure external identifiers on vehicles since the licence plate is an unreliable identifier.

The geographic separation of vehicle testing stations, motor vehicle licencing offices and police clearance offices results in poor communication between these functions and aids the activities of criminal syndicates in fraudulent registrations of motor vehicles. Furthermore, it results in poor customer service delivery in that a registration or licensing transaction may involve multiple trips to these entities. Consequently, there is a need to develop one stop shops.

Strategic Objectives

To normalize the industry through a number of actions, including:

Develop and evaluate a best practice model for the management of the interfaces between a VTS, SAPS Clearance Office and Licensing Authority on one site;

The adoption of this model by all Registering Authorities and SAPS clearance offices.

Demonstrate a secure system of physical verification of the identifiers of all registered vehicles against the corresponding NaTIS records;

Demonstrate a high security non-reproducible externally visible VIN label to be applied to all verified vehicles

Develop and demonstrate a best practice management model for a Vehicle Testing Station

The further investigation of periodic roadworthiness testing

Review of the entire VTS operational system and procedures

Projects to be implemented during 2002/2003

Restructuring of VTS Inspectorate

Review of the VTS Industry

Legislative amendments

Demonstration of One Stop Shops

Regular verification/ Secure vehicle identity

Best practice model for VTSs

Periodic roadworthiness testing

Fraud & Corruption

Mission

To systematically reduce the incidence of fraudulent and corrupt practices in all aspects which relate to the management of motor vehicles and drivers in the country.

Problem Statement

Fraudulent and corrupt practices have to a large degree been allowed to flourish in the various legislated processes which govern the registration, licensing and testing of motor vehicles and drivers. In addition, law enforcement functions have been rendered ineffective through these practices as well as corruption at the official/offender interface.

These criminal practices have evolved over the years through innovative criminal-minded individuals and groups, which usually take advantage of corrupt officials, ineffective business processes as well as inadequate legislation.

The impact of these practices extends beyond financial losses to individuals, organizations and the country, to loss of life and trauma of the citizens of the country. Further, fraud and corruption is a fundamental contributor to the unacceptably high death rate on South Africa’s roads (through unroadworthy vehicles and incompetent drivers being given legitimacy by means of corrupt activities).

Strategic Objectives

Develop preventative and reactive mechanisms to eliminate opportunities for fraud and corruption:

Identify improvements to business systems and process (for incorporation into "best practices");

Assist in the creation of competent and empowered inspectorates;

Create and empower a unit to undertake ongoing investigations into corrupt activities.

Projects to be implemented during 2002/2003

Establishment of an investigations unit.

Pedestrian Safety

Mission

To improve the safety of pedestrians and cyclists through a combination of road traffic education, engineering solutions and improved pedestrian visibility.

Problem Statement

The high number of pedestrian deaths can be attributed to poor knowledge of road safety amongst pedestrians, inadequate road infrastructure in hazardous areas and the low visibility of cyclists and pedestrians at night. Education and training of road users especially in rural and informal communities is needed to raise the awareness of these issues. Furthermore, consultation with these communities is needed to ensure that appropriate solutions are implemented.

Strategic Objectives

Create coordinating structures to ensure community participation in the creation of awareness, assisting in education and the identification and treatment of hazardous areas;

Improve coordination between agencies in the identification and treatment of hazardous locations, ensuring that resources are made available to support community initiatives;

Develop formal and informal approaches to the education of road users;

Expand the visibility programme for pedestrians and cyclists.

Projects to be implemented during 2002/2003

Community coordinating structures

Road safety education

Identification and treatment of hazardous locations

Pedestrian visibility programme

Arrive Alive

Mission

To support national initiatives and to promote road traffic safety throughout the provinces in order to effect a decrease in road accidents, fatalities and injuries as well as reducing road traffic offences by means of a multi-disciplinary approach.

Problem Statement

Road users (drivers, passengers, pedestrians and cyclists) are insufficiently informed regarding road safety issues which explains the high fatality rate in our country. There is therefore a need for continuous re-inforcement of basic safety information and enforcement messages.

The Road to Safety is a new strategy designed to install a culture of safe traffic participation and address the underlying causes of road traffic safety in South Africa. A number of critical themes have been identified and, based on thematic approaches, various communication interventions need to be implemented in order to inform all road users on the correct road usage.

Furthermore the Road to Safety hub comprises of a number of key projects dedicated to ensuring effective and efficient delivery of objectives set in the strategy document. It is therefore imperative that as milestones are reached by the various project clusters, these need to be communicated to all relevant role-players and stakeholders in order to obtain their support, approval and co-operation.

Strategic Objectives

To establish key messages and communicate them to the target audience in an effective manner.

To raise the awareness of Arrive Alive to a 24 hour a day, 7 day a week, year round campaign.

To mobilise all relevant role-player and stakeholder organisations in support of the strategy.

To mobilize the support of, and communicate to, the rural and impoverished communities

To secure sponsorships and form effective long-term partnerships with the private sector.

To promote, report and monitor the successes of projects in the hub.

To monitor the implementation of national and provincial Arrive Alive business plans.

Projects to be implemented during 2002/2003

Arrive Alive Mobilisation and Communications

Multi-purpose roadblocks

Support the legality of law enforcement equipment

(Law enforcement operations in accordance with Arrive Alive national and provincial business plans)

Fleet Operations Management

Mission

To improve the safety of fleet operations.

Problem Statement

South Africa has an unacceptably high accident and fatality rate in the freight and passenger transport sectors. Professional drivers carry a greater responsibility than ordinary drivers and yet are not required to undergo more stringent licencing requirements.

Certain operational issues, such as driving hours, measures to combat driver fatigue, and vehicle safety monitoring, require regulation or self regulation and these should be included in a code of practice.

Users of passenger transport are ill informed regarding acceptable service and safety standards, and have no easy avenue of recourse when exposed to dangerous operators. For this reason a passenger charter is proposed.

Part of the fleet operations problem includes the transportation of dangerous goods which was managed by the Department of Health in the past and lacked law enforcement. A Dangerous Goods Inspectorate is required under new legislation.

Strategic Objectives

The development of an Operator’s Code of Practice to be made mandatory through regulation or self-regulation by the industry.

The establishment and development of a Dangerous Goods Inspectorate;

The development of a Passenger Charter detailing rights of fare paying passengers and the appropriate avenues to register complaints.

Investigation of more stringent testing and medical requirements for professional drivers

Projects to be implemented during 2002/2003

Operator’s code of practice (regulation and self regulation)

Regulation of driving hours

Passenger Charter

Dangerous Goods Inspectorate

Tightening of PrDP requirements

Tyre safety management

Traffic Information Systems

Mission

To develop, implement and maintain traffic information systems that will support, promote, maintain and enhance the Road Traffic Management processes in South Africa.

Problem Statement

The management of traffic information is a complex mix of legislated procedures and administration requiring national information systems. These systems require ongoing development to be in line with users information requirements, amendments to procedures and legislation, and to employ evolving technologies.

Strategic Objectives

Overall System Development, implementation, maintenance and enhancement

Investigate the latest technology available in information technology

Procure the product that will best satisfy the departmental needs

Secure the information system environment

Create management model with minimum system requirements

Create open system online access

Promote usage of compatible traffic information system

Vehicle Licencing and Registration

Introduce and implement best practice model for the registration and licencing of vehicles

Introduce and implement measures to reduce motor vehicle crime

Introduce and implement measures to provide high level of service

Provide high level of service to all the Traffic Information Systems users

Driver Registration and Monitoring

Convert current driving licence population to the new CCF format

Include AARTO specifications for demerit purposes

Introduce technology for the registration and issuing of the learners and driving licences

Provide card verification devices with NaTIS access to enable roadside verification

Control the issue of driving licences by means of the NaTIS

Provide the best practice model for the recording and issuing of driving licence cards

Accident Registration and Monitoring

Legislate the process of Accident reporting and capturing and monitoring

Introduce new technology for the collection, recording and distribution of accident data

Investigate alternative capturing options

Contravention Registration and Monitoring

Introduce technology for the capturing and monitoring of traffic contraventions

contravention module which comprises the recording of convictions and outstanding offences against drivers and operators as well as the points demerit system

Projects to be implemented during 2002/2003

Computerised Learners Licence Test

Creation of the National Help desk for NaTIS

Driving licence card and reader technologies

National Vehicle Information Sharing System (NaVISS)

Establishment of Provincial and National Accident Bureaus

Assistance with the implementation of the accident report form

Implementation of Best Practice for Motor Vehicle registering Authorities

New NaTIS development

National Traffic Information Centre

Mission

To develop, implement, maintain and operate a National Traffic Information and Call Centre which will provide information on the achievement of goals and objectives on road traffic safety and to provide the public with a facility to report on-the-road safety matters.

Problem Statement

Problem Statement

The Road to Safety Strategy has the specific measurable goal of reducing road traffic accidents and specifically fatal accidents by 5% year on year. The reporting of this measure is required timeously if the strategy is to be monitored for effectiveness. Currently, however, this information is slow to gather and comprehensive annual or monthly reports are more than two years outstanding. This creates the perception amongst the public of lack of action. For this reason an avenue is required for the public to intervene in the promotion of road safety and infrastructure is required by which traffic violations, road crime and incidents can be reported.

Strategic Objectives

The strategic objective of the Information Centre is to acquire, analyse and respond or re[port on traffic incidents. This is clustered in five key areas:

The objective of the Call Centre will be to provide the general public, i.e commuters, drivers and pedestrians with a facility at which unfit and reckless and negligent driver behaviour; unfit vehicles; fraud and corruption; etc can be reported. It is envisaged to establish such a centre initially within the Department. The total number of daily calls to the centre will indicate whether the centre should be retained in-house or sourced out to the private sector for continued operation.

In order to properly support the collection and analyses of information; as well as to prepare, print and distribute the required reports in this regard, a fully supportive computerised data and information management system needs to be developed and implemented. Such a system will also in future be utilised for the National Fatal Accident Information Centre.

The objective is to undertake special in-depth and detailed investigations into road traffic accidents in which 4 or more persons are killed; 5 or more vehicles are involved or in which a vehicle transport hazardous substances was involved. As much as possible factors and contributory causes to the accident will be determined. These investigations will include the normal accident investigation and reconstruction procedure and will further, amongst others, also investigate the driver licence testing centre at which the drivers involved obtained their licences; the vehicle testing centres at which roadworthy certificates were issued; and employment conditions and remuneration agreements that could have played a role.

The objective of this centre is to collect abbreviated fatal accident information from SAPS stations on a daily basis. This information is compared to previous periods and analysed with regard to achievements, rates and trends and monthly reports prepared and distributed.

The objective of this sub-project is to utilise the comprehensive annual accident data on NaTIS (fatal, major, minor and damage only accidents) for a period of a full year and to compare it with previous years. The information will be analysed with regard to achievements, rates and trends and a full annual report prepared, printed and distributed.

Additional information is required to support the four main focal areas.

Traffic Offence Monitoring Surveys

Annual Vehicle Kilometres Travelled

Traffic Counts and Speed

Arrive Alive Monthly Reports

Projects to be implemented during 2002/2003

National Traffic Call Centre

Special Accident Investigations

National Fatal Accident Information Centre

Annual Accident Report

Supporting projects:

Traffic Offence Monitoring Surveys

Annual Vehicle Kilometres Travelled

Traffic Counts and Speed

Arrive Alive Monthly Reports

Professionalism in the Traffic Fraternity

Mission

To enhance the professional status of officials employed in road traffic management and law enforcement through the creation of career structures and appropriate qualifications.

Problem Statement

Traffic officers, examiners of vehicles and examiners of driving licences are prone to corruption due to the low status of their professions and consequent low salaries. The problem has many facets which need to be addressed. Some of these are the entry requirements which may be considered too low, the duration and curriculum of formal training which is generally too short with inadequate and outdated training material, lack of refresher courses, lack of formal accreditation/qualification of courses, and disparate standards linking qualifications and career path.

Strategic Objectives

The strategic objectives are:

Professionalism of Traffic Officers

to create a formal career structure for traffic officers to ensure a high level of competency;

to develop a new professional qualification and examination system for Examiners of Driving Licences

to create appropriate refresher courses

to develop a new professional qualification and examination system for Examiners of Vehicles

to create appropriate refresher courses

To ensure uniformity amongst traffic training colleges through annual inspections according to an evaluation programme.

Projects to be implemented during 2002/2003

Career structure or professional status of traffic officers;

Develop a new professional qualification and examination system for examiners of vehicles;

Develop a new professional qualification and examination system for examiners of driving licences;

Evaluation of traffic colleges

Budget

The budget for the financial year April 2002 to March 2003 for the RTS Project Hub amounts to R (draft figure). The breakdown of budget is given in the appended project summaries.

Project Summaries