Report of the
Portfolio Committee on Transport on Budget Vote and Strategic Plan of the
Department of Transport, dated 24 May 2011
The Portfolio Committee of Transport, having considered Budget
Vote 37: Transport and the Strategic Plan of the Department of Transport for
2011-2014, reports as follows:
1. Introduction
The report contains the strategic objectives of the Department
and its entities presented to the Portfolio Committee on Transport on 30 and 31
March 2011. The Committee, in its oversight role over the Ministry, the Department
and its entities, has to consider the strategic plan of the Department and its
entities to determine whether the funds requested are aligned to the stated
objectives in the strategic plans.
The Department oversees 13 public entities, namely Ð
á Airports Company of
á Air Traffic and Navigation Services
Company (ATNS);
á Cross-Border Road Transport Agency
(CBRTA);
á Ports Regulator;
á Passenger Rail Agency of
á Railway Safety Regulator (RSR);
á Road Traffic Infringement Agency
(RTIA);
á South African Civil Aviation
Authority (SACAA);
á South African National Roads Agency
Limited (Sanral);
á South African Maritime Safety
Authority (Samsa);
á Road Accident Fund (RAF);
á Road Traffic Management Corporation
(RTMC); and
á Driving Licence Card Account.
2. Mandate of the Department
The mandate of the Department is to maximise
the contribution of transport to the economic and social development goals of
our country by providing fully integrated transport infrastructure.
3. Objectives for 2011-2014
In responding to government priorities, the DepartmentÕs objective for
the next five years is to focus on the following areas:
3.1
Increase
the market share of total freight to rail to an annualised 250 million tons
from the current 178 million tons by 2014;
3.2
Benchmarking
cost of building and maintenance of roads to assess efficiency and developing
an appropriate funding model to ensure adequacy of supply and maintenance;
3.3
Implementation
of the approved Road Infrastructure Strategic Framework (RISFSA);
3.4
Implementation
of the approved Rural Transport Strategy for
3.5
Road
accident fatalities to come down from 14 600 by 2014 (a 5% per annum
reduction);
3.6
Ring
fencing of road maintenance funds, including construction and maintenance of rural
roads;
3.7
Development
of Integrated Rapid Public Transport Networks (IRPTNs) in 12 cities and six
rural districts;
3.8
Completion
of the Rail Policy and Rail Act;
3.9
Establishment
of a Rail Economic Regulator;
3.10
Implementation
of the National Freight Logistics Strategy;
3.11
Ten
per cent of the identified new investment in rail should be public-private
partnership (PPP) projects;
3.12
Introduce
private operators at branch level (secondary rail network);
3.13
Implement
the National Ports Act and create transparent cross-subsidies between port and
rail infrastructure; and
3.14
Introduce
competition for the management of container terminals.
4. Strategic
goals for the Department
The
strategic goals for the Department for the next three years are:
Goal 1: An efficient and integrated infrastructure
network that serves as a catalyst for social and economic development
This goal
seeks to increase transport infrastructure efficiencies and ensure seamless,
integrated movement of freight and reduce system costs to 8% of gross domestic
product (GDP) by 2014, improve road infrastructure maintenance of the secondary
network and create 100 000 jobs through labour-intensive methods of road
maintenance.
Goal 2: A transport sector that is safe and secure
The outcome
is to reduce the number of fatalities on roads by 50% and incidents and
occurrences in the rail environment by 25% by 2014, measured against the
2010/11 baseline.
Goal 3: Improved rural access, infrastructure and mobility
This goal seeks to increase mobility and rural access by implementing
integrated public transport services in six district municipalities by 2014.
Goal 4: Improved public transport systems
This goal seeks to develop Integrated Public Transport Networks (IPTNs)
by rolling out Integrated Rapid Public Transport Networks (IRPTNs) in five
cities and through initiating the acquisition of new rolling stock for
passenger rail by 2014.
Goal 5: Increased contribution to job creation
This goal
seeks to create 400 000 jobs by 2014 through labour-intensive methods of road
infrastructure maintenance, transport infrastructure build programmes, and training
and deployment of seafarers in the maritime sector.
Goal 6: Increased contribution of transport to environmental protection
The goal
seeks to reduce carbon emissions by 10%.
The key
priorities of the Department for 2011/12 are to:
á
Assist in the management of issues and risks;
á
Provide visibility across the multiple projects and initiatives;
á
Assist with workload balancing by ensuring optimal workload allocation;
á
Management
of interdependencies between projects and multiple
stakeholders;
á
Knowledge
sharing and skills development through the programme management
system and process;
á
Tracking
mechanism through visible dashboards and reports; and
á
Standardised
project management approach based on best practices.
The service
delivery challenges are:
á
Funding;
á
Road
Safety;
á
Infrastructure
maintenance; and
á
Capacity.
5. Budget
summary
The
Department of Transport receives R35 billion in the 2011/12 financial year.
This allocation constitutes 7,2% of the national budget. Compared to the R30.3
billion that the Department received in 2010/11, the 2011/12 budget allocation
increases by 15.48% in nominal terms and 10,19% in real terms.
The Road
Transport Programme receives the largest portion of the DepartmentÕs budget
(R15.3 billion), followed by the Public Transport Programme and the Rail
Transport Programme that are allocated R9.6 billion and R9.5 billion
respectively. Transfers and subsidies increase from R29.3 billion in 2010/11 to
R34.2 billion in 2011/12, of which R15.5 billion goes to the provinces and
municipalities. The budget allocation for the departmental agencies and
accounts increases from R6.9 billion in 2010/11 to R8.8 billion in
2011/12. The compensation of employees increases from R266.2 million in the
2010/11 financial year to R294.4 million in 20011/12. Of the R547.4 million
allocated to goods and services, 41,3% goes to consultants and professional
services. This percentage increases to 42,6% in 2011/12.
5.1 Programme
1: Administration
The
Administration Programme aims to co-ordinate and render effective, efficient
strategic support and administrative services to the Minister, the Director-General
and the Department. This programme has four sub-programmes:
á
Ministry;
á
Management;
á
Corporate
Services; and
á
Office
Accommodation.
In 2010/11,
the budget allocation for the Administration Programme was R246.5 million. This
amount increases to R274 million for 2011/12. Corporate Services receives the
largest share of the budget allocation (R121.6 million in 2011/12 and R128.4
million in 2010/11). The allocation for Office Accommodation increases
significantly by 215,7% in nominal terms and by 201,24% in real terms. This is
attributable to significant increases in annual rental costs.
5.2 Programme
2: Integrated Transport Planning
This programme
manages and facilitates national strategic planning for new projects,
formulates national transport policy and strategy, co-ordinates international
as well as inter-sphere relations and provides modelling and analysis of the
sector. The Integrated Transport Planning Programme comprises the following
sub-programmes:
á
Transport
Planning;
á
Freight
Logistics;
á
Modelling
and Economic Analysis;
á
Regional
Integration;
á
Programme
Management Unit; and
á
Integrated
Transport Planning Administration Support.
In 2010/11,
this programme was allocated R93.3 million and it receives R147 million in
2011/12. The marked increase is largely reflected in the Transport Planning
sub-programme which increases from R37.5 million in 2010/11 to R79 million in
2011/12.
5.3 Programme
3: Rail Transport
The Rail
Transport Programme facilitates and co-ordinates the development of sustainable
rail transport policies, strategies and systems. In addition, it oversees rail
public entities. Five sub-programmes fall under this programme:
á
Rail
Regulation;
á
Rail
Infrastructure and Industry Development;
á
Rail
Operations;
á
Rail
Oversight; and
á
Rail
Administration Support.
In 2010/11,
the budget allocation for the Rail Transport Programme was R9.2 billion and it
increases to R9.5 billion in 2011/12. The Railway Safety Regulator (RSR) and the
Gautrain Rapid Rail Link receive R37 million and R5.3 million respectively.
5.4 Programme
4: Road Transport
The Road
Transport Programme is tasked with regulating road traffic management. It is
also responsible for ensuring the maintenance and development of an integrated
road network through the development of standards and guidelines and oversight
of the road agencies and provincial road expenditure. The programme is divided
into four sub-programmes:
á
Road
Regulation;
á
Road
Infrastructure and Industry Development;
á
Road
Oversight; and
á
Road
Administration Support.
Expenditure
on the Road Transport Programme increases from R12.3 billion in 2010/11 to
R15.3 billion in 2011/12. For the current financial year, the South African
Roads Agency Limited (Sanral) is allocated R200 million for road maintenance.
In addition, Sanral receives R464.7 million for coal haulage roads and
preventative maintenance. Transfer payments to municipalities amount to R35.4
million.
5.5 Programme
5: Civil Aviation
The Civil
Aviation Programme is responsible for facilitating the development of an
economically viable air transport industry that is safe, secure, efficient,
environmentally friendly and compliant with international standards through
regulation and investigation. Moreover, this programme oversees the aviation
public entities. The Civil Aviation Programme has five sub-programmes:
á
Aviation
Regulation;
á
Aviation
Infrastructure and Industry Development;
á
Aviation
Safety and Security;
á
Aviation
Oversight; and
á
Aviation
Administration Support.
For
2011/12, the Civil Aviation Programme is allocated R57.6 million, which is down
from the R51.6 million it received in 2010/11.
5.6 Programme
6: Maritime Transport
The
Maritime Transport Programme co-ordinates the development of a safe, reliable
and viable maritime transport sector through the development of policies, monitoring
and oversight of the maritime public entities. Five sub-programmes fall under
the Maritime Transport Programme:
á
Maritime
Regulation;
á
Maritime
Infrastructure and Industry Development;
á
Maritime
Safety and Security;
á
Maritime
Oversight; and
á
Maritime
Administration Support.
The programmeÕs
budget increases from R134.7 million in 2010/11 to R152.1 million in 2011/12.
5.7 Programme
7: Public Transport
The Public
Transport Programme is responsible for developing norms, standards,
regulations, as well as legislation intended to guide the development of public
transport for rural and urban passengers. It is also tasked with regulating
interprovincial public transport and tourism services. Moreover, the Public
Transport Programme monitors and evaluates the implementation of the public
transport strategy and the National Land Transport Act (No. 5 of 2009). The programme
consists of five sub-programmes:
á
Land
Transport Regulation;
á
National
Public Transport Regulator;
á
Public
Transport Infrastructure and Development;
á
Public
Transport Oversight; and
á
Public
Transport Administration Support.
The budget
allocation for the Public Transport Programme increases from R8.2 billion in
2010/11 to R9.6 billion in 2011/12.
6. Public entities
The Committee also considered the strategic plans of
the following public entities:
6.1 Airports
Company of
Airports
Company of
The strategic
objectives of Acsa for 2011/12 are as follows:
á
Improving
its financial position;
á
Maintenance
of existing infrastructure, long-term business sustainability and business excellence;
á
Focused
management and controllable cost, and consistent customer focus services; and
á
A
mature and predictable economic regulatory framework.
The prevailing economic regulatory regime remains the
biggest threat to a sustainable business. Other risks and challenges are:
á
Finalisation
of 2010/11 Ð 2014/15 tariffs;
á
Clear economic regulatory pricing
policy required that would enable investment in
á
new capacity infrastructure;
á
Support for old
á
Appointment of board members;
á
Return to a profitable position; and
á
Continuous focus on service delivery.
The
estimated budget for the company is R5.258 billion.
6.2 Cross-Border
Road Transport Agency (CBRTA)
The CBRTA
is mandated through the SADC Protocol to take up the role of championing
regional integration by facilitating the unimpeded flow of cross-border freight
and passengers by road in order to promote trade and economic development with
the SADC region.
The
strategic objectives for the CBRTA for 2011/12 are as follows:
á
Implementing
the Southern African Development Community (SADC) Protocol on Transport, Communications and Meteorology;
á
Implementing
the Southern African Customs Union (SACU) Memorandum of Understanding on Road
Transport:
á
Implementing
the Trans-Kalahari Memorandum of Understanding;
á
Improving
visibility of inspections by expanding human resource capacity and
infrastructure; and
á
Establishing
an industry development unit and capacitating of the research and advisory
unit.
The CBRTA
requires funding to bridge operational constraints. A funding increase from R52
million to R182 million is required to perform optimally. The CBRTA is
currently operating below restricted
law enforcement visibility. Increased funding will enable the agency to fully
execute its mandate and increase its roadside visibility.
The
estimated expenditure for 2011/12 is R 67.4 million.
6.3 South
African National Roads Agency Limited (Sanral)
The mandate of the South African National Roads Agency
Limited is to finance, improve, manage and maintain the national road network (both
toll and non-toll roads).
SanralÕs key priorities for 2011/2012 are as follows:
á
Asset management systems for the
timely maintenance of national roads;
á
Planned increase of national road
networks by incorporation of roads as requested by provinces;
á
Good co-operative relationships with
relevant government departments and provincial and municipal authorities;
á
Toll road development (
á
Community development projects (rural
areas);
á
Using appropriate technology;
á
Incident management systems; and
á
Research and development (pavement
standards).
Estimated expenditure of SANRAL for 2011/12 is R15.331
billion.
6.4
South African Maritime Safety Authority (Samsa)
The mandate of Samsa is to
promote the RepublicÕs maritime interests and to ensure the safety of life and
property at sea. The SAMSA Act is
divided into two broad and distinct areas: Meeting the United NationÕs
conventions in regard to safety and pollution at sea and attending to the
nationÕs developmental challenges as they affect its oceans and inland waters.
The strategic focus areas of
Samsa for 2011/12 are as follows:
á
Modernisation
of the shipping administration;
á
Industrialisation
of the maritime sector;
á
Safety and
security of the RepublicÕs maritime domain;
á
Review and
implementation of small vessel regulations; and
á
Ratification
of international instruments into domestic law.
SamsaÕs challenges are
unfunded/underfunded government mandates that are constraining the companyÕs
delivery capacity. Skills shortages in key maritime technical areas remain a
key risk. The Samsa Act is outdated, contradicting key legislation such as the
Public Finance Management Act (PFMA) and the Companies Act.
The estimated expenditure of
Samsa for 2011/12 is R252.127 million.
6.5 Ports
Regulator
The Ports RegulatorÕs
main functions are the economic regulation of the ports system, promoting
equity of access to ports and their facilities and services, and monitoring the
activities of the Transnet National Ports Authority.
Estimated
expenditure for 2011/12 is R9.3 million.
6.6 Road
Traffic Infringement Agency (RTIA)
The AgencyÕs mandate is to decriminalise road traffic
infringements and to deal with them through administrative justice processes,
thereby freeing the courts to deal with more serious crimes.
The key
priorities of the Agency for 2011/12 are as follows:
á
To
realise the commitment to the United Nations ÒDecade of Action of Road
Safety 2011Ó; and
á
To
develop an effective legislative governance framework and to develop efficient
adjudication processes and a dedicated Road Traffic Infringement Appeals
Tribunal.
Some of the
critical issues that the Agency faces are insufficient funding and audit
queries. Urgent intervention is required with an increased budget allocation
for 2011/12 of R50 million.
Estimated
expenditure for 2011/12 is R295.1 million.
6.7 Road
Traffic Management Corporation (RTMC)
The mandate
of the RTMC is the co-operative and co-ordinated strategic planning,
regulation, facilitation and law enforcement in respect of road traffic matters
by the national, provincial and local spheres of Government.
The key
priorities for 2011/12 are to:
á
Enhance
the quality of road traffic services and protection of road infrastructure;
á
Harmonise
standard on axle load limits and other technical standards and infrastructure;
á
Develop the 2009/15 Road Traffic Safety
Management Plan; and
á
Develop
effective and efficient road traffic information and knowledge management
systems
The RTMC is
experiencing funding challenges. Estimated expenditure for 2011/12 is
R78.2 million. Additional funds of R92.5 million are required for making an
impact towards safe roads in 2011/12. The Road Traffic Management Corporation
Act must still be amended to enable sustainable revenue generation. Current
grant allocation is grossly inadequate.
6.8 Passenger
Rail Agency of
The
Passenger Rail Agency of South Africa was established in March 2009. PrasaÕs strategic
focus for 2011-2014 is aimed at:
á
Strengthening
its financial position (18 months);
The total
operational budget for 2011/12 is R8.462 billion.
6.9 Air
Traffic and Navigation Services Company (ATNS)
The mandate
of the ATNS is to provide safe, orderly and efficient air traffic, navigational
and associated services to the air traffic management community within
The key priorities for 2011/2012 are as follows:
á
Replacement, upgrading and
enhancement of surveillance at
á
Conclusion and implementation of
electronic flight plan enhancements as per the 2012 International Civil Aviation
Organisation (ICAO) requirements;
á
Conclusion and implementation of
agreement with New Zealand Airways to deploy a 3D simulator and the transfer of
engineering skills to
á
Entering into partnerships with
neighbouring countries in relation to technology and infrastructure development
in line with the provision of seamless, inter-operable and harmonious Air
Traffic Management (ATM)
service provision in the region;
á
Successful implementation of a
research and development division in partnership with recognised academic
institutions and other interested parties;
á
Successful implementation of the Central Airspace Unit (CAMU
) ATFM Test Bed/Laboratory as a means to develop and transfer critical ATM and engineering
skills to South Africa;
á
Implementing a fit-for-use radar
display simulator at the
á
Release in excess of 250 Air Traffic
Services staff for rating training across all ATS disciplines while maintaining
agreed-to service levels;
á
Validate in excess of 200 ATS
ratings in the operational domain;
á
All ATS staff to attend safety
management system training;
á
Introduce Normal Operational Safety
Survey (NOSS) in operations; and
á
Women Development Programme.
The estimated expenditure for 2011/12 is R1.015 billion.
6.10 Road
Accident Fund (RAF)
The RAF
provides compensation for loss of earnings and support, general damage, and
medial and funeral costs to victims of road accidents caused by negligent or
wrongful driving of another road user. Revenue for the fund is generated mainly
from the fuel levy.
The key
objectives for the RAF are:
á
Operational
efficiency and effectiveness;
á
Legislative
enablement
á
Financial
sustainability.
Some
of the options being considered to address the RAFÕs capital structure are raising debt from moneylenders, equity injections
from Government and an aggressive increase in fuel levy income.
Estimated expenditure for
2011/12 is R16.166 billion.
6.11 South
African Civil Aviation Authority (SACAA)
The mandate
of the SACAA is to regulate the civil aviation industry to ensure security and
safety by complying with the International Civil Aviation Organisation (ICAO)
and taking into consideration the local context.
Key priorities
for 2011/12 are as follows:
á
Implementation
of the Civil Aviation Act (No.13 of 2009) which came into effect on 31 March
2010. The focus areas for implementation are:
á
Establishment
of the Aviation Safety Investigation Board (ASIB) and the Appeals Committee;
á
Participation
on the ICAO Committee;
á
Standardise
processes to achieve effectiveness and efficiency, promoting industry
transformation in line with BBBEE goals; and
á
Ensure
sound corporate governance, human resource management and financial sustainability.
The risks
and challenges that affect the SACAA are the recent tariff increases which are
insufficient to fund the operational and capital budget. The organisation is
heading for a loss for three consecutive years. The organisation pays more than
R1 million a month in building rental and no significant investments have been
made in assets post inception.
Estimated
expenditure for 2011/12 is R320.6 million.
6.12 Railway
Safety Regulator (RSR)
The mandate
of the RSR is to oversee safety in the railway transport industry. The RSR
oversees and promotes safe railway operations through support, monitoring and
enforcement guided by an enabling regulatory framework, including regulations
and safety standards.
Key
priorities for 2011/12 are as follows:
o
Undertaking
targeted technical audits on both Transnet Freight Rail (TFR) and Prasa focusing
on infrastructure integrity, train control systems, rolling stock and interface
management;
o
Overseeing
safety compliance of the Gautrain Rapid Rail Project;
o
Monitoring
and evaluating railway safety performance; and
o
Implementing
and administering penalty regulations.
Estimated
expenditure for 2011/12 is R58 million.
In addition
to the input by the Department and the entities, the South African National
Taxi Council (Santaco) provided input on their strategic focus areas as
follows:
7. Committee
observations and recommendations
Based on
the information provided in the strategic plans of the Department and its
entities, the Committee made the following observations and recommendations:
7.1 Lack
of an integrated transport plan
7.1.1 The Committee noted the lack of proper
integration of plans between the
Department and its entities.
7.1.2 The Committee recommended the integration of
transport plans from national to provincial to municipal levels. An integrated
transport plan should include the amalgamation of rail freight and ports.
7.1.3
Standard
setting, monitoring and technology development should form part of integrated
planning.
7.1.4
The
Project Management Unit should be prioritised and there should be
engagement with National
Treasury on the matter.
7.1.5
Time
frames for implementation should be shortened.
7.1.6
The
finalisation of the scholar transport policy was welcomed as it would speak to the
budget and location of functions. Scholar transport should be prioritised and the
scholar transport function should be located in the Department of Transport.
7.1.7
The
issue of monopolies should be addressed and BBBEE should truly become broad
based. Social investment, job creation and women development should be included
in planning.
7.1.8
The
Department should investigate ways for E-Natis to connect with other databases.
7.1.9
The
location of E-Natis should be migrated to the Department.
7.1.10 The co-ordination of transport in
provinces in terms of reporting should be addressed at political level.
7.1.11 The Committee recommended the need
for a planning commission to establish an integrated transport plan.
7.1.12
The
Committee recommended that government should address the issue of an economic
regulator.
7.1.13
The
issue of one economic regulator should be addressed as a matter of urgency.
7.2 Road
Transport
7.2.1 The Committee observed that the Road
Accident Fund is technically insolvent and legislation will not provide an
adequate solution for the problems experienced by the entity. An appropriate
funding model has to be established for the entity.
7.2.2 Sanral presented a funding model and
acknowledged that the roads are beyond their lifespan, but no alternative
solution was given.
7.2.3 The issue of rural scholar transport needs
to be unpacked. Manufacturing plants for bicycles and vans in rural areas will
create jobs and eradicate poverty.
7.2.4 The Committee recommended that the
conditions of rural roads should be addressed. The Committee requested further
engagement with the Department on the Rural Road Fund.
7.2.5 The Committee requested follow-up meetings
with RTIA and RTMC to address their mandates.
7.2.6 The Committee further
recommended that the Department of Transport consider taking over the
administration of the RTMC and the RTIA until such time that their mandates
under their respective Acts had been redefined and their management challenges had
been addressed.
7.3 Rail
transport
7.3.1 The Committee recommended that the focus
should be on the development of rail as a mode of transport.
7.3.2 Legislation should be put in place to move
the transport of goods from roads to rail.
7.3.3 Public transport should be prioritised as an
alternative to relieving congestion on the roads.
7.3.4 The cost of Bus Rapid Transit (BRT) was high
and light rail transport should be considered for public transport initiatives.
7.4 Aviation
transport
7.4.1 The Committee recommended that the vacancies
on the Acsa board should be filled within determined time frames.
7.4.2 Legislation
to address tariffs should be prioritised.
7.4.3 In terms of the
7.4.4
The
status of air traffic controllers should be clarified in terms of their skills
base and training. The Committee recommended that further education and training
institutions and academic institutions are partnered to provide training for
the industry to establish a skills pool and to reduce the cost of in-house
training. The training and skills development of women and trainees from
previously disadvantaged backgrounds should also be prioritised.
7.5 Maritime
transport
7.5.1 The Committee recommended legislation that
regulates pollution disasters along the South African coastline.
7.5.2
Capacity
challenges experienced by the Ports Regulator should be addressed so that the
regulator can fulfill its mandate. The Department was asked to address the
matter urgently.
7.5.3
The
South African Maritime Safety Authority was tasked to address the issue of
skills development programmes to develop a sustainable pool of expertise for
the maritime industry.
7.5.4
The
economic value of a South African fleet should be unpacked by the South African
Maritime Safety Authority.
8. Conclusion
Having
considered Budget Vote 37: Transport and the strategic plan of the Department
of Transport and the strategic plans of the related entities, the Committee
recommends that its report on the budget vote be adopted.
Report to be considered.