The Road to Safety

2001-2005

Major Short to Medium term Interventions

Strategic Objective: Driver fitness

1. Driving licence-testing / issuing

Proposed measures:

1.1 Channel Additional Funds to Provinces to Ensure Compliance of Driving Licence Testing Centres [DLTCs]

• NDoT will commit funding to provinces to support the immediate upgrade of a prioritised list of critical / strategic DLTCs in each province. The process will be implemented through formal output-based contracts between each province and the NdoT.

• Provinces will be expected to complete the process of getting the remaining non-compliant DLTCs within their jurisdictions up to full compliance within a further one-year period.

1.2 Tighten Procedures at Driving Licence Testing Centres

• The NDoT will amend the National Road Traffic Act and/or Regulations, as required, to:

• Geographically bind DLTCs;

• Introduce annual re-registration of DLTCs tied to technical (and, where necessary) forensic inspection;

• Introduce 2-yearly re-registration of examiners, linked to clean record and completion of appropriate refresher course.

• The NDoT will review regulations governing K-53 test procedures and work with Technikons and SAQA to design a professional qualification and refresher course structure for examiners.

• Compulsory changes to procedures and examiner training requirements will be phased in as soon as the new qualifications and structures are finalised.

1.3 National Workshop on Driver Training and Examination

This workshop will address four key issues:

1. The creation of a national oversight body for driver training/examination:

This will be composed of representatives of all major driver education and examination interests, and would perform the function of monitoring and/or managing the practical execution of SA driver training and examination systems. [This body could well become a functional unit of the Road Traffic Management Corporation (RTMC)]

2. Driving licence examination reform

Short-term:

• Review of learner’s licence theory test to ensure that proper emphasis is being placed on improving the safety of newly qualified riders and drivers by making them think carefully about the right attitudes needed to drive safely on our busy and dangerous roads.

Areas of assessment to be reviewed will include: driver attitude; new traffic signs and regulations; effects of alcohol, drugs and fatigue on driver behaviour; safety and environmental aspects of vehicles.

• Revision of the K-53 practical test, to emphasise safe driving and knowledge of the Highway Code (as demonstrated by the applicant’s driving).

The administration of the test will be examined to ensure that there are sufficiently clear guidelines for:

• test routes – these must be as uniform as possible and include a range of typical road and traffic conditions; and

• test procedures – applicants must be given directions in good time and required to complete a series of set exercises, including turning in the road, reversing around a corner, reverse parking, carrying out an emergency stop and starting on an incline.

Examination of the requirements for an extended practical test (re-test) for drivers who have been disqualified upon conviction for dangerous driving offences or other offences involving obligatory disqualification [Such a test would be envisaged as being longer than the standard test (± 70 minutes, as opposed to ± 40 minutes) and more demanding (covering a wide variety of roads, and traffic situations, usually including dual carriageways).]

Medium term:

• Introduction of a graduated driving licence, with specific restrictive conditions, for first-time drivers.

3. Formalisation / regulation of driving schools: capacity building and SMME development
4. Formalisation / regulation of driving schools: capacity building and SMME development

• Investigate and consider the feasibility of:

• Carrying out a comprehensive audit of all existing driving schools;

• Setting criteria for driving school accreditation/registration and developing a compulsory Code of Conduct;

• Defining minimum facility and service standards;

• Developing accredited driving school instructors’ training courses and formal criteria for registration/re-registration of instructors.

• Promoting development of supportive business training for historically disadvantaged entrants to the industry.

5. Tightening of PrDP requirements

• Introduce compulsory practical test into 2-yearly renewal of the PrDP.

• Examine options for stricter pass criteria for professional drivers.

• Investigate making 4-yearly completion of an accredited advanced/defensive driver-training course compulsory.

• Introduce a new, stricter annual medical examination, checking for substance abuse and latent medical conditions that can lead to unsafe driving.

1.4. Introduce a Computerised (Touch-Screen, Audio-Visual) Learner Driver’s Licence Test

Purpose: to minimise human intervention - and hence opportunities for fraud - at the critical first stage of the licensing process, allowing anti-corruption resources to be more sharply concentrated on the application of the K-53 test. The other major advantage of the computerised learner’s test is that it is user-friendly and much more accessible to disadvantaged learners, with a simplified graphical interface and a facility for audio access to questions in all 11 national languages]

• The national tender for the system will be awarded during 2001.

• The successful contractor will be initially required to set up 9 pilot sites (one per province) for a 6-month test period, to be followed by full rollout to all compliant DLTCs nationally by mid-2002.

• During 2002 the system will become compulsory for DLTC registration and for all new applicants for the learner’s licence.

2. Public Empowerment and Participation

Proposed measures:

2.1 Establishment of a National Call Centre

• The NDoT will complete negotiations with private sector telecommunications service providers to set up a central free-phone complaint line to enable the general public and public transport passengers to report operator and driver safety violations and corrupt practices at DLTCs and VTSs. The National Call Centre will have hot-links to SAPS and traffic enforcement authorities and will be the central reporting point for violations of the Passenger’s Charter, which will have to be displayed in all buses, coaches and minibus taxis from 2002.

• Staffing, infrastructure, operational procedures and a public communication plan will be finalised in the months running up to the projected launch of the Call Centre.

2.2 Public Participation / Mobilisation Workshops

• National Consultation Process

Led by the Minister, the aim is to gain collective ownership of the strategy and chart key areas of practical cooperation between government, business and civil society that can be used to build safety consciousness and create effective networks and channels for grass roots public participation. Key areas of focus are community ownership of pedestrian safety, empowerment of public transport passengers and the mobilisation of general public vigilance with regard to fraud, corruption and dangerous vehicle usage on our roads.

• Provincial Consultation Process

Provincial Workshops, under the leadership of the respective MECs and Mayors, will then further develop the process, via Action Plans to be implemented at metro, district and local council levels.

Strategic Objective: Vehicle Fitness

1. Vehicle Testing & Registration

Proposed measures:

1.1 Review Entire VTS Operational System and Procedures

• An analysis has already begun, addressing issues of ownership structure, legal framework, institutional arrangements, examiner training & registration standards, management processes, information flows, manuals / codes of practice and testing procedures].

• A Report on all key issues will be produced by a joint working group of NDoT and co-opted technical specialists, supported by committed representatives of the VTS industry, for submission to MINCOM.

• The NDoT will make a final decision on industry restructuring options, oversee the implementation of new manuals/codes of practice and work with Technikons and SAQA to design basic professional qualifications and refresher courses for VTS examiners.

• The NDoT will then regulate to phase in compulsory changes to equipment requirements, management systems, procedures & training standards.

• The medium term objective is to phase in annual roadworthiness testing for all vehicles over a specified age / kilometrage, as soon as the VTS industry and Inspectorate are strong enough to sustain the new system. It is expected that annual testing will begin to be implemented during the lifetime of this strategy.

2. Regulation of Road Freight / Public Passenger Transport Operators

Proposed measures:

2.1 Fleet Safety Management

• The Minister will initiate a formal consultation process with freight and public passenger transport operators’ associations and drivers’ unions on the design and implementation of a standard National Code of Practice / Fleet Safety Management Plan. The aim is to strive for industry self-regulation wherever possible, but to back this up by compulsion where necessary in respect of safety-critical issues and by an effective inspection, monitoring and enforcement regime.

• A joint working group of government, operator and union representatives will be formed. With the support of technical standards and legal experts, it will be required to report back to the Minister and MINCOM in 6 months with draft recommendations on:

• The content and application of the Operator Code of Practice / Fleet Safety Management Plan.

• Fixing of public transport customer service standards/ definition of Passenger’s Charter rights for compulsory display in vehicles.

• Tightened PrDP test, extended medical examination by an accredited practititioner and safety awareness/ defensive driving requirements.

• Acceptable norms to govern driver working hours and conditions (in consultation with Dept. of Labour and industry bargaining forums).

2.2 Vehicle Safety Measures

• Discussions are already under way with the road freight and public passenger transport industry on:

• Development of standards for top speed limiters;

• Tyre fitness measures: appropriate tyre quality, rating and inflation to be included in Operator Code of Practice; additional consultation on compulsory implementation of specialised tyre monitoring and anti-blow-out devices.

• Fitment of electronic onboard overload control monitors to be investigated.

• Public communication programme on tyre safety/ maintenance to be run during 2002.

2.3 Overload Control

• Guarantee basic operational funding:

Ensure that agreed financial contributions are paid to the National Overload Control Fund, and that distribution is strategic and fair.

• Reformulate National Overload Control Strategy [NOCS]

NDoT to work with the CSIR, SANRAL and provincial traffic authorities to produce revised NOCS, with proposals for operational & funding changes. Main focal points:

• Overall funding strategy

• Optimal use of existing Traffic Control Centres (TCCs).

• A systematic operational strategy to implement inter-provincial and cross-border enforcement actions.

• Intensified deployment of new weigh-in-motion technologies & development of standards to secure their evidential viability in court.

• Expanded use of PPPs to manage and maintain strategic TCCs and install and operate weigh-in-motion sensor systems.

• Investigation into the possibility of amending the Road Traffic Act to lower the current 56-ton gross combination mass limit currently in force in South Africa to reduce road damage, increase the unit cost of road freight and, in so doing, create a price incentive for certain categories of customer to switch from road to rail.

[Note: From a road traffic safety perspective it is acknowledged that the longer and the heavier a vehicle is, the more significant its impact on the infrastructure and on fellow road users: passing time, stopping distances, negotiation of corners, impact on free flow of traffic and consequences in the event of an accident].

• Investigation into the viability of impoundment and forfeiture of vehicles belonging to operators convicted of repeated or gross overloading.

Strategic Objective: Pedestrian Safety

Proposed measures:

1.1 Actions in Arrive Alive Business Plan 2000/01

• All nine provinces mandated to work with local government and communities to implement a rolling programme of identification and prioritisation of hazardous pedestrian locations and apply multi-disciplinary solutions involving:

• Mandatory implementation of the Pedestrian Facility Guidelines, Road Safety & Speed Limits Manuals.

• Targeted engineering solutions.

• School and community-based education in safe traffic participation.

• Implementation of a nationwide reflective bands programme for schoolchildren, with private sector support.

1.2 National Pedestrian Action Plan

• NDoT/CSIR Joint Working Group to extend support for rolling provincial-metro-local pedestrian actions identified and agreed in the National Pedestrian Workshop, Jan 2001.

Main features:

• Training of government and local authority officials and community members.

• Community needs assessments, planning, implementation and evaluation.

• Community-driven safety processes, participatory educational methods and technologies.

• Partnership development with private sector and NGOs on national, provincial, metro and local levels.

Pedestrian programmes to be aligned with:

• Publicity for new schools Road Safety Curriculum.

• National Road Safety Week activities.

• Shova Lula National Bicycle Transport Project.

Strategic Objective: Institutional reform

1. Driver and vehicle licensing systems

Proposed measures:

1.1 Restructure and upgrade the Driving Licence Testing Centre Inspectorate

• NDoT to produce a plan for the establishment of an increased number of Inspector posts on the Departmental budget. (Provisionally estimated at 5 additional posts per year over four years).

• NDoT to set up a workgroup including technical experts and Technikon and SAQA representatives to:

• Analyse shortfalls in the capacity of the current Inspectorate to meet inspection requirements across the country and design appropriate professional qualifications for the Inspectorate;

• Finalise and accredit a new modular DLTC Inspector’s Diploma and create the required course delivery structures;

• Develop criteria and a delivery framework for periodic refresher courses for re-registration of DLTC examiners.

• Full Inspector’s Diploma to become a pre-requisite for new inspector appointments; retrospective modular training to be mandatory for existing inspectors.

• As capacity allows, move to an annual re-registration regime for DLTCs linked to the phasing in of a cycle of more regular and stringent inspections [Target: minimum of 4 formal inspections per DLTC per annum + ad hoc inspections as required].

1.2 Review operations of the Vehicle Testing Station Inspectorate: restructure and upgrade

• NDoT to critically review the location, human and technical resources and operational procedures of the current Vehicle Testing Station Inspectorate.

• Identify new training requirements, starting out from basic training in SABS 0216 and 047 procedures, supplemented by ISO 5000 standards + special courses on brakes, steering and suspension.

• NDoT to work with CSIR, Technikons, SAQA and industry role-players to:

• Finalise a new modular VTS Inspector’s Diploma (based on revised manuals / codes and procedures and including specific technical and HR competencies);

• With assistance from the NDPP, create a group of specialist forensic auditors to root out fraud and deliberate non-compliance and transfer skills to the Inspectorate;

• Create course delivery options and a career structure for the profession;

• Develop criteria and a delivery framework for periodic refresher courses for re-registration of VTS examiners.

• Full Inspector’s Diploma to become a pre-requisite for new inspector appointments; retrospective modular training to become mandatory for existing inspectors.

• As capacity allows, move to annual re-registration of VTSs linked to phasing in of a cycle of regular & stringent inspections. [Target: minimum 4 inspections per VTS per annum + ad hoc inspections as required].

• Investigate amending legislation to empower inspectors to immediately suspend or close down non-compliant or corrupt VTSs and conduct law enforcement actions for vehicle roadworthiness.

• Equip the Inspectorate with mobile vehicle testing stations to carry out roadside checks.

2. Adjudication and fine collection system

Proposed measures:

2.1 Rationalisation of traffic offence adjudication

• Minister of Transport to consult with Minister of Justice and NDPP to look for means of finalising the existing backlog of traffic cases in the courts and rationalising sentencing.

Main requirements:

• Dedicated traffic courts in all major population centres, backed up by much wider deployment of mobile traffic courts to provide effective coverage of targeted stretches of national and provincial road countrywide.

• A programme of workshops to persuade prosecutors and magistrates to impose more uniform and severe sentences for serious traffic offences.

• A public communication campaign to build consensus for stiffer penalties.

• Creation of special capacity to prosecute effectively in technically complex overloading cases.

2.2 Effective offence detection and fine collection systems

• Cooperation with the NDPP / Scorpions to set up a specialist team of forensic auditors to support the Driver Licensing and vehicle Testing Inspectorates.

• Full implementation of coordinated inter-provincial enforcement through the consolidation of the Road Traffic Management Corporation during the lifetime of the strategy.

• Full implementation of the AARTO administrative adjudication, fine collection and points demerit system through the consolidation of the Road Traffic Infringement Agency (RTIA) during the lifetime of the strategy.

• Public / private partnerships to support the implementation and maintenance of increased numbers of static surveillance cameras and other forms of offence detection technology.

TABULAR BREAKDOWN OF INTERVENTIONS OVER THE LIFE OF THE STRATEGY AND BEYOND

The implementation grid that follows (from p. 44) includes both a summary of the short to medium term interventions outlined above and the further supporting and extending actions necessary to knit together the elements of the matrix represented in the Strategic Map (p. 25 above).

The grid exactly follows the logic of the Strategic Map, with each action described taking its place within the structure given by the categories Road Environment - Road User - Vehicle and the intervention areas Standards & Rules - Compliance (Enforcement + Education, Communication & Public Participation) - Institutional Reform/Quality Monitoring.

In this way, the aim has been to achieve the maximum possible coherence between the various sub-actions of the strategy as they unfold along short to medium or medium to long-term time-lines.