A presentation by Lisa Seftel. Delivered during the 2016 Southern African Transport Conference (SATC), held in Pretoria, South Africa.

1. Moving from Bus Rapid Transit
to Integrated Public Transport
LISA SEFTEL, CITY OF JOHANNESBURG
SATC CONFERENCE JULY 2016

2. Agenda
 Introduction and background
 What did we learn from our planning process
 Introducing our Integrated Public Transport Network plan
 Implementing the plan
 Concluding remarks

3. Introduction
and
Background
ADD PICTURE

4. Brief overview: City of Johannesburg
 Population: 4.4 million
 Population growth rate: 3.4%
 Land mass: 1 645 km 2
 Population density: 2695/km2
 Household number: 1 434 856
 Household size: 3 persons per household
 Growth rate: 3.3% in 2011
 Unemployment: 23% of economically active
people in 2010 but if those who have
stopped looking for work are included, the
number grows to >30%
 67.4% of households live on less than R3200
per month with a large percentage of poor
household’s income going towards transport
 Gini co-efficient: 0.63,- highest in world
 Carbon emissions: 56% is contribution of
Joburg to national carbon emissions, 13%
highest carbon emitting City in the world
and Transport has the highest demand for
energy (67%)

5. Background: Public Transport
Chronology
Year What
2003 First five year ITP done. Identified need for a Strategic Public Transport Network
2006 Mayoral Committee agrees to implement BRT in Joburg, study tours, engagement with
operators start
2007 Infrastructure roll out starts, MOU with operators signed
2009 Phase 1A BRT starts with 40 buses and interim company.
Feb 2011 Phase 1A BRT handover to taxi industry shareholders
First half
2013
Mayoral Committee agrees to restructure Metrobus on similar lines to BRT contracts – agrees
turn around business plan
Oct 2013 Phase 1B starts with an interim company. Full roll out by May 2014
June 2014 Phase 1C business plan approved yet with need to do further work on integration and new
areas to North
August 2015 Phase 1B handover to taxi industry, 50% board independent and independent management
teams
2015 Establishment of engagement and negotiations for third phase – now integrated

6. Background: Transport Planning
chronology
Year What
2003 First five year ITP done. Identified need for a Strategic Public
Transport Network and identified routes for all modes. Most not
implemented due to policy switch to BRT
2008/9 Started to plan and find funding for next CITP
2012 Transport Register done
2013 Household survey done
2013 Strategic Integrated Transport Plan Framework (see next slide)
approved by Mayoral Committee
2016 Integrated Transport Network done with a focus on public
transport (Strategic Integrated Public Transport Network plan) but
also approach to freight and NMT network.

7. How we have planned to do CITP
and what have we done
Done
Not done
Struggling
to define
how best
to do
Mostly done
– need to
get input
from PRASA
and
Gautrain
Ongoing

8. What did we
learn from the
planning
process?

9. Household Travel Survey
What did we do
 In February 2013 we
surveyed 6300
households across the
City
 We asked them about
their transport
movements and levels
of satisfaction
Key conclusions
 Private: Public split: 57: 43
 Further modal split (all trips)

10. Satisfaction with public transport
from Household Travel Survey

11. Transport need assessment
What did we do
 Workshops were held in the seven
regions asking stakeholders
including councillors, operators,
residents associations and
commuter groups to determine the
transport challenges they had and
their views on our proposed plans
 We also engaged with internal and
external government partners
through the Joburg Intermodal
Planning Committee
Key conclusions
 Key themes were:
 Reliable, more frequent and
punctual public transport
services
 Improved customer care
 Affordability
 Last mile accessibility
including sidewalks and safety

12. Stated Preference Survey
What did we do
 We interviewed 1208 persons
representative of low, high
and middle income groups
 We investigated ‘mode
captivity’ and ‘mode choice
sensitivity’
Key conclusions
 Mode captivity:
 50% of road users unwilling to switch to public
transport, even with significant improvements
 Other 50% will move if it is attractive enough
(safety, accessibility, frequency and reliability)
 Mode choice sensitivity
 Most sensitive to waiting time, followed by
walking time
 People more sensitive to price changes vs speed
changes
 Gautrain was more attractive than other modes.
BRT was considered similar to Metrorail

13. Transport Model
What did we do
 Upgraded the 2003 EMME/2 transport
demand model for horizon years 2014 (base
year ), 2015 and 2037 (forecasting)
 The following information was updated:
 Road network capacity (JRA Pavement
Management System)
 Road network utilization (JRA, NRA
Traffic counts)
 Public transport infrastructure and
services (TIR 2013)
 O-D matrices (Joburg HTS 2014)
 Population (Census 2011)
 Dwellings (Joburg CIP 2014)
 Worker and floor area (GITMP25)
 The model was used to forecast future
scenarios and to test alternative network
proposals
Key conclusions
 Concentrated origins and dispersed destinations
 Passenger demand volumes in the long term do
not exceed 10000 passengers in the peak hour on
road based assignments
 With the exception of Modderfontein, no major
road network expansions will be required to
develop the ITN. Westlake link from Soweto can
create opportunities for us
 NMT demand within (10km) does not warrant a
city wide network however should be built from
precinct levels
 Impact of BRT on TOD not yet evident

14. Developing an
Integrated
Transport
Network

15. What is the purpose of the ITN?
 To set out a long term
network for public transport,
NMT and freight
 To be able to guide
infrastructural investment
decisions, operational
planning, transformation
initiatives and budget required
in the short, medium and long
term.
Components of the Integrated
Transport Network
Integrated Public Transport
Network Plan
Non-Motorised Transport
Planning Framework
Freight network plan and freight
management plan
This presentation will focus on the public transport component

16. What guided us: Current
environment
 Significant fiscal constraints impacting on:
 Reduced PTIS grant and less certainty
 High exchange rate makes buses and ITS equipment more expensive
 Post Eco-Mobility Festival and current road works makes public transport
more desirable for all income groups
 Climate change (post CoP) to switch to green transport
 Learnt many operational and sustainability lessons from Phase 1A and 1B
 Transformation complexities and ongoing taxi industry instability
 COF emerging theme: Need to reduce spatial inequality (Corridors of
Freedom) and ‘service delivery inequality (disproportionate investment in
different modes)

17. Approach to IPTN
 IPTN to
 Cater for a wide range of demand realities;
 Be flexible over time: as demand change and/or more resources
become be available
 Still ensure rapid transit over long distances to address the apartheid
legacy of long travel times and restructure the City along transport
corridors
 This means gong forward we are focusing not only on BRT but also on:
 Additional ways of creating public transport priority for all modes of
public transport
 Shorter term measures to making existing public transport more
attractive and accessible
 Integration with other modes and NMT
 Incorporation of new and shared forms of demand responsive mobility
 Proposed changes are aligned to:
 NDOT and NT policy directives
 Changes in fiscal conditions
 Lessons learnt from Phase 1A, 1B and Metrobus
Components of
IPTN
• Proposed network
hierarchy
• Proposed
passenger access
(stops, stations,
interchanges)
typologies
• Design parameters
• Tools of integration
• Proposed city wide
Strategic
Integrated Public
Transport Network

18. How did we determine the IPTN?
 We looked at:
 Trip generation at the base year (2014)
and on the basis of projected land use,
population and employment growth,
developed estimated figures for 2025
and 2037 (using same figures as used to
develop SDF)
 We made certain assumptions about
public transport size, frequencies and
other service standards (see further
slides)
 Surrounding land use and future
intention (Corridors of Freedom,
possibility of mixed use along corridor,
Consolidated Infrastructure Programme
model)

19. Public Transport Trip Generation (City
wide)
Public Transport Peak Hour Person Trips
Base (2014) 2025 2037
0-500 500-1,000 1,000-2,000 2,000-3,000 3,000-4,000 4,000-5,000 5,000-7,500
7,500-
10,000
10,000-
15,000
15,000-
20,000
20,000-
25,000
25,000-
30,000

20. The service will operate for 18 hours (04:00-22:00)
Typology B/C will have a minimum headway of ≥1 min for the peak
and ≤15min)
Typology D/E the minimum headway will be ≤10min and during the
off peak≤30min
The design is at a load factor of 1 for seated passengers and 0.85 for
standing passengers.
85% resident within 1km
45kph Rail
36kph BRT
27kph Bus Routes
25kph Feeder
IPTN design parameters: 1
The average travel speeds of route
types

21. Year 1:50%
Year 2:50%
Year 3:75%
Year 4:≥100%
Single-articulated bus : 110 - 118
Rigid Bus: 55 -70 (45 - 55 seats)
Minibus-taxi: 15 seats (no standees)
Double decker bus: 90 - 110
IPTN design parameters: 2
The capacity (vehicles) to be
provided relative to the demand
Maximum standing time is planned for 20min
MBT’s per bay/hour = 12
Rigid buses per bay/hour = 6-8
The number of vehicles per hour
each bay can accommodate
Number of seats per
vehicle

22. Proposed integrated public transport
network (IPTN) hierarchy
 We are proposing a public
transport network hierarchy
differentiated in terms of:
 Demand
 Right of way (and thus speed)
 Frequency of stops (depends
on demand and surrounding
land use)
 Modes (some only one mode
e.g. rail, low density areas can
have more than one mode on
the network
 Degree of investment (for
rapid bus, higher investment)

23. MODE
CATEGORIES
TYPOLOGY DEMAND MODE FUNCTION AND FEATURES
Rail Public
Transport Network
SIPTN-
Type A
9000-15000
Gautrain,
Metro Rail
o To move people quickly from area of high residential to areas of
employment/income opportunities
o Limited stops. (closed stations)
Rapid Road Public
Transport Network
(High Capacity)
SIPTN-
Type B
6000-9000
Bus Rapid Transport,
Light Rail
o Corridors of Freedom, mixed use development , three story residential
o To move people quickly from area of high residential to areas of
employment/income opportunities
o Limited intersections and right turns so buses can be relatively speedy
o Limited mostly closed high or low floor stations
Road Public
Transport Network
(Medium Capacity)
SIPTN-
Type C
3000-6000 Bus Rapid Transport
o Corridors of Freedom and areas where the City want s o densify along
the corridor
o Mixed use development, Three story residential, social housing along
corridor.
o Fairly frequent closed and opens low floor stations and some stops
Road Mixed Traffic
Public Transport
Network (Medium
to Low Capacity)
IPTN-
Type D
1000-3000
Bus (Double Decker,
Standard)
o Frequent stops with shelters
o Some public transport priority (e.g. queue jumping)
o On street stopping by public transport vehicles
o Low to medium density
Road Mixed Traffic
Public Transport
Network (Low
Capacity)
IPTN-
Type E
500-1500
Bus ( Standard, Mini
bus)
o Frequent stops with lay bye es and shelters
o Low to medium density
Road Mixed Traffic
Public Network
(Demand Driven)
IPTN-
Type F
<500
Bus, Taxi, Demand
responsive (e.g.
ehailing)
o Low to medium density
o Mostly stops or e-hailing
Proposed IPTN Hierarchy: 1

24. New public transport priority
measures for Type C

25. Proposed passenger access
typologies
 We have identified different ways in which
passengers can access the public transport
system as follows:
 Stops,
 Shelters,
 Open Stations
 Closed Stations
 Interchanges terminals, taxi ranks.
 The key drivers in reviewing and
proposing passenger access
typologies are:
 Differentiated demand
 Costs and sustainability
 Accessibility
 Integration
 For example:
 It does not make financial and
operational sense to erect and run large
fully fledged stations for low numbers
of passengers in suburban areas.
 On the other hand, in areas like
Thokoza Park, a station is no longer big
enough to accommodate the numbers
and an interchange maybe more
suitable.

26. Proposed Passenger Access Typologies: 1
Passenger
access
Typology
Network
Typology
Mode
Indicative
Demand
Typical features
Stop Type E Double decker ,
rigid and mini
bus
0 to 225
(PAX
Facility
utilization/
hour)
• Stop Pole
• On board fare collection
• Limited static passenger information
• Universally accessible
Shelter Type E Double decker ,
rigid and mini
bus
225 to 450 • Standardised bus shelter with Stop Pole
• On board fare collection
• Static passenger information
• Universally accessible
Open Station
(Single
Module) 18m
Shelter only
Type B to D Articulated ,
and rigid bus
450 to
1000
• Standardised open Station
• Shelter over only 18m long boarding area
(balance of footprint – no shelter)
• Simple Totem Pole
• On board fare collection
• Possible toilet facility,
• Possible TVM,
• Static passenger information,
• Universally accessible
• Secured
• CCTV and Wi-Fi
• Possible bike storage

27. Proposed Passenger Access Typologies:2
Passenger
access Typology
Network
Typology
Mode
Indicative
Demand
Typical features
Open stations
(Single Module
only)
Full Shelter
Type B to
D
Articulated and rigid
bus
1000 to
2500
(PAX Facility
utilization/h
our)
• Standardised open Station with Simple Totem Pole
• On board fare collection
• Full shelter,
• Possible TVM
• Static passenger information,
• Possible Toilet facility, Universally accessible
• Secured, CCTV and Wi-Fi
Closed station
Single Module
Double Module
Type B to
D
Articulated and rigid
bus 2500 to
5000
5000 to
10000
• Standardised fully closed Station with Totem Pole
• Off board fare collection
• TVM
• Static and electronic passenger information,
Ticketing/Staff facilities
• Toilet facility,
• Universally accessible
• Fully secured, CCTV and Wi-Fi
• Possible adjacent park and ride site & bike storage
Interchange ,
Terminal and
taxi Rank
Type A to
E
Articulated and rigid
bus, mini bus taxis
> 10000 • Multiple platform semi closed/ open facility with Totem
Pole
• Off board fare collection,
• TVM
• Static and electronic passenger information
• Staff facilities,
• Toilet facility,
• Universally accessible,
• Fully secured, CCTV and Wi-Fi
• Adjacent park and ride site if possible & bike storage

28. Strategic IPTN
 On the basis of the above, the next slide sets out the proposed Strategic IPTN until
2025
 It is called the “Strategic” IPTN because it focus on high level road and rail network. The
following slide shows the network coverage that is achieved.
 In respect of Type A (rail based network) we have depicted the routes that are currently
operational – awaiting outcome of Gautrain expansion study
 In respect of Type B, C and D we have identified 19 road based routes and we extend
the Rea Vaya naming methodology for proposed future phases as follows:
 Phase 1 (A,B,C) are existing phases
 Phase 2 (A,B,C) are second phases in same areas as first phases (e.g. 2A is also in
Soweto)
 Phase 3 are new phases covering new origins and destinations with 2025 horizon
 Phase 4, 5 are currently operated by Metrobus (Type C/D ) but could move to B/C
in the long term
 In line with the branding strategy, all these routes will when transformed be called Rea
Vaya

29. 2025 Network Assignment
This is the
anticipated demand
for public transport
in 2025
(morning peak hour
)
2025 is the
proposed year for
the IPTN (10 year
plan)

30. SITPN
Type A
Routes

31. SITPN
Type A+B
Routes

32. SITPN
Type A+B+C
Routes

33. SITPN
Type A+B+C+D
Routes
Routes will stay same, alignments
may change after detailed
feasibility

34. Phase From SIPTN Routes Destination Type
Gautrain Hatfield Sandton Park Station A
Gautrain OR Tambo Marlboro Sandton A
Metro Rail Naledi Park Station Germiston A
Stretford (Orange
Farm)
Orlando Park Station A
Princess (Westgate) Florida Park Station A
Naledi Crown City George Goch Station A
West Rand Orlando Park Station A
1A Thokoza Park Soccer City CBD Ellis Park B
1B Thokoza Park UJ, Wits, Parktown CBD B
1C CBD Louis Botha, Alexandra Sandton B
1A
Extension
Ellis Park Albertina Sisulu East Gate B
2A Thokoza Park Beyers Naude, Randburg Sandton C
3 Thokoza Park Roodepoort (3A),Four Ways (3B)
Sunninghill
Midrand (3C) C
2B Zandspruit Beyers Naude CBD C
4 /MB (tbc) Cosmo City Malibongwe, Barry Hertzog CBD C
2C Diepsloot William Nicol Sandton B&C
2C Diepsloot Randburg CBD B&C
1C Tembisa/Ivory Park Sunning Hill Sandton C
1C Tembisa/Ivory Park 1C CBD C
1C Midrand 1C CBD C
1C Tembisa/Ivory Park Kaalfontein Midrand B
2A Thokoza Park Chris Hani, South Gate Mall of the South D
5 /MB3 South Crest Rifle Range, Klip River Road CBD C
5/MB1 Mall of the South True North Rd, Klip River DR, Road CBD D
2A Eldorado Park Nasrec RD, 1B CDB D
1B extensi Wilro Park Ontdekkers Rd, Main Rd CBD C

35. Tools for integration and
sustainability
TOOLS
 Fare harmonisation
 Ability to use a single ticket on
different modes
 Unified passenger information and
marketing platform
 PUTCO, Metrobus and Rea Vaya
services under single operational
‘command’
 Easy and speedy transfers
 Improved pedestrian network to PT
nodes
 Reviewed and possible methods of
contracting (fee per km, passenger
incentive, who takes the risks and the
fares)
CONSIDERATIONS
 In the business planning and
financial modelling of the
operational plans, the costs
and benefits of the different
tools are being addressed
 Tools may need to be
sequenced to ensure financial
sustainability.

36. Branding Strategy
Mayoral Committee has approved the extension of the Rea Vaya brand to
quality public transport, walking and cycling
Integrated Quality Transport System
Proof Points: Convenient. Reliable. Affordable. Safe. (Ecofriendly)
BRT Busses
Motorised
Transport (MT)
Non Motorised
Transport (NMT)
MT
Infrastructure
Bicycles
NMT
Infrastructure
Bus Stations Cycleways Walkways
XXXX
Bus & Taxi Rank
XXXX
Station
Interchanges
XXXX
Cycleway
XXXX
Walkway
Bikeshare
XXXX
Park & Ride
XXXX
Bus Stop
XXXX
Cycle Storage

37. Rea Vaya brand positioning
Integrated
QualityTransportSystem
Rea Vaya. Metrobus
Rea Vaya. Orlando Stadium Station
Rea Vaya. Alice Lane Cycleway
Rea Vaya. West Street Walkway
Rea Vaya. Bikeshare
Rea Vaya. Westgate Bus & Taxi Rank
Rea Vaya. BRT
Convenient. Reliable. Affordable
Convenient. Safe
Convenient. Ecofriendly
Convenient. Ecofriendly
Convenient. Ecofriendly
Convenient. Safe
Convenient. Fast. Reliable. Safe. Affordable

38. Street
furniture and signage

39. Non-motorised transport
network planning

40. NMT network
Our aim with the ITN network was to consider a city wide NMT network but the data
did not point to the need or viability of such. However Gauteng Province are working
on a NMT Master Plan where they proposed a priority list of interventions and then
priority areas.
Priority list of interventions:
 Improve the first and last mile for
existing public transport users
 Improve the walking environment
for primary walk trips
 Encourage a shift from long walk
trips to utility cycling
 Address the safety of existing utility
cycling routes (with proven
demand)
 Promote a shift from private car to
public transport
 Promote a shift from private car to
utility cycling
 Promote a shift from public
transport to utility cycling
 Promote recreational cycling
Priority areas were identified using following:
• IDPs, SDFs, ITPs and NMT Plans
• Analysis of Gauteng Household Survey Data
(population, income, mode split, cycling
potential)
• Topography –is the area flat enough to cycle?
• Pedestrian activity density (public transport
facilities, schools, business nodes etc..)
• Community needs – Quality of Life Survey
(GCRO)
• Areas with high number of pedestrian fatalities
• Existing NMT projects proposed by
Municipalities

41. Rationale for project prioritisation

42. Proposed priority areas for NMT

43. Implementing
our Integrated
Public Transport
Network

44. Introduction
 On the basis of the ITN and SIPTN (and
NMT framework) we are now working
on and can align our plans for:
 PRASA and Gautrain
 Detailed operational plans for key
quadrants of the City
 Metrobus
We are also “codifing” our planning and
implementation process in a Transport
Governance Framework

45. Rail
PRASA
 PRASA recapitalisation will start
with Naledi, Park, Germiston,
Tembisa, Tshwane line
 Have included an mode shift to
rail in SITPN but conservative
due to uncertainty
 PRASA should be major mode
from South with mini bus taxis
as feeders to rail
Gautrain
 City model does not show strong case for
Gautrain. Still to engage with Gautrain on
proposed expansion
 Gautrain business case built on switch
from private car users and thus does not
take up any existing public transport
demand.
 City plans to incorporate Gautrain bus
routes in SIPTN so there is a single bus
network
 Gautrain working on bank based card to
ensure integration of ticket medium

46. Integrated operational planning
 We have divided the City into ‘transport catchment areas’ and for
each catchment area are developing and then implementing:
 Detailed Public Transport Operational Plan setting out the routes,
modes, scheduled and unscheduled services, number of vehicles
per mode, etc..
 Infrastructure plan including number of open, closed stations,
interchange, ITS, etc..
 Operating Licensing Strategy to include how “seats are allocated”
where new buses replace old buses/taxis and how OLS will be
allocated to existing/new services
 Business plans (fundable, bankable, etc.) for implementation
Also vehicle
procurement
strategy
across
catchment
areas

47. Progress on operational planning
Focus at the moment is on:
 North East Quadrant (CBD,
Sandton, Modderfontein, Ivory
Park, Midrand)
 Greater Soweto (Soweto, CBD,
Braamfisherville, South)
 “Central areas” (Metrobus
traditional areas but will change
over time and Metrobus to
focus on West (to Roodepoort)
and South (Turffontein)
 Need to start on “Deep South”
with PRASA

48. Restructuring of Metrobus
What City will do
 Indicate to Metrobus what routes to
operate, with what frequencies
 Set and collect fares through an
integrated system
 Monitor bus through bus management
system
 Pay Metrobus per km travelled less
penalties
 Provide holding areas for Metrobus
 Marketing and communication of
services
What Metrobus will do
 Ensure buses function on the
routes and to the kms
prescribed by the City
 Employ, train and manage
drivers
 Maintain buses
 Procure new buses according
to a recapitalisation plan

49. Alignment between
Metrobus routes and ITN
With the development of the
Integrated Transport Network, we
have now:
• Aligned the Metrobus routes to
the ITN
• Concentrated Metrobus on C/D
network types
• Developed a sequenced
implementation plan linked to
other operational plan roll outs
• Looked at areas of integration
with Rea Vaya and mini bus taxis.

50. Concluding remarks

51. Concluding remarks or questions
 Retrofitting is inevitable but complex and fraught
 Planning retrofitting: political imperatives, decisions made on
incomplete information
 Infrastructure retrofitting: across spheres of government and
within the City, changing demand patterns and horizon
years, planned budget vs detailed design budget etc.
 Taking out the “R” and introducing “incrementalism” may
be more manageable but can it still meet our
transformational objectives?