ATC130308: Report of the Portfolio Committee on Transport on its Oversight visit to the North West, Kwazulu-Natal and Eastern Cape Provinces, dated 19 February 2013.
REPORT OF THE PORTFOLIO
COMMITTEE ON TRANSPORT ON ITS OVERSIGHT VISIT TO THE NORTH WEST,
The Portfolio Committee on Transport, having
undertaken an oversight visit to the
INTRODUCTION AND TERMS OF REFERENCE
Portfolio Committee on Transport, as mandated by the Constitution and Rules of
Parliament, undertook an
visit to the
degree of road infrastructure maintenance in these provinces;
at local government level to road maintenance standards set by the South
African Bureau of Standards (SABS), Council for Scientific and Industrial
and Agrement SA;
the pothole situation in targeted areas; and
the planning capacity for road maintenance as well as the relationship between
the Department of Transport and the affected municipalities to ensure that the
road maintenance fund benefits local government where a huge need exists.
The Committee engaged with the provincial
departments on how their implementation
strategies focused on:
job creation, skills and co-operatives development;
development in line with the principles of sustainable development in a
developmental state; and
the contribution of
the roads maintenance programme to the financial viability of municipalities.
As part of the provincial visit the Committee also visited
29 June 2011 to study the Ugu model for pothole repairs and road
the visit, the municipality presented its co-operative
development programme and
explained how it related to road maintenance and pothole
oversight delegation consisted of the
Chairperson, Ms N R Bhengu (ANC), Ms D E Dlakude (ANC), Ms R Motsepe (ANC), Ms
N Mdaka (ANC), Mr M de Freitas (DA-first leg of visit) and Mr S Farrow
(DA-second leg of visit). The Committee was supported by the following
Ms V Carelse,
Committee Secretary, Mr S Ngesi, Committee Researcher, and Mr S Makeleni,
The Committee was joined by
the North West Province Legislatures Portfolio Committee on Public Works,
Roads and Transport, the Acting Head of Department, Mrs MR Ntshabelele, and
senior officials of the Provincial Department of Public Works, Roads and
3.1 Presentation by the Provincial Department of Public Work, Roads and
At the meeting at
status quo at 1 April 2011 was as follows:
from the 2010/11 financial year which were unpaid
due to exhaustion of the allocated budget amounted to
Since 2009 several projects have been
completed with the 2010/11 budget. These projects were currently on r
. The budget required for
retention releases in 2010/11 was
resulting from various delays in payment, implementation of projects and
contract cancellations and other matters over the last year were dealt
with on an
ongoing basis. It was estimated that an
worth of claims would be settled with service providers in the current
3.1.1 Road management projects since 2009
Projects originally started in 2008/9 and suspended
in late 2009 have been recommenced in early 2010/11.
The implementation of these projects was
uncertain due to budget constraints. These projects were all subject to large
variation order claims due to standing time and remedial works. These projects
included road P34/2 from Koster to Lichtenburg
(on tender), upgrading of road P115-1 from Phokeng to
Projects that started construction in 2011 on an
emergency basis were, among others, the Lichtenburg Intersection, Swart Ruggens
to Koster D549, Lekgolo Road (construction in progress), Ratjiepan Road
(construction in progress), the Swartdam Road was in the tender stage, but the
tender could not be awarded due to lack of funds) and Madidi Klipgat (tender
stage but could not be awarded due to lack of funds). The total funds required
in the current financial year for these maintenance projects amounted to
Projects that had been identified for
implementation through the maintenance programme and were at tender stage
pending being awarded based on availability of funds were
Wolmaranstad to Ottoshoop, Potchefstroom to Vandebijlpark,
Potchefstroom to Carletonville and Potchefstroom to Viljoenskroon.
The Infrastructure Programme Management Plan
(IPMP) for 2011/12 was confirmed in September 2011. Appointments of consultants
for planning and design of projects in 2011/12 was made in December 2011 and
work was started. Contractors were similarly lined up for the maintenance programme.
On 4 March 2011, the IPMP budget was reduced by approximately R90 million
(Capex) and R60 million (maintenance).
An updated IPMP was requested within 24 hours. This situation placed the
departments roads and maintenance programmes in disarray. This had led to
additional commitments which the department had made, which it now could not
meet with the current budget.
Total claims in court against the Provincial
Department were in excess of R135 million. These claims were a risk, with a
realistic potential for claims amounting to approximately R100 million to R150
million. Settlement of these claims was required under the Medium Term
Expenditure Framework (MTEF). These funds were not budgeted for at any stage.
The current budget allowed for approximately
in claim settlements.
The overall budget deficit in the current
financial year amounted to
. Additional funds would have to be sourced from the fiscus as an
required for projects. The current available funds
for road maintenance
million while the min
imum required budget was
R928 million. The Acting Head of Department said that the Department of
Public Works, Roads and Transport
should be considered for assistance
where there was an adjustment budget. Where funds could be sourced, it could be
allocated to roads since the provinces roads would have deteriorated beyond
repair within the next three years.
3.4 Site Visit to
P66/1 (Kgomo-Kgomo to
Sutelong) and D639 (Sutelong to Ga-Habedi). Around 20 km of gravel provincial
roads have been earmarked of upgrading and
The Moretele municipality
had also drafted a programme of action that aims to re-gravel and blade
flood-stricken roads, initially prioritising bus routes. Implementation of this
programme had already commenced. The municipality has established a committee
with the national Department of Public Works and the Provincial Department of
Public Works, Roads and Transport to this effect. Moretele had initiated a
process of investing around R250 million into roads and storm water projects
over the next five years. The challenges faced by the municipality are a
shortage of machinery, plant and equipment, insufficient staff and limited
funds for the entire area.
The Committee visited
Swartdam Road (D623) to assess its condition. The Committee observed that the
10km road, which was used by commuters daily, was filled with potholes.
Over the past months, vehicles drove in the
dirt road next to the damaged tar road that leads from Makapanstad and
Swartdamstad to Mabopane, north of
During the visit the
Committee further observed a newly constructed paved road adjacent to road
D623. The Committee requested that the Provincial Department report to the
Committee on the construction of this road, the production of the paving and
the number of people employed on the project. This information should be
obtained from the provincial officials who were responsible for the project.
Responses by the Committee
Committee raised the following concerns:
3.5.1 The Committee needed more clarity on the
turnaround strategy and asked the Provincial Department what assistance was
required from the Committee with this process.
3.5.2 Concern was expressed about the 110
consultants that were employed by the Provincial Department. The Committee
needed clarity on the terms of reference for their employment.
The presentation lacked a job creation strategy. The presentation mainly
projects, but not on the condition of the
current road infrastructure.
3.5.4 The Committee inquired how villages
which do not have access roads accessed services in the absence of such access
3.5.5 The Committee
expressed concern that, in some instances, the same roads were
fixed repeatedly and noted that the standard of road maintenance needed to be
The Minister should ensure that:
standards of maintenance are addressed.
Committee would revisit the
Presentation by the Department
The meeting took place at
the City of uMhlathuze
In the presentation Mr
Chris Hlabisa, Head of Department of the Kwazulu-Natal Department of Transport,
stated that the department had been the pioneer in various developmental and
labour absorptive programmes that had lead to job creation and poverty
eradication. The road infrastructure p
focused on the provision of the equitable road network in the province. It
further provided road access, linked communities and acted as a catalyst for
unlocking economic and social development.
Schematic presentation on status of
the Road Network in KwaZulu-Natal
level of service
level of service
of the blacktop roads in a poor & very poor condition
of the gravel road network in a poor & very poor condition (overall
of the declared provincial road network (excluding planned roads)
improvements (mainly paved)
to blacktop (mainly gravel)
Roads (mainly low volume gravel)
Condition of Road Network
of Infrastructure (2006)
with span > 2m
condition of the provincial road network was monitored using the Pavement
Management System, the Gravel Road Management System and the Bridge Management
Projects were undertaken through the following
African Renaissance Road Upgrading
Operation Kushunquthuli for the
upgrading of community access roads to police station, clinics, schools and
areas with high potential for agriculture activities as well as pedestrian
Department of Transport had identified the various anchor projects in support
were the Nongoma Dabhazi Hlambanyathi - Hlabisa Corridor, Eshowe Ntumeni
Kranskop Vryheid corridor, pothole eradication, Zibambele and preventative
maintenance of economic roads. The maintenance activities undertaken on the
road network includes conserving the higher order roads through rehabilitation
and reseals, preventative maintenance through re-gravelling, routine
maintenance through blading, drain cleaning, safety maintenance of potholes,
guardrails and special maintenance.
Department has implemented a two- year Pothole Repair Contract commencing in
the 2011/2012 financial year to address the backlog of pothole repairs. A
database comprising 134 contractors ranging from Grade 1 to Grade 7 has been
created in Empangeni, Ladysmith, Pietermaritzburg and
Presentation by City of uMhlathuze
Sifiso Mdakane, Senior Manager from the City of uMhlathuze
challenge faced by the municipality was in relation to damage caused to the
local road infrastructure by trucks that were accessing the
Site Visit to Empageni
Committee visited road D887, a 13 km stretch of road in Empangeni that was
riddled with potholes. The Committee observed that the road served a densely
populated area and provided access to public facilities such as five schools,
two clinics and a tribal authority. Complaints about the condition of the road
were submitted as early as 1990. The provincial Department explained that R52
million was needed to tar the road and that the issue of storm water drainage
on the road had to be addressed.
Minister of Transport should ensure that:
A road maintenance model that adhere to
road maintenance standards, and which address job creation and poverty
reduction be considered as the preferred model for road maintenance, like the
The fee payable to municipalities for
trucks to use their roads and with a view to maintaining those roads was an
option to consider as trucks contributed directly to the deterioration of the
There should be cross pollination between
operates could be revisited and needs to be taken up with the
national Department of Transport, as well as National Treasury.
2001, Ugu was declared a presidential poverty nodal point because of the l
skills base and education levels, poor co-ordination of social and economic
activities, high unemployment rate and high prevalence of HIV/Aids.
As far back as 2007, Ugu started searching for an
approach towards assisting local municipalities to find a permanent solution to
the problem of potholes. The first pothole repair demonstration was done in
August 2007 on busy road frequented by heavy duty vehicles. In May 2008,
It is based on
, making it
lasts +/- 10 years before a fixed pothole
has to be re-visited. It is considered a permanent fix if applied and
surrounding road surface in satisfactory condition.
It is labour intensive
rehabilitation of a pothole is done manually, with minimum machinery.
economic generation potential in the form of a
and youth entrepreneurial opportunities.
June 2008 floods confirmed the strength of the technology, and Ugu then started
to formalise the approach with which the technology was going to be applied.
The key vision and
objectives of the road maintenance projects was to
deliver on major government policy and key strategic job creation and
infrastructure objectives, initiate
and manage a long-term sustainable, tangible
and transparent road maintenance programme, continuous development and genuine
skills transfer to change the current unemployable crisis as well as to
provide a holistic model to help alleviate and reduce the burden of poverty.
A total of
53 local people were
n its road maintenance
This included 14 women and 45 people (youths) under
the age of 35. Each person and each team were tested and trained in road safety
and pothole repairs/road maintenance. The training has not yet been accredited.
Twelve South African Institute of Civil Engineering (SAICE ) students were
seconded to the programme by the
terms of the pothole repair programme, m
5 285 potholes or patches were repaired in
the region. Nearly 5 000 m² of severely damaged roads have been repaired and
over 200 roads were attended to in the region. Nearly 650 tons of material was
used in three months by the teams along with over 100 tons being used as
marketing and promotions by other local municipal teams in the region along
with a major trial with training involving the Department of Transport. Five
teams (37 people) were now averaging 20 to 30 m² of productivity per day.
The usage of material was in excess of 2,5 to
3,5 tons per day.
teams that were created, five teams became well qualified, highly effective and
productive pothole repair units that delivered successfully on local
infrastructure to the benefit of themselves and the community as a whole.
of the Ugu model
development in road construction and maintenance as well as local job
This model has also
lead to co-operative business development and investor confidence in
tourism and logistics.
There has also been
integration of various government policy provisions in terms of local
economic development, poverty reduction, Inter-governmental relations and
Expanded Public Works Programme.
Site visit to Hibiscus
Coast Local Muncipality and Harding
Committee visited sites in the
Committee also visited road P59 in Harding to assess the standard of road
maintenance in the area. The Committee observed that cement was used for
patching and that the road lacked a drainage system, which lead to the
formation of crocodile cracks on the road. The provincial department
explained that the cement was used as a temporary solution. In order to address
this, it undertook to upgrade the maintenance of the road by the end of July
Minister should ensure that:
There should be accreditation for people who
have gone through the road
Every municipality should conduct the audit of
the status of its road network so that
it would be easy to determine where
money should be allocated.
is an imperative to ensure that goods that are supposed to be transported
rail (coal, timber, etc) are indeed transported by rail and by-laws should
enacted and enforced to achieve
have to be directed at road maintenance.
There is a
need from municipalities to get an unequivocal explanation from the Department
of Transport as to what
The road observed by the Committee at Harding
be repaired within the stipulated period (by the end of July 2011).
meeting took place at the OR Tambo District Municipality and was attended by Ms
Thandi Marawu, MEC of the Eastern Cape Department of Transport, as well as
members of the legislatures Portfolio Committee on Transport.
Presentation by the Eastern Cape Department
Eastern Cape Department of Transport received R2.1 billion for its Roads and
Expanded Public Works Programmes, which was spread over a 43 611 km provincial
network. Sixty per cent of the budget was spent on maintenance, but it was
still only 30% of the required budget. The balance was spent on capital
projects and overheads. There was a huge backlog in maintenance and an enormous
backlog in new rehabilitation and upgrade projects.
2009/10 assessment data confirmed that 1800km of the gravel network need to
upgraded, 12000km of gravel roads
required upgrading and 90% of these roads were in the former
Department has a road asset management system in place to assess and
condition data, monitor
condition trends over time, determine priority maintenance needs and optimise
the impact of limited available funding. Visual assessments of paved roads were
completed in 2008, 2009 and 2010. One third of unpaved roads were assessed in
2008 and two thirds in 2009. The profile measurements on paved roads were done
in 2009. According to the Visual Condition Index (VCI), in 1996 12% of the
surfaced roads were in a poor/very poor condition, in 2010 40% were poor/very
6.1.2 The State of the
At the time, only two metropolitan
councils namely Nelson Mandela and
6.1.3 Maintenance of municipal roads
levels of maintenance in the majority of local municipalities were regarded as
poor to non- existent, particularly for rural access roads. Most local
municipalities have minimal road maintenance budgets, staff and equipment. The
Elundini case study shows that up to 80% of rural access roads cannot be
maintained because they have no gravel.
Provincial Department has three programmes that interact with local
municipalities through its Programme on buildings, Expanded Public Works
Programme and roads infrastructure. In 2011/12 the national Department of
Transport introduced the rural roads Infrastructure grant. Twenty one rural
district municipalities were meant to receive a grant of R1.688 million each to
implement RAMS for all their local municipalities. Five district municipalities
the last provincial road indaba the provincial department of roads had agreed
to set up road
forums to co-ordinate
both municipal and provincial road issues, act as the channel for citizen
issues to be assessed, prioritised, addressed or referred and co-ordinate the
prioritisation and implementation of new projects and the rehabilitation and
maintenance of road and bridge projects.
The road forums would be chaired by the local/district executive
infrastructure councillor, while the vice-chairperson would be the district
roads engineer. The local municipalities road forums would meet every two
months while the district municipalities and metros would meet quarterly.
A provincial meeting would be held quarterly
and would be chaired by the relevant MEC.
Department had historical service level agreements with the two district
municipalities to utilise the district municipality road units to undertake
road maintenance. The Department also had several other service level
agreements with local municipalities for a variety of capital and maintenance
projects. The long-term ideal was to see a service level agreement in place
between the Department and every local municipality to ensure maintenance of
all roads and upgrading of agreed prioritised infrastructure. This would
require the pooling of funding and technical road staff. Term appointment
contractors could also be utilised. This process would require integrated
planning. The planning would need to take place at local municipality level and
then fed back into district and provincial plans. Consultants would be used to
prepare a structured, long-term maintenance upgrading plan. A programme manager
would provide co-ordination and guidelines to all consultants.
terms of maintenance planning capacity, district roads engineers were
responsible to plan routine maintenance annually for all roads in their
districts. These plans form part of the departmental annual planning processes.
Plans are adjusted during the year to address changing conditions. Head office
officials were responsible for allocating budgets for maintenance to districts.
on surface roads were caused by poor drainage, stone/aggregate loss and surface
cracks which allowed water seepage. The province managed 5800 km of surface
roads (provincially proclaimed roads). Appropriate assessment was required to
provide appropriate treatment of the problem.
were three-year contracts for routine maintenance of approximately 4800 km of
the provincial network.
The Eastern Cape
Department of Roads and Public Works had signed a service level agreement with
King Sabata Dalinyevo Municipality of R60 million over three years to address
major pothole problems in Mthatha that would also assist in putting a pavement
management system in place. This would allow for a 48-hour turnaround time for
fixing potholes on municipal roads within Mthatha. The contractor would be on
site in August 2011 and negotiations were underway with the local
municipalities to provide funding as well.
Eastern Cape would implement the
programme and utilise the provincial maintenance grant (PRMG) through
the route-based maintenance model for surface roads, a gravel maintenance model
based on local municipal boundaries, and up scaling the household contractor
programme (Zimbambele), the reseal programme, road signs, road marking and
bridge maintenance and road enterprise development programme.
The province also had a Road
Enterprise Development Programme of which R529 million would be spent on
projects annually over three years. Levels 1 to 7 of emerging contractors and
consultants were targeted among 700 contractors, 51 consultants, nine quarry
operators and 21 plant hire companies. The implementing agent (Coega
Development Corporation) was to implement a 14-day payment cycle for small
contractors. Training and mentoring of contractors would be provided. The aim
was to build significant additional provincial capacity by 2013/14 to support
additional funding. It was projected that 3 562 jobs per year over the next
three years would be created and 300 contractors would be upgraded per annum.
The strategic partners were the South African Revenue Service (SARS), the
Department the Labour and the Department of Public Works. Procurement would be
central for mechanical and civil goods. This was done to create sustainable
business in the OR Tambo and Alfred Nzo areas.
Eastern Cape Department of Roads and Public Works had been implementing
Zibambele household contractor
model since 2003. The household contractors were used to maintain both
provincial but predominantly access roads. The total amount to be invested in
the maintenance of access roads in 2011/12 was R265 234 million. At the time,
the department had engaged 25 000 household contractors. During 2011/12, an
additional 6 000 household contractors would be recruited, taking the total to
31 000. This was second only to
department had already progressed well in the implementation of
. Substantial planning
capacity exists at provincial level and the department was assisting or putting
in place systems to assist local municipalities. Funding levels were, however,
only at 30% of the actual provincial maintenance needs as local municipalities
had little or no maintenance budget or capacity.
The Minister of Transport should ensure that:
6.3.1 There should be a single model
for road maintenance that should be replicated
throughout the country.
6.3.2 There is a need to advocate for the
establishment of the Project Management Unit
The Portfolio Committee on
Transport would co-ordinate a workshop and invite provincial portfolio
committees on transport, relevant officials from the provincial departments of
transport, as well as the South African Local Government Association SALGA and
empower all portfolio committees to have a uniform approach with regard to
oversight. In this same forum, the issue of a Backlog Grant could also be
reviewed. This matter needed to be taken up by the Portfolio Committee on
Transport with the national Department of Transport, as well as National
Treasury. Every municipality should consider conducting an audit on the status
of its road network so that it would be easy to determine where funding should
Bylaws should be enacted
to ensure that goods that were supposed to be transported by rail were indeed
transported by rail. There was a need to lobby for more funds for road
maintenance. The standards of road maintenance should be addressed. There
should be a single model for road maintenance that should be replicated
throughout the country. There was a need to advocate for the establishment of
Management Unit (PMU).
Report to be considered.
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