safely home enforcement activities - western cape · safely home enforcement activities evaluation...

Safely Home Enforcement Activities

Evaluation Report

Final Version

1 July 2014

5th Floor, Imperial Terraces

Carl Cronje Drive

Tyger Waterfront

Bellville, 7530

(021) 914 6211 (T)

(021) 914 7403 (F)

e-mail: [email protected]

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ITS Engineers (Pty) Ltd

Summary Sheet

Report Type Evaluation Report

Title Provision of Professional Services to Conduct an Evaluation of Safely Home

Enforcement Activities

Location Beaufort West

Client Performance Monitoring and Evaluation

Brendon Cloete

Reference Number ITS 3347

Project Team

Christoff Krogscheepers, Pr.Eng

Zaida Tofie

Stephen van der Sluys

Contact Details Tel: 021 914 6211

Date 1 July 2014

Report Status Draft Report

File Name G:\3347 Safely Home Enforcement Activities\12 Reports\3347 Safely Home Enforcement Evaluation Report _ZT_2014-05-06 draft v2

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PROJECT TEAM CONTACT DETAILS

Company Contact Email

Western Cape Government: Monitoring and Evaluation

Brendon Cloete [email protected]

Western Cape Government: Monitoring and Evaluation

Ramesh Maharaj [email protected]

Western Cape Government: Programme 5 Transport Regulation, Safely Home Project

Kevin October [email protected]

Western Cape Government: Community Safety

Donald Lackay [email protected]

ITS Engineers

Christoff Krogscheepers

Zaida Tofie

Stephen vd Sluys

Jan Coetzee

[email protected]

[email protected]

[email protected]

[email protected]

Stellenbosch University Marion Sinclair [email protected]

mailto:[email protected]

mailto:[email protected]

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DOCUMENT CONTROL

Date Report Status Authored by Approved by

May 2014 1st Draft

NAME:

Zaida Tofie

NAME:


July 2014 2nd Draft (final)

NAME:

Zaida Tofie

NAME:


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POLICY IMPLICATIONS

The strategic directive approved by cabinet in July 2010 provides the framework for the provincial

road safety policy.

Objective: “Provincial Strategic Objective 3: Moving the Western Cape Forward – Increasing

access to safe and efficient transport

Goal: Reducing fatalities by 50 percent by 2014

Plan: Enforce compliance of road traffic laws through visible and smart means to create the

perception of omni-presence of enforcement authorities (Plan 1).

Current Policy: Implement smart technology to improve road safety and to support visible

enforcement.

Project Initiation Documents (PID’s): Implementation of ASOD

Study Outcomes:

Validity of the evaluation findings and significance of the possible road safety impacts introduced by

the implementation of ASOD. The following constraints limits the robustness and rigour of the

findings:

The availability and accuracy of accident data prior to the implementation of ASOD

The availability of speed data and specifically average speed data prior to the

implementation of ASOD

The limited time period since the implementation of ASOD affecting the sample size of

speed and accident data post implementation

The statistical reliability of comparing the base indicators of the study area with the control

sites.

Despite the above shortcomings of the data on which the study is based, there are positive

outcomes/trends which could indicate at this point in time that:

Smart Enforcement appears to contribute to a positive behavioural change, i.e. less

overloading and better adherence to speed limits. This change is confirmed by many other

international studies.

Visible Policing seemingly enhances the effectiveness of Smart Enforcement.

Hence, based on the above the following policy recommendations:

Continue with the roll-out of smart enforcement, specifically ASOD and weighbridges.

Law enforcement resources, dedicated to and linked to the specific Smart Enforcement

programme are essential.

Although this study shows that ASOD is seemingly contributing towards the goal of significantly

reducing the number of fatal accidents, the constraints related to the availability and accuracy of the

data and also the duration of the post implementation period do not enable indisputable

conclusions.

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EXECUTIVE SUMMMARY

INTRODUCTION

The Safely Home Programme falls within the Western Cape Government’s Strategic Objective 3

and was designed to achieve a 50% reduction in road fatalities by 2014. Safely Home is focussed

within the traditional four E’s i.e. Enforcement, Engineering, Education and Evaluation. The scope

of this enforcement evaluation includes a review of enforcement interventions which the WCG has

implemented in the Beaufort West region as part of the Safely Home Programme. These include:

(1) visible enforcement such as roadblocks, patrols, etc., as well as, (2) smart enforcement

implementations, including Average Speed Over Distance (ASOD)/Automatic Number Plate

Recognition (ANPR), and weighbridge with weigh-in-motion.

The purpose of the enforcement evaluation is to: identify areas of good practice, identify gaps and

weaknesses to policy, procedures and processes; and to provide evidence and information to inform

decision-makers to optimise enforcement activities.

METHODOLOGY

The changes in the number of fatalities and speed profiles were used to evaluate the effectiveness

before and after the implementation of Safely Home enforcement.

An inception meeting was held with M&E to confirm the purpose of the study and its respective

deliverables. A site visit and a systematic review were undertaken to understand the current

operations and what type of data sources and existing documents were available for the evaluation.

The list of available data and their sources was ratified by the project steering committee. Data was

then reviewed, manipulated and analysed to identify trends or to see whether there were any

changes in enforcement and road safety indicators. Interviews with key Safely Home Enforcement

stakeholders were undertaken, and two peer review workshops were held as part of the project

process. The findings were summarised into the Enforcement Evaluation Report.

KEY EVALUATION FINDINGS

1) Visible Enforcement

All visible enforcement serves towards positively altering driver behaviour. Safer driver behaviour

e.g. wearing safety belts, not driving under the influence of alcohol, not speeding, or driving while

talking on a cell phone, and roadworthiness all contribute to the aim of reducing crashes.

Beaufort West Provincial Traffic Centre has generally been achieving their regional goals and

targets set for enforcement activities. Analysis of available data indicates a more-or-less consistent

effort in the level of visible enforcement. This is probably due to the fact that the level of human

resources at Beaufort West Provincial Traffic Centre has remained constant since 2012, and that

there are a number of vacancies, including the traffic chief’s position. The lack of manpower has

been identified as a key concern by most of the stakeholders interviewed and is believed to directly

impact the levels of visible enforcement possible.

The current method of data capturing, collection and storage is slow, inaccurate and ineffective,

making it problematic for analysis. Manual data is collected and compiled cumulatively from various

sources i.e. daily traffic officer reports & weighbridge, offering large margins for human error.

Records have only been stored electronically from 2012, making it difficult to compare levels of

enforcement activities prior to ASOD implementation. All data is not automatically stored

electronically and once it is sent to the Regional Office and the RTMC, it may be discarded since

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currently there is no protocol to keep and analyse visible enforcement data beyond tracking the

standard traffic targets.

Coordination with other local role-players such as SAPS, EMS as well as across border services is

taking place, which maximises enforcement visibility and integrates enforcement geographically.

There are well-defined protocols and procedures for specific types of enforcement activities such as

K78 roadblocks and vehicle patrols. The importance of awareness and educational campaigns as

part of shifting driver behaviour is largely accepted and is gradually being incorporated into standard

enforcement activities such as roadblocks and VCPs.

2) ASOD Related Enforcement

ASOD/ANPR Technology successfully flags speed and eNatis infringements, ensuring speed

enforcement over large sections rather than at single points, which is the case when using manual

cameras. This is more likely to shift driver behaviour than in the case of manual speed

enforcement, which creates responsive braking, and acceleration. Utilising JIS/control room

coordination and vehicle tracking to strategically deploy officers when responding to ASOD flags, is

potentially more effective than without this smart technology.

Volumes of "hits" flagged infringements by ASOD is too high for current staffing and officers to

manage. Additional ASOD phases generated additional hits but did not come with increased

number of staff to respond to infringements. Not all locations are covered due to lack of manpower.

Currently only one location just outside Beaufort West is being used to pull off vehicles flagged by

ASOD. The insufficiently trained staff manning the Control Room 24/7, with typically only one officer

in the control room at a time, is highly inadequate to undertake all tasks, including reporting,

deployment and following up on eNatis requests.

The Occurrence Book (OB) which is the official ASOD “body of evidence”, is currently a handwritten

manual process. This introduces human error and offers no capability to analyse the data

electronically. There is currently a confidentiality clause governing the use of eNatis data in the

ASOD enforcement system. This clause prohibits the control room from storing the total number of

infringements by vehicle type. Different speed limits apply to different vehicle types which makes it

difficult to accurately assess if there has been any change in the proportion of vehicles that exceed

the speed limit since ASOD has been implemented. Limited data is reported directly from the ASOD

system. Other reporting on enforcement from ASOD is undertaken by the control room but monthly

reports are captured into a form, which does not facilitate easy and continual analysis. No Standard

Operating Procedures (SOP) exist for the ASOD control room regarding prioritisation, deployment or

reporting protocols.

It is time- and resource-consuming to issue S56s, requiring the control room to send through eNatis

information, provide summons numbers and court dates. S341s are generated for speed only,

missing the chance of issuing other fines if not undertaken manually. S341s are not an effective

form of enforcement, as they are not issued when the offence occurs thereby do not immediately

alter driver behaviour. S341s do not have high payment rates, as a result of problems with locating

the offendees i.e. addresses are not up-to-date and the judicial system’s shortage of court dates

and lack of available resources to issue warrants.

Errors are generated when technology does not accurately read number plates. Large variations

shown between first and second camera volumes as well as when compared to existing CTO

stations. Loop counters installed at ASOD camera locations would enable WCG to track the

accuracy of ASOD equipment.

3) Weighbridge and Weigh-In-motion

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WIM technology undertakes initial screening of possibly overloaded vehicles, greatly improving the

efficiency of the weighbridge since it no longer requires that all heavy vehicles be weighed. WIM

technology and signage allows for 24/7 operations. The safety of traffic officers has increased with

the advent of WIM since they are no longer required to manually direct vehicles into the

weighbridge. However, the 24/7 operating hours is resource intensive and the targets for operational

hours are currently not being met. .

There has been an increase in the number of heavy vehicles and buses being weighed, while the

number of overloaded vehicles has been decreasing. The initial WIM screening is currently directing

more vehicles into the weighbridge than are actually charged with overloading. The sensitivity on

the WIM screening could possibly be adjusted to reduce this margin of error.

Currently there is no method of recording the number and extent of heavy vehicles that are

disobeying the WIM signals. There are also no standard procedures on dealing with these

transgressors. Currently the transgressor is to be chased down and directed back to the

weighbridge, which is problematic since it is difficult to turn heavy vehicles on the freeway, and the

traffic officer on duty would typically be occupied with enforcement of the heavy vehicles at the

weighbridge. This could be solved with the installation of a camera at the WIM site, which would

support enforcement by issuing a S341. However, the size of this fine is smaller for this offence

than for overloading and heavy vehicles may still consciously disobey the WIM traffic signals.

There are a number of fines that can be issued at the weighbridge, which used to be issued at the

discretion of the traffic officer. Now, with access to eNatis via the JIS control room, all possible fines,

including RTQS enforcement such as roadworthy, stolen vehicles, etc., can be issued.

Reporting and record keeping protocols are not in place for consistent levels of data across the

province. Weighbridge data is only kept to report on traffic centre and regional weighbridge

operational hour targets. Data is not automatically analysed as part of a continuous improvement

programme. Software does however, allow for automated reporting.

Overweight public transport vehicles if impounded or discontinued create a challenge since

passenger facilities are not provided for at the weighbridge. This could impact actual levels of public

transport enforcement if traffic officers choose to limit the impact on passengers.

4) Key Indicators

Traffic Volumes and Speeds

The traffic volumes along ASOD-controlled roads have not been affected by the ASOD

implementation. The 60:40 traffic split between light and heavy vehicles travelling along the R61 has

also remained unchanged. There is no reason why the traffic volumes should be different after the

implementation of ASOD in 2011 since there are not really any reasonable alternative routes to R61

for vehicles trying to avoid the ASOD sections

It is evident that drivers have acknowledged the introduction of ASOD, as the cameras implemented

on the R61 made a drastic impact in reducing 85th percentile speeds. The non-ASOD control sites

on the N1 at Touwsrivier, R27 at Langebaan and N2 at Swellendam also show a reduction in 85th

percentile speeds; however, they have been in a steady decline since 2007. A similar trend is seen

with impact of the ASOD on average speeds. However, the ASOD impact to average speeds is not

as drastic as the 85th percentile speeds. This means that the ASOD cameras are considerably

effective in changing the behaviour of those vehicles travelling in excess of the speed limit.

The standard deviation in speeds post-ASOD is approximately half of what it was pre-ASOD,

meaning there is less variation in the range of speeds travelled. This is because vehicles are

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travelling at the same speed over a longer distance with less need for faster vehicles to overtake

slower ones.

It can be concluded that the ASOD has had a significant and positive effective on reducing the

number of vehicles travelling in excess of the speed limit.

Road Crashes

The four available data sources had numerous inconsistencies and discrepancies between them,

possibly due to the method of data capture, storage and management. It was thus decided to use

the most complete and workable data source when evaluating the road accident statistics – IPAS.

Within the last three years, there seems to have been a reduction in both the total number of road

crashes and fatal crashes along all five road segments analysed. This may indicate a positive shift

in the provincial mind-set about road safety. However, when focusing on the ASOD-controlled R61,

a dramatic decline in crash rates, fatal crash rates and fatality rates is observed. There has been a

downward trend with regards to fatalities and serious injuries since 2007. However, the introduction

of ASOD in 2011, 2012 and 2013 seems to have further facilitated this downward trend. There is not

enough post ASOD data available for the analysis of the road accidents within the road sections for

Phase 2 and Phase 3 of ASOD. At least three years of post-implementation data is needed to draw

conclusions.

In summary, it can be said that there has been positive change on the R61 with regards to the

number of fatal crashes, fatalities and serious injuries. This is likely due to the decrease in the

number of vehicles exceeding the speed limit.

CONCLUSIONS

There is evidence based on the results of this study that the visible and smart enforcement activities

in the Beaufort West study area as part of Safely Home are impacting on user and driver behaviour.

Smart technology such as ASOD and WIM screening simplify enforcement and makes it more

efficient. Not only has there been a decrease in vehicle speeds on the road segments along which

ASOD was implemented, but there has also been a decrease in the number of accidents,

specifically fatal accidents. This is particularly the case along the R61 where ASOD has been

implemented for the longest period. However, reductions in speeds and accidents are not only

experienced along the study sections, but are evident on roadways across the province. This could

be due to a general increase in safety awareness, which ultimately affects driver behaviour. It is

clear from the evaluation that there are possible actions that could improve the effectiveness of the

technology related enforcement activities.

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TABLE OF CONTENTS

PROJECT TEAM CONTACT DETAILS ............................................................................ II

DOCUMENT CONTROL ................................................................................................... III

POLICY IMPLICATIONS ..................................................................................................... II

EXECUTIVE SUMMMARY ................................................................................................. III

TABLE OF CONTENTS .................................................................................................. VII

LIST OF ANNEXURES, TABLES, FIGURES AND IMAGES ........................................... IX

LIST OF ABBREVIATIONS ............................................................................................. XII

1. INTRODUCTION ........................................................................................................... 1

1.1 Background ................................................................................................................ 1

1.2 Overview .................................................................................................................... 2

1.3 Purpose of the Evaluation .......................................................................................... 3

1.4 Study Area ................................................................................................................. 3

1.5 Project Scope ............................................................................................................ 3

1.6 Report layout ............................................................................................................. 4

2. EVALUATION METHODOLOGY ................................................................................. 6

2.1 Confirmation of Scope ............................................................................................... 6

2.2 Collection and Analysis of Data ................................................................................. 6

2.3 Stakeholder Interviews............................................................................................... 6

2.4 Skills Transfer ............................................................................................................ 7

2.5 Peer Review .............................................................................................................. 7

3. EVALUATION OF VISIBLE ENFORCEMENT ACTIVITIES ......................................... 9

3.1 Overview of Visible Enforcement ............................................................................... 9

3.2 Available Data for Evaluation ................................................................................... 13

3.3 Organisational Structure of Provincial Traffic Law Enforcement .............................. 17

3.4 Performance Indicators and Targets for Visible Traffic Enforcement ....................... 18

3.5 Analysis of Visible Enforcement Activities ................................................................ 19

3.6 Summary Findings of Visible Enforcement Evaluation ............................................ 23

4. EVALUATION OF ASOD RELATED ENFORCEMENT ............................................. 25

4.1 Overview of ASOD ................................................................................................... 25

4.2 Available Data Sources Used to Evaluate ASOD .................................................... 29

4.3 Analysis of ASOD Enforcement Data ...................................................................... 32

4.4 Summary Findings on ASOD ................................................................................... 40

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5. EVALUATION OF WEIGHBRIDGE AND WEIGH-IN-MOTION .................................. 42

5.1 Overview of Weighbridge/WIM ................................................................................ 42

5.2 Weighbridge/WIM Data Available ............................................................................ 44

5.3 Weighbridge Data Analysis ...................................................................................... 45

5.4 Summary Findings on Weighbridge/WIM ................................................................. 49

6. EVALUATION OF KEY INDICATORS ....................................................................... 51

6.1 Traffic Volumes ........................................................................................................ 51

6.2 Speed ...................................................................................................................... 54

6.3 Road Accidents ........................................................................................................ 58

7. EVALUATION AND GENERAL TRENDS .................................................................. 64

7.1 Overall Reduction in Speed ..................................................................................... 64

7.2 Overall Reduction the Number of Accidents ............................................................ 65

7.3 Resource Levels have been Relatively Constant ..................................................... 66

7.4 Weighbridge is becoming more effective ................................................................. 68

7.5 Resources affect ASOD enforcement ...................................................................... 69

7.6 Possible reversal in positive shift in driver behaviour ............................................... 69

8. RECOMMENDATIONS ............................................................................................... 72

9. REFERENCES............................................................................................................ 75

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LIST OF ANNEXURES, TABLES, FIGURES AND IMAGES

LIST OF ANNEXURES

ANNEXURE A: Supporting Graphs for Data Analysis

LIST OF TABLES

Table 2-1: Overview of Data Collected as part of Safely Home Evaluation ...................................... 8

Table 3-1: Traffic Regions and Centres in the Western Cape ......................................................... 17

Table 3-2: Performance Indicators and Targets for Beaufort West Provincial Traffic Centre .......... 18

Table 4-1: Percentage of S56s Issued out of Total Speeding Infringements Flagged by ASOD ...... 34

Table 5-1: Format of Weighbridge Monthly Report ......................................................................... 44

Table 6-1: List of CTO Stations in Study Area ................................................................................ 51

Table 6-2: List of CTO Stations used as Non-ASOD Control Sites ................................................. 52

Table 6-3: Accident Data Source Comparison ............................................................................... 59

LIST OF PHOTO IMAGES

Photo Image 4-1: Gantry Mounted ASOD Equipment Traffic Signage ............................................ 25

Photo Image 4-2: ASOD software flagging traffic speed and eNatis infringements ......................... 27

Photo Image 4-3: Communication/ Intercom Software to Contact Traffic Officers in the Field ........ 28

Photo Image 4-4: Vehicle Tracking Software Locating Active Traffic Officers and EMS vehicles ... 28

Photo Image 5-1: Weigh-in-motion and road signage in Beaufort West ......................................... 42

Photo Image 5-2: Weighbridge, weigh-software showing weight on various axels and fine options 43

Photo Image 5-3: Vehicles are given an opportunity to correct their load before reweighing ........... 43

LIST OF FIGURES

Figure 1-1: Map of Beaufort West Study Area .................................................................................. 5

Figure 3-1: Example of RTMC Report - Recording visible enforcement activities undertaken by

Beaufort West Provincial Traffic ...................................................................................................... 15

Figure 3-2: Example of Quarterly Performance Reports Prepared by Beaufort West Traffic .......... 16

Figure 3-3: Organisational Structure of Beaufort West Traffic ........................................................ 18

Figure 3-4: Number of K78 Roadblocks held by BW Provincial Traffic ........................................... 19

Figure 3-5: Number of Vehicles Stopped by BW Provincial Traffic ................................................. 20

Figure 3-6: Drivers Tested for Alcohol by BW Provincial Traffic ..................................................... 20

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Figure 3-7: Written Notices (S56s) Issued by BW Provincial Traffic ................................................ 21

Figure 3-8: Type of Written Notices (S56s) Issued by BW Provincial Traffic .................................. 22

Figure 3-9: Monthly Breakdown of ‘Moving Offence’ S56s issued by BW Provincial Traffic ............ 22

Figure 3-10: Arrests by BW Provincial Traffic .................................................................................. 23

Figure 4-1: Map of ASOD Phasing of ASOD Implementation in Study Area ................................... 26

Figure 4-2: TLE001 Form submitted by control room for ASOD enforcement activities .................. 31

Figure 4-3: The Number of Speed Infringements and eNatis Infringement Flagged by ASOD ........ 32

Figure 4-4: Type of eNatis Infringement Flagged by ASOD ............................................................ 33

Figure 4-5: Total ASOD Speed Infringements Flagged vs. Written Notices (S56s) Issued ............. 33

Figure 4-6: Total Number of Annual Written Notices (S56s) Issued by ASOD ................................ 34

Figure 4-7: Written Notices (S56s) from ASOD vs. from BW Provincial Traffic Centre .................... 35

Figure 4-8: Number of Written Notices (S56s) Issued by ASOD ..................................................... 35

Figure 4-9: Monthly Breakdown of the Types of Written Notices (S56s) Issued by ASOD ............... 36

Figure 4-10: Annual Breakdown of the Types of Written Notices (S56s) Issued by ASOD .............. 36

Figure 4-11: Percentage of Vehicles Exceeding Speed Limit on R61 (ASOD Phase 1) .................. 37

Figure 4-12: Minibus Taxis Exceeding the Speed Limit on R61 ..................................................... 38

Figure 4-13: Change in Vehicles Exceeding Speed Limit on N1/8 (ASOD Phase 2) ...................... 38

Figure 4-14: Comparison of Total Speeding Prosecutables, S341s Issued vs. Payments on the R61

....................................................................................................................................................... 39

Figure 5-1: Location of Beaufort West Weighbridge and Provincial Traffic Department .................. 42

Figure 5-2: Comparison of Vehicle Volumes versus Weighed Volumes ......................................... 45

Figure 5-3: Weighbridge Operating Hours per Month ...................................................................... 46

Figure 5-4: Weigh Rate per Hour .................................................................................................... 46

Figure 5-5: Total Number of Vehicles Charged with Overloading Per Month .................................. 47

Figure 5-6: Number of Buses Weighed and Overloaded ................................................................ 48

Figure 5-7: Number of Fatal Crashes Involving Heavy Vehicles and Buses ................................... 48

Figure 6-1: Average Daily Traffic per month at non-ASOD Controlled Sites .................................... 52

Figure 6-2: Average Daily Traffic per month on ASOD Controlled R61 ........................................... 53

Figure 6-3 Monthly Traffic Volumes for R61 by Heavy and Light Vehicle Types............................. 54

Figure 6-4: 85th Percentile Speeds at non-ASOD controlled Roads. ............................................... 55

Figure 6-5: 85th Percentile Speeds on ASOD controlled R61. ......................................................... 56

Figure 6-6: Average Speed on non-ASOD controlled Roads........................................................... 56

Figure 6-7: Average Speed on ASOD controlled R61. .................................................................... 57

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Figure 6-8: Comparison of Data Sources: Fatalities for Decembers and Januaries for the N1- 6/7/8

....................................................................................................................................................... 59

Figure 6-9: Total Annual Road Accident Crashes along Three ASOD-Controlled Roads and Two

Control Sites – R27 and N2/5 ......................................................................................................... 60

Figure 6-10: Three-Year Moving Average Road Accident Crash Rate along ASOD-Controlled Roads

....................................................................................................................................................... 61

Figure 6-11: Annual Fatal Crashes along Three ASOD-Controlled Roads and Two Control Sites –

R27 and N2/5 ................................................................................................................................. 61

Figure 6-12: 3-Year Moving Average Fatal Crash Rate along ASOD-Controlled Roads .................. 62

Figure 6-13: Number of Fatalities and Fatal Crashes along the R61 ............................................... 62

Figure 6-14: Total Annual Fatalities and Serious Injuries along R61 .............................................. 63

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LIST OF ABBREVIATIONS

AADT : Average Annual Daily Traffic

AARTO: Administration Adjudication of Road Traffic Offences

ANPR : Automatic Number Plat Recognition

ASOD : Average Speed Over Distance

CTO : Comprehensive Traffic Observations

IPAS : Integrated Provincial Accident Data System

M&E : Monitoring and Enforcement

NLTA : National Land Transport Act, 2009 (Act No 5, 2009)

NRTA : National Road Traffic Act

OB : Occurrence Book

PLTF : Provincial Land Transport Framework

PRE : Provincial Regulatory Entity

PSO3 : Provincial Strategic Objectives 3

RTMC : Road Traffic Management Committee

RTQS : Road Transport Quality System

SANRAL: South African Road Agency Limited

SAPS : South African Police Services

VCPs : Vehicle Check Points

WCG : Western Cape Government

WIM : Weigh-in-Motion

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ACKNOWLEDGEMENTS

We would like to thank the following officials and agencies for their contributions towards this

enforcement evaluation of the Safely Home Programme. Without their support and involvement, the

evaluation would not have been possible.

WCG, Provincial Law Enforcement - Beaufort West Provincial Traffic Centre

WCG, Provincial Law Enforcement – Regional Provincial Traffic (N1 West Coast Region)

WCG, Provincial Law Enforcement

Municipal Traffic Department - Beaufort West

WCG, Transport and Public Works - Programme 5: Transport Regulation; Safely Home

Programme

WCG, Transport and Public Works – Monitoring and Evaluation

Evaluation of Safely Home Enforcement Activities: Evaluation Report 1


1. INTRODUCTION

1.1 Background

It is common cause that Road Safety in South Africa has been and is a serious concern. When

compared to worldwide fatality rates, South Africa was third on the fatality generator list with 27.97

fatalities per 100 000 inhabitants (IRF 2006 in UCT, 2010).

In an attempt to address these high road fatalities, the Western Cape Government developed

“Provincial Strategic Objective 3: Moving the Western Cape Forward – Increasing access to safe

and efficient transport” which was approved by Cabinet in July 2010 (Western Cape Government,

2010). The Safely Home Programme falls within this Strategic Objective 3 and was designed to

achieve the stated outcome of “Reducing road fatalities by 50% by 2014.

Safely Home interventions are focussed within the traditional four E’s i.e. Enforcement,

Engineering, Education and Evaluation. In pursuit of the Strategic Objective 3, various plans were

identified within each of these focus areas:

Enforcement

Enforce compliance of road traffic laws through visible and smart means to create the

perception of the omnipresence of enforcement authorities (Plan 1).

Engineering

Implement engineering and infrastructure improvement projects to reduce road crashes

and fatalities at hazardous locations as well as around schools and public transport

facilities (Plan 2).

Design, implement and monitor a system for road safety audits as part of the required

Environmental Impact Assessments that have to be completed at design and

implementation stages of all infrastructure and development projects (Plan 3).

Education and Awareness

Build internal capacity to improve road safety education and awareness through life

skills (Plan 4).

Identify, design and implement mechanisms to facilitate community engagement on

road safety awareness projects (Plan 5).

Design and implement communication and awareness campaigns with specific

reference e.g. drunk driving, seatbelt wearing, etc. (Plan 6).

Design and implement operational plans including the building of capacity – to

transform and improve the processes and systems for driver and vehicle fitness testing

(Plan 7).

Engage LeadSA in all possible means to advance communication and awareness (Plan

8).

Develop learner transport policies and strategies (Plan 9).

Implement learner license training as part of school curriculum (Plan 10).

Develop staggered increase of breath/blood AC for learner/novice drivers (Plan 11).

Develop a strategy for road safety ambassadors (Plan 12).



Develop a strategy regarding pedestrian sobriety taking into account local by-laws (Plan

13).

Develop and implement protocols for action by traffic and SAPS officers at roadblocks,

vehicle check points and possible future compulsory stops (Plan 14).

Evaluation

Develop systems and processes to collect, verify and analyse data and statistics to

ensure intelligence driven projects and operations (Plan 15).

Analyse deficiencies in terms of accident reporting and impact on corrective measures

where possible (Plan 16).

Analyse best practice models of accident reporting and develop appropriate models

(Plan 17).

Design, coordinate and implement research and pilot projects in support of the

provincial goals including SHADOWS, Average Speed Over Distance (Plan 18).

The University of Cape Town prepared a baseline study for the Safely Home Programme in

December 2010, which summarised the status of road crashes, fatalities and injuries for the

Western Cape. This report identified the key “black spots” and provided a guide for Safely Home

implementation actions.

1.2 Overview

Road traffic enforcement aims to achieve safe and efficient movement of people and goods by

controlling road user behaviour through preventative, persuasive and punitive measures. In the

context of this study, the focus is on “Enforcement” and specifically the role of visible policing and

“Smart” enforcement and how it was applied within the context of the Safely Home Programme.

A strong visible policing presence plays an important role in altering road user behaviour, making it

a key element of the enforcement plan. The responsibility of carrying out the visible road traffic

enforcement lies with Provincial and Municipal Traffic. These include:

Routine and daily patrols

Roadblocks and vehicle check points

Speed enforcement

Alcohol blitzes

Fatigue management Programmes

Public transport operating license regulation and driver/vehicle checks

Automated or “smart” enforcement techniques have been used to facilitate and support existing

visible enforcement activities since they have the potential to reduce the traffic policing resources

required. The areas where these smart enforcement techniques have been utilised in the province

include:

Speed limit enforcement

Red light signal enforcement

Heavy vehicle enforcement

License transgressions and stolen vehicle identification.



1.3 Purpose of the Evaluation

This evaluation focuses only on the enforcement component of Safely Home. The purpose of the

enforcement evaluation is to:

Provide data to inform the development or review of a strategic approach in enforcement

operations and intelligence-driven deployment.

Provide evidence to help inform decision-makers to optimise enforcement activities.

Provide information that would assist the efficient and effective enforcement deployment.

Provide recommendations to improve traffic law enforcement processes and procedures,

and improve the documenting of information as part of the enforcement judiciary system.

Identify areas of good practice which can act as exemplars to encourage further

development.

Identify gaps and weaknesses to policy, procedures and processes and thus determine

where best to target resources and focus efforts.

Assess the impact of previous and/or current traffic law enforcement systems.

1.4 Study Area

For various reasons, including time and budget constraints, this evaluation was limited to the

Beaufort West region (refer to Figure 1-1). Beaufort West is the gateway into the Western Cape

and has served as a pilot for a number of smart technologies. These include three phases or

segments of Average Speed Over Distance (ASOD), which was implemented together with a

control room or back-office in Beaufort West. Beaufort West also includes the only weigh-in-

motion (WIM) weighbridge station with electronic screening of heavy vehicles in the Western Cape.

The following road sections were included in the study:

National Road N1:

Laingsburg to Beaufort West (N1 Sections 5, 6 & 7)

Beaufort West to Riemhoogte (N1 Section 8)

Provincial Trunk Route TR 33 (R61)

Beaufort West to Aberdeen (TR 33 section km 0 to 74)

1.5 Project Scope

Enforcement activities and key interventions which the WCG have implemented in the Beaufort

West region on the abovementioned study roadways as part of the Safely Home Project were

identified, reviewed, analysed and evaluated. These include the following components:

Visible Enforcement by provincial traffic officers related to:

speeding

overloading

drunken driving

RTQS enforcement e.g. road-worthiness, licensing, etc. etc.

Smart Enforcement related to:



ASOD

Weighbridge with weigh-in-motion screening

1.6 Report layout

The Enforcement Evaluation Report forms part of the Safely Home Enforcement Evaluation being

undertaken for the Monitoring and Evaluation (M&E) Unit of WCG. The Report includes the

following chapters:

Chapter 1: Introduction

Chapter 2: Evaluation Methodology

Chapter 3: Evaluation of Visible Enforcement Activities

Chapter 4: Evaluation of ASOD/ANPR

Chapter 5: Evaluation of Weighbridge/Weigh in Motion

Chapter 6: Evaluation of Driver Behaviour Indicators

Chapter 7: General Evaluation and Trends



Figure 1-1: Map of Beaufort West Study Area

Implementation Evaluation of Safely Home Enforcement Activities: Evaluation Report 6


2. EVALUATION METHODOLOGY

The following section describes the methodology that was used to undertake the evaluation of the

Safely Home Programme.

2.1 Confirmation of Scope

An inception meeting was held with M&E to confirm the purpose of the study and its

respective deliverables.

The scope was geographically limited to only include the Beaufort West area and the road

sections as outlined in Chapter 1.

A revised scope and budget were prepared and submitted to the client in response to the

change in scope and budget.

2.2 Collection and Analysis of Data

A systematic review was undertaken to understand the type of data sources, existing

reports or documents, as well as other information that was available for the evaluation.

A site visit was undertaken to Beaufort West to meet with the relevant local provincial traffic

personnel, to observe operations first hand and to understand the type of data that will be

available for the evaluation.

The list of available data and their sources was presented and ratified by the project

steering committee which is represented by Provincial M&E, Transport Regulation and

Provincial Traffic.

As agreed, specific approved data was obtained via ratified sources (refer to Chapter 4 for

details)

All data was reviewed, verified and analysed for trends and changes in road safety

indicators.

Table 2-1 shows a summary of the types of data available for this evaluation, including the source

and periods for which the data was available. The data and the results of the analysis are

described in detail in each relevant section of the report.

2.3 Stakeholder Interviews

Interviews with key Safely Home Enforcement stakeholders were undertaken to:

understand the expectations of the study,

confirm the details of the Safely Home Programme,

identify the possible data sources that are available

obtain the contact details of key personnel to meet with

identify the enforcement activities or projects undertaken as part of Safely Home

determine what’s working

identify constraints or what could be improved

The following interviews/meetings were carried out as part of this evaluation:

Provincial Traffic

Regional Office - Mr. Hufkie and Ms. Fennie



Beaufort West Provincial Traffic

Acting Traffic Chief – Ms Swanepoel

Statistician – Ms Eckard

Control Room Operator – Ms Mallies

Weighbridge Supervisor – Mr Spogter

Impoundment Supervisor – Mr Tyke

Receptionist, record keeper for accidents - Ms Buyers

o ASOD and Weigh bridge consultants – Aurecon, Mr Oosthuizen

2.4 Skills Transfer

A provincial official has been co-opted to actively work as part of the consultant evaluation

team and assigned specific data sourcing/analysis tasks.

A one day workshop was held to discuss the details of the project, the methods that were

used and how they were applied, and what lessons were learned.

2.5 Peer Review

Two peer review workshops were held as part of the project process. The purpose of the

workshops was to present the data analysis and interim findings and to obtain input from

attendees.

Workshop attendees included Ramesh Maharaj and Brendon Cloete from Monitoring and

Evaluation, Carmen Alex West from Programme 5: Transport Regulation as well as road

safety specialists Marion Sinclair from Stellenbosch University and Jan Coetzee from ITS

Engineers.



Table 2-1: Overview of Data Collected as part of Safely Home Evaluation

1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4

Cabinet approval July 2010

Phase 1 (R61 Beaufort West - Aberdeen)

Phase 2 (N1 Beaufort West - Riemhoogte)

Phase 3 (N1 Lainsburg - Beaufort West)

Dec 20007 as part of Overloading Control

DATA TYPE SOURCE OF DATA ORGANISATION/CONTACT PERSON STATUS AVAILABLE DATES FOR DATA

Traffic Volumes CTO counting stations Syntell received

Average Speeds CTO counting stations Syntell received

iPasProvincial Government, Safely Home Programme

5, Kevin Octoberreceived

MSC Forensic LaboratoryProvincial Government, Safely Home Programme

5, Kevin Octoberreceived

Monthly reporting

compiled by Beaufort

West Traffic

Provincial Traffic: BW with approval Provincial

Department, Receptionist Mrs ?received

Vehicle Tracking data GMT/Tracking company Jacqueline Abrahams/ Eliza Heinz outstanding

ASOD softwareMunicipal Traffic: BW with approval Mr Lakay, Mr

Danielsreceived

Monthly reporting

compiled by control room


Department, Mrs Malliesreceived

Number of S341s ASOD softwareMunicipal Traffic: Beaufort West with approval Mr

Lakay, Mr Danielsreceived

Visible Enforcement Activities

Log sheets recorded by

Traffic officers (RTMC

reports)


Department, Mrs Eckardreceived

Impound Information



reports)



WIM softwareAurecon, Mr Oosthuizen with approval fro Provincial

Governmentreceived



reports)



Weighbridge Information

ASOD Installation

Weigh Bridge - Weigh in Motion Software

Accident Data

Number of S56s issued

AfterBefore

2012 2013 2014

Safely Home Programme

SAFELY HOME ENFORCEMENT IN BEAUFORT WEST REGION2007 2008 2009 2010 2011



3. EVALUATION OF VISIBLE ENFORCEMENT ACTIVITIES

Enforcement activities in the Beaufort West study area include visible or traditional enforcement as

well as smart enforcement. Visible enforcement refers to day-to-day activities or special

national/provincial enforcement programmes

undertaken by provincial and local traffic law

enforcement, while smart or automated

enforcement refers to supporting technology

implemented to enhance traditional

enforcement methods.

3.1 Overview of Visible Enforcement

Beaufort West Provincial Traffic undertakes

visible enforcement activities daily. Typically,

these daily traffic enforcement activities are

implemented according to “The Grid”. This is

the Traffic Law Enforcement’s planning tool that

is prepared quarterly (three-monthly). The Grid

is compiled to achieve monthly enforcement

targets and to incorporate any other planned

national, provincial and/or inter-agency

enforcement programmes.

Shift supervisors deploy traffic officers to

specific tasks based on this pre-prepared grid.

Visible enforcement includes activities such as:

Roadblocks with special focus areas

such as fatigue management and

alcohol blitzes

Vehicle Check Points (VCPs)

Patrols

Speed enforcement

Vehicle escorts

Overloading control/weighbridge

3.1.1 Roadblocks

Roadblocks are one of the key enforcement activities used within visible traffic law enforcement. In

Beaufort West, these roadblocks could also include other local role-players such as Forensic

Pathology, SAPs, EMS and Municipal Traffic. Roadblocks can also be undertaken as part of larger

nationally or provincially coordinated and targeted enforcement programmes. In these cases, it

ensures consistent cross border enforcement to the Northern and Eastern Cape.

Roadblocks typically have a particular pre-determined focus such as driving under the influence,

public transport or fatigue management. It could also include an educational and awareness

aspect based on the specific focus area. This includes directly communicating with drivers about

the issues and handing out targeted brochures as part of the roadblock.

Roadblock procedures include:



Setting up one hour before the roadblock starts

A briefing by the operational commander (a senior officer or role-player leading the

roadblock), which includes a discussion about the purpose/focus of the roadblock and the

desired outcomes.

Registering the roadblock according to the set protocols:

Bravo Control, the main provincial control room at Vangate Traffic Centre in Cape Town

Joint Information Centre (local control room) in Beaufort West which formally records it

in their OB

The roadblock operations must be undertaken for more than two hours.

A debriefing held to summarise outcomes of the roadblock

Record keeping undertaken as part of daily, weekly and monthly reporting, together with

target indicators.

Roadblocks are either standard or K78 roadblocks. K78 roadblocks have particular signage and

equipment associated with it, including:

Traffic signs indicating:

Roadblock ahead with blue sign

Arrows directing to the operations areas

100, 80, 60, 40 speed reduction

Stop sign

Orange cones in the middle of the road directing vehicles to the operations area

Traffic officers showing hand signs to pull off

Lights

Vehicle with spinning blue lights

Spot lights at night

3.1.2 Vehicle Check Points

Vehicle check points or VCPs are not as extensive and do not require the K78 equipment as for

the roadblock described above. Typically, 3-4 traffic officers are involved in performing the

operation for a minimum of two hours. A briefing and debriefing is also carried out with a log into

the OB of the local Beaufort West control room. The successes are recorded as part of the daily

enforcement activities prepared by traffic officer reports.

3.1.3 Patrols

Patrols are used to contribute to a reduction in moving traffic offenses and to maximise the

exposure of traffic officers with an aim to an overall reduction in road accidents and offence rates.

In Beaufort West, patrols carried out by Provincial Traffic are undertaken on provincial and national

roads i.e. N1, R61 and N12.

There are seven patrol routes in the Beaufort West area. When an officer in a vehicle is on patrol,

the vehicle must:

Operate on the hard shoulder (within the yellow line area)



Keep below a speed limit of 80km/hour

Have headlights and blue lights on for high visibility

When on patrol, officers will stop drivers to enforce the NRTA e.g. illegal cell phone use, safety

belts, etc. Patrols may also be coordinated and planned for a unified cross-border or corridor

presence. In these incidences, coordination of enforcement takes place with Northern Cape and

Eastern Cape provincial traffic.

3.1.4 Manual Speed Enforcement

Manual speed enforcement is done with the use of a prolaser camera. This is normally done

outside of the sections included in the ASOD sections. A record of this type of manual speed

enforcement is made as part of the daily enforcement activity reports prepared by individual traffic

officers and reflected also in the combined weekly and monthly statistics for the traffic centre.

3.1.5 Typical Enforcement Focus Areas

The various enforcement activities would also incorporate an overarching focus. For example,

focus areas typically include:

Alcohol or driving under the influence of alcohol

Driver fatigue management

Public transport enforcement

Roadblocks with an alcohol focus are called Alcohol Blitzes and are undertaken with SAPS and

other role players. Typically, the procedures include:

First observing or smelling for signs of alcohol use on the driver

If there are signs, a breathalyser screening test is carried out with the Dragar

equipment in which the blood alcohol levels must be less than 0.24g/l

Drivers in excess of this level are arrested and taken to the police station (SAPS

case number will be issued with forms SAPS 13/14 completed)

A blood test within two hours is required on those failing the first blood alcohol level

test.

Arrests and enforcement records of alcohol blitzes are recorded in the OB.

Public transport enforcement focuses on:

public transport vehicles that

do not have route operating licenses or are driving contrary to their approved routes

fail basic vehicle roadworthiness

do not have a valid vehicle license

are suspect to be stolen vehicles

drivers that do not have

valid driving licenses

valid professional driving permits (PrDPs)



Public transport vehicles without valid operating licenses are impounded and required to pay a

R2 000 fine and R7 000 impound fees. Fees are R1 000 if they have a valid operating license but

do not have it with them in the vehicle.

Fatigue management is a programme focussed on public transport drivers and drivers of other

vehicles driving long distances. This typically includes an education or awareness component to

the roadblock. Traffic officers will stop drivers to talk to them about driver fatigue and ask them

questions about where they are travelling to and/or from, how long they have been driving and

advising them that they should stop every two hours or every 200km.

3.1.6 Offences and Written Notices

The type of traffic offences or transgressions as defined in the National Road Traffic Act No 93 of

1996 typically falls into the following categories:

Driving document charges

Driving license i.e. none or failing to carry

PrDP i.e. none or failing to carry

Dangerous goods vehicle permits

Public transport operating license

Moving offence charges

Inconsiderate Driving

Overtaking in Face / Barrier line

Traffic Signal Violations (Road Sign / Marking)

Stopping on Freeway

Speed - Manual (Hand held camera), fixed camera or ASOD

Seat Belt (driver and passengers)

Unlicensed Vehicles

Fail to Display Licence Disc

Overloading goods and passengers

Held Cell phone in Hand Whilst Driving

Vehicle defect charges

Steering

Windscreen Wipers

Brakes

Tyres

Lights or lamps (headlamps, rear lamps or stop lights, direction indicators)

Number Plate

Side and Rear Retro Reflective Markings



There are two kinds of written notices or fines issued, regardless of the traffic violation. These are

referred to after the particular Section in the National Road Traffic Act in which it is contained

(NRTA, 1996).

Section 56s

A section 56 or S56 is a written notice that is issued by a traffic officer directly and in person to a

motorist. These can be for any type of traffic offence as listed above. It is considered an

admission of guilt and includes a court date. A Section 56 notice gives a motorist 30 days to pay

before the case goes to court. These types of fines can typically not be ignored by motorists since

they are received in person, consequently deeming the motorist to l be in contempt of court if the

fine is not paid or the court hearing is not attended..

Section 341s

A Section 341 notice is sent to a motorist by post for violations caught on traffic camera or for

traffic tickets issued in the absence of the motorist (for example, for an expired licence disk). It

does not have a court date on it but is a first notice before summons. The traffic department will

issue a second notice before actually issuing the summons. Usually two notices are issued before

a summons is issued, after which the motorist is given another 30 days to pay (or contest your fine

in writing) before the case goes to court. Typically, an offender has three months to pay a Section

341 fine.

If fines are not paid or contested by the due date and the motorist does not appear in court to

present his case, a warrant of arrest is then automatically when the case goes to court.

3.2 Available Data for Evaluation

Reporting on the enforcement activities is undertaken on a daily, weekly and monthly basis for

Beaufort West Provincial Traffic. However, there are no standard protocols in place to keep an

electronic backup for these reports or to prepare historical trend analysis. Currently traffic officers

are deployed in accordance with “the grid” unless changes are required due to manpower

shortages or when responding to a road accident emergency. Individual traffic officers submit logs

to their supervisors recording their activities for the day. These logs together with weighbridge

information are used to prepare the following reports on a daily, weekly or monthly basis:

TLE004a & TLE004b forms are completed by traffic officers on a daily basis.

A RTMC form is also completed on a daily and weekly basis. Monthly reports for the

Beaufort West traffic centre are forwarded to the RTMC. (refer to Figure 3-1)

TLE001 form (Figure 4-2 in the next chapter is an example) is also completed for the

Beaufort West Provincial Traffic on a daily basis and combined for weekly and monthly

statistics. These TLE001 forms are compiled and sent on a weekly basis to the N1

Beaufort West regional office where targets are tracked for the region. The same form is

also completed by the control room for ASOD enforcement activities.

Monthly and quarterly targets for Beaufort West Provincial Traffic. (refer to Figure 3-2)

Minister’s report which summarises public transport enforcement data.

The data to evaluate the extent and effectiveness of existing visible enforcement activities within

Beaufort West Provincial Traffic has probably been the most problematic due to the following

reasons:

Data is captured in standardised forms rather than in a comprehensive database.



Analysis of the visible enforcement data analysis is not possible unless data is

converted and manipulated into a database.

Data capturing is not automated but requires each form to be re-captured in a different

format. Often the same information is required for a number of forms, necessitating the

physical re-capturing of data on the different forms.

Data reporting in its current form is time-consuming with a large amount of duplication

of information in various reports.

It is unreliable since it is open to human error.

Data is not automatically stored electronically. Prior to the employment of the current

statistician, all records were only held in hardcopy.

No electronic records for visible enforcement activities exist prior to January 2012.

Forms were over-written daily once information was emailed to RTMC and the regional

traffic office.



DAILY CRIME RETURN DATE

CRITICAL OUTCOMES CRITICAL OUTCOMES

No of k78 Roadblocks Held 2 2No. of Vehicles Stopped 198 5 140 98 224 3 349 1017No. of Drivers Tested for Alcohol 36 14 17 48 58 173No. of Vehicles Weighed 0

DRIVING DOCUMENT CHARGES (WRITTEN NOTICE CHARGES ONLY) DRIVING DOCUMENT CHARGES (WRITTEN NOTICE CHARGES ONLY)

Driving Licence NONE 1 2 2 8 13Driving Licence FAIL to CARRY 1 2 3 7 13PrDP NONE 1 6 1 8PrDP FAIL to CARRY 1 6 1 8

0 Public Passanger Transport Permit condition 10 10

MOVING OFFENCE CHARGES (WRITTEN NOTICE CHARGES ONLY) MOVING OFFENCE CHARGES (WRITTEN NOTICE CHARGES ONLY)

Inconsiderate Driving 0Overtaking in Face / Barrier line 1 1Road Sign / Marking - Traffic Signal Violations 0Stopping on Freeway 0Speed - Manual (Hand held camera) 2 3 5Speed - Camera (Fixed Camera) 0Seat Belt Drivers 2 1 1 4Seat Belt Front Seat Passengers 4 3 4 3 14Seat Belt Rear Seat Passengers 38 2 40Unlicensed Vehicles 6 4 6 4 20Fail to Display Licence Disc 7 8 1 3 19Overloading GOODS 0Overloading PASSENGERS 8 8Held Cell phone in Hand Whilst Driving 1 1 2Other Moving Offences 1 1 2

VEHICLE DEFECT CHARGES (WRITTEN NOTICE CHARGES) VEHICLE DEFECT CHARGES (WRITTEN NOTICE CHARGES)

Steering 00

Brakes SERVICE 0Brakes PARKING 1 1Tyres 4 3 7Front Lamps / Headlamps 4 2 6Rear Lamps / Stop Lamps 3 7 5 15Direction Indicators 1 6 3 10Number Plate 1 2 4 7Side and Rear Retro Reflective Markings 0Other Defects 2 2 2 6TOTAL WRITTEN NOTICE CHARGE 37 5 261 121 310 3 440 1177Vehicles Discontinued/ impounded 0

Drunken Driving 1 1No Driving Licence 0Speed 0Overload Goods 0Overload Passangers 0Inco,Rec. & Neg. 0Permits / Operating Permits 0Warrants Executed 0False Documentation 0Other Arrests 0

Total Arrests 0 0 0 0 1 0 0 1Pedestrians Arrested 0Grand Total (Charges+Suspensions+Arrests) 37 5 261 121 311 3 440 1178

MINIBUSES

M.P.V.'s L.D.V.'s

MOTOR

CYCLES

Dangerous Goods Vehicles

Windscreen Wipers

22-28 July 2013

AUTHORITY: H.M.V.'s BUSSESMINIBUS

TAXIS

Arr

ests

SEDANS TOTAL

Figure 3-1: Example of RTMC Report - Recording visible enforcement activities undertaken

by Beaufort West Provincial Traffic



APR MAY JUNQUARTER

TOTAL

OVER /

UNDER APR MAY JUN

4.2.1

Number of speed

operations

conducted

45 47 23 115 72 45 50 24

4.2.2Number of K78

roadblocks held5 9 21 35 4 8 10 15

4.2.3

Number of hours

weighbridgets

operated

665 690 720 2 075 -1 811 657 676 715

4.2.4

Number of road

side v ehicle

check point

operations

19 50 58 127 44 19 49 59

4.2.1

Number of speed

operations

conducted

4.2.2Number of K78

roadblocks held

4.2.3

Number of hours

weighbridgets

operated

4.2.4

Number of road

side v ehicle

check point

operations

OVER /

UNDER

BEAUFORT WEST PROVINCAL TRAFFIC CENTRE 1ST QUARTER PERFORMANCE REPORT

VALIDATED INPUTS OUTPUT VARIANCE

P R ELIM

& VA LID .

VA R IA N C

E

R EA SON F OR VA R IA N C E

B ET WEEN P R ELIM IN A R Y

A N D VA LID A T ED

OUT P UT

MONTH

REASONS FOR

UNDER-

ACHIEVEMENT

QUARTE

R TOTAL

SUB-PROGRAMME

PERFORMANCE

INDICATORS

2013/14 APP TARGETS PRELIMINARY INPUTS QUARTER PERFORMANCE REPORT NARRATIVE

ANNUAL QUARTER

REMEDIAL ACTION IN

RESPECT OF UNDER-

ACHIEVEMENTS

REASONS FOR OVER-

ACHIEVMENT

2 048

120 31 10

156 43 14 Late submissions was received

and not calculated with the daily

stats

2

-4

The weigh bridge hours were

calculated and rounded off on a

daily basis as whereas inspection

was being done on a monthly

basis.

P lanned roadblocks with

SAPS improved over the

quarter. M ore roadblocks

were required from SAPS

33 2

Daily ASOD law

enforcement119 76

OVER -A C H IEVEM EN T

Daily ASOD law

enforcement

PRELIMINARY REASONSAPR MAY JUN

UN D ER -A C H IEVEM EN T R EM ED IA L A C T ION / S

Daily ASOD law enforcement

OVER -A C H IEVEM EN T

Daily ASOD law enforcement

R EM ED IA L A C T ION / S OVER -A C H IEVEM EN T UN D ER -A C H IEVEM EN T UN D ER -A C H IEVEM EN T R EM ED IA L A C T ION / S

127 44300 83 28 -

### 3 886 1 295

This office received other

targets that has to be

achieved at the RD

meeting at Worcester and

therefore we worked on

that amount. We will never

VCP's were held according

the planned grid and more

VCP's were required from

SAPS

-1 838 27

SAPS didn't attent

roadblocks, lack

ofcommunication

Will engage with SAPS

Although there was an

improvement, the target

was still not reached.

Will engage again with SAPS

This office received other targets

that has to be achieved at the RD


therefore we worked on that

amount. We will never be able to

reach this amount o f hours at the

M ore planned roadblocks

with SAPS were

implemented


targets that has to be achieved

at the RD meeting at

Worcester and therefore we

worked on that amount. We

will never be able to reach this


targets that has to be

achieved at the RD


therefore we worked on

that amount. We will

03 October 2013

CONTROL

PROVINCIAL

INSPECTOR

D. HUFKIE SIGNATURE 03 July 2013 D. HUFKIE SIGNATURE

W. VAN ROOI SIGNATURE 02 October 2013CHIEF PROVINCIAL

INSPECTORW. VAN ROOI SIGNATURE 02 July 2013

Other operational

activities (memorial

service, Funeral etc)

COMPILER /

STATS ADMINISTRATORS. EKKERD SIGNATURE 02 July 2013 S. EKKERD SIGNATURE 02 October 2013

VCP's were held

according the planning

grid

It is hereby certified that the non-finanical data submitted for the respectiv e months and current quarter is correct and that the inputs can be v erified against supportiv e documentation, which reflects the true performance of the centre.

PRELIMINARY VALIDATED

VCP's were held according the

planning grid

Figure 3-2: Example of Quarterly Performance Reports Prepared by Beaufort West Traffic



The RTMC monthly report summaries were used in the analysis of enforcement activities since

these were the most comprehensive and electronically available since January 2012. However,

since RTMC records could not be accessed prior to 2012, it was not possible to compare current

visible enforcement with visible enforcement prior to the implementation of the first ASOD phase in

October 2011. An analysis has been undertaken to see if there has been any change in visible

enforcement since 2012 with the advent of the additional ASOD phases.

The RTMC forms capture the following data as shown in Figure 3-1:

provincial performance indicators against set targets

the number of written charges or S56s issued by:

type of infringement i.e. driving document charges, moving offence charges and/or

vehicle defect charges

type of vehicle i.e. heavy, bus, mini-bus, LDV, motorcycle or sedan

number of vehicles discontinued or impounded by type of vehicle

number and type of arrests i.e. drunken driving, speed, overloading, operating permits,

warrants executed, false documentation or pedestrians.

3.3 Organisational Structure of Provincial Traffic Law Enforcement

Western Cape Government’s Provincial Traffic Management Unit has historically been housed

within the Department of Community Safety. From 1 April 2014, Traffic Management has shifted to

the Department of Transport and Public Works.

Traffic Management is headed by Chief Director Mr Africa with his three directors: Mr Jansen for

Road Safety Management, Mr Lakey for Traffic Law Enforcement and Dr Engelbrecht for Traffic

Training and Development.

Western Cape Provincial Traffic Law Enforcement is structured into three regions, each headed by

a regional director. There are 12 provincial traffic centres as shown in Table 3-1.

Table 3-1: Traffic Regions and Centres in the Western Cape

Region Regional Director Traffic Centres

Metro Mr Michaels Somerset West and Brackenfell (2)

N1 West Coast Mr Hufkie Vredenburg, Vredendal, Beaufort West, Laingsburg

and Worcester (5)

N2 Southern Cape Mr Curren Caledon, Knysna, Mosselbay, Oudtshoorn and

Swellendam (5)



Beaufort West falls under the N1 West Coast region, reporting to regional director Mr Hufkie.

Beaufort West has a total staff complement of 57 officers and support staff, as shown in the

organisational diagram below (Figure 3-3). There are currently six vacancies including the traffic

chief, with one of the assigned principal provincial inspectors currently assuming the position of

Acting Traffic Chief.

Figure 3-3: Organisational Structure of Beaufort West Traffic

3.4 Performance Indicators and Targets for Visible Traffic Enforcement

Performance targets are set for specific performance indicators for each provincial traffic centre

and traffic region and these are rolled-up into the provincial targets. The current performance

indicators include the number of speed operations, K78 roadblocks held, operational weighbridge

hours and VCPs. Table 3-2 shows the monthly, quarterly and annual targets for each performance

indicator for Beaufort West Provincial Traffic Centre.

Table 3-2: Performance Indicators and Targets for Beaufort West Provincial Traffic Centre

Performance Indicators 2013/2014 Targets

Month Quarter Annual

Number of speed operations 12 37 148

Number of K78 roadblocks held 7 22 88

Number of roadside VCPs 26 79 316

Number of weighbridge hours * 720 2160 8640

Figure 3-2 illustrates the quarterly performance results, showing that all other targets are being

achieved except for the number of weighbridge operational hours. The underachievement of this

weighbridge target has been attributed to lack of staffing.

Traffic Chief (1)

(vacant- acting chief)

Principal Provincial Inspector (4)

(1 serves as acting chief)

Senior Provincial Inspector (5)

(2 vacant)

Senior Admin Clerk (2)

(1 vacant)

Chief Admin Clerk (1)

Provincial Inspector (44)

(2 vacant)



3.5 Analysis of Visible Enforcement Activities

The following figures summarise the analyses of the visible enforcement activities of the Beaufort

West Provincial Traffic Centre. This analysis is based on RTMC monthly report summaries, which

were available only from January 2012. Additional supporting graphs can also be found in

Annexure A.

Figure 3-4, Figure 3-5, Figure 3-6 and Figure 3-7 present line graphs of the cumulative monthly

totals for the years 2012, 2013 and 2014. Data was only available for the first two months of the

2014 year.

Figure 3-4 shows the total number of K78 roadblocks held annually by Beaufort West. There are

about 400 – 500 roadblocks held annually with approximately 120 more roadblocks held in 2013

than in 2012. This equates to between 35 and 40 roadblocks per month or more than one per day.

Although only two months of data is available for 2014, it appears to be following the same trend

as that of the other two years.

Figure 3-4: Number of K78 Roadblocks held by BW Provincial Traffic

It may be questioned whether the number of roadblocks held is a reasonable and practical

measure; a better measure to report would probably be the number of roadblock-hours per month.

Figure 3-5 shows the cumulative number of vehicles stopped by provincial traffic officers of

Beaufort West per month for each calendar year. There is very little difference between 2012 and

2013, with approximately the same number i.e. ± 320 000 vehicles stopped in both years. Again,

2014 appears to be following a similar trend to the previous two years.



Figure 3-5: Number of Vehicles Stopped by BW Provincial Traffic

Figure 3-6 displays the number of drivers tested for alcohol during 2012, 2013 and 2014 as

cumulative monthly numbers. These range between 13 000 - 14 000 drivers tested per year.

During 2012, slightly more (about 680 more) drivers were tested compared to 2013, while 2014 is

starting slightly higher than the previous two years.

Figure 3-6: Drivers Tested for Alcohol by BW Provincial Traffic



Figure 3-7 shows the total number of written notices (S56s) issued for the entire Beaufort West

Provincial Traffic Centre. These numbers directly correlate with the levels of visible enforcement

since written notices require in-person issuing of fines. When comparing the cumulative monthly

and the annual totals for the years 2012, 2013 and for January/February 2014, there are no

obvious differences between these years. The levels of S56s issued have remained constant.

Figure 3-7: Written Notices (S56s) Issued by BW Provincial Traffic

Figure 3-8 shows the type of written notices (S56s) issued by the Beaufort West Provincial Traffic

Centre since 2012. These include vehicle defect charges, moving offence charges and driving

document charges. The details of actual infringements contained within each of these categories

are listed in Section 3.1.6. The relative proportion of the types of written charges remains largely

similar, but significantly more offences are issued during December and January of each year.

The latter obviously relates to the higher traffic volumes during these holiday months. The bulk of

the written notices are issued for moving offences.



Figure 3-8: Type of Written Notices (S56s) Issued by BW Provincial Traffic

Figure 3-9 shows the types of moving offence written charges issued by the Beaufort West

Provincial Traffic Department. The overloading of goods and passengers shows the largest

number of S56s issued, followed by speeding, and then unlicensed vehicles. January and

March/April (Easter holidays) show the largest number of speeding infringements issued.

Figure 3-9: Monthly Breakdown of ‘Moving Offence’ S56s issued by BW Provincial Traffic



Figure 3-10 shows the total number of arrests per year by Beaufort West Provincial Traffic Centre.

There has been a decrease in the number of arrests since 2012. On average, the number of

arrests range between 90 and 120 per year.

Figure 3-10: Arrests by BW Provincial Traffic

3.6 Summary Findings of Visible Enforcement Evaluation

General Observations

There is a more-or-less consistent output in the level of visible enforcement carried out by

Beaufort West traffic.

The level of human resources at Beaufort West Provincial Traffic Centre has remained

relatively constant since 2012.

There are a number of vacancies including that of Traffic Chief.

In discussions with Beaufort West Provincial Traffic representatives, lack of manpower has

been identified as a key concern and according to them it prevents any possibility of

increasing the levels of visible enforcement.

What is Working in Visible Enforcement?

Beaufort West Provincial Traffic Centre has generally been achieving the goals and targets

set for enforcement activities; except for operational weighbridge hours. Under-

achievement on this target is attributed to lack of sufficient manpower.

Coordination with other role-players e.g. SAPS, EMS and across border is taking place

which maximises enforcement visibility and integrates enforcement geographically.

Well defined protocols and procedures are in place for specific long-standing types of

enforcement activities such as K78 roadblocks and vehicle patrols.



The importance of awareness and educational campaigns as part of shifting driver

behaviour is largely accepted and is being incorporated into standard enforcement activities

such as roadblocks and VCPs.

Gaps & Weaknesses

Anecdotal comments have been received from the Beaufort West Provincial Traffic

Department, both from management and staff, regarding insufficient labour resources to

undertake the extent of enforcement and other traffic services required. This is particularly

problematic when three daily shifts, annual leave and sick leave have to be factored into

the schedule. Personnel on sick leave affects the department’s ability to fulfill the activities

planned in the monthly grid.

A number of vacancies exist including that of the traffic chief.

Access to eNatis information requires control room communication. This increases the

length of time it takes to issue fines. If the control room is not manned, access to this

information is not available and limits the extent of visible policing efforts that is possible.

The type, extent and format of the manual reporting of data is problematic , not only in

terms of possible errors that creep in along the way, but it also complicates summaries and

trend analyses.

Data is not automatically stored continuously and in electronic format. Once sent to the

Regional Office and the RTMC, the data is discarded since there is no protocol to keep the

data and to even analyse the enforcement efforts locally.

Records have only been electronically stored from 2012. This is essentially since the start

of the ASOD project which means thatenforcement activities or levels cannot be compared

with those prior to the ASOD implementation.

The manual collection of data from various sources i.e. daily traffic officer reports &

weighbridge data will inevitably include margins of human error.

Data and reporting procedures need to be better refined

Data capturing methods need to be changed to improve speed and accuracy.



4. EVALUATION OF ASOD RELATED ENFORCEMENT

Average Speed over Distance (ASOD), which employs Automatic Number Plate Recognition

(ANPR) technology for the identification of vehicles, is one of the smart technologies implemented

in the study area. Smart or automated enforcement refers to technology (hardware and software)

that has been implemented to support and facilitate the effectiveness of enforcement activities.

4.1 Overview of ASOD

ASOD systems employ ANPR to firstly identify a specific vehicle and secondly to identify the time

when it is observed at two locations a known distance apart. This is then used to calculate the

average speed (macroscopic speed) of a vehicle between the two known points rather than the

speed at a single location (microscopic speed).

Photo Image 4-1: Gantry Mounted ASOD Equipment Traffic Signage

Average speed is calculated by the time the vehicle takes to travel between point A (where the first

camera is located) to point B (where the second camera is located). If the vehicle reaches point B

or the second camera in a time shorter than is allowed within the given distance determined by the

speed limit, the driver is considered to be speeding or exceeding the speed limit.

Three phases of ASOD/ANPR have been implemented to date. Figure 4-1 illustrates the location

and extent of the three phases:

Phase 1: October 2011 on R61 (TR35/1 – TR35/74), a 71.6 km stretch of road between

Beaufort West and Aberdeen

Phase 2: November 2012 on N1 (N1/8), 31.7 km stretch of road between Beaufort West

and Three Sisters

Phase 3: December 2013 on N1 (N1/5 – N1/7), a total of 190.3 km between Laingsburg

and Beaufort West. It is enforced as three individual segments which align with the

respective Laingsburg, Prince Albert and Beaufort West Local Municipalities. The first

portion between Laingsburg and Dwyka is 66km, the second between Dwyka and Leeu

Gamka is 62km, and the third between Leeu Gamka and Beaufort West is 62.3km.



Figure 4-1: Map of ASOD Phasing of ASOD Implementation in Study Area



The implementation of ASOD technology has meant that extensive sections of national and

provincial roads are enforced on a 24/7 basis where infringements and/or violations are

automatically flagged in the control room located in Beaufort West. The control room operator

notifies traffic officers on patrol to stop the specific vehicle in order to issue a written notice

(Section 56 notice). The ASOD system flags speeding violations as well as other vehicle

registration transgressions i.e. any expired registrations, stolen vehicles, number plate conflicts,

etc., which are identified within the eNatis system, the national vehicle registration database. Once

stopped, S56’s may also be issued on site for other RTQS transgressions such as vehicle defects

(lights, indicators, etc.) or driver violations (no driver’s license, cell phone usage, etc.). In the case

of public transport vehicles, S56s may also be issued for driving without a PDP or an invalid

operating license.

Infringements flagged by the ASOD system, which are not immediately physically enforced by a

traffic officer stopping a vehicle and issuing a written S56 notice, can be issued by mailing a

Section 341 notice to the address as registered in the eNatis database.

The following photographs are screenshots of the ASOD software that is operational in the control

centre in Beaufort West.

Photo Image 4-2: ASOD software flagging traffic speed and eNatis infringements

*******

********** **********

**********



Photo Image 4-3: Communication/ Intercom Software to Contact Traffic Officers in the Field

Photo Image 4-4: Vehicle Tracking Software Locating Active Traffic Officers and EMS

vehicles



4.2 Available Data Sources Used to Evaluate ASOD

As shown in Figure 4-1 and described in previous sections, the implementation of ASOD in the

Beaufort West area occurred in three phases, the first in October 2011, the second in November

2012 and the third in December 2013.

Most of the figures and graphs in this report are based on a timeline that includes these

implementation dates with reference to Phase 1, Phase 2 and Phase 3.

Note of Caution

It should, however, be noted that there is effectively only two full years of data (2012 and 2013)

available for analysis since the implementation of the first phase, one year since the

implementation of Phase 2 and only two months of available data since the implementation of

Phase 3. This timeframe is too short to make meaningful assumptions, particularly when crash or

safety data is evaluated

Sources of data obtained to analyse ASOD enforcement activities include:

The Control Room Operator manually records all activities in the Occurrence Book (OB)

including:

When traffic officers start and end duty or when they have been instructed to change

activities.

When ASOD triggers/flags a transgression which is relayed by the control room to a

traffic officer in the field.

The number and types of S56’s issued.

Standard reports issued by the ASOD software, including:

Joint Information System (JIS) monthly summaries, which summarise eNatis

infringements flagged by ASOD, such as licensing, number plate conflicts,

roadworthiness, etc. These reports are available per direction for the various ASOD

segments. Total vehicle volumes recorded by the ASOD camera are also included in

these reports.

Section statistics report, summarising the total number of “prosecutables” per vehicle

type (light, minibus, heavy and buses). “Prosecutables” refers only to speeding

vehicles. This report also shows total volumes recorded for Camera A and Camera B of

the specific ASOD segment, allowing calculation of the percentage of vehicles

exceeding the speed limit.

Speed statistic reports, showing vehicle speeds for each vehicle recorded by ASOD

cameras. This report does not reflect the vehicle types but only categorises speeds into

the following speed (km/h) bins 60 – 80, 81 – 100, 101 – 120, 121 – 130, 131 – 140 and

> 140.



Monthly reports as prepared by the control room, summarising the number of infringements

by vehicle type. As shown in Figure 4-2, this TLE 001 form summarises:

Critical outcomes per type of vehicle e.g. number of vehicles stopped, roadblocks, etc.

Speed offences with highest speeds recorded per vehicle type

Infringements by type:

safely belts

reckless/negligent driving

moving violations

illegal use of cell phones

overloading

PrDPs

Public transport driving violations

Driver incidents (licenses, fraud, corruption)

Vehicle related incidents (number plates, lights, tyres and vehicle licenses)

The number of arrests by vehicle type and category of transgression.

Municipal traffic reports on the number of S341s recorded by the ASOD system. This

information records by date and per road segment, the number of:

notices

payments

withdrawals

untraceables

outstanding warrants

outstanding

guilty

unequal payment difference

The same TLE001 form is also used to summarise and document the number of visible

enforcement activities.



Figure 4-2: TLE001 Form submitted by control room for ASOD enforcement activities



4.3 Analysis of ASOD Enforcement Data

The following section summarises the analysis for ASOD enforcement data. Only key graphs have

been included in the report; additional graphs on ASOD analysis are included in Appendix A.

The ASOD system continuously flags both speed and other eNatis infringements. Figure 4-3

shows the total monthly infringements flagged since the first ASOD phase was implemented in

October 2011. It is clear that there has been a significant increase in the number of flagged

infringements and that these increases coincide with the implementation of Phase 2 in November

2012 and Phase 3 in December 2013.

Figure 4-3: The Number of Speed Infringements and eNatis Infringement Flagged by ASOD

Figure 4-3 also shows that there has been an increase in speed infringements, but this has not

been to the same degree as that of the eNatis infringements. eNatis flags vehicles that are stolen,

un-roadworthy, unlicensed, have number plate conflicts or are marked by SAPS. It also includes

vehicles that are not within eNatis. This high number of eNatis infringements is possibly an

indication of the lack of a law-abiding culture of South Africans and that this is extending into

vehicle registrations. On the other hand, it could also reflect on the problems experienced with the

eNatis database i.e. the accuracy and completeness of vehicle and vehicle ownership information.

Figure 4-4 shows the distribution of the different types of eNatis infringements flagged by the

ASOD system. In certain months, vehicles not within eNatis (eNot) have been as high as 60% of

the total infringements flagged.



Figure 4-4: Type of eNatis Infringement Flagged by ASOD

In Figure 4-5 and in Table 4-1 the actual number of written notices (S56s) issued are compared

with the total number of speeding Infringements flagged by the ASOD system. It is apparent that a

small portion of the total speeding infringements flagged was actually acted upon by issuing a

written notice (S56). Although there has in fact been an overall increase in the number of written

notices (S56’s) issued as a result of ASOD flags (Figure 4-6), the proportion to the total number of

vehicles flagged has declined across each of the three phases. In 2011 (Phase 1) an average of

9.9% of the total vehicles flagged for speeding were issued S56s, in 2012 (Phase 2) this figure

declined to 4.1% and in 2013 (Phase 3) it had decreased even further to 1.8%.

Figure 4-5: Total ASOD Speed Infringements Flagged vs. Written Notices (S56s) Issued



Table 4-1: Percentage of S56s Issued out of Total Speeding Infringements Flagged by ASOD

Phase

1

Phase

1 & 2

Phase

1, 2 & 3

Average number of speed infringements flagged by ASOD 1350 3334 8438

Average number of S56s issued from ASOD 134 136 155

Percentage 9.9% 4.1% 1.8%

Figure 4-6 shows the total number of written notices/S56s issued from ASOD per year since its

inception. There is a significant increase in the number of S56s issued in 2013 compared with

2012. Approximately 2 100 additional S56s were issued in 2013. This is to be expected since a

further phase of the ASOD was operational in 2013 compared to 2012.

Figure 4-6: Total Number of Annual Written Notices (S56s) Issued by ASOD

Figure 4-7 shows a comparison between the number of S56s issued as a result of ASOD and

those S56s issued by the Beaufort West Provincial Traffic Centre for other offences not necessarily

related to speeding. The ASOD S56s are a sub-set of the overall S56s issued by the traffic centre.

The data summarised in this graph shows that while there is a large monthly variation in the

number of S56s issued by the traffic centre, across the years they have remained relatively

constant. This finding is reinforced by the data summarised in Figure 3-7 which shows cumulative

monthly totals of S56s issued per year by the Beaufort West Traffic Centre to be similar for 2012

and 2013. The data summarised in Figure 4-8 is a subset of what is presented in Figure 4-7 and

shows only the S56s issued as a result of ASOD. The stepped increase in the number of S56s

issued from ASOD coinciding with the additional ASOD phases are clearly illustrated in this figure.



A possible concern is the overall decline in the number of S56s issued during the peak holiday

months.

Figure 4-7: Written Notices (S56s) from ASOD vs. from BW Provincial Traffic Centre

Figure 4-8: Number of Written Notices (S56s) Issued by ASOD

In Figure 4-9 and Figure 4-10 the same information i.e. Types of written notices (S56s) issued by

ASOD are presented. Figure 4-9 shows the percentage split per month of the type of S56s issued

while Figure 4-10 summarises it per annum. Speed and vehicle related incidents as expected from

ASOD tend to make up the bulk of the offences. However, from the summary in Figure 4-10 it is

evident that speed offences are proportionally decreasing. This may be either due to a reduction in



actual speeding offences or possibly an unconscious shift in enforcement focus to other offences

since it might be thought that speeding infringements can still be enforced with S341s fines.

Figure 4-9: Monthly Breakdown of the Types of Written Notices (S56s) Issued by ASOD

Figure 4-10: Annual Breakdown of the Types of Written Notices (S56s) Issued by ASOD



Figure 4-11 is based on data obtained from standard ASOD reports. Figure 4-11 and Figure 4-13

incorporate the total vehicles recorded by the ASOD cameras and the total speed infringements

flagged, which have been labelled “prosecutables” in the ASOD reports. These are used to

calculate the changes in the proportion of vehicles exceeding the speed limit. This trend in

vehicles exceeding the speed limit, also shown by vehicle type and ASOD enforcement segment,

is considered a good measure of driver behaviour and the number of drivers that are complying

with speed limits.

The raw data received from ASOD reporting when graphed, showed a gradual but distinct increase

in the number of vehicles exceeding the speed limit particularly for minibus taxis. On closer

investigation of the data and when comparing it to the CTO volumes over the same time-period, it

was concluded that there may have been some days when the ASOD equipment was possibly not

working. The data was normalised against the CTO traffic volumes. Figure 4-11 and Figure 4-13

show this normalised data for the percentage of vehicles exceeding the speed limit for Phase 1

and Phase 2 ASOD road sections.

On the R61, the graph shows an initial decline in the percentage of vehicles exceeding the speed

limit from about 7% in October 2011 to 4.7% in March 2012. However, a gradual growth to around

7% in January 2014 can be observed. This trend is particularly notable for minibus taxis as shown

in Figure 4-12 where between September 2011 and December 2013 the shift was from 0.4% to

3.4% of vehicles exceeding the speed limit.

Figure 4-11: Percentage of Vehicles Exceeding Speed Limit on R61 (ASOD Phase 1)



Figure 4-12: Minibus Taxis Exceeding the Speed Limit on R61

Figure 4-13 shows the percentage of vehicles exceeding the speed limit on the Phase 2 segment

of the N1/8, and is also displayed by type of vehicle. The data is available since November 2012

when the second phase was implemented. In this case the heavy and light vehicles show the

highest numbers exceeding the speed limit (ranging between 1-2 %) while minibus taxis and buses

are lowest (<1%). However, on average the profile of vehicles exceeding the speed limit on this

segment of road is a lot more constant than that on the R61.

Figure 4-13: Change in Vehicles Exceeding Speed Limit on N1/8 (ASOD Phase 2)



Figure 4-14 shows the lack of effectiveness of ASOD technology if visible enforcement does not

take place. It contains data on the number of S341s issued, which is the fine that is sent via the

post if an infringement is not immediately dealt with by issuing a S56 directly to the driver. The

graph shows the total procecutables from ASOD against the actual number of 341s issued,

outstanding payments and actual payments made for the first phase segment. There is a close

correlation between the initial procecutables identified and the 341s issued. The number of

payments outstanding is distinctly contrasting. This shows the overarching trend in payments that

started out at about 12% and increased up to 17% but is now at its lowest at 4% payment rate.

Figure 4-14: Comparison of Total Speeding Prosecutables, S341s Issued vs. Payments on

the R61

Interviews and anecdotal discussions indicate that there is a general perception that S341s is not a

very effective form of enforcement, and this is reinforced by the rapidly declining payment rate.

The 341 relies on the eNatis system to be up to date with driver address information. Many

people move and do not update their vehicle information or do not have fixed addresses

and therefore cannot be found.

Warrant of arrests are issued for unpaid and undisputed 341 fines, which must be issued in

person. Again, actually locating the drivers is difficult and requires scarce law enforcement

resources to be deployed to issue the warrants.

The legal system is already over-burdened and there are limited court dates available to

support these growing 341 traffic enforcements.

The initial positive effects of ASOD on drivers may not be sustained if there is not strong visible

enforcement together with a complementary judicial system offering zero tolerance.



4.4 Summary Findings on ASOD

What is Working?

ASOD technology successfully flags speed and eNatis infringements

Visible enforcement is more effective and directly targets transgressors since it is based on

ASOD flags.

Technology ensures speed enforcement over large sections rather than at single points,

which is the case when using manual cameras. This is more likely to shift driver behaviour

than manual speed enforcement, which creates responsive braking followed again by

accelerations in speed. Speeds are shown to be more consistent.

Utilising JIS/control room coordination and vehicle tracking to strategically deploy officers

when responding to ASOD flags is potentially more effective than without this smart

technology.

What are the gaps & weaknesses?

Errors are generated when technology reads number plates inaccurately. Large variations

are shown between first and second camera volumes as well as when compared to existing

CTO stations. If loop counters were installed at ASOD camera locations it would enable a

better error margins calculation.

Volumes of "hits" flagged infringements are too high for current staffing to manage.

Traffic officers in the field utilises the control room to access the eNatis database to verify

driver and vehicle registration information. Issuing S56s can therefore be time-consuming

to verify information. The control room also issues summons numbers and court dates.

S341s are generated on speed only, so the opportunity is wasted to issue other fines,

unless this is done manually.

S341s are not effective in altering driver behaviour. Enforcement is not immediate and thus

not seen as being an effective form of enforcement.

S341s have low payment rates as a result of problems with addresses and the judicial

system with regards to the availability of court dates and persons to issue warrants.

The additional ASOD phases have been generating significantly more hits but these new

phases were not supplemented by increased levels of staff.

Not all locations are covered due to lack of manpower. Currently only one location just

outside Beaufort West is used to enforce vehicles that are flagged by ASOD. Currently

outgoing N1-8, R61 and N12 are not covered.

There is iinsufficient staff which are adequately trained to man the Control Room 24 hours –

7 days a week. An increase in training and number of staffing is required.

The control room is typically manned by only one officer. This is inadequate to undertake

all tasks including reporting, deployment and following up on eNatis requests.

The Occurrence Book (OB) which is the “body of evidence” for the ASOD control room is

currently a handwritten manual process. This is problematic in that it brings in the

possibility for human error and does not allow for the easy analysis of data.



Not able to keep total number of hits or speed data by type of vehicle due some

confidentiality clause attached to the use of the data. This does not enable the recording of

average speeds.

Poor visibility and dirty number plates impact the number plate recognition increasing the

amount of “misreads” in the ASOD system.

The image taken by the ASOD camera is the front of the vehicle which includes the number

plate and driver. Visibility of the driver is poor, particularly at night when one cannot clearly

confirm the identity of the driver. This is problematic if a driver disputes that he was driving

at the time the S341 was issued.

Only limited data is reported direct ASOD system. Other reporting on enforcement from

ASOD is undertaken by the control room but monthly reports are captured into a form which

does not facilitate easy and continual analysis.

No Standard Operating Procedures (SOP) for the ASOD control room regarding

prioritisation, deployment or reporting protocols.

Reporting procedures to be improved for more effective data and record keeping



5. EVALUATION OF WEIGHBRIDGE AND WEIGH-IN-MOTION

5.1 Overview of Weighbridge/WIM

The Beaufort West weighbridge is one of nine weighbridges in the Western Cape that are used to

enforce overloading control in the province. The Beaufort West weigh-in-motion (WIM) screening

and weighbridge is considered to be a smart enforcement tool that serves to support and facilitate

visible enforcement activities described in Chapter 3.

The Beaufort West weighbridge and WIM screening are located just north of the town along the N1

adjacent to the Provincial traffic department.

Figure 5-1: Location of Beaufort West Weighbridge and Provincial Traffic Department

Beaufort West is currently the only weighbridge

within the Western Cape Province that utilises

weigh-in-motion (WIM) technology. WIM is

designed to capture and record axle weights

and gross vehicle weights as vehicles drive over

a measurement site. Unlike static scales, WIM

systems are capable of measuring vehicles

travelling at a reduced or normal traffic speed

and do not require the vehicle to come to a

complete stop. This makes the weighing

process more efficient since it allows for trucks

under the weight limit to bypass static scales or

inspection.

Photo Image 5-1: Weigh-in-motion and road signage in Beaufort West



Vehicles are screened at the WIM scales for possible overloading. Based on this initial screen

weigh, they are directed with the use of traffic signals, either to bypass the weighbridge, or to turn

off into the static weighbridge for a more accurate weighing. At this point the accuracy of WIM

technology has not been approved by the judicial system and overloading infringements can

currently only be issued based on the static or stationary scales contained within the weighbridge.

Although WIM is currently only used as an initial screening tool, it still significantly improves the

effectiveness of overloading enforcement since it screens out the portion of heavy vehicles that are

clearly not overloaded. The accuracy of WIM technology has been improving over the years and it

is possible that fines could be issued directly from WIM sometime in the future.

Photo Image 5-2: Weighbridge, weigh-software showing weight on various axels and fine

options

Photo Image 5-3: Vehicles are given an opportunity to correct their load before reweighing



There are a number of overloading charges that can be issued, based on the actual overloaded

weight to the distribution over individual axles. Fines are issued based on the heavy vehicle’s first

weigh, after which they are given an opportunity to correct their load via either redistribution or off-

loading the overloaded portion of their consignment. A number of specialised service providers

including road haulage and rentable storage units have begun to strategically locate in close

proximity to the weighbridge responding to the need to “correcting loads”.

The weighbridge is operated by a private service provider on behalf of the Western Cape

Government. It is supposed to be operational 24-7 but due to limitations in the Beaufort West

Traffic resourcing there is not always adequate manpower to have the required traffic officer on

duty at the weighbridge. Although the service provider undertakes and manages the weighing

process, a traffic officer is always required when overloading or other RTQS written notices are

issued. Vehicles weighed are also checked in eNatis with the assistance of the control room for

RTQS compliance.

5.2 Weighbridge/WIM Data Available

The data on overloaded vehicles are recorded in the Beaufort West Weighbridge Software that is

housed in the weighbridge and managed by the service provider. Daily reports are generated and

included in the daily, weekly and monthly RTMC and TLE001 reports prepared by Provincial

Beaufort West Traffic. The weighbridge statistics per day as per Table 5-1 include:

Date and Day

Hours weighbridge is operational including first weigh and last reweigh

Number of weighs

Number of normal weighs

Number of reweighs

Number over-or-under loaded

Number charged

Weigh rate per hour

The number of weighbridge hours is recorded and reported as part of the Beaufort West Traffic

Centre and regional performance targets.

Table 5-1: Format of Weighbridge Monthly Report

Hours Weigh

Opera- Rate

tional [Veh/h]

First Last Last Normal Re- Under/

Weigh Normal Reweigh Weighs weighs Over-

Weigh loads

01-Jan-10 Fri 00:00 00:00 00:00 00:00 0 0 0 0 0 0

02-Jan-10 Sat 00:01 23:43 23:43 00:00 1 1 0 1 0 1

03-Jan-10 Sun 05:04 00:21 05:24 00:00 13 13 0 5 1 2.6

04-Jan-10 Mon 17:10 06:45 23:54 22:01 181 167 14 42 9 10.5

05-Jan-10 Tue 23:58 00:00 23:58 22:55 561 540 21 121 13 23.4

06-Jan-10 Wed 23:59 00:00 23:58 23:45 470 446 24 112 13 19.6

07-Jan-10 Thu 23:45 00:14 23:59 23:51 553 515 38 133 18 23.3

08-Jan-10 Fri 23:59 00:01 23:59 22:46 418 397 21 89 11 17.4

09-Jan-10 Sat 23:51 00:00 23:50 22:08 461 438 23 87 7 19.3

10-Jan-10 Sun 23:48 00:05 23:53 23:50 363 339 24 97 14 15.2

11-Jan-10 Mon 23:53 00:06 23:59 23:58 259 242 17 81 8 10.8

12-Jan-10 Tue 23:57 00:01 23:58 22:22 630 603 27 136 16 26.3

13-Jan-10 Wed 23:58 00:02 23:59 22:46 610 571 39 133 17 25.4

14-Jan-10 Thu 23:59 00:01 23:59 22:39 654 616 38 130 14 27.3

Date Day

Time of Totals

Weighs Charged



5.3 Weighbridge Data Analysis

Figure 5-2 shows total volumes of heavy vehicles passing the weighbridge along the N1 and

compares them to the number of heavy vehicles weighed (failing the initial weight screening). The

heavy vehicle volumes have been sourced from the CTO station located outside the weighbridge.

It shows a steady growth in heavy vehicle volumes since 2007. There are on average about 1 500

vehicles per day or 45 000 per month travelling along the N1. The graph also shows the number of

vehicles weighed in the weighbridge, which on average are around 500 per day or 15 000 per

month. The rate of heavy vehicles weighed compared with the total heavy vehicles passing the

weighbridge has increased with time. This indicates that the weighbridge has become more

efficient, weighing more vehicles.

Figure 5-2: Comparison of Vehicle Volumes versus Weighed Volumes

The weighbridge is supposed to be operational 24 hours a day and seven days a week. Figure 5-3

compares available weighbridge hours with actual operational hours. Currently, due to manpower

issues, the weighbridge is not operational throughout the year. Decembers are the most

problematic with fewer operational weighbridge hours. This is likely because there is a strong

focus on other visible enforcement efforts during these holiday months, leaving fewer resources for

the weighbridge.



Figure 5-3: Weighbridge Operating Hours per Month

Figure 5-4 shows the rate at which vehicles are weighed per hour. This is calculated by dividing the

total number of heavy vehicles weighed by the hours of operation. The weigh rate has been

steadily increasing at a rate of about 6.1% per year, again indicating that the operations are

becoming more efficient over time.

Figure 5-4: Weigh Rate per Hour



Figure 5-5 shows the total number of heavy vehicles that are charged with overloading per month.

The general trend indicates that fewer vehicles are being charged with overloading, which

suggests an improvement in the behaviour and attitude of trucking companies and truck drivers.

Figure 5-5: Total Number of Vehicles Charged with Overloading Per Month

Buses are also weighed at the weighbridge and charged if found to be overloaded. Buses can be

considered overloaded because of too many passengers or in actual weighed weight. The limits

are based on both the manufacturer’s specifications as well as South African road standards for

overloading. Figure 5-6 shows the number of buses weighed and the number of buses

overloaded. This graph follows similar trends of other heavy vehicles in that there has been an

increase in the number of buses weighed with fewer overloaded buses.



Figure 5-6: Number of Buses Weighed and Overloaded

Although road accident data is covered in a later section, Figure 5-7 has been included to show the

number of fatal accidents involving heavy vehicles and buses on the study area roads (ASOD

sections on R61 and N1). It is assumed that better enforcement of overloading occurs as a result

of the weighbridge. This assumption is supported by the fact that an increased number of vehicles

were weighed, with fewer overloading charges. The number of fatal crashes involving heavy

vehicles and buses appears to be steadily declining since 2007. This could be as a result of the

enforcement efforts at the weighbridges.

Figure 5-7: Number of Fatal Crashes Involving Heavy Vehicles and Buses



5.4 Summary Findings on Weighbridge/WIM

What is Working?

An increased number of heavy vehicles and buses are weighed.

The number of overloaded vehicles has been decreasing.

WIM technology undertakes initial screening of possibly overloaded vehicles, greatly

improving the efficiency of the weighbridge since it no longer requires all heavy vehicles to

be weighed, targeting enforcement activities.

The ssafety of traffic officers is now greatly increased with the advent of the WIM since

they are no longer required to manually direct vehicles into the weighbridge as is still the

practice at other weighbridges in the province where WIM screening is not present.

WIM technology and signage allows for 24 hour weighbridge operations while at

weighbridges where no WIM is present, the safety of traffic officers after dark is a serious

consideration and does not support 24 hour operations.

Access to eNatis via the JIS control room also ensures not only overloading

enforcement,but other RTQS enforcement, such as roadworthy, stolen vehicles, etc.

Software allows for automated reporting

What are the gaps & weaknesses?

The initial WIM screening is currently directing many more vehicles into the weighbridge for

weighing than are actually charged with overloading. The sensitivity on the WIM screening

could possibly be adjusted to reduce the margin of error between the screened vehicles

and the overloading charges.

Not all heavy vehicles automatically abide with WIM signals directing them into the

weighbridge. Currently a traffic officer is still required to enforce compliance of heavy

vehicles signalled into the weighbridge. Due to resource limitations there is not always an

officer available at this post which means that some overloaded vehicles could bypass the

weighbridge. This could be solved with the installation of a camera at the WIM site which

would support enforcement by issuing a S341 for not adhering to the traffic signals.

However the size of the fine is smaller for this type of offence than for overloading and

heavy vehicles may consciously disobey the WIM traffic signals.

There are a number of fines that can be issued within the weighbridge which used to be

issued at the discretion of the traffic officer. Now all possible fines are issued.

24-7 operating hours for the weighbridge is resource-intensive and they are currently not

making their target operational hours.

Overweight public transport vehicles are problematic since passenger facilities are not

catered for in cases where vehicles are impounded or discontinued.

Weighbridge data is only kept to report on traffic centre and regional weighbridge

operational hour targets. Data is not automatically analysed as part of a continuous

improvement programme.



Reporting and record keeping protocols are not in place for consistent levels of data and

reports for weighbridges across the province.

There are no standard procedures on dealing with the heavy vehicles that are not adhering

to WIM signals. Currently these transgressors are supposed to be chased down and

directed back to the weighbridge, creating a challenge when trying to get heavy vehicles to

turn on the freeway. Also the traffic officer on duty in the weighbridge would typically be

occupied with enforcement of the heavy vehicles in the weighbridge and not be available to

chase after those heavy vehicles that do not adhere to the WIM signals.

Currently there is no method to record the number of these heavy vehicles that are

disobeying the WIM signals and the extent of these transgressors cannot be ascertained.



6. EVALUATION OF KEY INDICATORS

Speed and road accidents are deemed useful indicators to assess road safety conditions and are

used to measure whether there have been any significant changes since the introduction of the

enforcement i.e. both smart and visible aspects of Safely Home. Positive changes within these

indicators could be correlated with positive changes in driver behaviour, which is the overarching

aim of traffic enforcement.

Although traffic volume is not a direct indicator of road safety, it has been included in this section

since it provides a useful context for the possible changes noted in speed and accident indicators

i.e. higher number of vehicles exceeding the speed limit or higher road accidents could be as a

result higher traffic volumes.

6.1 Traffic Volumes

The traffic statistics were sourced from Syntell, CTO traffic stations. Table 6-1 shows the lists of

the CTO stations within the study area, while Table 6-2 shows the non-ASOD locations utilised as

control sites outside the study area. Not all CTO sites were usable, either due to lack of

information, or it being too close to town boundaries where travel speeds were already reduced.

Table 6-1: List of CTO Stations in Study Area

No. Site Description Type Route KM Long. Lat. Speed Limit Owner

480 Between Beaufort West and Nelspoort

Permanent Piezo N1/8 4.0 22.59889 -32.3267 120 SANRAL

5070 S-bound Screener Station at B West Weigh Bridge

Permanent WIM N1/8 3.6 22.59453 -32.3286 60 PGWC

5071 N-bound Screener Station at BWest Weigh Bridge

Permanent WIM N1/8 3.0 22.58869 -32.3308 60 PGWC

5026 R381 between Loxton & Beaufort West Permanent R 381 0.5 22.58470 -32.3292 100 PGWC

1229 North of Prince Albert rd Town Permanent N1/5 0.2 21.68464 -32.9849 80 SANRAL

5016 Between Beaufort West and Aberdeen Permanent R 61 51.6 23.03987 -32.5640 120 PGWC

5055 Between Beaufort West & Aberdeen (at EC Border) Permanent R 61 74.0 23.29622 -32.5779 120 PGWC

Source: Syntell, 2014

The data categories include:

Total traffic volumes by:

lane

direction

heavy and light vehicle type

Average speed

o Lane

o direction

o by heavy and light vehicle types

o 85th percentile speed



Traffic volumes were obtained and analysed for the permanent station CTO 5016, which is located

on the R61, midway on the Phase 1 ASOD section. CTO counts were also sourced for three

additional non-ASOD control sites, elsewhere within the Province, to compare traffic volumes and

speeds at those locations not directly affected by the ASOD implementation.

Only a few of the traffic volume graphs prepared have been included in this section. Additional

graphs are shown in Annexure A.

Table 6-2: List of CTO Stations used as Non-ASOD Control Sites

No. Site Description Type Route KM Long. Lat.

Speed Limit Owner

306 Touwsrivier North Permanent N1/4 9.4 20.105749 -33.28607 120 SANRAL

5050

Between Langebaan and Velddrif Permanent R27 109.8 18.111111 -33.03555 120 PGWC

715

Between Swellendam and Heidelberg Permanent N2/5 11.2 20.560583 -34.04100 120 SANRAL

Source: Syntell, 2014

There has been an overall growth in traffic volumes throughout the province since 2007. Figure

6-1 shows the AADT for the three control sites including the N1 at Touwsrivier, N2 between

Swellendam and Heidelberg and R27 between Langebaan and Velddrif.

Figure 6-1: Average Daily Traffic per month at non-ASOD Controlled Sites



This trend of increasing traffic volumes is also reflected in the study area. Figure 6-2 shows the

ADT traffic volumes for the CTO station located on the R61, which coincides with the Phase 1

ASOD section. The graph reflects traffic volume data from 2007 to 2013. Although there appears

to be a slightly slower growth rate for some years, which is probably due to the economic crisis,

there was an overall increase in traffic volumes of approximately 2% p.a. From the graph, it also

seems that the growth rate is starting to increase again after 2012. This growth in traffic volumes

can be noted for both weekdays and weekends (see Appendix A). December and January show

significantly higher traffic volumes due to peak seasonal holiday traffic over these months.

There is no reason why the traffic volumes should be different before or after the implementation of

ASOD in 2011 since there are not really any reasonable alternative routes to R61 for vehicles

trying to avoid the ASOD sections.

Figure 6-2: Average Daily Traffic per month on ASOD Controlled R61

Figure 6-3 displays the light and heavy vehicle volumes on the R61. There is a 60:40 split

between the numbers of light and heavy vehicles. The numbers of heavy vehicles are also

growing on this Phase 1 section of ASOD controlled road.



Figure 6-3 Monthly Traffic Volumes for R61 by Heavy and Light Vehicle Types

6.1.1 Summary Findings of Traffic Volumes

Traffic volumes along the sections included in the ASOD programme are not affected by

the ASOD implementation

The weekend, weekday and distinctive seasonal traffic volume trends remain unaffected by

ASOD.

The 80:20 traffic split between light and heavy vehicles travelling along the R61 has

remained unchanged.

6.2 Speed

High speeds are often associated with more accidents, and specifically with more fatal crashes.

This section evaluates the changes in speeds before and after the implementation of ASOD.

Changes in vehicle speeds were evaluated using average speeds, 85th percentile speeds and the

percentage of vehicles exceeding the speed limit. The changes in speeds were further evaluated

by comparing the speeds along the ASOD sections with speeds at non-ASOD sections. The 85th

percentile and average speed comparison between the R61 ASOD section and three non-ASOD

sections are shown in the following graphs. Additional speed analysis graphs are also included in

Appendix A.

Overall speeds tend to be higher on the R61 than all the other control sites. One can also note a

dramatic and significant decline in average speeds on the R61 pre- and post-ASOD with standard

deviation approximately half of what it was pre-ASOD, which means that speeds have not only

decreased, but there is also less variation in the range of speed travelled. This is attributed to the

fact that with the automated enforcement of ASOD, more people are travelling at the same speed

over a longer distance and there is less need for faster vehicles to pass slower ones. Passing



traffic would in contrast be characterised by higher ranges of speed with the acceleration and

deceleration required when passing.

Slower and more constant speed with less passing manoeuvres all contribute towards a safer road

environment since there are fewer opportunities for vehicle conflicts. Accidents that do occur at

slower speeds will logically have fewer fatalities and serious injuries than accidents taking place at

higher speeds.

When comparing 85th percentile speed for the non-ASOD control sites on the N1 at Touwsrivier

and R27 at Langebaan, speed data interestingly also shows a steady decline since 2007.

However, it is noted that this speed decrease is much smoother with a less distinct stepped decline

in speeds experienced post-ASOD on the R61.

Figure 6-4: 85th Percentile Speeds at non-ASOD controlled Roads.



Figure 6-5: 85th Percentile Speeds on ASOD controlled R61.

Figure 6-6: Average Speed on non-ASOD controlled Roads.



Figure 6-7: Average Speed on ASOD controlled R61.

6.2.1 Summary Findings on Speed

The ASOD cameras implemented on the R61 made a drastic impact in reducing the 85th

percentile speeds along this road.

The non-ASOD control sites on the N1 at Touwsrivier, R27 at Langebaan and N2 at

Swellendam, also show a reduction in 85th percentile speeds, however these speeds have

been in a steady decline since 2007.

A similar trend is seen when assessing the impact of the ASOD cameras on average

speeds.

However the ASOD impact to average speeds is not as drastic as the 85th percentile

speeds. This means that the ASOD cameras are reasonably effective in changing the

behaviour of those vehicles travelling in excess of the speed limit, while those drivers who

tend to drive slower, continue to do so.

The standard deviation in speeds post-ASOD on the R61 is approximately half of what it

was pre-ASOD which means that not only have vehicle speeds decreased, but there is also

less variation in the range of speeds travelled. This is attributed to the fact that vehicles are

travelling at the same speed over a longer distance and there is less need for faster

vehicles to pass slower ones.

Before the implementation of ASOD on the R61, vehicles were travelling at slightly higher

speeds on weekends than on weekdays, with both increasing steadily from 2007 to 2011.

It is evident that drivers have acknowledged the introduction of ASOD, as weekend and

weekday speeds are now at similar levels.

It can be concluded that the ASOD has had a significant and positive effect on reducing the

number of vehicles travelling in excess of the speed limit.



6.3 Road Accidents

Changes in the number and type of road crash accidents are considered one of the most

significant statistics for this Safely Home enforcement evaluation. The WCG’s Strategic Objective

Three (PSO3), and therefore also the Safely Home Programme’s, target is to achieve a:

“50% reduction in road crash fatalities by the end of 2014”

6.3.1 Sources of Road Accident Data

Three sources of accident statistics are available.

Provincial Accident Statistics (iPas) is considered to be the official and ratified source

for accident data in the province. This database is for all accidents recorded and fed

through the South African Police Service (SAPS). All data is not consistently captured,

but the type of data categories recorded include:

Accident Number Authority

Road Name SAPS Case No.

Road Description Vehicle Reference No.

Node Description Vehicle Type

Km Value Number Plate

Police Station Type of Manoeuvre

Date of Accident Travel Direction

Day of the Week Person Type (driver, etc.)

Time Type of Injuries

Obstructions Population Group

Road Type Gender

Sign Visibility Age

Type of Accident Liquor Suspected

Cause of Accident Liquor Tested

The local traffic department also records accident data daily which is for accidents for

which traffic is on-scene. This list is also kept up-to-date with all other accidents by

telephonically liaising with the local SAPS office. This database of accidents is then

also sent on to SANRAL for their record of accidents on national roads.

Route, section, kilometre Vehicle Type

Date and time of Accident Injury severity

Cause of Accident

Forensic pathology via the Medical Research Council (MRC) records fatalities caused

by transport.

Route, section, kilometre Vehicle Type



Date and time of Accident No. of Victims

Cause of Accident Race, age, gender

Table 6-3: Accident Data Source Comparison

The change in the number of accidents from road crashes is an important indicator to measure the

effectiveness of Safely Home enforcement efforts. As discussed previously in Chapter 4: Data and

Statistics, there are various sources of accident data available i.e. iPas, SANRAL routine

maintenance, the Provincial Traffic Department in Beaufort West as well as the forensic pathology

unit in EMS which records only fatal crashes and fatalities. Even though there has been focus

since 2010 to improve the accuracy of accident data, there are still discrepancies and

inconsistencies between the various data sources, as can be seen in Figure 6-8. A number of

comparisons between the data sources were carried out, the results of which can be found in the

Appendices.

It was noted that out of all the available data sources, the IPAS data had the longest time frame,

least amount of missing data, fewest discrepancies and was the most complete and easy to work

with data source.

Figure 6-8: Comparison of Data Sources: Fatalities for Decembers and Januaries for the

N1- 6/7/8



6.3.2 Analysis of Road Accidents

The analysis of road accidents was carried out using mainly iPas data and supplemented with the

other three sources. The number of road crashes, fatal crashes and fatalities, as well as their

respective rates, were analysed over time in order to identify any trends. It must be noted that each

road accident is an independent and random event in time and so, theoretically, straight lines

should not be joined between the data points on the graph. However, in order to easily identify

trends, lines were indeed added between the data points in the figures that follow.

Figure 6-9 show the number of annual road accident crashes for five stretches of road, three of

which are ASOD-controlled and two of which are not. It is interesting to note that all the roads have

shown a decrease in the total number of road accident crashes within the last three years, and so it

is possible that the decrease in road crash accidents is independent of ASOD. This fact is further

backed up by Figure 6-10, where the crash rate on the R61 can be seen to be decreasing from

2009 i.e. before the implementation of ASOD.

Figure 6-9: Total Annual Road Accident Crashes along Three ASOD-Controlled Roads and

Two Control Sites – R27 and N2/5



Figure 6-10: Three-Year Moving Average Road Accident Crash Rate along ASOD-Controlled

Roads

There may be discrepancies within the method of data capturing when recording what is classified

as a road accident crash. It is much easier to classify a fatal crash, and so the analysis of fatal

crashes can provide a better indication of road safety analysis.

Figure 6-11: Annual Fatal Crashes along Three ASOD-Controlled Roads and Two Control

Sites – R27 and N2/5

It is evident that the number of fatal crashes along a road segment is a random event and so it may

be difficult to identify trends. However, it can be seen, in the last three years, that all the road

segments show a decrease in the number of annual fatal crashes.



Figure 6-12, Figure 6-13 and Figure 6-14 indicate that there has been a dramatic decline in the

number of fatal and serious injuries, as well as the rate of fatal crashes along the R61 since the

implementation of ASOD.

Figure 6-12: 3-Year Moving Average Fatal Crash Rate along ASOD-Controlled Roads

Figure 6-13: Number of Fatalities and Fatal Crashes along the R61



Figure 6-14: Total Annual Fatalities and Serious Injuries along R61

6.3.3 Summary Findings of Road Accidents

The four available data sources had numerous inconsistencies and discrepancies between

them, possibly due to the method of data capture, storage and management. It was thus

decided to use the most complete and workable data source when evaluating the road

accident statistics.

Within the last three years, along all five road segments analysed, there seems to be a

reduction in both the total number of annual road accident crashes as well as the number of

fatal crashes. This may indicate a positive shift in the provincial mind-set about road safety.

However, when focusing on the fatal crashes along the ASOD-controlled R61, a dramatic

decline in road crash rates, fatal crash rates and fatality rates is observed. This trend is

replicated when looking at the fatalities and serious injuries in Figure 6-14, where the

ASOD seems to be responsible for reducing the number of fatalities and serious injuries.

Figure 6-14 combines the annual fatalities and serious injuries on all the ASOD-controlled

roads. By looking at the downward trend on the graph, it can be said that these roads have

already been becoming safer since 2007. The introduction of ASOD in 2011, 2012 and

2013 to these roads further facilitated this downward trend.

In summary it can be said that there has been positive change on the R61 with regards to

the number of fatal crashes, fatalities and serious injuries. This is likely due to the

decrease in the number of vehicles exceeding the speed limit as a result of ASOD.

There is not enough post-ASOD data available for the analysis of the road accidents within

the road sections for Phase 1 and Phase 2 of ASOD. At least three year post-

implementation data is needed to draw conclusions.



7. EVALUATION AND GENERAL TRENDS

7.1 Overall Reduction in Speed

There is an overall decline in speeds throughout the Western Cape Province as illustrated in the

85th percentile speed graph for control sites located on the N1/4, R27 and N2/5.

There is a distinct decline in speed, specifically for road segments where ASOD has been applied,

which can be noted from the graph illustrating the 85th percentile speed on the R61.

Speeds are more constant once ASOD has been introduced, which is noted particularly for the

changes in standard deviation, it being approximately one-half of what it was prior to ASOD.



7.2 Overall Reduction the Number of Accidents

There is an overall decline in the number of road accidents and in particular, the number of fatal

crashes throughout the Western Cape Province, as illustrated in the annual fatal crashes graph for

control sites located on the N1/4, R27 and N2/5.

There is a distinct decline in fatal crashes specifically for the R61 where ASOD has been

implemented (graph below shows the three year moving average of fatal crash rates on the R61).

However, decline occurs prior to Phase 1 ASOD, which could indicate that the decline occurred as

a result of other road safety awareness campaigns and enforcement activities and not due to

ASOD alone.



7.3 Resource Levels have been Relatively Constant

The total number of written notices i.e. number of S56s issued by Beaufort West Provincial Traffic

remained relatively constant since ASOD was implemented.

Although written notices for the Beaufort West Traffic Centre have remained relatively constant,

there has been a specific increase in the number of written notices (S56s) issued from ASOD as

noted from the graph below.



This increase in the number of ASOD written notices correlates to the new ASOD phases that were

implemented.

There appears to be an overall decline in the speed written notices as compared to other written

notices issued by ASOD.



7.4 Weighbridge is becoming more effective

The weighbridge with the WIM screening is weighing more vehicles per hour as shown in the

weigh rate graph below.

As illustrated in the graph below, the number of heavy vehicles charged with overloading per

month has been steadily declining over time.



7.5 Resources affect ASOD enforcement

There are significantly more speed infringements flagged with each phase of ASOD, but the

number of speed related written notices (S56s) have remained relatively constant. Additional

resources could enable more effective visible enforcement of ASOD technology.

7.6 Possible reversal in positive shift in driver behaviour

Although speed and accident data shows an overall decline over the past few years, it is possible

that this positive shift in driver behaviour could be reversed if not supported by a strong visible

policing presence and an effective legal system.

The graphs below illustrate the percentage of vehicles exceeding the speed limit on the R61 where

ASOD has been implemented since October 2011. Although overall the graph shows an initial

decline in the number of vehicles exceeding the speed limit, closer investigation shows that there is

a steady increase in the number of minibus taxis exceeding the speed limit.

There is also a decline in the payment rate of S341, which supports the anecdotal view that S341s

do not work as an enforcement tool. The gradual increase in vehicles exceeding the speed limit

might be more notably for minibus taxis since they use the routes on a regular basis and would be

the first to reflect driver behaviour changes if they no longer perceived ASOD effectiveness.



8. RECOMMENDATIONS

There is evidence based on the results of this study that the visible and smart enforcement

activities in the Beaufort West study area as part of Safely Home are impacting on user and driver

behaviour. Not only has there been a decrease in vehicle speeds on the road segments along

which ASOD was implemented, but there has also been a decrease in the number of accidents,

specifically fatal accidents. This is particularly the case along the R61 where ASOD has been

implemented for the longest period of time. However, reductions in speeds and accidents are not

only experienced along the study sections, but are evident on roadways across the province. This

could be due to a general increase in safety awareness, which ultimately affects driver behaviour.

It is clear from the evaluation that there are possible actions that could improve the effectiveness of

the technology related enforcement activities. The following are recommended for each of the

stated conclusions:

Visible Enforcement supporting enforcement technologies and specifically ASOD

Any implementation of smart enforcement technology such as ASOD should continuously

be supported by visible enforcement activities.

Preferably a dedicated team should be assigned to the enforcement of ASOD. This

includes both staff manning the back office/control room and traffic officers in the field.

Continuous training for control room operators and traffic officers must be included in the

planning.

It is unlikely that the success of ASOD is sustainable without continuous visible

enforcement. Moreover it could be a challenge to reverse public opinion once a perception

is established that ASOD is not effectively enforced. Therefore, it is advisable that the

recommended visible enforcement actions are pursued as soon as possible.

Human resources requirements related to ASOD in the Beaufort West Area

The ASOD implementation in the Beaufort West study area requires higher and more

consistent levels of visible enforcement.

The optimal resource requirements (traffic officers and control room operators) for the

Beaufort West Area to optimally support the ASOD must be investigated.

Additional staffing is required to support the 24-hour operations of both the weighbridge and

ASOD.

It is essential that the human resources requirements be taken into consideration as a

matter of course when ASOD is implemented anywhere in the province. ASOD should not

be implemented unless suitable levels of resourcing are possible.

Enforcement Strategies within the larger context of the Safely Home Project

It is evident that there are broader province-wide trends in average speeds, possibly also

accident trends, which are not specifically related to enforcement technologies. Therefore, it

is recommended that enforcement activities not be evaluated in isolation without

considering the larger context.



Public awareness and driver communication plays a vital role which could be achieved with:

Variable Message Signs advertising accidents, fatalities and speeding statistics for

an area and a period.

Advertising campaigns to communicate ASOD as an enforcement tool including all

positive impacts.

Improved visibility of ASOD cameras by adding more signage and/or lighting.

Possible use of “dummy cameras” along sections where there is not ASOD.

Targeted or tailored enforcement actions and education of specific driver profiles:

e.g. race, age, sex.

Evaluation of data and actions must be automatic and continuous:

Data collection, reporting and evaluation of data should be conducted continuously,

which could be done by automated reporting and compiling.

Localised and internal evaluation of the performance statistics should be tracked

automatically and continually rather than focusing only on regional/provincial targets

or peak December/January periods.

Data and Reporting Needs

Improve the capturing, management and storage of data by making the process more

streamlined and by automating it. This is to be done in all areas including the Beaufort

West Provincial Traffic Centre, the Weighbridge and the ASOD Control Room.

Data should be entered into relational databases, set up such that reports can be provided

on demand. This will require training of personnel.

Improve the quality and accuracy of eNatis data.

Develop a method for prioritisation for ASOD infringements flagged. The infringements

flagged by the ASOD system should be disaggregated by severity so that staff can prioritize

which infringements should be focussed on.

The nature of the confidentiality agreements with eNatis is limiting the type of data that can

be kept and does not allow for an accurate review of speed changes on ASOD segments.

Any changes to these agreements will assist in improving reviews.

Standard protocols for ASOD

Prioritisation of enforcement activities is required to resolve which ASOD flagged

infringements should be actioned first and which are non-negotiable arrests.

Protocols are required to standardise ASOD enforcement across the province.

Data capturing and reporting must be standardised across the province to assist with

continuous analysis and evaluation.



Additional Improvements to ASOD Equipment

Include permanent vehicle loop counters at both ASOD cameras to cross check accuracy

of the equipment.

Include camera that captures photo image of the driver of the vehicle. Visibility of both

driver and number plates should be possible after dark as well.

Improvement to Supporting Systems and Processes

Review how the legal/court system can be more effective in processing and addressing

S341s.

Update eNatis agreements and data to enable more effective ASOD functioning and

reporting.



9. REFERENCES

South African Government, 1999, National Road Traffic Act, No 93 of 1996

Western Cape Government, 2010, Provincial Strategic Objective 3: Increasing Access to Safe and

Efficient Transport - Programme Definition

Western Cape Government, July 2010, Cabinet Approval Minute No 194/2010, Provincial Strategic

Objective 3: Moving the Western Cape Forward – Increasing Access to Safe and Efficient

Transport: Approval of the Strategic Directive, its Implementation and Management

University of Cape Town, December 2010, Phase II Baseline Study