INTRODUCTION

2. A POLICY ANALYSIS STUDYAS INPUT TOTHE EFFECTIVE IMPLEMENTATIONOFFACETS OF THE NATIONAL DEVELOPMENT PLANDr Malcolm Mitchell

3. INTRODUCTION Effective Transport – an essential prerequisite for development Experience shows that transport policy does not always have the desired impact and achievement of goals South African government agencies have a demonstrated inability to implement policy – with a few exceptions NDP is the cornerstone of South Africa’s economic and social development There is a general policy incongruence between what was intended and what occurred WHY?

4. POLICY IMPLEMENTATION A multi-faceted endeavour Successful implementation is final acid-test for policy Policies need monitoring and adapting (if necessary) during implementation phase Policy monitoring and evaluation unit set up in Office of the Presidency How successful has previous transport policy implementation been in South Africa?

5. RESEARCH STUDY INTO 20 YEARS OF TRANSPORT POLICY IN SOUTH AFRICA (1986-2006) Analysis of success of transport policy in respect of • Primary roads • Commuter bus transport Also: • Comparison of South African transport policy making process with accepted norms and concepts and world practice • Determination of contextual forces shaping transport policy in South Africa

6. RESEARCH APPROACH Ontological approach • Objectives not of a purely deterministic nature • Need interpretation in terms of contextual influences and meanings in specific settings attached to them • Can be explained but not rationally predicted Research paradigm • Constructivism embracing a pragmatic approach Methodology Varied for the different facets of the study • Qualitative narrative approach • Qualitative case study approach • Mixed methods approach – exploratory design procedure with follow up explanations model

7. STUDY FINDINGS – POLICY CONTEXT Most important exogenous factors • Many political and ideological changes during study period, and before • A period of much constitutional and institutional reform • Changing economic and regulatory philosophies • Skewed spatial population distribution • Resource and capacity constraints • Dichotomy of different social and economic needs • Dispersed institutional responsibilities and authorities

8. STUDY FINDINGS IN RESPECT OF THE POLICY-MAKING PROCESS Policy-making process was in line with recognised knowledge and theoretical approaches Some deficiencies were: • Inadequate attention to identifying real problems and issues, rather waiting for a crisis situation to occur • Insufficient “facts based” analyses and consideration of unintended consequences • Broader South African society not involved in the policy-making process; particularly during the 1996 – 2006 period • Funding implications not adequately investigated before the policy was adopted

9. SOME SPECIFIC FINDINGS FOR BUS COMMUTER TRANSPORT • The goals of the RDP were not adequately achieved • Did not adequately support the use of public transport • Did not set up effective institutional structures for managing public transport • Integration of public transport with land use development was a dismal failure • The objective to secure adequate and substantial funding was only partially achieved • The objective to introduce tendered contracts for bus services was only a partial success with no real progress in the endeavour

10. SOME SPECIFIC FINDINGS FOR PRIMARY ROADS (UP TO 2006) • A sound and reliable primary road network was provided during the period 1980 to 2006 • An effective administrative structure was created • A sustainable funding base was developed – with the assistance of loan financing (toll roads) • Private sector involvement in road provision was successful • The primary road network was provided in an environmentally sensitive fashion

11. POLICY IMPLEMENTATION The possible ”Achilles Heel” of the NDP With few exceptions – poor implementation of infrastructure in South Africa Attested to by many persons – from State President downwards This has the potential to derail the NDP How do we deal with this problem?

12. A SUCCESS STORY – SOUTH EAST ASIA TIGER CUBS • Committed, strong, competent and honest leadership • Consensus on a clear national vision • Availability and pragmatic use of resources – including people • Effective management • Strong work ethic • Amenable democratic and economic environment • Substantial measure of good luck Do we have the above in South Africa?

13. SOME REASONS FOR FAILURE OF POLICY IMPLEMENTATION • Too much detail in policy proposals and planning • Excessive policy demands • Ineffective institutions • Policy is a product of compromise, or ideology • Complexity of issues being addressed • Goals not quantifiable • Imperfect knowledge of the problem • Inaccurate determination of the “public interest”

14. JOHN STEWART MILL’S OBVERSATIONS ON POLICY IMPLEMENTATION “The success of policy and planning implementation is to a large extent dependant on the manner and effectiveness in which the bureaucracy operates” “When everything is done through the bureaucracy nothing to which the bureaucracy is adverse can be done at all” Very true words!!

15. THE 5C PROTOCOL FOR POLICY IMPLEMENTATION 5 interlinked variables influence the success of implementation • Content- must relate to the issue and how it aims to solve the perceived problem • Context – policy cannot be context-free • Commitment – need enthusiastic participants • Capacity – the key variable, it also includes leadership capacity • Clients/coalitions support – must work with all interest groups

16. BROAD FINDING OF STUDY Primary road policy implemented successfully, but commuter bus policy implementation did not meet the objectives sought WHY THE DIFFERENCE AND IS THERE A LESSON HERE FOR THE NDP?

17. COMMUTER BUS TRANSPORT • Too optimistic and unreliable proposals for public transport • Lack of leadership and professional capacity in public transport • Administrative inadequacies and inter-institutional jealousies, including undue political involvement • Inadequate monitoring to inform necessary adjustments • Inadequate cognisance given to complexity of function • No continuity in respect of institutional memory

18. PRIMARY ROADS – UP TO 2006 • Sound and dedicated leadership • Adequate professional capacity of world standard • Institutional memory continually present • Real issues addressed • Effective institutional administrative structure • Commitment by staff • Interaction with clients (despite some recent assertions to the contrary)

19. RELEVANCE OF STUDY TO NDP INFRASTRUCTURE IMPLEMENTATION • Understanding of the complexity of implementation need to be borne in mind – it is not a mere mechanical process • Sound and effective professional implementing agency is required • Consensus and commitment from all sectors of society on a national vision is necessary • Encourage strong work ethic • Use resources pragmatically without political interference • Understand the complexities of an integrated approach • Provide/develop strong competent and honest leadership

20. CONCLUSION • There are important lessons for the NDP transport infrastructure implementation to be learned from the study • Need to bear these in mind if the NDP transport facet is to play its full role