Paratransit operators' participation in public transport reform in Cape Town: a qualitative investigation of their business aspirations and attitudes to reform

Abstract

The South African government launched two public transport reform programmes in the last two decades to address generally declining services as well as specific problems with paratransit, the dominant service provider. One programme aims to incorporate paratransit in new bus-based networks in cities; the other is a national paratransit fleet renewal scheme. Cape Town is arguably most advanced with the former, and the first phase of its bus network is nearing completion. Paratransit operators have shown resistance to both programmes, yet there have been few efforts to gain direct insight into their views on their businesses or their attitudes to reform. It is thus difficult to identify reasons behind their unenthusiastic response, or to understand if revisions to the programmes might cause more operators to opt in. This research employed a case study strategy to investigate paratransit operators' business aspirations and needs in Cape Town, and to identify commonalities between their attitudes and the aims of the reform programmes to inform potential amendments to these programmes. The details of incorporating paratransit operators in the new bus system in Cape Town were not systematically recorded, and it was thus first necessary to trace the engagement process between the municipality and these operators. Information was drawn from a variety of sources over a six-year period. Against this background, semi-structured qualitative interviews were conducted with 30 operators and eight drivers from different parts of the city to explore their aspirations and views on reform. Access was arranged through trusted intermediaries and the eight associations to which respondents belonged. The research revealed that operators were not necessarily passive players waiting for government-led change: some established large transport enterprises, whereas others built small-scale businesses. Propositions were subsequently drawn, amongst other things, on the prospects of and potential revisions to the reform programmes. The recapitalisation programme has had the broader reach of the two programmes. The national government should consider extending it and reviewing its financial support mechanism to make it more accessible to small operators. Larger businesses might be well positioned for incorporation in bus operating companies, but concerted efforts must be made to build trust with these operators and to familiarise them with the transition process. By documenting operator incorporation in the bus system, and providing first-hand insight into paratransit aspirations and attitudes to reform, the research ultimately contributes a basis from which to understand operators' existing responses to reform and the potential for their greater participation in it.