Hybrid urban transport systems in developing countries: Portents and prospects

Some South African cities have initiated public transport transformation projects which, in most cases, ultimately envisage the in toto replacement of paratransit operations with formalised BRT systems. There are two likely outcomes: (1) complex negotiations with existing operators and budget constraints will result in the in toto transformation occurring over an extended period of time; or (2) in toto transformation will simply not occur. In either case, cities will depend, for decades, on a ‘hybrid’ public transport system that combines both formal and paratransit operators. This paper presents a case for policy recognition of hybrid systems, and explores how such systems might best be managed. The following categories of hybrid public transport systems are explored through case studies: (1) transformative processes in which paratransit operators are to form or assimilate into companies to operate new services, but this incorporation has proved difficult to complete and the operational and regulatory frameworks remain unchanged; and (2) transformative processes that, from the outset, anticipated a hybrid system and designed the outcome accordingly. A third category of hybrid transport systems, defined as transformative processes that have been amended following a realisation that in toto transformation is unattainable, is also introduced and discussed. The paper concludes by tentatively drawing lessons for appropriate public transport regulation, particularly with respect to Cape Town's transformation project. It is argued that a review of the current national regulatory framework is required to enable possible project modifications that acknowledge system hybridity. It is suggested that regulatory frameworks that accommodate the likely hybrid nature of public transport system outcomes have greater prospects of success than frameworks that do not. Furthermore, it is argued that contextually appropriate and successful public transport transformation projects do not necessarily require the in toto substitution of incumbent paratransit operators, and that they can be integrated with, and complement, formal services.