Railway Safety Regulator’s Draft Guidelines for the Acceptance of New or Refurbished Rolling Stock onto South Africa’s Railway Network

South Africa’s rail sector is entering a decisive phase of reform, marked by ambitious freight and passenger delivery targets, structural changes, open access, and a renewed regulatory framework. At the centre of this transition is a critical but often underemphasised component: the safe introduction and integration of rolling stock into an increasingly complex and high-volume network.

At a recent stakeholder engagement session, the Railway Safety Regulator (RSR) introduced and highlighted key components of the draft guidelines being developed for the acceptance of new and refurbished rolling stock, as well as the introduction of new operators onto the national rail network.

These guidelines, developed over the past three months by a dedicated industry work group, represent the first phase of a broader regulatory framework for rolling stock and new technologies, aimed at supporting safe and scalable rail operations.

Scaling the Network, Scaling the Risk

South Africa’s rail recovery programme has set out aggressive targets. Freight volumes are expected to increase from approximately 160 million tonnes per annum to 250 million tonnes by 2030. This shift alone requires a substantial operational uplift, with freight train movements projected to rise by at least 38% in network activity.

On the passenger side, the scale of ambition is even more pronounced. Passenger volumes are expected to surge from around 70 million annual passenger moves to 600 million by 2030. This exponential growth introduces operational complexity and significantly heightens safety exposure.

More trains, more passengers, more operators and more rolling stock inevitably translate into more potential opportunities for safety hazards and failures.

Open Access and a Multi-Operator Environment

Compounding this complexity is the ongoing implementation of open access under South Africa’s rail reform agenda. The allocation of additional network slots to 11 new operators by Transnet’s Rail Infrastructure Manager signals a transition towards a more competitive and decentralised operating environment.

While this creates opportunities for a significant rise in freight and passenger movement, investment and innovation, it also introduces new interfaces and safety challenges. Multiple operators sharing the same infrastructure require clear, standardised safety processes to ensure that all rolling stock, whether existing, newly procured or refurbished, meets consistent safety and interoperability requirements.

The draft guidelines developed by the RSR are intended to address this issue precisely by establishing a structured process for approval applications for new technology and equipment, particularly where rolling stock changes are involved.

A Strengthened Regulatory Mandate

The release of the draft guidelines follows the promulgation of the new Railway Safety Act, Act No. 30 of 2024, which came into effect on 1 August 2024. The updated legislation expands the authority and oversight capabilities of the Railway Safety Regulator, with a clear mandate to enforce higher safety standards across the industry.

This legislative shift underpins the regulator’s approach to the current reform process, ensuring that expansion does not come at the expense of safety outcomes, particularly in a network that has historically faced operational and infrastructure challenges.

A Phased Approach to Industry Integration

The draft guidelines represent Phase One of a broader regulatory rollout. This initial phase is primarily targeted at existing operators who already hold operating permits, as well as network operators who are applying for new permits and intend to introduce new or refurbished rolling stock.

The second phase, still under development, will extend the framework to include guidelines for new or refurbished rolling stock from entities that are not operators or do not intend to be operators, such as original equipment manufacturers, suppliers and leasing companies. This is a critical addition, recognising that safety assurance must extend beyond operators to the entire value chain.

Many entities entering the market may not operate trains directly but will play a key role in supplying or maintaining rolling stock. Establishing clear requirements for these participants is essential to ensuring that only compliant, safe equipment is introduced into the network.

The current consultation phase is designed to refine this work. Stakeholders are being actively encouraged to provide input, identify potential gaps and highlight unintended consequences. This collaborative approach reflects an understanding that effective regulation in a transitioning market must be both robust and adaptable.

Following this initial engagement, the draft will be revised and circulated more broadly for final industry comment before being formalised and published. The regulator has indicated that this process is expected to take approximately three months.

Interoperability and Regional Alignment

The draft rolling stock and operational guidelines, once finalised, are also intended to extend beyond South Africa, with a clear focus on interoperability and regional harmonisation across the Southern African Development Community (SADC).

Interoperability is already considered within the framework of the Railway Safety Act. In applying certification and approval processes, there is recognition that South Africa’s rail system does not operate in isolation but forms part of a broader regional network. As a result, alignment with SADC requirements is considered, with the objective of ensuring that rolling stock approved in South Africa can operate across neighbouring networks without introducing inconsistencies or safety risks.

The RSR has noted that the next phase of guideline development will involve closer collaboration with regional stakeholders, particularly through the Southern African Railways Association. SARA members, including its leadership, have been included in the current process through the SARA executive office, allowing them to follow the development of the guidelines and provide input before finalisation. This is intended to ensure that the framework being developed locally can inform, and be informed by, regional requirements.

“Once the South African guideline is finalised, RSR will initiate a structured process to engage with SADC rail operating partners and regulators, exchange lessons and work towards a more harmonised regional approach,” added Brian Monakali, CEO of the Railway Safety Regulator.

This reflects the practical reality that trains operating in the region move across national borders without interruption. A train travelling from South Africa into Zimbabwe, Mozambique or Botswana operates within a continuous rail system, regardless of jurisdiction. That underlines the need for consistent standards and aligned regulatory approaches. Differences in technical requirements or approval processes across countries would introduce inefficiencies and potential safety risks.

The planned next step is therefore to use the South African guideline as a foundation for broader regional engagement. This will involve working with SARA, regional operators and regulators, and other key stakeholders to align standards, processes and expectations across SADC. The intention is that the guideline will not remain a national instrument but will contribute to shaping how rolling stock approval and operational safety are managed across the region.

Industry participation will remain critical to ensuring that the framework reflects operational realities and supports safe, efficient cross-border rail operations.