This Draft Policy seeks to cultivate a globally competitive, environmentally sustainable, safe, and inclusive aviation landscape crucial for the nation’s economic growth. It proposes significant regulatory reforms, alongside mandating comprehensive strategic plans, to achieve its far-reaching objectives.

Background

Since the early 1990s, South Africa’s civil aviation policy has developed under the guidance of the DOT. Building on the vision set by the 1996 National Transport Policy, the 2017 National Civil Aviation Policy sought to respond to a rapidly changing economic and aero-political landscape by promoting tourism, investment, trade and job creation.

The growing influence of “open skies”, rise of low-cost carriers, rapid technological advancement, and global disruption caused by COVID-19 have made it necessary to once again review and adjust South Africa’s civil aviation policy.

The Draft Policy

The Draft Policy comes at a critical juncture for the sector, which remains a significant contributor to South Africa’s economy. Pre-COVID-19, civil aviation operations supported approximately 490,000 jobs and contributed around R154 billion to the country’s GDP. While the pandemic dealt a severe blow, the sector is in recovery, with projections for significant growth in passenger and cargo markets by 2035. The Draft Policy builds on this momentum by focusing on greater safety, economic growth, and global competitiveness while addressing critical domestic challenges and aligning with international trends.

To achieve these ambitious goals, the Draft Policy proposes wide-ranging regulatory reforms to give effect to — and build on — existing legislation in the areas of safety and security, economic regulation, and transformation.

It further mandates the development of additional strategic frameworks where more detailed planning is required, including the National Airports Development Plan, the National Civil Aviation Transformation Strategy, and a dedicated Airfreight Strategy.

Key pillars and impact on stakeholders

Safety and security

The South African Civil Aviation Authority (SACAA) is responsible for, amongst other matters, the oversight and regulation of aviation safety and security.

Improved safety and security measures are crucial for maintaining international confidence and enhancing South Africa’s already strong safety record. With a safety oversight system rated at 91.11% in 2024. South Africa’s performance in ICAO’s Universal Safety Oversight Audit Programme places the country in the number 1 spot in Africa and among the top 20 countries globally. The SACAA also participated in a peer assessment by the United States’ Federal Aviation Administration (US-FAA) that resulted in the State retaining the Category 1 status in the US FAA’s International Aviation Safety Assessment.

The Aircraft Accident and Incident Investigation Division (AIID) is mandated to investigate all accidents and serious incidents.

The Draft Policy however, acknowledges that the current AIID framework lacks institutional independence and in response, the DOT must establish an independent accident investigation authority. The push for an independent investigation authority is in line with ICAO’s recommendations and global practice.

Provision of air navigation services

Recognising that airspace management demands both flexibility and rigour, the Air Traffic and Navigation Services (ATNS) retains its exclusive mandate, however, the Draft Policy introduces the “Air Traffic Management Operational Concept” to promote collaborative decision-making and requires regular reviews of the National Airspace Master Plan to guide strategic and tactical decisions.

Airport infrastructure and aerotropolis development

Acknowledging that airport infrastructure and aerotropolis precincts present significant growth opportunities but face challenges due to fragmented planning and competing interests, the Draft Policy mandates that the DOT formulate a “National Airports Development Plan”, to direct current and future developments and promote the integration of airports into wider transport networks. The Draft Policy promotes aerotropoli (urban sub-regions centered around airports) as a means to drive economic growth, job creation, and innovation. This integrated approach will require close collaboration between national, provincial, and local governments, as well as private developers. For investors and businesses, this presents opportunities in logistics, e-commerce, hospitality, and related industries.

The emphasis on aerotropoli development aligns with global best practices seen in Amsterdam (Schiphol), Seoul (Incheon), and Dubai, where airports serve as integrated economic hubs. This forward-thinking approach has the potential to unlock significant non-aeronautical revenue and create diverse economic opportunities, mirroring successful models worldwide.

Environmental protection

To honour South Africa’s environmental commitments, the Draft Policy provides that the DOT will review and strengthen the “State Action Plan” and aims to achieve a targeted 5% reduction in international aviation CO₂ emissions by 2030.

Economic regulation

Economic regulation in the aviation sector seeks to maintain fair competition, reasonable tariffs, and efficient service delivery, encompassing oversight of pricing, competition, and economic sustainability. The framework also addresses the setting of charges and tariffs for airport services, ensuring transparency and equity.

Acknowledging the challenges posed by the legacy “single-till” system, the Draft Policy requires a comprehensive review of economic regulation principles. In consultation with the economic regulator and aviation industry stakeholders, the DOT will need to consider and determine the most appropriate regulatory till during tariff determination processes. This is particularly relevant for Airports Company South Africa (ACSA) and ATNS, as improved economic regulation, could positively influence airport charges and air navigation fees for airlines, ultimately lowering costs for passengers.

It is worth noting that the Economic Regulation of Transport Act, 2024 (ERT Act) seeks to bring about significant and positive changes for the transport sector by creating a co-ordinated and transparent regulatory framework across all modes of transport, including aviation. Although accented to last year, certain provision of the ERT Act, have not yet come into full force and effect.

Airfreight

To revitalise the transport and logistics sector, the DOT’s Strategic Plan 2025 – 2030 has set a target of handling
1.5 million tonnes of airfreight and transporting over 42 million passengers through South African airports. The Draft Policy provides that the DOT and National Logistics Crisis Committee will develop a dedicated Airfreight Strategy to address fragmented cargo corridors and high entry barriers, by improving competition, infrastructure connection between South Africa and other markets, benefiting exporters, importers and logistics companies.

International air transport

The 2017 National Civil Aviation Policy did not address co-terminalisation, resulting in ad-hoc approvals being granted to certain foreign airlines to ensure availability of long-haul international connectivity points with low traffic numbers. The Draft Policy seeks to address and clarify the approach to co-terminalisation and stopover rights.

Notably, the Draft Policy also suggests a reluctance to negotiate “open skies” agreements with non-African states and “horizontal agreements” with blocs like the European Union. Such a stance diverges from the more liberalised aviation markets prevalent in the United States and the European Union.

Quality of aviation services

The Draft Policy recognises the needs of passengers with disabilities or special needs, including those with reduced mobility, infants and unaccompanied minors. In line with the Constitution, which ensures equal protection and benefit of the law for all, the Draft Policy mandates that the DOT will establish a forum to address the issues of passengers with special needs.

Strategic and developmental role of state aviation assets

The State owns civil aviation assets (SAA, ACSA, ATNS, and Denel) serve as vital instruments for connectivity, aerospace capability and economic development. Yet, there is a lack of a coherent and co-ordinated approach in managing these state-owned assets. The Draft Policy calls for a whole-of-state governance model, spearheaded by the DOT, to harmonise strategy, manage resources and align each entity’s mandate with national development objectives.

Non-commercial aviation

The Draft Policy introduces differentiated air traffic service charges and streamlined certification for non‑commercial aviation services. The measures ultimately prescribed need to recognise the role of non-revenue-generating activities and the specific environment in which they operate.

Transformation

The participation of previously disadvantaged individuals in the aviation industry remains limited. The Draft Policy places significant focus on formulating a National Civil Aviation Transformation Strategy to address the imbalance by promoting skills development, fostering social inclusivity, and identifying new funding models for aviation training.

What’s next?

Following the official closure of the public comment period on 11 July 2025, the DOT will consider all public submissions made, and may propose amendments to the Draft Policy, to incorporate suggestions, address concerns, or provide points of clarification. Once finalised, the Draft Policy will be submitted to Cabinet for approval. The approved Comprehensive Civil Aviation Policy is expected to be gazetted as an official white paper before the end of the year. Thereafter, the DOT in consultation with civil aviation stakeholders, will review and evaluate the policy post implementation at five-year intervals to determine the overall impact on the industry and to whether the policy direction remains appropriate.

The Draft Policy further indicates that approval of the following sub-instruments can be expected in 2026:

• The National Airport Development Plan
• The National Civil Aviation Transformation Strategy
• The National Air Transport Strategy

While the Draft Policy sets a promising and much-needed course for reform, its true impact will depend on sustained political will, co-ordinated implementation and the availability of resources to translate policy into tangible outcomes.