City of Ekurhuleni MMC for Developmental Planning and Real Estate, Nomadlozi Nkosi, launched a campaign to clamp down on illegal billboards in Ekurhuleni. The city will be placing stickers with the words "illegal advertiser" over them. (Photo: City of Ekurhuleni.) 
The outdoor advertising industry has gone rogue.
The South African National Roads Agency (Sanral), backed by the City of Ekurhuleni, admitted that not a single billboard on the R21 freeway — stretching from Johannesburg to OR Tambo International Airport — has been lawfully installed.
An investigation by Daily Maverick uncovered that billboard owners, emboldened by industry intimidation tactics and government inaction, are costing local and national authorities millions of rands in lost revenue. Worse yet, some are structurally unsound and could collapse, endangering motorists. They can also cause dangerous conditions by obstructing road signs.
Outdoor advertisers are required to pay upfront fees — up to R400,000 — for leases at high-visibility spots, as well as 20% of their monthly earnings from the billboards to the local and national entities, a regulation that’s largely ignored.
There is a deliberate pattern of non-compliance — companies exploit loopholes to install boards on private property, knowing that enforcement is weak and legal battles are costly for authorities. Monitoring efforts have been largely abandoned by road and council officials, allowing illegal installations to multiply.
Ekurhuleni councillor Jill Humphreys admitted the city had “given up” on removing the illegal structures.
“The industry takes advantage of this. There is no money, no manpower. The industry knows we can’t fight them and is taking advantage of that.”
Sanral confirmed that every billboard on the R21, including those mounted on bridges, is illegal under the Sanral Act.
Sanral spokesperson Lwando Mahlasela said it was difficult to track illegal billboards.
“It is influenced by many factors such as billboards not yet reported by routine road maintenance, those in the process of being illegally erected, those in the process of being removed, as well as those under consideration by the municipalities.”
He said workers tasked with removing illegal billboards had been threatened.
“There have been threats made against officials by certain individuals and companies within the outdoor industry. These incidents have been reported and are currently under investigation by our legal department for further handling.”
He said billboards on private land must be authorised.
“If not removed when requested, the owner can be asked to provide access to the property for removal, but should there be objections, a court interdict may be needed to enter the property.”
Warnings
The City of Ekurhuleni claims that the advertising industry has largely ignored calls to regularise billboards.
This month, the city gave advertisers 21 days to register their billboards, ending on 4 August.
The MMC for developmental planning and real estate, Nomadlozi Nkosi, placed “illegal advertising” stickers on three billboards in Bedfordview, Alberton and Sunward Park, threatening the owners with fines, legal action and possible removal of the billboards at their own cost.
The average cost to remove an 18 sq m billboard is between R100,000 and R150,000. If they are erected illegally on private property and the owner refuses access, court applications are needed to enter the property.
Ekurhuleni spokesperson Zweli Dlamini said the municipality only had three people to monitor for illegal billboards.
/file/dailymaverick/wp-content/uploads/2025/07/facebook_1752852203250_7351995007500647124.jpg "An illegal billboard flagged by the City of Ekurhuleni. (Photo: City of Ekurhuleni.)")
/file/dailymaverick/wp-content/uploads/2025/07/facebook_1752852290045_7351995371546622240.jpg "The City of Ekurhuleni is clamping down on illegal billboards. (Photo: City of Ekurhuleni.)")
Safety risk
He said illegal billboards placed motorists at risk by blocking visibility and obscuring road signs
“They may also be structurally unsafe if not approved, increasing the risk of collapse, especially in extreme weather conditions,” he said.
The billboards are uninsured and do not carry public liability or professional indemnity insurance.
“There have been incidents where bylaw enforcement officers were threatened or met with resistance when attempting to remove illegal advertising signs,” said Dlamini. “In some cases, individuals claiming ownership of the signs have intervened aggressively to prevent removal.
“These incidents have been reported through the appropriate internal channels, and where necessary, law enforcement support has been requested to ensure the safety of officials and compliance with the city’s bylaws.”
The city estimates there are about 78 illegal billboards on the R21.
“The department is exploring means to vigorously deal with the insurgent illegal advertising across the city in terms of bylaw enforcement,” said Dlamini.
The exact loss in revenue is unquantifiable, but Dlamini points out that legal applications to erect billboards cost R1,810, with an inspection charge of R250 per square metre, plus 20% of the monthly revenue generated by the billboard.
“None of this money reaches the city when structures are off our records. In addition to the direct revenue loss, illegal signs undermine regulated competition and place a financial burden on the city’s enforcement resources,” he said.
The city’s outdoor advertising bylaw enforcement unit removed 873 illegal billboards from council-owned properties and road reserves during the 2023-2024 financial year.
Industry’s response
Angelo Tandy, the chairperson of Out of Home Media South Africa (Ohmsa), a voluntary industry umbrella body, said: “While isolated instances of non-compliance may occur in any industry, these do not reflect the values of the majority of our stakeholders. We also work tirelessly with government and the various municipalities to fix the challenges facing the industry in efforts to positively transform the outdoor industry.”
Ohmsa does not possess regulatory enforcement powers, but it functions as a self-regulatory body by promoting adherence to municipal bylaws and national regulations.
“We offer guidance, training, and a code of conduct to our members, reinforcing governance and operational accountability,” said Tandy.
Tandy dismissed accusations of “mafia-style” organisations in Ekurhuleni that threaten officials who try to remove illegal billboards.
“We are not in possession of verified information regarding these allegations and cannot comment on speculation. We strongly condemn any form of intimidation or criminality and encourage municipal officials and stakeholders to report unlawful conduct to the appropriate authorities.”
Tandy said the regularisation of boards with municipalities was an ongoing process.
“Our efforts include ongoing stakeholder engagement to encourage best practices, providing training and resources to our members, and actively supporting policies that promote fair competition and innovation.
“We advocate for an inclusive and transparent permitting process, prioritise SMME development, and support municipal enforcement efforts to dismantle non-compliant boards while expanding compliant access for new entrants.
“The regularisation of alleged illegal billboards is an ongoing issue in South Africa, especially in larger urban areas. However, Ohmsa encourages its members to work closely with local authorities to remain compliant and to help mitigate the challenges.”
Neither Jinja Outdoor Advertising or Alliance Media, companies that own boards on the R21, responded to a request for comment. DM