Gauteng Provincial Government
Gauteng Planning Division
Office of the Premier
Concept Paper
Gauteng Spatial Perspective (GSP) 2030
1
Contents
Part A: Introduction ............................................................................................................ 4
Part B: Overview of the GCR .............................................................................................. 7
Spatial History of the Gauteng City Region.................................................................................. 7
Demographic Profile ...................................................................................................................... 10
Socio-economic Profile .................................................................................................................. 11
Infrastructure Profile....................................................................................................................... 15
Transportation Profile .................................................................................................................... 16
Spatial Profile .................................................................................................................................. 17
Part C: Current State of Planning .................................................................................... 25
Part D: Overarching Policy Frameworks ......................................................................... 27
National Development Plan 2030 ................................................................................................ 27
Spatial Planning and Land Use Management Act (SPLUMA); Act 16 of 2013 .................... 28
Integrated Urban Development Framework ............................................................................... 28
10 Pillar Programme of Radical Transformation, Modernisation and Re-Industrialisation . 29
Gauteng 25 Year Integrated Transport Master Plan ................................................................ 31
Gauteng Environmental Management Framework (Final Draft) ............................................. 32
Part E: The Gauteng Spatial Perspective 2030 ............................................................... 34
Gauteng Spatial Perspective 2030 Vision .................................................................................. 34
Goals ................................................................................................................................................ 34
Goals & Strategic Pillars ............................................................................................................... 34
Pillar 1: Spatial Structure Conducive to Growth ........................................................................ 35
Key Interventions ........................................................................................................................ 35
Pillar 2: Decisive Spatial Transformation .................................................................................... 37
Key Interventions ........................................................................................................................ 37
Pillar 3: Sustainable Resource Use & Development ................................................................ 39
Key Interventions ........................................................................................................................ 39
Pillar 4: Modernised & Effective Public Transport ..................................................................... 40
Key Interventions ........................................................................................................................ 40
Pillar 5: Agreed Spatial Vision ...................................................................................................... 42
Key Interventions ........................................................................................................................ 42
Way Forward ..................................................................................................................... 44
Sources.............................................................................................................................. 45
i
List of Figures
Figure 1: Southern Transvaal in 1896 – series of mining towns along the Reef..................... 7
Figure 2: By 1973 the outlines of the city-region were beginning to emerge .......................... 8
Figure 3: Gauteng Urban growth, 1991-2009 ........................................................................ 9
Figure 4: Emergence of the Gauteng City-Region ............................................................... 10
Figure 5: Population distribution by age and sex ................................................................. 11
Figure 6: Gauteng Economic Sectors.................................................................................. 12
Figure 7: Decline in household disposable income, 2000-2011 ........................................... 12
Figure 8: Unemployment Rate in Gauteng .......................................................................... 13
Figure 9: Spatial concentration of economic activity & employment density ........................ 13
Figure 10: Formal Vs. informal housing in Gauteng from 1996-2011................................... 14
Figure 11: Average Household size in Gauteng in 1996, 2001 & 2011................................ 14
Figure 12: Access to basic service time-series 1996, 2001 and 2011 ................................. 15
Figure 13: Movement across Gauteng on a daily bases from home to work. ....................... 17
Figure 14: Existing spatial structure 2013............................................................................ 19
Figure 15: GCR historical development axis and poly-centric form...................................... 20
Figure 16: Location of security estates ................................................................................ 21
Figure 17: Location of security estates ................................................................................ 22
Figure 18: Location of the public housing programmes along the peripheries of the urban
core..................................................................................................................................... 22
Figure 19: Available large under-developed parcels of land within the urban edge ............. 23
Figure 20: Composite picture of MSDFs in Gauteng ........................................................... 26
Figure 21: The IUDF roadmap ............................................................................................ 28
Figure 22: The proposed public transport network .............................................................. 31
Figure 23: The Gauteng Environmental Management Framework ...................................... 32
Figure 24: Propose Compact Urban Development .............................................................. 37
Figure 25: Proposed consolidation of urban development in Gauteng Province .................. 39
Figure 26: ITMP25 - Proposed public transport network ...................................................... 40
ii
List of Acronyms
Built Environment Performance Plans
BEPPs
Bus Rapid Transit System
BRT
Central Business District
CBD
Environmental Impact Assessment
EIA
Executive Council
EXCO
Gauteng 25-year Integrated Transport Master
ITMP25
Gauteng City Region
GCR
Gauteng City Region Observatory
GCRO
Gauteng Environmental Management Framework (Draft)
GEMF
Gauteng Growth Management Perspective
GGMP
Gauteng Infrastructure Funding Agency
GIFA
Gauteng Integrated Infrastructure Master Plan
GIIMP
Gauteng Planning Division
GPD
Gauteng Province Government
GPG
Gauteng Spatial Development Framework, 2011
GSDF
Gauteng Spatial Perspective, 2030
GSP
Geographic Information Systems
GIS
Gross Domestic Product
GDP
Information and Communication Technology
ICT
Intergovernmental Relations
IGR
Integrated Urban Development Framework
IUDF
Mid-term Expenditure Framework
MTEF
Municipal Spatial Development Framework
MSDF
National Development Plan, 2030
NDP
National Environmental Management Act; Act 107 of 1998
NEMA
National Spatial Development Framework
NSDF
Pretoria-Witwatersrand-Vaal-Triangle
PWV
Public Rail Association of South Africa
PRASA
Quality of Life Survey
QoL
Reconstruction and Development Programme
RDP
Small, Medium and Micro Enterprises
SMME
Spatial Development Framework
SDF
Spatial Planning and Land Use Management Act; 16 of 2013
SPLUMA
Ten Pillar Programme of Transformation, Modernisation and Reindustrialisation TMR
Transit Orientated Development
TOD
iii
Part A: Introduction
This report serves as a concept paper aimed at presenting a rationale and basis for the
review of the Gauteng Spatial Development Framework (GSDF) 2011. This concept paper
sets out to present a spatial perspective for the Gauteng City Region over the next 15 years
which will later result into a fully-fledged Gauteng Spatial Development Framework. The
report is divided into five parts namely:
Part A: Introduction
Part B: Overview of the Gauteng City Region (GCR)
Part C: Current State of Planning in the GCR
Part D: Overarching Policy Framework
Part E: Gauteng Spatial Perspective 2030
The first part of this report provides a short rationale for the review of the GSDF 2011,
highlighting briefly the emergence and progression of the GSDF since it became a binding
requirement for provincial governments. Part B provides an overview of the Gauteng City
Region (GCR) looking specifically at the spatial history of Gauteng and how it has evolved
from the 1800 to-date. It also delves into a high level profile of the GCR looking at
demographic, economic, socio-economic and educational profile of the province, and state
of infrastructure as well as human settlement patterns. It also broadly discusses
transportation in terms of movement and commuter patterns with the aim of getting an
indication of distances people travel to access services. Lastly the section provides a
summary of the spatial pattern of the GCR in terms of human settlement patterns, current
development patterns of nodes and corridors as well as how development occurs within and
outside of the urban core.
In Part C, the report discusses the current state of planning in the Gauteng Province
specifically on alignment and planning integration between municipalities and municipalities
and province. Part D refers to overarching policies which will be considered during the
review of the GSDF. Part E of the report which is titled ‘Gauteng Spatial Perspective
2030’, provides a proposed vision and spatial perspective for the GCR over the next fifteen
years. This section provides a futurist and practical perspective on how the GCR should
develop in the next 15 years taking into consideration the Ten Pillar Programme introduced
by the new administration of Honourable David Makhura.
4
The Perspective also aligns its timeframe with the National Development Plan (NDP) 2030.
Part E of the report not only provides a perspective but it also tries to suggest goals and
interventions that will facilitate the implementation and realisation of the programme.
In 2011 the GSDF was approved by the Executive Council (EXCO) as the province’s official
spatial development framework and has since been adopted across the province. As a city
region it is important to review policies and strategies on an on–going basis in order to keep
up with emerging trends, latest statistic as well as adopting and aligning with different spatial
changes within different parts of the region. The review of the GSDF will endeavour to
respond to:

Significant changes in the overarching frameworks and legislation at national level such
as the NDP 2030 and Spatial Planning and Land Use Management Act (SPLUMA); Act
16 of 2013 outlining a process for the development of a provincial SDF,

Align provincial policy to incorporate the Ten Pillar Programme of Transformation,
Modernisation and Reindustrialisation (TMR) pronounced by Premier Makhura,

Align with provincial sector plans significantly impacting on spatial planning such as the
Gauteng Integrated Transport Master Plan (ITMP25),

Need to incorporate new and planned developments in relation to spatial rationale of the
GSDF, and

Latest and relevant/applicable statistical and spatial data.
Although the GSDF was generally a sound framework, its implementation faced a number of
challenges and therefore did not produce the required impact on spatial planning in the
province. Some of the challenges experienced as part of the GSDF implementation process
include:
a. Selective alignment by provincial sector departments to the GSDF,
b. Insufficient growth management approaches upon rescindment of the Gauteng Urban
Edge,
c. The scale of spatial direction in the GSDF is perceived to be too broad (need for a more
detailed/ localised approach),
d. The roll-out of the GSDF models and GIS capabilities did not become operational which
substantially weakened the implementation of the GSDF,
e. The urban structuring initiatives were not managed centrally or specifically advanced by
a relevant sphere of government limiting spatial transformation advancement by the
GSDF,
5
f.
The fact that currently the GSDF does not shape provincial, local or agency capital
budgets in order to advance spatial transformation,
g. The limited human capacity of spatial planning and GIS specialists in the Development
Planning Chief Directorate, and
h. Approval is required in line with a regulatory framework that did not exist prior to
SPLUMA to enforce.
The GSDF 2011 was duly approved by provincial EXCO, although not in terms of any
regulatory framework. This was due to the fact that SPLUMA or similar legislation was not
enacted at that stage in terms of which the GSDF could have been approved in terms of,
providing it legal status and enforceability.
Consequently, the Gauteng Spatial Perspective 2030 is proposed as a means to:

Set the scene for the review of the GSDF in the 2015 financial year to align with latest
policy imperatives (national and provincial) and to lead spatial development in the GCR,
and

Present a Gauteng Spatial Perspective 2030 that will pave the way for the development
of a shared Gauteng Spatial Vision enabling successful implementation of the GSDF.
6
Part B: Overview of the GCR
Spatial History of the Gauteng City Region
Southern Transvaal settlement pattern 1896
A series of towns of varying sizes developed along the east-west axis, colloquially referred to
as the Rand (literally ridge/reef). Later extensions of mining led this line of development to
incline southwards at both extremes - the Far East Rand and the West Rand (Farquharson,
1963). The figure below indicates the early mining town stretching from Krugersdorp in the
west to Springs in the east.
Land-use was fragmented into agricultural land, mine workings, mine tailings facilities (sand
dumps and slimes dams) and scattered urban developments creating a sprawling and
fragmented settlement pattern along a north south axis. Stretching from Pretoria in the north,
via the early Johannesburg to Vereeniging in the south.
Figure 1: Southern Transvaal in 1896 – series of mining towns along the Reef
Source: Gauteng Office of the Premier, 2013
7
Gauteng in the 1970s
Figure 2: By 1973 the outlines of the city-region were beginning to emerge
Source: Gauteng Office of the Premier, 2013
Spatial Change in the Greater Gauteng: 1991 – 2009
Historically, Gauteng has always been the economic heartland of South Africa. As a
province, Gauteng contributes 34% of the national Gross Domestic Product (GDP) and
some 10% of Africa’s GDP, whilst the city‑region’s contribution is almost 45% of national
GDP (OECD, 2011).
Economically, the province contains a large concentration of industrial activities and financial
services and it is the headquarters of South Africa’s key mining companies. The economy of
the province grew in size over the years to the extent of matching or even surpassing that of
some African countries.
The South Africa of today is in many respects, drastically different from the nation that
emerged from apartheid nearly two decades ago and nowhere is this more evident than in
the urbanised areas in and around Gauteng.
8
Figure 3: Gauteng Urban growth, 1991-2009
Source: Gauteng Office of the Premier, 2013
The region known as Gauteng today started out as the Southern Transvaal region, a
grouping of towns and cities well established in the mining and commerce industries as
depicted in the figure above. Later the region transformed into the Pretoria-WitwatersrandVaal-Triangle (PWV) complex, which was an urban cluster, stretching over an area of
approximately 15 500 km². The first gold deposits were found in 1886 and caused significant
increase in urban development with wide spread settlements. These activities led to the
development of the east-west development axis that serves as a key structuring element of
the existing urban form. The GCR was shaped by these historic land uses and subsequently
transformed into a multi‑cultural hub of economic activity, where the educated and employed
of all races increasingly work, live and play.
9
The Gauteng City Region
The map (Figure 4) depicts the Gauteng City-Region - an integrated cluster of cities, towns
and urban nodes.
Figure 4: Emergence of the Gauteng City-Region
Source: Gauteng City Region Observatory, 2010
Demographic Profile
Gauteng Province has the highest population in the country with an estimated 12, 7 million
people across the small land area of about 18 178km². Gauteng has the smallest land area
of all provinces in South Africa of about 1.4%. Gauteng experienced slow population growth
for the period 2001-2011 compared to 1996-2001. The Provincial population is estimated to
have grown by 3, 6% and 2, 7% respectively. Figure 5 below shows population distribution
by age and sex within Gauteng.
10
Figure 5: Population distribution by age and sex
Source: Statistics SA , 2011
Socio-economic Profile
Gauteng’s share of GDP increased to 36% in 2013 at an astonishing 10% of the total GDP
of the entire African continent while its share within sub-Saharan Africa has seen a decline.
Gauteng dominates the South African economy in the majority of sectors except agriculture.
Although mining and manufacturing are still notably contributing to the Gauteng economy,
they have experienced a decline in recent years as seen in the Figure 6 below. Having
experienced a rapid decline from contributing 21% to Gauteng’s economy in 2008 to 11.7%
in 2014, the manufacturing sector is in need of serious intervention.
Some of the reasons for the sectoral decline may be attributed to challenges experienced in
the metals, rubber and chemical industry in Ekurhuleni, the decline in mining activity in the
West Rand as well as the struggling steel industry in Sedibeng. Dominant sectors of growth
in Gauteng in 2013 are transport, storage and communications as well as finance and
business services.
11
Figure 6: Gauteng Economic Sectors
Source: Gauteng Online, n.d.
According to Quality of Life (QoL) Survey, 2011 it is apparent that the gap between
disposable income and expenditure has steadily increased since 2000.
Household
expenditure is growing at a much higher rate than household income not only due to inflation
and externality costs, but also notably due to a high household debt to disposable income
ratio.
Figure 7: Decline in household disposable income, 2000-2011
Source: GCRO, 2011
Figure 8 below depicts unemployment rates within different municipalities in Gauteng.
Trends in unemployment rates suggest an increase between 1996 and 2001 and thereafter
a decline in all municipalities. The sharpest decline has been noted in Sedibeng, Ekurhuleni
12
and Johannesburg. The total unemployment rate for Gauteng in 2011 was estimated at
26.3% compared to 37.0% in 2001.
Figure 8: Unemployment Rate in Gauteng
Source: Statistics SA, 2011
Figure 9: Spatial concentration of economic activity & employment density
Source: Gauteng Office of the Premier, 2013
Human Settlements Profile
The state of human settlements, especially low income housing provided by government in
Gauteng is characterised by low density sprawling developments located in the peripheries
of the urban core across the GCR. This is illustrated in
13
Figure 18 in the Spatial Profile section of this paper. Spatial, economic and racial
fragmentation as well as segregation perpetuating by the legacy of apartheid planning with
concentrations of poor people living on the peripheries of wealthier urban cores, excluded
from the main economic opportunities still exists. Although human settlements have not
been developed within suitably located areas Gauteng has however seen a decrease in the
number of informal and traditional housing. The figure below depicts an increase in formal
housing from 1996 to 2011 with a decrease in informal and traditional housing within
Gauteng.
Figure 10: Formal Vs. informal housing in Gauteng from 1996-2011
Source: Gauteng City Region Observatory, 2012
Gauteng is experiencing substantial population growth with a notable impact from migration
from other provinces in South Africa and the rest of Africa. This increase in population will
have severe implications for the provision of basis services to households. This challenge is
however aggravated by the changing nature of households in terms of size. The average
household size has decreased across the entire province. This indicates less people per
household. With the increase of population in Gauteng, coupled with the household figures
seen below, one can deduce that Gauteng Province needs to provide access to basic
services for substantially more households.
Figure 11: Average Household size in Gauteng in 1996, 2001 & 2011
14
Source: Statistics SA, 2011
Figure 12: Access to basic service time-series 1996, 2001 and 2011
Municipalities
Access to piped
Access
water
electricity
’96
to
Sanitation
Waste removal by
local authority
’01
‘11
’96
’01
‘11
’96
’01
‘11
’96
’01
‘11
Sedibeng
88.3
92.8
69.3
77.1
87.0
75.5
84.6
90.1
54.3
48.6
88.2
West Rand
79.2
83.2
62.7
70.0
77.7
76.9
78.2
83.0
77.8
69.5
76.8
Ekurhuleni
81.9
87.1
64.7
66.2
79.4
84.0
85.3
88.5
86.5
87.9
88.4
Johannesburg
84.5
91.6
80.9
78.4
87.4
86.9
87.7
91.1
88.4
90.9
95.3
Tshwane
79.7
89.2
72.0
70.2
84.2
74.0
70.7
80.1
74.1
75.2
80.7
Gauteng
82.7
89.4
72.3
72.5
83.9
81.5
82.2
87.2
80.9
81.4
88.3
Source: Statistics SA, 2011
Figure 12 above shows a general increase in access to basic services across the three
Metropolitan Municipalities and two District Municipalities. Coupled with the household size
decrease one can see that Gauteng is catering for the increased households from a basic
services perspective.
Infrastructure Profile
Gauteng has been experiencing rapid population growth over the past two decades. The
rapid population growth has placed strain on existing infrastructure and provision thereof.
Growing population numbers and current spatial development patterns do not enable
efficient infrastructure provision as a sprawling structure is more difficult and expensive to
service and manage. Security of infrastructure supply is important and needs to be
15
addressed efficiently. Wastage and/or misuse of resources need to be curtailed to ensure a
sustainable supply of services. The overall efficiencies, maintenance and operations of
existing infrastructure require improvement. Infrastructure has an impact on many aspects of
the economy and society.
Key infrastructural deficits curtail economic growth and sustainable human development.
The public sector faces dire shortages of technical skills, specifically engineering and related
scarce skills, within government sectors. There is a need for government to place greater
emphasis on capacity building and skills shortages needing to be addressed in government.
Infrastructure in Gauteng currently does not place sufficient attention on environmental
issues of sustainability.
Environmental sustainability does not receive enough attention in relation to infrastructure.
Current funding models for infrastructure are deemed to be insufficient for sustainable
infrastructure delivery and demand and hence need to be expanded and alternatives
explored. The Gauteng Office of the Premier – Planning Division has embarked on the
development of a Gauteng Integrated Infrastructure Master Plan (GIIMP). This process will
provide greater detail pertaining to infrastructure planning, coordination and financing in the
Gauteng Province.
Transportation Profile
The transport system in Gauteng is heavily reliant on private mobility as the spatial form and
low densities do not support public transport hence encouraged urban sprawl. This has led
to people facing long commuting distances across the GCR, as seen in Figure 13, the
existing transport systems is poorly integrated. Congestion can also be attributed to
insufficient infrastructure maintenance and changes in freight transport from rail to road and
congested freight hubs (City Deep). The majority of the population in the Province is
dependent on car oriented transportation and this is due to the Province’s well-developed
system of highways that encourage a car-oriented society as opposed to focus on public
transport.
16
Figure 13: Movement across Gauteng on a daily bases from home to work.
Source: Gauteng City Region Observatory, 2011
Spatial Profile
The current spatial structure of the GCR has been shaped by mining, natural terrain, rail and
road networks, key investments and industrialisation as well as colonial and apartheid
policies. Figure 14 below shows the east west and north south expansion of the GCR along
the historic mining belt from Krugersdorp in the west to Springs in the east and development
from Pretoria in the north to Vereeniging in the South as illustrated in Figure 15. This outlines
the fact that historic land use activities serves as structuring elements that continue to shape
the urban form.
Since 1994, densities have increased in some urban areas and there has also been partial
regeneration of inner cities, coupled with the growth of housing ownership but, overall, little
progress has been made in reversing apartheid geography.
Some of these distortions have been exacerbated by poor state-led housing policies, as well
as weak public-sector strategic spatial planning that has allowed the private production of
space in unsustainable forms on the urban periphery. A fragmented public transport system,
and the drift of jobs away from mining and industry to tertiary activities almost always located
far from townships, has compounded spatial dislocations, and in turn poverty and inequality.
17
A recent study conducted by the Gauteng City-Region Observatory (GCRO) on growth in
Gauteng highlights the following historical and current growth trends:
”The establishment of large low-cost RDP housing, despite good intentions, has led to the
growth of informal settlements located on inexpensive removed from economic centres
thereby perpetuating the apartheid urban form. The development of single use office parks
separate from residential areas has propagated fragmentation. This suggests that the
footprint of the apartheid spatial planning is proving difficult to retrofit. However; there is
sufficient evidence to show that over the last two decades (despite widespread sprawl),
there have been cases of managed growth (e.g. corridor development, urban densification,
and decentralised concentration)”.
The study found that the Gauteng urban areas (expressed as a percentage of the total
Gauteng land area) increased from 12.6% in 1991 to 15.96% in 2001 and 18.35% in 2009.
During this time, the percentage of cultivated land remained relatively constant, but from an
environmental perspective the greatest loss was experienced in woodland areas. Between
2001 and 2009, the highest growth was in the following areas:

Strong ribbon development along the N1 Midrand Corridor,

Brits/Garankuwa/Soshanguve/Mabopane in the north-west of Tshwane,

Temba and Kekana,

Diepsloot,

Tembisa,

Randburg/Fourways, and

Thokoza/Katlehong.
It may be concluded that in light of adverse social, economic and environmental costs of
continued unrestrained lateral expansion over the past decades it is crucial to manage urban
growth. As land-use structures directly impact transport-related energy consumption, mobility
patterns, trip-distances and modes of transport, it is essential to pursue growth trajectories
that promote spatial, mobility and energy efficiencies.
18
Figure 14: Existing spatial structure 2013
Source: Gauteng Department of Roads and Transport, 2013
The current spatial structure of Gauteng Province is shown in Figure 14 above. The regional
open space network and the six agricultural hubs in the province act as strong spatial
structuring elements, especially along the peripheral parts of the Province.
The economic core (retail, office and industry) of the province is predominantly located in the
triangular area between the Central Business District (CBD) of the City of Tshwane, the CBD
of the City of Johannesburg, and the OR Tambo International Airport in Ekurhuleni (the
emerging Aerotropolis). Major business nodes - office and retail - are mainly clustered in the
north-western suburbs of the City of Johannesburg and the south-eastern parts of the City of
Tshwane. The bulk of industrial development occurs within the north-south and east-west
industrial axis, which converge in the vicinity of Germiston in Ekurhuleni.
As Gauteng represents the economic hub of South Africa, most national freeways converge
in the province. The four national corridors serving the eastern parts of the province (N4,
N12, N17 and N3) are all linked to the three major export harbours along the east coast of
Southern Africa, namely, Maputo, Richards Bay and eThekwini/ Durban.
The east-west industrial belt extends from Chamdor in the West Rand, through the City of
19
Johannesburg to Springs and Nigel in the east; while the north-south belt extends from
Olifantsfontein in the north, past Isando-Spartan and Wadeville-Alrode, and along the R59
corridor through Midvaal, up to the Emfuleni industrial complex in the Sedibeng District
Municipality.
Figure 15: GCR historical development axis and poly-centric form
Source: Gauteng Department of Economic Development, 2011
There are also several smaller industrial areas located to the north-west of the City of
Johannesburg around Laserpark, KyaSands, and Kyalami, as well as along the N1-Midrand
corridor extending towards Centurion. In the City of Tshwane the four major industrial areas
include Pretoria West, the Silverton-Waltloo complex, the Rosslyn industrial area, and
Ekandustria near Bronkhorstspruit.
Gauteng has historically been a major mining region, with a large proportion of mining land
concentrated in a mining belt extending from Randfontein in the west up to Springs in the
east.
Low income residential areas and associated informal settlements in Gauteng are located on
the urban periphery of the major urban settlements. These include the GaRankuwaMabopane-Winterveld-Temba complex to the north-west of the City of Tshwane, and
Atteridgeville, Mamelodi and Olievenhoutbosch to the west, east and south-west
respectively. In Ekurhuleni, the low income communities are clustered together in four main
20
urban complexes, namely, Tembisa to the northwest, Daveyton-Etwatwa to the north-east;
Kwatsaduza to the south-east and Kathorus to the south-west.
In the City of Johannesburg, low income communities are mainly concentrated to the northwest, and Soweto and surrounds towards the south-west. The Evaton-Sebokeng complex is
further towards the south in the Sedibeng District Municipality. It should also be noted that
large clusters of settlements are located in the Moretele and Madibeng areas to the northwest of the City of Tshwane and the Thembisile-Hani (Moloto and KwaMhlanga) area to the
north-east. A large percentage of these communities also rely on Gauteng for jobs and
services.
From
Figure 16 to
Figure 18 below one can see the extent of urban sprawl aggravated by Security Estates,
Informal Settlements and Public Housing Programmes all located along the periphery of the
urban core extending outwards despite the availability of parcels of under-developed land
well located within the urban core.
Figure 16: Location of security estates
Source: Department of Rural Development and Land Reform, 2014
21
Figure 17: Location of security estates
Source: Department of Rural Development and Land Reform, 2014
Figure 18: Location of the public housing programmes along the peripheries of the urban core
Source: Department of Rural Development and Land Reform, 2014
22
Figure 19: Available large under-developed parcels of land within the urban edge
Source: Gauteng Office of the Premier, 2014
Key Findings: Overview of the GCR
The spatial profile of Gauteng can be summarised as a sprawling urban structure extending
along north-south/east-west axes with a poorly connected polycentric nodes.
Although there is poor connectivity, Gauteng has a well-developed road network which to a
certain extent impacts negatively on the use of public transport. The well-developed system
of highways encourages development that advances private mobility with insufficient focus
on public transport infrastructure. The existing road infrastructure is however severely
congested by not only private vehicles but also heavy vehicles for the purposes of freight
and logistics due to a long term disinvestment in rail infrastructure.
Consistent urban sprawl is perpetuated by informal settlements, government housing
projects and residential estates located on the periphery removed from socio-economic
opportunities. Low population densities per hectare in several areas make public transport
not viable and infrastructure provision costly. Lack of integration of spatial planning and
transport provision can be seen in the challenges of advancing higher densities without the
availability of adequate public transport across Gauteng.
23
Urban sprawl is also most often linked to the misconception that development will advance
the municipal rates base without taking the life-cycle cost of development into account
(maintenance and operational related cost).
Lastly, residential areas are still segregated along race and income lines including spatial
marginalisation of townships with the majority of poor households located on the periphery
removed from economic opportunities. This form of development does not support
sustainability or efficiency in relation to infrastructure investment for the GCR.
While the province will embark on the review of the current GSDF, the various metropolitan
municipalities are also currently in various stages of reviewing their respective municipal
SDFs. This creates an opportunity to facilitate alignment and an agreed spatial vision, but
may pose as a challenge should these processes not appropriately be coordinated and
integrated.
24
Part C: Current State of Planning
The first GSDF was developed in 2000. Subsequent to the development of the GSDF 2000 a
process to develop a new GSDF began in 2006 however the process was never finalised.
The province decided to embark on a project to develop a long-term development plan for
Gauteng Province that would focus on the optimal spatial structure for the next 30 years.
A new process was thus initiated in 2008 to develop a long term plan/vision for the GCR that
would provide the desired spatial structure and set out the spatial vision taking into account
property dynamics, opportunities and constraints. This culminated in the approval of the
GSDF 2011 which provided a long term view extending over a 30 year period making the
GSDF 2011 the first of its kind in South Africa in terms of scale, scope and time horizon. As
such it signifies a new era in the pursuit of planning for shared, equitable, sustainable and
inclusive growth and development in the country.
At the time of the drafting of the GSDF, many of the overarching national planning
frameworks and legislation were still in draft or planning phase and were only released post
approval of the GSDF in 2011. These policies have a large impact on how spatial planning in
Gauteng should be governed and implemented (National Development Plan 2030, Draft
Integrated Urban Development Framework and SPLUMA and should therefore be
considered within the GSDF.
The fragmentation of planning at the national sphere of government also has an impact on
spatial planning (Presidency/ Department of Planning, Monitoring and Evaluation;
Department of Rural Development and Land Reforms; and Department of Cooperative
Governance and Traditional Affairs).
As a result, spatial planning guidance at the provincial level and municipal level has been
found to lack integration specifically across municipal boundaries in a Province with three big
neighbouring metropolitan municipalities. This can be seen in the composite picture of
current Municipal Spatial Development Frameworks (metro and district) which indicates poor
alignment and integration of municipalities in Gauteng. The GSDF attempted to address
these challenges but also lacked clarity on the urban boundary and at this stage of its cycle
has become out-dated.
The GCR is an important spatial entity of which the influence and implications stretch across
and beyond municipal boundaries. In order to ensure the sustainable, equitable and efficient
development of the city region, there must be alignment and coordination between municipal
spatial development frameworks in the province and the region as a whole.
25
This alignment and coordination include having a common regional growth management
focus and should be spatially aligned in terms of low, moderate and priority growth areas,
including the alignment of priority development corridors. Some of the concerns regarding
coordinated regional spatial planning in the province at this point in time however include:

Lack of alignment between municipal SDFs and the Gauteng Spatial Development
Framework,

Lack of a shared provincial spatial development vision, and

Varied interpretation and application of spatial development principles such as
compaction, densification, mixed-use and land use/transportation integration.
Figure 20 shows a composition of current municipal and/or district spatial development
frameworks in Gauteng, and it is clear on this broad level even that there is a lack of
coordination, integration and consistency among these plans.
Figure 20: Composite picture of MSDFs in Gauteng
Source: Gauteng Office of the Premier, 2014
26
Part D: Overarching Policy Frameworks
Since the approval of the GSDF 2011, policy and development context at National Level has
changed thus, necessitating a new approach to the GSDF. The fifth administration of
government also came into power in 2014 and introduced a policy shift in planning and
development in the Gauteng City Region.
The mandate provided by the Spatial Planning and Land Use Management Act, 2013
requires the Premier to compile a Provincial Spatial Development Framework for the
province aimed at coordinating, integrating and aligning:

Provincial plans and strategies with policies of National,

Plans and strategies of Provincial Departments, and

Plans and policies of Municipalities.
The intention of a Provincial Spatial Development Framework for the province according to
SPLUMA will be to enable all provincial plans, projects and programmes to be consistent
with the approved Provincial Spatial Development Framework.
National Development Plan 2030
National Government introduced the National Development Plan 2030 (NDP) which is
government’s principle overarching plan that offers a long term perspective on what
government needs to achieve by the year 2030. The aim of the NDP is to eliminate poverty
and reduce inequality by building an inclusive economy. The Plan calls for new spatial norms
and standards (i.e. densifying cities, improving transport, locating jobs where people live,
upgrading informal settlements and fixing housing market gaps) as one of the critical actions,
and strongly advocates a reform of the current planning system including, amongst others,
ensuring that every municipality has an explicit spatial restructuring strategy that is linked to
instruments for implementation. This includes identifying priority precincts for spatial
restructuring. The plan also calls for a balanced approach between rural and urban
development. According to the NDP, bold measures need to be taken over a sustained
period to change the trajectories of spatial development.
27
Spatial Planning and Land Use Management Act (SPLUMA); Act 16 of 2013
During 2013 the President of South Africa assented to the Spatial Planning and Land Use
Management Act (SPLUMA); Act 16 of 2013.
This Act provides a framework for spatial planning and land-use management at all spheres
of government, specifying the relationship between the spatial planning and land-use
management system, provides for inclusive, developmental, equitable and efficient spatial
planning at the different spheres of government and promotes greater consistency and
uniformity in the application procedures and decision-making by authorities responsible for
land-use decisions and development applications.
The Department of Rural Development and Land Reform is in the process of finalizing
SPLUMA Regulations and Spatial Development Framework Guidelines pertaining to the
drafting of Provincial Spatial Development Frameworks.
Integrated Urban Development Framework
In order to realise the National Development Plan objectives the National Department of
Cooperative Governance and Traditional Affairs is developing the Integrated Urban
Development Framework (IUDF). The IUDF aims to guide the development of inclusive,
resilient and liveable urban settlements, while addressing the unique conditions and
challenges facing South Africa’s cities and towns, and will help to illustrate options for more
effective and efficient urban and rural development through integrated planning in order to
achieve strategic goals with regards to spatial planning.
Figure 21: The IUDF roadmap
Source: Department of Cooperative Governance and Traditional Affairs, 2014
28
Policy priorities regarding Integrated Spatial Planning:

Efficient intergovernmental collaboration needed for integrated planning, integrating
spatial frameworks and access and availability of well-located land,

Effective use of intergovernmental relations (IGR) to strengthen planning and monitor
progress of development in municipal spaces,

Focus the role of provinces in intergovernmental planning,

Strengthening intergovernmental and long term planning, and

Expanding the instruments for spatial planning through proper analysis, drafting of
detailed plans and paying explicit attention to infrastructure within strategic spatial
planning (through the development of growth management strategies and their
integration into SDF’s).
The Department also intends to link the IUDF with the National Spatial Development
Framework (NSDF) when the NSDF is drafted. By aligning to SPLUMA with the IUDF, the
GSDF, strategic provincial sector plans and municipal SDFs will have stronger policy and
legislative backing.
10 Pillar Programme of Radical Transformation, Modernisation and ReIndustrialisation
As part of his vision Premier Makhura’s administration introduced a new approach to spatial
planning within Gauteng over the next five-to-fifteen years. The vision is for the Gauteng
Provincial Government (GPG) to take active decisive steps to make Gauteng an integrated
city-region characterised by social cohesion and economic inclusion. To achieve this,
Premier Makhura announced during his maiden State of the Province Address that his
administration has adopted the ten-pillar programme of radical transformation, modernisation
and reindustrialisation of Gauteng
This programme includes the following activities/actions:

Revitalisation and mainstreaming of the township economy by supporting the
development of township enterprises, cooperatives and small, medium and micro
enterprises (SMMEs) that produce goods and services that meet the needs of
township residents,

Massive rollout of public transport infrastructure across the province,
29

Building economic infrastructure that will boost employment creation and economic
inclusion through investing more than R300 billion in post, freight, rail and pipeline
capacity, and

Decisive spatial transformation by changing the spatial patterns of apartheid and the
modernisation of human settlements in our province.
The 10-Pillars are:
No.
Component
1
Pillar
Radical economic transformation
2
Decisive spatial transformation
Transformation
3
Accelerated social transformation
4
Transformation of state and governance
5
Modernisation of the public service
6
Modernisation of the economy
Modernisation
7
Modernisation of human settlements and urban development
8
Modernisation of public transport infrastructure
9
Re-industrialisation of Gauteng province
Re-Industrialisation
10
Taking the lead in Africa’s new industrial revolution
Through the 10-Pillar programme the following spatial planning outcomes will be achieved:

Radically transform the spaces people live in by connecting and integrating places of
work and human settlements,

Turn the tide against the current spatial patterns of apartheid in pursuit of spatial
transformation and modernisation of human settlements in Gauteng province,

Transform the spatial configuration and landscape of Gauteng province through better
and coordinated land use management and spatial development,

Ensure that a new built environment and inclusive spatial landscape emerges across the
Gauteng City Region, and

Utilise public transport infrastructure development in order to create new integrated and
sustainable human settlements and post-apartheid cities that are more connected,
liveable, smart and green.
30
Gauteng 25 Year Integrated Transport Master Plan
A Gauteng 25-year Integrated Transport Master Plan was approved in 2013. The master
plan is aimed at developing and regulating an efficient and integrated transport system for
the province that was aligned to the GSDF,2011. The 25-Year Integrated Transport Master
Plan (ITMP25) proposes eight key interventions that will alter the spatial configuration of the
province:

Subsidised housing provision within urban core areas,

Land use densification in support of public transport,

Reinforcing the passenger rail network as the backbone of the system,

Extending the integrated rapid and road-based public transport networks,

Strengthening freight hubs,

Ensuring effective travel demand management,

Mainstreaming non-motorised transport, and

Ensuring continued provincial wide mobility.
Figure 22: The proposed public transport network
Source: Department of Roads and Transport, 2013
31
Gauteng Environmental Management Framework (Final Draft)
The final draft Gauteng Environmental Management Framework (GEMF) was submitted to
the National Department of Environmental Affairs for approval in terms of the National
Environmental Management Act (NEMA); Act 107 of 1998 in January 2015. The framework
utilised the GSDF 2011 and Gauteng Growth Management Perspective (GGMP) as a means
to direct land use/development and environmental management by taking into account
environmental legislation and constraints.
The framework guides protection and enhancement of environmental assets and natural
resources along with development patterns to ensure sustainable environmental
management and development patterns in and around the Gauteng Province. This policy
seeks to align sustainable development initiatives with environmental resources,
developmental pressures, as well as growth imperatives of Gauteng. It determines
geographical areas where certain activities can be excluded from an Environmental Impact
Assessment (EIA) process and identifies appropriate, inappropriate and conditionally
compatible activities in various Environmental Management Zones in a manner that
promotes proactive decision-making.
Figure 23: The Gauteng Environmental Management Framework
Source: Gauteng Department of Agriculture and Rural Development, 2015
32
Key findings: Overarching Policy Frameworks

Spatial restructuring is an important national and provincial tool to support economic
growth and investment decisions, employment creation and social cohesion,

Spatial Planning must improve spatial efficiency and sustainability in the province, which
in turn will enhance economic prosperity,

There should be a balanced approach towards urban and rural development. Although
Gauteng is a highly urbanised area, there are significant rural elements and these should
be leveraged as important spatial elements in the spatial planning process,

Urban sprawl should be managed in a sophisticated manner and possibly, reversed as
denser forms of development are more efficient in terms of land usage, infrastructure
cost and environmental protection,

Economic growth and its spatial manifestation should find ways of being more equitably
distributed across the GCR, including marginalised areas,

Ensure a much greater degree of spatial integration and complimentary coexistence
between disadvantaged areas and areas of economic activity, and

Spatial planning should assist with improved movement systems through improved
urban linkages and land-use and transportation integration around transport corridors in
support of Public Transport.
33
Part E: The Gauteng Spatial Perspective 2030
The Gauteng Spatial Perspective 2030 marks a new spatial vision for the GCR that guides
development and investment in the province. It takes a new approach to planning that is
underpinned by preceding policy frameworks. The GSP provides the roadmap to reach the
Vision through Goals and Strategic Pillars and Key Interventions.
Gauteng Spatial Perspective 2030 Vision
“A smart and spatially integrated City Region with high mobility where everyone enjoys equal
access to quality basic services, reside in sustainable human settlements that are
strategically located close to economic opportunities and offer a range of habitation options
that enable choices to ensure quality living experience”
Goals
Goal 1: Facilitate a spatial structure conducive to shared economic growth
Goal 2: Decisive spatial transformation of the Gauteng City Region
Goal 3: Ensure sustainable resource use and development
Goal 4: Realise a modernised and effective public transport system
Goal 5: Pursue an agreed spatial vision and coordinated planning processes and tools
Strategic Pillar
Goals & Strategic Pillars
34
Pillar 1: Spatial Structure Conducive to Growth
Focused revitalisation, re-industrialisation and modernisation of strategic economic nodes

Focus investment of revitalisation, re-industrialisation and modernisation initiatives on
the competitive advantages of localities, and

Spatial targeting of areas suitable for industrial development within the spatial structure.
Key Interventions
Strengthening Diversified Space Economy
Need to actively strengthen the diversified space economy by leveraging and strengthening
the competitive advantage of localities

Johannesburg – Financial hub, information and communication technology (ICT), trade
and services,

Ekurhuleni – Manufacturing and beneficiation, Aerotropolis and logistics and transport,

Tshwane – Administrative capital, knowledge and innovation, automotive industry
development,

West Rand – Agribusiness/agro processing, green and blue economy, and

Sedibeng - steel revitalisation, river tourism, R59 corridor development.
Township Economy Revitalisation
Transform townships into vibrant centres of economic opportunity and job creation through
the following strategic focus areas:

Ensuring an appropriate legal and regulatory framework,
35

Promoting manufacturing and productive activities,

Economic infrastructure support and clustered enterprise development,

Promoting entrepreneurship development,

Financing and investing in the township economy,

Promoting access to markets, and

Promotion of innovation and indigenous knowledge systems.
Re-industrialisation
Cluster re-industrialisation in specific parts of Gauteng

Blue Economy Initiatives focusing on energy, including the no black-out strategy, roads
rehabilitation, water, heavy industries such mining and automotive, housing,

Leverage new or strengthen existing manufacturing in Ekurhuleni,

Strengthen focus on research and development and motor vehicle manufacturing in
Tshwane,

Revive steel and related industries in Sedibeng, and

Develop a new Green Economy cluster in the West Rand.
36
Pillar 2: Decisive Spatial Transformation
Establish an urban edge and spatially target strategic nodes and corridors

Steer development towards existing and new well-located nodes, and

Physical expansion and / or intensification to be informed by bulk infrastructure
availability.
Figure 24: Propose Compact Urban Development
Key Interventions
Human Settlements
Need to end “RDP” developments by developing large-scale, sustainable settlements (Mega
Human Settlement Projects) on well-located land, with socioeconomic opportunities

38 mega projects over the mid-term expenditure framework (MTEF), in partnership with
the private sector, and
37

Lufhereng; Savannah City; Masingita City; Syferfontein; Ratanda; Boiketlong; and
Zithobeni.
Building new cities to pursue the development of new nodes through private, public and
public-private projects to transform the spatial form of the province

Sedibeng: River City, Gauteng Highlands, Savanna City, Arcerlormittal housing
developments,

Johannesburg: Modderfontein, Waterfall City, Steyn City, Lanseria, Masingita City,
Linksfield and River Sands,

West Rand: Thusanang City, Westonaria and Ebony Mine, and

Tshwane: New city in Nokeng, new Centurion City, Capital City Development.
38
Pillar 3: Sustainable Resource Use & Development
Employ spatial planning tools to ensure sustainability
Figure 25: Proposed consolidation of urban development in Gauteng Province
Source: Department of Economic Development, 2011
Key Interventions
Sustainability Initiatives

Direct new developments from encroaching on high-potential agricultural land and
environmentally sensitive areas,

Focus on advancing non-motorised transport,

Advance the use of alternative energy sources,

Promote green building technologies,

Manage water supply and water security in the GCR,

Promote demand management in relation to water, energy and solid waste, and

Move towards greening infrastructure.
39
Pillar 4: Modernised & Effective Public Transport
Focus on non-motorised transport and mass transit systems with rail as the backbone,
supported by Transit Orientated Development (TOD)

Enable reduction in travelling time and proportional income spent on transport,

Public or non-motorised transport advanced as the travel mode of choice,

Improve accessibility of marginalised areas to areas of economic opportunity, and

Promote transit-oriented development.
Key Interventions
Figure 26: ITMP25 - Proposed public transport network
Source: Department of Roads and Transport, 2013
40
Public Transport Interventions

Implementation of metropolitan Bus Rapid Transit (BRT) systems:
o Joburg Rea Vaya operational, Tshwane A Re Yeng operational late 2014; and
Ekurhuleni BRT in 2016,
o Need for interoperability of BRT systems across metros,
o Need for expansion into non-metro areas, and
o Acceleration of implementation of Ekurhuleni BRT systems.

PRASA upgrades:
o Essential for implementation of 25 year ITMP specifically moving passenger transport
from road to rail,
o Opening up Moloto Corridor,
o Opening Mabopane-Pretoria link,
o Branch-line improvement programme, and
o Assembly site for new rolling stock confirmed in Nigel.
Freight & Logistics
Increase economic efficiency by improving the regional flow of goods through the expansion
of freight and logistics hubs:

City Deep expansion currently underway,

Tambo Springs development being implemented,

Sentrarand and Pyramid part of existing plans, and

Possible further hubs in the West Rand and Sedibeng – Gauteng Infrastructure Funding
Agency (GIFA) concluding studies for Sedibeng and West Rand.
41
Pillar 5: Agreed Spatial Vision
Champion the shared spatial vision across the GCR to better leverage public/ private
investment opportunities and enable global competiveness

Utilise the Built Environment Performance Plans (BEPPs) and Municipal Spatial
Development Frameworks (MSDF) processes as vehicles for alignment within the
province to strengthen cross-border spatial planning and implementation across the
GCR,

Apply the Spatial Planning and Land Use Management Act (SPLUMA), and

Move towards using intelligent Geographic Information Systems (GIS) for sharing spatial
data as a uniform approach to planning and decision making in the GCR.
Key Interventions
Building the GCR

Building the GCR:
o Build the GCR from the bottom up – focus on three contiguous metros and their
spatial, transportation and economic links,
o Consolidate the disparate towns in the districts and strengthen linkages with the
metropolitan core, and
o Strengthen linkages to nodes outside the provincial boundaries – Witbank,
Sasolburg, Rustenburg and Potchefstroom/Klerksdorp.

Improve GCR governance and institutional arrangements:
o Progressively move towards a province of metros/single tier municipalities, and
o Strengthen intergovernmental structures.

Building the GCR:
o Build the GCR from the bottom up – focus on three contiguous metros and their
spatial, transportation and economic links,
o Consolidate the disparate towns in the districts and strengthen linkages with the
metropolitan core, and
o Strengthen linkages to nodes outside the provincial boundaries – Witbank,
Sasolburg, Rustenburg and Potchefstroom/Klerksdorp.
42

Consolidate a shared spatial vision for the GCR:
o Overarching Spatial Development Framework, and
o Aligned Municipal SDFs.

Establish GCR Planning Agency:
o Strategic, spatial and infrastructure planning,
o Policy development,
o Performance monitoring and evaluation, and
o Project management of game changing projects.

Creation of a GCR-wide GIS portal:
o Promote data-sharing within the GCR to ensure consistency and closing data gaps in
GPG, municipalities and other stakeholders, and
o Gateway/portal providing a single window for intelligent decision making choices in
the GCR.
43
Way Forward
The Gauteng Spatial Perspective (GSP) 2030 provides a basis and vision for spatial
planning in the GCR for the next 15 years. It also facilitates a dialogue on issues of
collective/collaborative, decisive and transformative spatial planning, infrastructure provision,
economic development and social cohesion that require decisive action during planning and
implementation.
To achieve a desired spatial form within the GCR that advances decisive spatial
transformation, re-industrialisation and modernisation, the province needs to review the
current GSDF. The review of the GSDF 2011 will facilitate a common vision for the GCR
through alignment and incorporation of new /latest policy imperatives as well as the latest
statistical data.
The Gauteng Planning Division (GPD) will outline a detailed process to review the GSDF in
collaboration with all relevant stakeholders.
44
Sources
1. Gauteng Department of Agriculture and Rural Development. (2015). Gauteng
Environmental Management Framework.
2. Gauteng Department of Economic Development. (2011). Gauteng Spatial Development
Framework. Retrieved from
http://www.gautengonline.gov.za/Publications/Gauteng%20Spatial%20Development%20
Framework%20-%202011.pdf
3. Gauteng Department of Roads and Transport. (2013). Gauteng 25-Year Integrated
Transport Master Plan.
4. Gauteng Office of the Premier. (n.d.). The Economy of Gauteng. Retrieved from
http://www.gautengonline.gov.za/Business/Pages/TheEconomyofGauteng.aspx
5. Gauteng Office of the Premier. 2014. Gauteng Growth Management Perspective.
Retrieved from
http://www.gautengonline.gov.za/Publications/Gauteng%20Growth%20Management%20
Perspective%202014.pdf
6. Gauteng City Region Observatory (GCRO). (2011). Quality of life Survey. Retrieved from
http://www.gcro.ac.za/project/quality-life-survey
7. Gauteng City Region Observatory (GCRO). (2012). Key findings from Statistics South
Africa’s 2011 National Census for Gauteng. GCRO DATA BRIEF: No.1 of 2012
8. National Department of Cooperative Governance and Traditional Affairs. (2014).
Integrated Urban Development Framework Draft for Discussion.
9. National Department of Rural Development and Land Reform. (2014). Gauteng Rural
Development Plan 2014.
10. Statistics South Africa. (2011). Census 2011.
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