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Terms of reference for the appointment of a service provider(s) to review
A municipal spatial development framework (sdf) for sedibeng district
Municipality, within a period of twelve (12) months, gauteng province.
1.1. The Department of Land Reform and Rural Development (DLRRD) under the Branch Spatial
Planning and Land Use Management (SPLUM) needs to appoint a service provider(s) to
review the Spatial Development Framework (SDF) for the Sedibeng District Municipality
(SDM) which is located within the Gauteng Province.
1.2. DLRRD seeks to appoint a suitably qualified and experienced service provider(s), primarily
Town/Urban/City and Regional Planners, complimented by a team of other experts (outlined
in section 8) for a period of twelve (12) months to render professional services in reviewing
and preparing the SDF for SDM.
- Problem statement
2.1 In 2019 the SDM adopted a Spatial Planning and Land Use Management Act,
(SPLUMA) compliant SDF with a 2030 vision. According to SPLUMA, the Sedibeng SDF was
scheduled for reviewed in 2024. However, this review was delayed pending the promulgation
of the Vaal River Regional Spatial Development Framework, 2025. Given the timelines for
SDF review and adoption, it is now necessary to initiate the review process for the Sedibeng
Sdf.
2.2 As a result of an ever-changing policy and legislative environment, there is a need to align to
the National SDF, 2023 (2050), the newly adopted Gauteng SDF, 2025 (2055) as well as the
Vaal River Regional SDF, 2025.
2.3 The local municipalities within the district have or are in the process of developing forward
planning transformation tools which necessitates the need for the district to be proactive and
align to the spatial direction for growth and development in the region. This also necessitates
the need for mapping updates.
2.4 A district SDF must be reviewed in accordance with a 5-year cycle aligned with the Integrated
Development Plan (IDP) of the district municipality. Furthermore, the district economic focus
and strategic direction has shifted from north to south to focusing on the Vaal River as an
economic pivot for the Vaal region.
2.5 The Spatial Planning section of the district lacks the capacity to conduct extensive review and
public participation that is involved in the compilation of a Municipal SDF. Additionally, there
is a need for an increased external perspective on the drafting of spatial planning policies to
ascertain that the municipality keeps abreast with new ideas and innovations.
3.BACKGROUND And locational context
3.1 Section 12 of SPLUMA requires all spheres of government (National, Provincial and
Municipalities) to develop SDFs. Section 20 of SPLUMA, read together with Section 26 of the
Municipal Systems Act, (MSA) requires that the Municipal Council, after
consultation with relevant stakeholders, must prepare and adopt the SDF as a core
component of their IDP.
3.2 SDM is a Category C municipality in southern Gauteng, South Africa, covering 4,173 km2 and
known as the "Vaal". The district municipality is located in the southern extent of the Gauteng
Province. The municipality comprises of the Lesedi, Midvaal and Emfuleni Local
Municipalities that form the jurisdiction of SDM. The district municipality is surrounded by
three provinces Free State to the south, Mpumalanga to the east and North West to the
western part. It is the only part of the province situated on the banks of the Vaal River and
Vaal Dam.
3.3 SDM is serviced by key national and provincial routes acting as major economic corridors,
primarily the N1 (Johannesburg-Bloemfontein), N3 (Johannesburg-Durban), N17
(Johannesburg-Ermelo) and the R59 (Alberton-Sasolburg). Other crucial arterial routes
facilitating local and regional movement include the R42, R54, R82 and the R553 (Golden
Highway).
- The legislative framework
4.1 The Spatial Planning and Land Use Management Act (SPLUMA)
SPLUMA is a legislation that gives a framework for all spatial planning and land use
management in South Africa. It seeks to promote consistency and uniformity in procedures
and decision-making pertaining to issues such as spatial planning and land use management.
Other objectives include addressing historical spatial imbalances and the integration of the
principles of sustainable development into land use, planning regulatory tools and legislative
instruments.
4.1.1 SPLUMA requires national, provincial, and municipal spheres of government to prepare
SDFs that establish a clear vision that must be developed through a thorough inventory and
analysis based on national spatial planning principles and local long-term development goals
and plans. Section 12(2) of SPLUMA confirms that all three spheres must participate in each
other’s processes of spatial planning and land use management and each sphere must be
guided by its own SDF when taking decisions relating to land use and development.
4.1.2 Chapter 4 Part A of SPLUMA sets out the focus and general requirements that must guide
the preparation and compilation of SDF products at various scales. Section 20 and 21 gives
a clear requirement for the amendment of municipal SDFs.
4.1.3 An SDF adopted in terms of SPLUMA must guide and inform the exercise of any discretion
or of any decision taken in terms of this Act or any other law relating to land use and
development of land by that sphere of government.
4.1.4 In the content of the SDF, Section 21 of SPLUMA states amongst others that a Municipal
SDF must:
a) give effect to the development principles and applicable norms and standards set out in
Chapter 2.
b) include a written and spatial representation of a five-year spatial development plan for the
spatial form of the municipality.
c) include a longer-term spatial development vision statement for the municipal area which
indicates a desired spatial growth and development pattern for the next 10 to 20 years.
d) identify current and future significant structuring and restructuring elements of the spatial
form of the municipality, including development corridors, activity spines and economic
nodes where public and private investment will be prioritized and facilitated.
e) include population growth estimates for the next five years.
f) include estimates of the demand for housing units across different socio-economic
categories and the planned location and density of future housing developments.
g) include estimates of economic activity and employment trends and locations in the
municipal area for the next five years.
h) identify, quantify and provide location requirements of engineering infrastructure and
services provision for existing and future development needs for the next five years.
i) identify the designated areas where national or provincial inclusionary housing policy may
be applicable.
j) include a strategic assessment of the environmental pressures and opportunities within
the municipal area, including the spatial location of environmental sensitivities, high
potential agricultural land and coastal access strips, where applicable.
k) identify the designation of areas in the municipality where incremental upgrading
approaches to development and regulation will be applicable.
l) identify the designation of areas in which:
(i) More detailed local plans must be developed
m) provide the spatial expression of the coordination, alignment and integration of sectoral
policies of all municipal departments.
n) determine a Capital Investment Framework (CIF) for the municipality’s development
programmes, depicted spatially.
o) determine the purpose, desired impact and structure of the land use management scheme
to apply in that municipal area; and
p) include an implementation plan, comprising of:
(i) Sectoral requirements, including budgets and resources for implementation.
(ii) Specification of institutional arrangements necessary for implementation.
(iii) Specification of implementation targets, including dates and monitoring indicators;
and
(iv) Specification, where necessary, of any arrangements for partnerships in the
implementation process.
4.2 The Municipal Systems Act, (MSA)
4.2.1 The Local Government MSA, first introduced the concept of the Municipal SDF- as a
component of the mandatory IDP that every municipality must adopt.
4.2.2 The provisions of the MSA that deal with Municipal SDFs must be read closely with the
relevant provisions, especially Part E, of SPLUMA. While the MSA establishes the core
features of the Municipal SDF, SPLUMA adds detailed provisions.
4.2.3 Two elements of the MSA’s treatment of Municipal SDFs should be noted:
a) Chapter 5 of the Act deals with integrated development planning and provides the
legislative framework for the compilation and adoption of IDPs by municipalities.
Within the same chapter, section 26 (e), specifically requires an SDF as a mandatory
component of the municipal IDP. The rest of the chapter’s provisions on IDPs thus
apply to SDFs as well.
b) In 2001, the Minister for Provincial and Local Government issued the Local
Government: Municipal Planning and Performance Management Regulations. Within
these regulations, Regulation 2 (4), prescribes the minimum requirements for a
Municipal SDF.
- Objectives
5.1 The key objective of the project is to appoint a service provider to review the SDF for the SDM
within a period of twelve (12) months that should: -
a) Provide a clear and comprehensive Reviewed SDF for the SDM.
b) Inform, improve and guide cross-sectoral policy or project implementation and
integration.
c) Provide a reviewed strategic spatial development vision for the municipality in line with
the broad development objectives of National and Provincial policies.
d) Indicate in as much detail as possible to members of the public and others with an
interest in the municipality, the desired spatial form for the municipality.
e) Indicate planning, environment, infrastructure and institutional issues that gave rise to
the proposals contained in the final reviewed document and provide all stakeholders
an opportunity to participate during the process of formulating the Reviewed SDF.
f) To provide a spatial reflection of the needs and priorities established in the IDP and
identify specific issues which are unique to the district municipalities.
g) To address rural development issues such as the integration with urban areas, the
provision of social and economic amenities, the provision of infrastructure and
involvement during the public participation process.
h) To provide long-term strategic mechanisms on: -
i). Identifying areas for economic opportunities, particularly for industrial,
commercial and agriculture.
ii). To identify infrastructure needs and services constraints and bring forward
tangible solutions to address these constraints.
iii). Accommodate the growing housing needs considering the need for
development of various housing typologies and programmes (e.g. “Gap
Housing”, social housing, FLISP, etc.)
iv). Protection of natural environment e.g. Conservation Corridors, Green Wedges,
hydrological resources, biodiversity areas, etc.
6.1 The successful service provider(s) would be expected to undertake the following towards the
review of the SDF: -
a) Conduct a status quo analysis which will entail but not limited to sectoral and spatial
analysis, policy analysis and gap analysis of the current Sedibeng District MSDF, 2019.
b) Review the Spatial Vision for the SDF, in line with the Municipal IDP, District Development
Model (One Plan) and other provincial/national policies. The Spatial Vision will be subject
to consultation with the municipality and various stakeholders.
c) Review the spatial challenges, options and proposals for the municipality taking into
cognisance the local circumstance, local policies, local economic challenges and
development, provincial and national policies and strategies. The options must also
consider government priority programmes from all relevant spheres of government, such
as the Strategic Infrastructure Projects, the relevant District Development Model (One
Plan) etc.
d) The envisaged outcome of this exercise is the review of Spatial Options that will inform
the SDF review and also highlight and identify visible changes, trends, and their
opportunities, conflicts and tensions and how they can be addressed. The SDF review
should also provide guidance to township modernisation and township economic
revitalization processes in alignment to the relevant legislation and policies.
e) Compile a CIF that is aligned to the proposals contained in the SDF review.
f) The SDF review must also include an Implementation Plan with timelines and a detailed
CIF that identifies the responsibilities for its implementation both within and outside the
municipality.
g) The CIF must-:
i). Identify Functional Areas (FA) and Priority Development Areas (PDAs).
ii). Undertake developmental and socio-economic profiling for the municipality, as well
as each Functional Area.
iii). Compile a list of all infrastructure development programmes identified through the
Municipal SDF based on own quantification.
iv). Confirm the appropriateness of the SDF vision and long-term spatial structure for
the municipality as an input to the prioritisation and budget alignment of the
municipality.
v). Prepare programmatic and project-based responses per sector based on the land
budget and residential and commercial growth estimates, to identify capital
investment requirements and backlogs.
vi). Develop a long-term financial plan, with a planning horizon of 10-years.
vii). Compile an affordability envelope and optimal capital funding mix.
viii). Structure capital investment programmes per Functional Area.
ix). Compile a CIF for a 10-year horizon based on spatially-prioritisation, and
x). Conceptualise a 3-year Medium Term Revenue and Expenditure Framework with
project and programmes which will serve as the municipal capital budget.
h) The service provider shall comply with the relevant requirements of Section 21 of
SPLUMA together with the above-mentioned CIF requirements as determined by DLRRD
and SDM and furnish them with the required documents referred to in Section 21.
i) Develop a stakeholder engagement plan for the various consultation processes with
various stakeholders, including government, private sector and any other stakeholders
throughout the lifespan of the project. The service provider should cater for additional
unplanned meetings that may be required for the duration of the project.
j) The service provider will also be required to assist the municipality in finalizing any
documents for the presentation of the SDF review in various committees towards/and for
the adoption by Council.
k) The Service Provider is responsible for ensuring that the final gazette notice is published
once the SDF review is approved and adopted by Council.
- Deliverables
7.1 The appointed service provider will be required to deliver the following to the DLRRD and the
Sdm: -
a) A final reviewed SDF with amended Spatial challenges and opportunities, Spatial vision,
Spatial options and proposals/concepts with related mapping submitted in digital format
and a full colour hard copy (word and pdf).
b) CIF and Implementation Plan (Graphically Illustrated) for approval by Council.
c) Executive Summary Document for incorporation into the IDP.
d) A reviewed SDF textual document including all maps, tables and figures, CIF,
Implementation Plan and image files (e.g. JPEG, windows Bitmap, GIF, etc) in both
hardcopy document (printed), and softcopy (electronic as MS word document) must also
be supplemented by:
Item Description Quantity
Final reviewed A4 (Glossy front and back, full colour) X30 Hard
SDF Booklets,
- Final Reviewed SDF and CIF copies
CIF and
- Cover: 250 gsm Hi-Q Titan double-coated gloss
Implementation
- Text printed: 113 gsm Hi-Q Titan double-coated
Plan gloss
Final reviewed Soft copies of all the above must be provided X30 USBs
SDF, CIF and (Print ready artwork of final SDF)
Implementation
Plan soft
copies
SDF Maps A0 (Glossy front and back, full colour) x6
Roll-up Banner ±2000mm x850 mm (Retractable stand, full colour) x3
Posters A0 (Laminated, full colour) x3
Spatial data GIS Information (spatial information collected and X30 USB and
inclusive of derived should be submitted in GIS capable file format shared via
including. shapefiles, geo-database, layer file, data Map package drop-box link
package, APRX files and must include metadata in SDF
records (database) captured in line with the South Africa
Document National Standard (SANS -1878). Spatial information
captured must be in line with Regulation 5(2) of the
Spatial Data Infrastructure Act, 2003.
Table 1: DOCUMENT REQUIREMENTS
7.2 The service provider will be responsible for the layout design and editing of the publication,
ensuring it aligns with the municipal corporate identity. The project manager must sign off on
the final document before it is printed in line with the above referred specifications.
7.3 All spatial data collected should be submitted in a GIS map package and/or Project Package
and include geodatabases data instead of referencing the data (geodatabases, layer files,
and files for use in a GIS environment). The GIS file format must have clear metadata that
describes each Spatial Development Framework construct differently and should include the
purpose of each construct. Metadata for all spatial information should be provided as per the
metadata standard ISO 19115 & SANS 1878. All metadata must be Published on the
electronic metadata catalogue after approval. https://catalogue.sasdi.gov.za/emc. Ownership
of all metadata, data and spatial information generated and collected from this assignment
vests in DLRRD and SDM. DLRRD and SDM will become the custodian of all spatial
information collected.
7.4 Where base data set is used, the service provider must retain all mandatory reference fields
for that base data set (e.g. if cadastral data is used to assign zoning, the 21-digit code, TAG-
Value, should be maintained).
7.5 All geospatial information used or created during the project must be submitted to the DLRRD
and SDM unless there is a limitation prescribed by a license agreement. Where such
limitations exist, the service provider must inform DLRRD.
7.6 All geospatial data, products, and services must comply with the prescripts of the Spatial Data
Infrastructure Act, , its Regulations and Policies.
7.7 Where a service provider used graphics to represent proposals, such should be converted
into GIS format, and data must be inclusive of all spatial proposals made.
7.8 All datasets must be in a geographic coordinate system form in the Hartebeeshoek94 system.
7.9 All points proposals (e.g. nodes), line proposals (e.g. corridors) and polygon proposals (e.g.
urban edges) must be in one GIS data file. Such file must include the following attributes: ID,
Title and Description. A service provider must add additional attributes where necessary.
7.10 The GIS data must further meet the following requirements: -
a) All maps should be in A4 size in the document.
b) Maps must be numbered and listed in the table of contents.
c) All the text in the maps and the legends must be legible.
d) The same map template/ layout must be used throughout the document.
e) All maps should have the basic map elements, namely: a title, north arrow, legend,
scale bar.
f) All the features on the map must be explained in the legend.
g) All mapping must be developed at an appropriate and readable scale.
h) All maps must also be available in Power point Presentation format as well as the
corresponding ArcGIS Pro Project File (APRX) with all spatial information in
shapefiles or a geodatabase ready to be accessed in ArcGIS.
- Skills requirements
8.1 Companies with individuals with qualifications and extensive experience will be required as
detailed in Table 2 and in section 8.1 and 9 respectively.
Table 2: MINIMUM QUALIFICATIONS REQUIRED BY THE DLRRD
No. Minimum Qualification Key Skill Set Registration