Municipal Support and Intervention Framework Presentation to the - - PowerPoint PPT Presentation

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Municipal Support and Intervention Framework Presentation to the - - PowerPoint PPT Presentation

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Municipal Support and Intervention Framework Presentation to the SMS conference MUNICIPAL SUPPORT & INTERVENTION FRAMEWORK Roll Out Plan Ad hoc Structured & Define Categorisation support focused of municipalities Support &

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SLIDE 1

Municipal Support and Intervention Framework Presentation to the SMS conference

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SLIDE 2

MUNICIPAL SUPPORT & INTERVENTION FRAMEWORK

Ad hoc support approach Structured & focused support

Categorisation

  • f municipalities

Define Support & Intervention Setting up of Support Providers Forum Data base of Support Providers & Partners Deployment Strategy Types of Support & Intervention Municipal Support Plan Launching

  • Data base
  • Forum
  • Framework

Department

  • MS Unit
  • MRE Unit

District level Municipal Support Units

Roll Out Plan

  • A. Consultation
  • Staff
  • MEC
  • SALGA
  • Municipalities
  • Cabinet Committee
  • Portfolio Committee
  • B. Data base

(Partners & and Support Providers)

  • C. Launching

Municipal Support & Intervention Framework

  • D. Launching

Support Providers’ Forum

  • E. Mun Support Plan

Authority Functions

  • F. Establish Units
  • Support Units
  • MRE Unit
  • G. Piloting

Piloting Framework in selected categories Principles of Support & Intervention

  • Mainstreaming & promotion of integration
  • Short & long term to optimise effectiveness
  • Seek out the most vulnerable (capacity levels)
  • Addresses the needy (respond to the needs identified)
  • Build resilience
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SLIDE 3

Presentation overview

This report comprises four main sections:

  • 1. The first presents a context of municipalities in the

Eastern Cape and presents types of municipal support and intervention.

  • 2. The second presents a framework for strengthening

municipal support and intervention functions.

  • 3. The third applies the framework to DLGTA at a broad

level.

  • 4. The fourth outlines a road map for institutionalising the

function.

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SLIDE 4

Types of municipalities in the Eastern Cape

Categorising municipalities:

– Based on monitoring, municipalities can be categorised into those that require different types of support. – In the interim, a desktop categorising method can be used:

  • A: Metros (1)
  • B1: Secondary cities (1)
  • B2: Local municipalities with a large town as core (3).
  • B3: Local municipalities with small towns, with relatively small

population and significant proportion of urban population but with no large town as core (18).

  • B4: Local municipalities which are mainly rural with communal tenure

and with, at most, one or two small towns in their area (16).

  • C1: District municipalities which are not water services authorities (1).
  • C2: District municipalities which are water services authorities (5).
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SLIDE 5

Categorisation of municipalities

A Nelson Mandela Metropolitan Municipality B1 Buffalo City Local Municipality B2 Makana Local Municipality B2 Lukhanji Local Municipality B2 King Sabata Dalindyebo Local Municipality B3 Camdeboo Local Municipality B3 Blue Crane Route Local Municipality B3 Ikwezi Local Municipality B3 Ndlambe Local Municipality B3 Sunday's River Valley Local Municipality B3 Baviaans Local Municipality B3 Kouga Local Municipality B3 Kou-Kamma Local Municipality B3 Great Kei Local Municipality B3 Amahlati Local Municipality B3 Nkonkobe Local Municipality B3 Nxuba Local Municipality B3 Inxuba Yethemba Local Municipality B3 Tsolwana Local Municipality B3 Inkwanca Local Municipality B3 Sakhisizwe Local Municipality B3 Maletswai Local Municipality B3 Gariep Local Municipality B4 Umzimkhulu Local Municipality B4 Umzimvubu Local Municipality B4 Mbhashe Local Municipality B4 Mnquma Local Municipality B4 Ngqushwa Local Municipality B4 Intsika Yethu Local Municipality B4 Emalahleni Local Municipality B4 Engcobo Local Municipality B4 Elundini Local Municipality B4 Senqu Local Municipality B4 Mbizana Local Municipality B4 Ntabankulu Local Municipality B4 Qaukeni Local Municipality B4 Port St Johns Local Municipality B4 Nyandeni Local Municipality B4 Mhlontlo Local Municipality C1 Cacadu District Municipality C2 Amatole District Municipality C2 Chris Hani District Municipality C2 Ukhahlamba District Municipality C2 O.R.Tambo District Municipality C2 Alfred Nzo District Municipality

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SLIDE 6

Types ctd

2 4 6 8 10 12 14 16 18 A B1 B2 B3 B4 C1 C2

1 2 3 4 5 6 7 8 Cacadu (C1) Amathole (C2) Chris Hani (C2) Ukhahlamba (C2) O.R.Tambo (C2) Alfred Nzo (C2) B1 B2 B3 B4

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SLIDE 7

Type of municipal support

Establishment Consolidation Sustainability

A C2 C1 B1 B2 B4

Light

Support Intervention

C r i s i s

Intense General

B3

C r i s i s

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SLIDE 8

Light support

  • Light support:

– This refers to support offered to municipalities in improving performance and implementing new policies and legislation. This type of support is relevant to municipalities that are generally functioning well (sustainability phase) and can implement new policies and legislation through appointing the required skills with the support of grants and some technical assistance from provincial and national

  • government. Generally, such municipalities can appoint

and manage consultants to undertake tasks in which they do not have the required capacity.

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SLIDE 9

Medium support

  • Medium support:

– This is applicable to municipalities that are gradually establishing themselves and are steadily improving their performance, but nonetheless require support to reach and complete the consolidation phase. This is typically related to a specific problem. Here there are two sub-sets:

  • Short term organisational building focussing on specific problems

that occur within the institution and can be resolved through short term technical support.

  • Medium term gap filling involving support to institutions in delivering
  • services. It is relevant both to institutions that are established and

functioning and those that are still being established, but can’t upscale their delivery without additional support through the placement of technical assistance teams (programme management units), often with skills from the private sector.

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SLIDE 10

Intense support

  • Intense support:

– This is a component of hands on support and is focussed on those municipalities which are still effectively in the establishment phase – and grappling with quite severe problems. Municipalities may also be in sustainability or consolidation phases but are facing severe problems. There are two sub-types: – Long term organisational building which is likely to include political, strategic and operational components. This acknowledges that there are no structural or environmental constraints to this capacity being built over the medium to longer term. – Long term gap filling is relevant to those institutions which are not able to ever attract the required skills (in the medium to long term) due to broader structural and environmental (geographical location and population densities) constraints. This limits them from recruiting skills on a full-time

  • basis. It is acknowledged that it is better in these environments to appoint a

qualified engineer, for example, for one day a week rather than an unqualified person to try and fulfil this function. This requires capacity from another institution to be deployed on an ongoing basis to fill the gaps that

  • exist. An example of this is a shared service centre.
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SLIDE 11

Municipal Intervention

  • Intervention as a legal instrument is the unilateral

interference by one sphere into the affairs of another sphere in order to remedy an unacceptable situation.

  • Last resort, only after all other options for resolving the

issue have been exhausted.

  • Legal base for intervention into local government by

provinces is S139 of the Constitution and sections of the MFMA Principles of Integration

  • Mainstreaming & Promotion of Integration
  • Long term approach to optimise effectiveness
  • Seek out the most vulnerable & build resilience
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SLIDE 12

Types of intervention

  • Four types of intervention:

– Regular interventions in response to a crisis that is not strictly financial in nature (failure to fulfill an executive

  • bligation). Managed by MEC for LG;

– Intervention in response to a municipality having serious financial problems (financial recovery plan). Managed by MEC for LG; – Intervention in response to a municipality failing to adopt a budget or revenue-raising measures. Managed by MEC for LG; – Intervention in response to a municipality experiencing a crisis in financial affairs. Managed by MEC Finance.

  • Distinction between substantive and procedural

aspects re the above.

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SLIDE 13

Pre-requisites to support and intervene

  • Concept of authority and providers:

– Norms and standards – Framework and targets – Support & intervention – Co-ordination and mobilisation – Monitoring & evaluation

  • These are regarded as AUTHORITY FUNCTIONS and are

performed by government.

  • PROVIDER FUNCTIONS are performed by service

providers

  • On the following slide support methodology is given:
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SLIDE 14

Concept

Targets

1

Performance Assessment

2

Diagnose

3

Medium

b

Intense

c

Intervention

d

Light

a

Co-ordination & mobilisation

4

Private sector Professional associations & retired professionals Parastatals (DBSA) Donors & international volunteers Sector departs SALGA

Deployment strategy

5

Detailed planning & implementation

6

Municipal Performance

2

Knowledge sharing

10

Norms & standards

7 Tools & guidelines

8

Monitoring & evaluation

9

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SLIDE 15

Components

  • Targets:

– Two main informants to targets:

  • National targets from national policies and programmes.
  • Provincial targets.
  • Performance assessment:

– Assessment, based on KPIs (that will include the targets listed above), will define where the municipality is located in terms of establishment, consolidation and sustainability. – Dplg currently busy with work on M&E, core set of indicators have been defined which can form the basis of departmental indicators for monitoring.

  • DM & LM support programmes:

– Having conducted the assessment, it is then possible to define broad municipal support programmes for district and local municipalities.

  • Diagnose:

– Relevant mostly to municipalities in the establishment and consolidation phases. – Deeper assessment of performance and the reasons behind such performance. – Encompasses a number of steps.

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SLIDE 16

Components ctd

  • Co-ordination and mobilisation:

– Once municipalities have been identified for different types of support, support role- players can be mobilised and co-ordinated.

  • Deployment strategy:

– Required in order to create consistency amongst the various role-players who have been mobilised to provide support. – Needs to include some orientation and training.

  • Detailed planning and implementation:

– Once on site, detailed planning and implementation is undertaken.

  • Monitoring and evaluation:

– Ongoing monitoring on achievement of outputs. – Evaluation of effectiveness of support provided.

  • Norms and standards:

– Norms and standards for the way in which support and intervention is implemented bring uniformity when there are different providers.

  • Tools and guidelines:

– Tools and guidelines have/need to developed/rationalised to assist with implementation of support and intervention.

  • Knowledge sharing:

– Sharing of experiences and knowledge across the system is required.

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SLIDE 17

Prioritising Municipal Support

Establishment Consolidation Sustainability

A C2 C1 B1 B2 B4

Light

Support Intervention

C r i s i s

Intense General

B3

C r i s i s

Municipality back

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SLIDE 18

DM Municipality M S P (p h a s e 2 ) M M P E C M S S D H L G T A P ro je c t C

  • n

s

  • lid

a te P ro v in c ia l T re a s u ry O ffic e

  • f th

e P re m ie r U N D P C

  • rp

la n N B I E C S E C C S A L G A R U L IV P IM S S M a s ib a m b a n e IS R D P U R P P ro je c t C

  • n

s

  • lid

a te P C B illin g S iy e n z a M a n je M F M T A P E N E R G Y S IM F O C M T P A m a th

  • le

M S U

Nelson Mandela Metropolitan Municipality

y y y y y y y y

Cacadu District Municipality

y y y y

Makana Local Municipality

y y y

Camdeboo Local Municipality

y y y y

Blue Crane Route Local Municipality

y y y y y

Ikwezi Local Municipality

y y y y y y

Ndlambe Local Municipality

y y y y y

Sunday's River Valley Local Municipality

y y y y y

Baviaans Local Municipality

y y y y y

Kouga Local Municipality

y y y y y

Kou-Kamma Local Municipality

y y y y y y y

Amathole District Municipality

y y y y

Buffalo City Local Municipality

y y y y y y y

Great Kei Local Municipality

y y y y

Amahlathi Local Municipality

y y y y y

Nkonkobe Local Municipality

y y y y

Nxuba Local Municipality

y y y y y

Mbhashe Local Municipality

y y y y y y y y y

Mnquma Local Municipality

y y y y y y y y y y

Ngqushwa Local Municipality

y y y y

Chris Hani District Municipality

y y y y y y

Lukhanji Local Municipality

y y y y y y y

Inxuba Yethemba Local Municipality

y y y y

Tsolwana Local Municipality

y y y y

Inkwanca Local Municipality

y y y

Sakhisizwe Local Municipality

y y y y y y

Intsika Yethu Local Municipality

y y y y y

Emalahleni Local Municipality

y y y y y

Engcobo Local Municipality

y y y y y y

Ukhahlamba District Municipality

y y y y y y

Maletswai Local Municipality

y y y y

Gariep Local Municipality

y y y

Elundini Local Municipality

y y y y y y y

Senqu Local Municipality

y y y y

O.R.Tambo District Municipality

y y y y y y y y y

King Sabata Dalindyebo Local Municipality

y y y y y y y y

Mbizana Local Municipality

y y y y y y y

Ntabankulu Local Municipality

y y y y y y

Qaukeni Local Municipality

y y y y y y y

Port St Johns Local Municipality

y y y y y y y

Nyandeni Local Municipality

y y y y y y

Mhlontlo Local Municipality

y y y y y y

Alfred Nzo District Municipality

y y y y y y y

Matatiele

y y y y

Umzimvubu Local Municipality

y y y y y y Provincial Historical Current National

Municipal Support Programmes

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SLIDE 19

DM KPA Project Consolidate PIMSS ISRDP URP MFMTAP Masibambane Siyenza Manje ENERGYS IMFO CMTP DHLGTA Provincial Treasury Thina Sinakho OTP UNDP Corplan PSAM ECSECC SALGA NBI Fort Hare RULIV ADM MSU Service delivery y y y y y y y y y y y y Local economic development y y y y y y y y y Financial viability y y y y y y y y y Institutional transformation y y y y y y y y y y y Good governance y y y y y y y y y National Provincial

Municipal Support Programmes per KPA

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SLIDE 20

Working with districts

  • Two types of districts in terms of support:
  • Type 1 refers to those districts that already have an institutional

response to supporting local municipalities (Amathole and Cacadu). These districts can be used as the “implementing agents” for DLGTA in support to local municipalities.

  • Type 2 refers to those districts that do not yet have an

institutional response to supporting local municipalities (OR Tambo, Alfred Nzo, Chris Hani and Ukhahlamba). Here, DLGTA will need to support these districts to develop support programmes to local municipalities. This may well require intense hands-on support in certain cases.

  • Establishment or strengthening of District IGR

Forums & capacity building

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SLIDE 21

IMPACTS OUTCOMES OUTPUTS INPUTS ACTIVITIES

The developmental results of achieving specific outcomes The medium-term results for specific beneficiaries that are the consequence

  • f achieving specific outputs

The final products, or goods and services produced for delivery The processes or actions that use a range of inputs to produce the desired

  • utputs and ultimately outcomes

The resources that contribute to the production and delivery of

  • utputs

What we use to do the work? What we do? What we produce or deliver? What we wish to achieve? What we aim to change?

Plan, budget, implement and monitor Manage towards achieving these results

IMPACTS OUTCOMES OUTPUTS INPUTS ACTIVITIES

The developmental results of achieving specific outcomes The medium-term results for specific beneficiaries that are the consequence

  • f achieving specific outputs

The final products, or goods and services produced for delivery The processes or actions that use a range of inputs to produce the desired

  • utputs and ultimately outcomes

The resources that contribute to the production and delivery of

  • utputs

What we use to do the work? What we do? What we produce or deliver? What we wish to achieve? What we aim to change?

Plan, budget, implement and monitor Manage towards achieving these results

Logic Model Pyramid

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SLIDE 22

Government Wide MRE Logic Model for Local Government (July, 2007)

Annual Performance Plans Operational Plans Ongoing monitoring & reporting Strategic Plans

BETTER LIFE FOR ALL (a)

Transformed and Organisationally Developed Municipalities (b) Communities receive Basic Services (c) Developed Local Economies that meet the needs of the communities (d) Financially viable and well managed municipalities (e) Public Participation and compliance to Good Governance practices (f)

Ultimate Outcomes Realise Benefits

District and Local Municipalities & other institutions comply with policy, guidelines, regulations,strategies, plans, frameworks and standard operating procedures (g) District municipalities design, implement, manage, monitor & report against IDPs (h) Local municipalities design, implement, manage, monitor, report on district IDPs (i)

Intermediate Outcomes Direct Outcomes Activities and Outputs

DLGTA & partners establish an appropriate mix of policy, research, regulations, support and resources that are available to district and local municipalities and institutions (i.e. a well designed DMLM Support Programme) (k) District and local municipalities and institutions are aware of available policy, research, regulations, support and resources (l) District and local municipalities and institutions are enabled (supported, resourced & capacitated) to design, implement, manage & report against plans (m) Policy & Research (n) Policy, guidelines, strategies, plans, frameworks, standard operating procedures Profiles, reviews, progress reports Partnerships, consultations, committees Regulations (o) Legislation, norms and standards Support (p) Training sessions, workshops, toolkits, hands on support, knowledge sharing Resources (r) Conditional Grants, grants, fiscal transfers, donor support MRE systems Performance Management Systems Human Resources Corporate Governance and Administration

Impact

South African Local Government Association, South African Management Development Institute, Provincial Treasury, Sector Departments, Department

  • f Provincial and Local Government, Municipalities, Donors, NGOs, Provincial State Owned Enterpreses, Development Bank of Southern Africa.

Co-delivery partners

APPLYING LOGIC MODEL TO DLGTA

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SLIDE 23

Logic Model - Narrative

Make Logic Model more readable and clear

The branch, Developmental Local Government, together with partners, will deliver a number of activities and outputs under the headings of policy and research, regulations, support and resources that collectively comprise a district and local municipal support programme. This will result in DMs and LMs being able to adequately prepare and implement their IDPs which will ensure that delivery is improved within the five KPAs which collectively contribute to a better life for all. When applying the LOGIC model to the APP, it became clear that there were some gaps around:

  • How the department would institutionalise its support, intervention &

monitoring function.

  • Measurable objectives tended to focus on outputs at the municipal level,
  • How the department will implement support measures to achieve these
  • utputs.
  • Integration of Municipal & Departmental Plans with Provincial & National

Plans

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SLIDE 24

Applying framework to DLGTA: Authority functions

The graph illustrates the current organogram in the context of authority functions

5 10 15 20 25 30 35 Norms & Standards Monitoring & Oversight Framework & targets Co-ordination & mobilisation Support Intervention

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SLIDE 25

Authority functions ctd

  • Intention to provide strong monitoring, co-ordination and

support functions:

– Functions within different directorates & sub-directorates – issues of co-ordination, duplication & inefficiencies? – Elevate these functions

  • Norms & standards?
  • Framework & targets?
  • Intervention:

– Intervention function very weak – sub-division (good governance) of municipal administration directorate called municipal interventions. – However, staff can be deployed to assist with interventions. – Further work required on analysing previous interventions undertaken by province.

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SLIDE 26

Provider functions

  • Wide range of existing institutions providing

support

  • Absence of authority functions is limiting their

impact

  • Refer to Slides 16 – 17 above
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SLIDE 27

Institutionalising the Framework

  • In order to institutionalize the framework, a number of steps are

required related to establishment activities. Once established and institutionalized, the framework will then become part of the Department’s ongoing planning processes. On the following slide, these steps are illustrated in the form of a “roadmap”.

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SLIDE 28

`

Year 3: Full Roll-out Year 1: Framework & Consultation

Consultation Evaluation and refinement

Year 2: Pilot

Framework for Support & Intervention 1 2 1st Municipal Assessment MR&E Framework & targets DM & LM Pilot Support Programmes in each category Refined DM & LM Support Programmes Mobilisation 3 Training of staff Institutionalised Function 7 6 8 5 9 10 11 PMU Establishment (MRE Unit) 4

Roadmap

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SLIDE 29
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SLIDE 30

Municipal Support Plan

Building authority capacity: Design a Provincial Municipal Support Plan Provincial Municipal Support Plan.

  • Framework & targets
  • Norms & standards (for the way in which support is provided).
  • Monitoring and evaluation. Specific & ongoing.
  • Contract management. Ongoing.
  • Co-ordination & mobilisation. Ongoing.

Establish Strategic Support Unit Strategic Support Unit within office of DDG

  • Programme Manager, Project Manager, Project Administrator, short

term or part-time contractors.

  • Provide direction & parameters for support providers
  • Coordinate Capacitation of District & Local Municipalities
  • Coordinate all Support Programmes & hands on support
  • Focus on the development of Framework & Targets
  • Focus on the development of Norms & Standards

Establish MRE Unit MRE Unit within office of DDG

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SLIDE 31