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Professionalisation in Local Government
An independent perspective on service orientation
Peter Allwright
Director
Horizon Forensics
17 February 2014
Sometimes an official is just a product
of the system.
It’s important to understand how the system
creates the environment for officials to
succeed or fail.
Overcoming the system necessitates a new
framework for local government that is based on
professionalism …
Page 2
Overview
1
State of affairs
2
Primary obstacle: conduct and misconduct
3
Complicating challenges
4
Roadmap to service orientation
5
Managing misconduct
6
Questions
Page 3
State of affairs (2011-2012)
HorizonForensics
Page 4
94%
Non-compliance
with legislation
Unauthorised
expenditure
R9,78bn
Fruitless and
wasteful
expenditure
R568mn
Health Check
R9,82bn
Page 5
Irregular
expenditure
Source: Auditor-General of South Africa
Health check of key indicators
Effectiveness of key role players
100%
0%
5%
5%
80%
37%
31%
41%
70%
60%
50%
40%
42%
44%
41%
30%
20%
10%
19%
22%
Management and Leadership
Internal Independent Assurance &
Oversight
13%
0%
Provides assurance
Page 6
Provides some assurance
External Independent Assurance &
Oversight
Provides limited/no assurance
Not established
Source: Auditor-General of South Africa
90%
Stumbling blocks to improvement
100%
80%
35%
42%
49%
70%
60%
50%
40%
36%
34%
32%
30%
20%
10%
29%
24%
19%
0%
Leadership
Financial and performance management
Good
Page 7
Concerning
Intervention required
Governance
Source: Auditor-General of South Africa
90%
Key root causes not addressed
Consequences
Lack of consequences for poor
performance and transgressions
Root causes
Impacting performance
and introducing
new challenges
Page 8
Intervention
Slow response by political leadership
in addressing the root causes of
poor audit outcomes
73%
71%
76%
Source: Auditor-General of South Africa
Key positions
Key positions vacant or key officials
lacking appropriate competencies
Key areas requiring intervention
Financial health
Information technology controls
Quality of Financial Statements
Quality of performance reports
Supply chain management
Intervention
Page 9
Concerning
Source: Auditor-General of South Africa
Human resource management
Regression in audit outcomes
100%
80%
50%
48%
52%
45%
47%
43%
5%
5%
5%
2009-2010
2010-2011
2011-2012
70%
60%
50%
40%
30%
20%
10%
0%
Unqualified with no findings
Page 10
Unqualified with findings
Qualified/adverse/disclaimed with findings
Source: Auditor-General of South Africa
90%
Primary obstacle: conduct and
misconduct
Page 11
Actions constituting inappropriate behaviour and conduct
Conflict of interest
Revealing confidential information
Conducting business with the
municipality
Racism
Unethical conduct
Flagrant disregard for safety standards
Malicious damage to state property
Misuse of state property for private
purposes
Unauthorised possession of state
property
Falsification of records/documents
Not dressed in a clean, decent and
Driving an official vehicle whilst under
tidy manner
the influence of drugs /liquor
Repeated unauthorised and / or
Disobeying work-related orders
uncommunicated absenteeism
Intimidation
Making false statements
Incitement
Abuse of sick leave
Sexual harassment
Sleeping on duty
Page 12
Actions constituting misconduct
Unauthorised, irregular or fruitless and wasteful expenditure
Deliberate or negligent failure to carry out a duty
Provide incorrect or misleading information
Mismanagement
Misappropriation
Waste or theft
Page 13
(Wolfe, David T.,& Hermanson, Dana R., 2004, December)
Causes of misconduct
Page 14
Obligations to act upon misconduct
Action that must be taken against an official who wilfully or negligently makes
or permits unauthorized, irregular or fruitless and wasteful expenditure
Obligation to report financial misconduct in terms of the Municipal Finance
Management Act, Municipal Systems Act and supporting Treasury Regulations
Serious reporting obligation stipulated in the Prevention and Combating of
Corrupt Activities Act which states that you need to report incidents of financial
misconduct (theft, fraud, extortion, forgery or uttering of a forged document)
involving amounts of R100,000 or more to the South African Police Service
Page 15
Sanctioning officials committing misconduct
Sanctioning: Disciplinary proceedings
Must take effective and appropriate disciplinary steps against an official who
contravenes or fails to comply with the provisions of the legislative framework
and/or who undermines the financial management and internal control system
Sanctioning: Criminal proceedings
An official is liable on conviction of an offence to imprisonment for a period not
exceeding five years or to an appropriate fine determined in terms of applicable
legislation
Page 16
It’s playground out there
Misconduct is often not reported or acted upon
Steps aren’t taken to deal with the problem
There are almost no consequences
Ramifications aren’t severe enough
Situation has become rampant
Officials continue with unlawful behaviour and illicit schemes
Page 17
Source: Real state of the nation, Allwright
Simple reality is that it’s easy to get away with it
You need to have your wits about you
Suspended for several months at exorbitant cost
Employers often stumble and transgress their own procedures
Complicating or terminating the sanctioning of officials
Exacerbated by repeated postponements, delays and mystery illnesses
Active lobbying of senior officials or politicians to intervene or resolve situation
Intimidation and harassment of witnesses
Abandonment of cases and sanctioning
Page 18
Source: Real state of the nation, Allwright
Officials are generally content to remain at home on precautionary suspension
We are failing to overcome the situation
Junior Ranking
Officials
Guilty
Final Written
Warning
No Criminal
Action/Not
Indicated
Non-Recovery
of Financial Loss
90%
Source: Real state of the nation, Allwright
100%
No reliable statistics of the situation
80%
70%
Comparable analysis with other public institutions
60%
50%
Same issues are repeating themselves year to year
40%
30%
20%
10%
0%
44%
Page 19
77%
25%
68%
34%
Complicating challenges
Page 20
Corruption Perception Index (2013)
Scored 42/100. Ranked 72/177.
Moderately corrupt.
OECD Anti-Bribery Convention (2011)
Scored “No Enforcement”.
Perceptions
Surveyed from ordinary
citizens on their
interaction with
public officials
Page 21
Global Corruption Barometer (2013)
62 % of people that think corruption
has increased in the past 3 years.
Scored 3.5 on the perception of
corruption in 6 public institutions
(5 = extremely corrupt)
Source: Transparency International, Organisation for Economic Co-operation and Development
Perception: officials are moderately corrupt!
Reality: factors hampering your developmental mandate
Political intervention and interference
Scarce/diminishing/insufficient resources and capacity
Irregular/inappropriate appointments
High turnover and vacancy rates
Competing priorities
Ineffective performance management systems
Dysfunctional management systems and processes
Mismatched skills
Ineffective oversight and control
Disjointed strategies and plans
Page 22
Source: Real state of the nation, Allwright
Ineffective leadership and management
Substantial progress has been made in
overcoming some of the key obstacles hampering
your developmental mandate.
Overcoming the challenges necessitates the
professionalisation of local government to
successfully operate in a complex environment …
The Professionalisation Framework is based upon
ethics, conduct and behaviour.
Page 23
Roadmap to service orientation
Page 24
Service orientation
Page 25
Context
Recommended administrative transformation and professionalisation
Extensive consultation and research culminated in a concept paper
Widespread consultation with key stakeholders
SALGA and COGTA collaborated to formulate a framework
Developed a Professionalisation Framework for Local Government
Page 26
Source: South African Local Government Association
Local government turnaround strategy was adopted by Cabinet in 2009
Guiding principles
To promote a high level of professional competence, experience, behaviour
and ethics on the part of local government officials, both appointed and elected,
especially those at the senior level
To promote uniformity, standardisation and harmony
To align existing constitutional, legislative and regulatory mandates and
requirements, and in particular to the broader initiatives and provisions for local
government capacity building contained in the Revised National Capacity
Building Framework for Local Government (2012 to 2016)
To promote equity
To contribute to improved individual and institutional performance
Page 27
Source: South African Local Government Association
To strengthen the local government system
Roadmap to service orientation
Constitutional
Ideals
Service Charter
Commitment
Professionalism
Morals
Code of Conduct
Batho Pele
Principles
Values
Ethical Principals
and Values
Page 28
Right and Wrong
Characteristics
and Traits
Ethical and moral workplace
Governance structures
Ethical risk assessment
5
4
1
Values
Monitor and report
Institutionalisation
Conscious programmes
Ethics strategy
Ethics
Management
Code and policies
Awareness programmes
Independent assessment & external reporting
Page 29
2
3
© Ethics Institute of South Africa 2013
Leadership commitment
Managing misconduct
Page 30
Foundational principles
Strict enforcement of the legislative framework
Strengthening risk management practices and procedures
Appoint independent experts to investigate serious misconduct
Improve the investigative capacity of local government
Consistent management of disciplinary hearings and sanctions
Institute disciplinary, criminal and civil proceedings against guilty officials
Blacklist guilty officials within the public service
Active recovery of unauthorised, irregular, fruitless or wasteful expenditure
Improve monitoring and reporting mechanisms
Page 31
Source: Real state of the nation, Allwright
Commitment of leadership to combat misconduct
Tone at the top
Training
Review misconduct risks
Senior management must send
out a strong message that
misconduct will not be tolerated
There should be regular and
consistent training to maintain
standards/expectations
Conduct regular reviews of
misconduct risks to ensure that
the organisation keeps abreast of
emerging trends/risks
Highlight blowing the whistle
Clear policies / procedures
Blowing the whistle
Strong enforcement
Policies and procedures should
be formulated and written in
clear and concise language with
possible sanctions for violations
Promote and encourage blowing
the whistle because it’s the key
source of misconduct
Maintain strong enforcement of
transgressions to maintain a
consistent intolerance of
misconduct
Misconduct risk champion
Anti-misconduct controls
Investigate isolated events
Nominate a dedicated
misconduct risk champion so that
there is a dedicated role and
responsibility
Implement robust antimisconduct controls and test
regularly to maintain high
standards
Investigate isolated events
because employees usually start
small and grow their acts of
misconduct
Page 32
Source: Real state of the nation, Allwright
Managing and overcoming misconduct
Thank you for
your attention!
Any Questions?
Page 33
Page 34
Framework components
Page 35
Constitutional ideals
Promoting and maintaining high standards of professional ethics
Utilising resources efficiently and effectively
Responding to people's needs
Citizens are encouraged to participate in policy-making
Rendering an accountable, transparent, and development-oriented public
administration
Page 36
Source: South African Constitution
Providing service impartially, fairly, equitably and without bias
Page 37
Consultation
Setting Service Standards
Increasing Access
Ensuring Courtesy
Providing Information
Openness and Transparency
Redress
Value for Money
Source: South African Political Initiative
Batho Pele Principles
Improve service delivery programmes
Improve service delivery improvement for the benefit of all citizens
Clarify the rights and obligations of each of the parties
Acknowledge and reward excellent performance
Professionalise and encourage excellence in the public service
Enhance performance
Facilitate a process to define service standards in various sectors
Strengthen processes and initiatives that prevent and combat corruption
Facilitate social dialogue among the partners
Treat citizens with dignity and expectations
Meeting their demands equitably and fairly
Ensure an effective, efficient and responsive public service
Page 38
Source: Department of Public Service and Administration
Commitment to the Service Charter
Selflessness
Stewardship
Integrity
Impartiality and Fairness
Objectivity
Honesty
Confidentiality
Accountability and Openness
Political Neutrality
Respect for Others
Constitutional and Legal Duty
Leadership
Page 39
Source: South African Local Government Association
Ethical principles and values
Professionalism versus unprofessionalism
Professionalism
Unprofessionalism
An expectation of a specific style of
behaviour and conduct in the
workplace
Not conforming to the standards of a
profession; contrary to the accepted
code of conduct of a profession
Page 40
Values
The beliefs or ideals held and shared about what is good or bad and desirable or
undesirable. Values have a major influence on a person’s behaviour and attitude
and serve as a guideline for all situations.
Page 41
Morals
Relating to, dealing with, or capable of making the distinction between right or
wrong conduct.
– Principles
– Standards
– Beliefs with respect to right or wrong behaviour
Page 42
Right and Wrong
Right
Wrong
In accordance with fact, reason,
justice, law, and morality
Contrary to fact or reason, unlawful,
crooked, twisted, immoral, improper
Page 43
Code of conduct
A set of conventional principles and expectations that are considered binding on
any person who is a member of a collective group.
The code of conduct will be based on the Municipal Systems Act.
Page 44
Personal characteristics and traits
Honest
Skilled
Courteous
Reliable
Considerate
Dependable
Cooperative
Committed
Page 45