Transcript MDB - IMFO

STATE OF MUNICIPAL
CAPACITY 2011
Presentation of National Findings on Municipal Capacity
Assessment in the
2011/12 Financial Year
IMFO CONFERENCE: 08 October 2012
Chairperson: Mr Landiwe Mahlangu
Municipal Demarcation Board
E-mail: [email protected]
2
Outline of the Report
• Introduction and purpose
• History of Municipal capacity assessments
• The revised model and outputs
• The General Findings
• General Staffing
• Management Experience and Qualifications
• Management Vacancies
• Technical and Specialist Skills
• Two-tier system
• Determinants of performance
• Implication for MEC Adjustment
• Implication for Boundary Reviews
• Recommendations
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Introduction
• The MDB has a legal mandate to assess municipal capacity:
• When determining and re-determining municipal boundaries
• To Advise Provincial MEC’s on the capacity of district and local government
capacities
• 12 years into our new system of local government, the
relationship between capacity and performance of municipalities
requires attention
• National Planning Commission Vision 2030
• Stabilise the political-administrative interface
• Focus on skills and professionalism will be ineffective if the roles of
political principal and administrative head are not clearly separated.
• Make the public service and local government careers of choice so that
they are able to attract, retain and build the best staff at all levels.
• Develop technical and specialist professional skills.
• Particularly for local government, this means actively producing the
technical and specialist skills for its core functions e.g. engineers,
planners, environmental health officers.
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Municipal capacity assessments
• MDB capacity assessments taken place since 2001/2
• Strategic resource for local government sector
• MCA were the most widely cited document
• The only authoritative source on staff capacity
• Review of the model took place in 2010
• Methodology improved in 2011
• Targeted at all municipalities in the country (including metros)
• Collation of existing data sources
• Covered a wide range of functional areas
• Online data collection tool
• Data collected relevant to the 2010/11 Municipal Financial Year
• Useful Feedback to municipalities (Report cards)
• Web-based database for warehousing and analysing data
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Process & Outputs
Collate Data
from National
Sources
Collect Data
from
Municipalities
Conduct
Qualitative
Assessment
in 9 Districts
National
Report
Webbased
Database
Municipal
Comparative
Reportcards
District Level
Reportcards
9
Qualitative
District
Reports
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NATIONAL REPORT
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The National Report
• To draw an analysis of trends in municipal capacity across
different categories of municipalities and municipalities in
different provinces
• It is intended to present the set of capacity challenges and
successes, so that relevant stakeholders are equipped to
develop a response to these.
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Source of Data
Type of
Information
Source
Year
Custodian
Coverage
Context
Index
Mainly Census 2001
2001
(Calculated
in 2012)
DCOG
All
Municiipalities
Financial
Information
Local Government Budget and
Expenditure Database (preaudit)
2010/11
National
Treasury
All
Municipalities
Water
Services
Performance
Blue Drop and Green Reports
for Water Services Authorities
2010/11
Department of
Water Affairs
All
WSAs & others
Audit
Information
Municipal audit findings
2010/11
OAG
All
Municipalities
Staffing
Completed MDB Municipal
Capacity Assessment
Questionnaires
2010/11
MDB
All but 7
municipalities
participated
Demographic
Information
Community Survey
2007
Statistics South
Africa
All
Municipalities
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GENERAL STAFFING
10
Unfilled posts are significant
11
Municipal structures may be overdesigned and
not fully affordable
12
Rural municipalities struggle to fill posts they
have resources for
13
This is the case in Limpopo, KZN and EC
14
Overall municipal attrition is not high
15
Key findings on general staffing
72%
• Posts Filled
32%
• Funded posts vacant, mainly
in rural municipalities
7%
• Staff Attrition
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MANAGEMENT EXPERIENCE
AND QUALIFICATIONS
17
Divergence in MM experience between
provinces
18
Free State, Gauteng and North West have many
recently appointed MMs
19
CFOs in WC have 20 years experience compared
with 4.1 in Free State
20
Limpopo & Free State have recently appointed
CFOs
21
Similar divergent experience for technical
services managers
22
Corporate services managers are most
experienced in Gauteng
23
Improvement in senior managers’ qualifications
over time
%
Percentage managers with more than bachelors
degree as highest qualifica on
70%
60%
50%
40%
30%
20%
10%
0%
Municipal Manager
Chief Financial
Officer
Technical services
manager
2008
35%
16%
11%
2011
63%
37%
34%
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MMs are most qualified and Technical Services
managers are the least qualified of key managers
25
Key findings on management qualifications &
experience
3.3
years
• Number of years MMs have been
in their positions
46%
• MMs have a post-graduate degree
• 1 in 3 have a Masters or Doctorate
48%
• Technical Services Managers have
less than a Bachelors Degree
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MANAGEMENT
VACANCIES
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3 out of 4 Section 57 Posts were filled
28
B1s and B3s had long vacancies for S57
29
One in Four S57 posts was vacant for more
than 3 months: NC highest
30
Almost 1 in 6 S57 managers exited in FY, higher
in FS, MP, LP & KZN
31
High attribution of exits to resignations
32
Key findings on vacancies
75%
• S57 Posts Filled
25%
• S57 Posts vacant for
more than 3 months
15%
• S57 left during year
• 64% of these resigned
33
TECHNICAL & SPECIALIST
SKILLS
34
Spread of Engineers is very uneven
35
Chronic Shortage of Engineering Professionals
in B4 and C2 Municipalities. Most Engineers in
Metros
36
49% of all municipalities and 44% of C2s do not
have a registered engineer
Number of Engineers
100%
90%
Percentage of Municipalities
80%
100+
70%
10+
60%
5+
50%
4
3
40%
2
30%
1
0
20%
10%
0%
A
B1
B2
B3
B4
C1
C2
All
37
Lack of engineers in C2 districts, given their
infrastructure assets, is a cause for concern
38
Planners are also mostly in Metros. Number of
planners per municipality is concerning,
especially C1s.
39
41% of all municipalities and 44% of C1s do not
have a registered planner
Number of Planners
100%
90%
Percentage of Municipalities
80%
100+
70%
10+
60%
5+
50%
4
3
40%
2
1
30%
0
20%
10%
0%
A
B1
B2
B3
B4
C1
C2
All
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Key findings on scarce skills
49%
• Municipalities without a
registered engineer
41%
• Municipalities without a
registered planner
44%
• C2s have no engineers
• C1s have no planners
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TWO TIER SYSTEM
42
Governance and Administration dominates
staffing in B4s and C1s
43
Governance and Administration Expenditure for
B4s, C1s and C2s is large
• B4s spend
about 70% on
Governance &
Administration
• This is also
very high (41%)
in their C2
partners
• C1s spend
more than 50%
on GAPD
44
This is consistent with reviews undertaken of
two-tier local government
• The role of district municipalities in many parts of the
country is dominated by governance and administration
rather than municipal service delivery
• Where districts have significant service delivery
responsibilities, better role clarification and efficiently
designed governance and financing arrangements are
needed
• Most Districts have Yet to fulfil role as redistributors of
capacity, as they have not been able to attract scarce
technical skills such as engineers and planners to rural
spaces
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DETERMINANTS OF
PERFORMANCE
46
What can we attribute performance to?
• Staffing?
• Budgets?
• Experience of Managers?
• Qualifications?
• In doing this analysis, we utilised information made
available by regulatory
• We therefore relied mostly on Water services, while some
performance information was collected for Roads, Fires
Services and Solid Waste and other services
47
We did not find an obvious correlation between
performance and capacity in water sector
48
There is a relationship between context and
performance, but many exceptions
49
The untold story on audit opinions 2011
39
audits
were
worse
175 Remained the same
13% Qualified
60
were
better
Source: PDG, 2012
30% Disclaimer
or Adverse
55%
Unqualified
50
No direct relationship between MM & CFO
Experience & Qualifications with Audit Outcome
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The Missing Link in Performance
• While the following ingredients are all necessary
• Staffing
• Financial Resources
• Experienced & Qualified Managers
• Leadership and Management Behaviors have a powerful
impact on performance
• It is a pity that leadership is so difficult to measure and
account for
Relationship between performance and
capacity is mediated by leadership
• Institutional Capacity is heavily
influenced by Context (sociogeographic)
• Together Context and Institutional
Capacity affect performance
Performance
• However Leadership (behaviours
overcoming constraints) plays a
powerful role in determining
performance
Leadership
• It mediates the relationship
between capacity & performance
Institutional &
Individual
Capacities
Source: PDG, 2012
Context
(Environmental
Capacity)
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IMPLICATIONS AND
RECOMMENDATIONS
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Implications for MEC Adjustments
• While this data will certainly be useful to any process
considering adjustment of functions,
• Capacity is one of many criteria that need to be
considered in identifying the ideal location of functions
• A Quantitative View of Capacity is Insufficient
• A qualitative and in-depth engagement to understand local
perspectives, conditions, arrangements and dynamics is essential
to coming to a view of capacity that complements the quantitative
view.
• A pilot process of conducting an in-depth qualitative assessment
has been undertaken in 9 selected district families, covering 20% of
the country’s districts.
• This has created a useful analysis of arrangements and capacity
application for delivering certain functions.
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Implications for Boundary Adjustments
• In considering an adjustment, a range of spatial and
socio-economic criteria should inform the adjustment of
boundaries.
• The capacity of current institutions is arguably a factor for
consideration, but alone is insufficient for boundary
adjustment.
• The data obtained through this exercise and
complemented with other data sources is an important
resource and input into the process of boundary
adjustments.
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Recommendations
Further stakeholder discussions
• Focused discussions with key stakeholders will enrich this research
and analysis.
Develop the National Capacity-Building Strategy
• Findings to feed into a process of designing an appropriate response,
that is strategic and widely supported across stakeholders
• Framework and strategy development to be lead by DCOG with
support of other stakeholders
• An integrated approach recommended, also looking at provinces
National summit on municipal capacity
• To ensure consensus-building and a coherent and co-ordinated
intergovernmental approach to addressing capacity issues in local
government.
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CONCLUDING THOUGHTS
“When all is said and done, more is said than done”