Description
The impact of the local government turnaround strategy on public participation and good governance with regard to the integrated development planning process the case of mangaung metropolitan municipality.
THE IMPACT OF THE LOCAL GOVERNMENT TURNAROUND
STRATEGY ON PUBLIC PARTICIPATION AND GOOD
GOVERNANCE WITH REGARD TO THE INTEGRATED
DEVELOPMENT PLANNING PROCESS: THE CASE OF
MANGAUNG METROPOLITAN MUNICIPALITY
LETSHEGO PATRICIA MATHANE
Dissertation submitted in partial fulfillment of requirements for the
MAGISTER TECHNOLOGIA:
PUBLIC MANAGEMENT
Department of Government Management
Faculty of Management Sciences
Central University of Technology, Free State
Supervisor: Prof T Van Niekerk
2013
1
DECLARATION OF INDEPENDENT WORK
DECLARATION WITH REGARD TO
INDEPENDENT WORK
I,LETSHEGO PATRICIA MATHANE, identity number and student number
205059392, do hereby declare that this research project submitted to the Central
University of Technology, Free State for the Degree MAGISTER TECHNOLOGIAE:
PUBLIC MANAGEMENT, is my own independent work; and complies with the Code of
Academic Integrity, as well as other relevant policies, procedures, rules and regulations of
the Central University of Technology, Free State; and has not been submitted before to
any institution by myself of any other person in fulfilment (or partial fulfilment) of the
requirements for the attainment of any qualification.
______________________________ 27/11/2013
SIGNATURE OF STUDENT DATE
2
ABSTRACT
During 2009 the State of Local Government in South Africa 2009 Report, (2009:71-75)
showed that much of local government is in distress and it also showed that much of the
local government municipalities faced serious challenges such as the lack of service
delivery, poor financial management and weak integration between the Integrated
Development Plan (IDP) and the Local Economic Development (LED). To improve the
performance of the municipalities, the national government approved a comprehensive
Local Government Turnaround Strategy (LGTAS) that serves as a country-wide
intervention with the aim to address the communities? increasing dissatisfaction with
poor municipal services, as well as to improve the administrative and financial
performance of all municipalities.
The purpose of the study was to investigate the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance with respect
to the Integrated Development Planning (IDP) process in the Mangaung Metropolitan
Municipality. It was found during the literature review that although the Local
Government Turnaround Strategy (LGTAS) was successfully incorporated in the
Mangaung Metropolitan Municipality Integrated Development Plan Review of
2013/2014, more needs to be done to ensure that the medium-term priorities are
effectively implemented to promote good governance, and effective service delivery of
Mangaung Metropolitan Municipality. The study found that although the Mangaung
Metropolitan Municipality has a well-planned and well-structured community
engagement strategy to promote effective public participation, more needs to be done to
ensure that the communities are effectively represented during the various public
participation consultation activities to ensure that the needs of the majority of the
communities are addressed. The study also found that the Mangaung Metropolitan
Municipality has well-defined strategies to promote good governance in its Integrated
Development Plan (IDP), the effective implementation remains a challenge.
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ACKNOWLEDGEMENTS
I wish to express my sincere appreciation and gratitude to the following individuals for
their assistance and encouragement in the development and completion of this study:
? My Supervisor, Professor Tryna Van Niekerk for her positive guidance, support
and availability throughout the study period.
? My precious Son, Thuto, my mother Puseletso Molehe, my grandmother,
Kenalemang, brothers Kamogelo and Itumeleng Choaro and sister Reokedicoe
for their support, patience and encouragement throughout.
? Statistician Maryn Viljoen for analyzing the data from the research.
? The Mangaung Metropolitan Municipality Ward Committee Members for their
time and effort in responding to the questionnaires, and all staff members who
assisted with the pilot study.
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LIST OF ABBREVIATIONS
AGSA: Auditor General South Africa
COGTA: Cooperative Governance and Traditional Affairs
DBSA: Development Bank of Southern Africa
DFA: Development Facilitation Act
DEAT: Department of Environmental Affairs and Tourism
DWA: Department of Water Affairs
EPWP: Expanded Public Works Programme
GEAR: Growth Employment and Redistribution Strategy
IGFRA: Inter Governmental Fiscal Relations Act
LED: Local Economic Development
LGTAS: Local Government Turnaround Strategy
LGMS: Local Government Municipal Systems Act
LUMB: Land Use Management Act
LGSETA: Local Government Sector Education and Training Authority
MTAS: Municipal Turnaround Strategy
MTREF: Medium Term Revenue Expenditure Framework
MOU: Memorandum of Agreement
NCU: National Coordinating Unit
NSDP: National Spatial Development Perspective
PIMMS: Planning, Implementation and Management Support Systems
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PGDS: Provincial Growth Development Strategy
RSA: Republic of South Africa
RDP: Reconstruction and Development Plan
SALGA: South African Local Government Authority
SETA: Sector Education Training Authority
SDF: Spatial Development Framework
SDBIP: Service Delivery and Budget Implementation Plan
WPLG: White Paper on Local Government
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LIST OF FIGURES
Figure 1.1 Map of the Mangaung Metropolitan Municipality
Figure 4.1 Gender of the respondents
Figure 4.2 Ages of Research Participants
Figure 4.3 Official Designation
Figure 4.4 Highest level of Education
Figure 4.5 What is your understanding of the Local Government Turnaround
Strategy?
Figure 4.6 Section B, Question 1.3: “Have they taken part in the implementation of
the LGTAS in die Mangaung Metropolitan Municipality?
Figure 4.7 Personal Involvement in the Local Government Turnaround Process
Figure 4.8 “Were the ward committee members informed of the implementation of the
LGTAS in the former Mangaung Metropolitan Municipality?”
Figure 4.9 Was there any improvements in the Mangaung Metropolitan Municipality
since the introduction of Local Government Turnaround Strategy
Figure 4.10 “Were there any improvements in the Mangaung Metropolitan Municipality
in obtaining clean audit reports”
Figure 4.11 Has the Mangaung Metropolitan Municipality achieved a responsive and
accountable system of local government?
Figure 4.12 Does the community benefit from participating in the IDP Process?
Figure 4.13 Attendance of Ward councilors, IDP Steering Committee and ward
meetings
Figure 4.14 Mechanisms used by the municipality to engage with the community about
the IDP.
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Figure 4.15 The extent of public participation of ward community members over the
last five years
Figure 4.16 Were the ward committee members aware of the projected projects of the
municipality?
Figure 4.17 Have you ever received feedback from the engagement of the municipality
with the community?
Figure 4.18 The ward community committees are very effective in articulating the
interests of the community
Figure 4.19 The community members received feedback on how their inputs affected
decisions made by the municipality
Figure 4.20 Only a few selected members of the community participate in the IDP
process
Figure 4.21 Public participation in the IDP process is meaningful
Figure 4.22 The IDP aims to respond to local communitie?s needs
Figure 4.23 The community is given a chance to identify and prioritize the projects
which should be implemented
Figure 4.24 The IDP is instrumental in implementing the projects that were prioritized
by the community through public participation
Figure 4.25 The involvement of the community in the IDP process should take place
during the implementation process
Figure 4.26 Effective public participation can boost rural development in the
Mangaung Metropolitan Municipality area
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Figure 4.27 Are there any systems in place in the Mangaung Metropolitan Municipality
to measure the performance of public participation?
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LIST OF TABLES
Table 1.1 Mangaung Population 2001-2011
Table 2.1 Roles and Functions with the Municipal budgeting and IDP Process
Table 3.1 Different participation approaches or models of Abbot (1996)
Table 3.2 Different participation approaches or models
Table 4.1 Wards represented by the respondents
Table 4.2 Total years lived in Mangaung Metropolitan Municipality
Table 4.3 What is the main aim of the Local Government Turnaround Strategy
(LGTAS)?
Table 4.4 The following improvements were made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround
Strategy
Table 4.5 Provide reasons why you indicated that there were not any improvements
in the Mangaung Metropolitan Municipality in obtaining a clean audit report
Table 4.6 Reasons why the respondents were of the opinion that the Mangaung
Metropolitan Municipality successfully achieved a responsive and
accountable system of Local Government
Table 4.7 Reasons why the respondents were of the opinion that communities
benefited from the IDP process
Table 4.8 What are the main challenges that prevent public participation of
community members in the IDP process and developmental projects?
Table 4.9 What should be done to improve public participation in the IDP process?
Table 4.10 The degree of agreement or disagreement with the level of good
governance
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TABLE OF CONTENTS
CHAPTER ONE:
RESEARCH BACKGROUND, PROBLEM STATEMENT, HYPOTHESES, METHO-
DOLOGY AND KEY CONCEPTS
1.1 INTRODUCTION 19
1.2 PROBLEM STATEMENT 22
1.3 MAIN OBJECTIVES/CO-OBJECTIVES 23
1.4 LITERATURE REVIEW 24
1.5 METHODOLOGY 26
1.6 LIMITATIONS 27
1.7 MANGAUNG METROPOLITAN MUNICIPALITY: CASE
STUDY 27
1.7.1 Profile of the Mangaung Metropolitan Municipality 28
1.7.2 Demographics 30
1.7.3 Management structure 31
1.7.4 Household Structure 32
1.7.5 Growth and Development 33
1.7.6 Human Capacity Development 34
1.7.7 Employment 34
1.7.8 Housing 34
1.7.9 Summary of the medium- term financial plan 35
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1.7.10 Integrated Development Plan 2012-2016 and the Mangaung
Metropolitan Service Development Budget Implementation
Plan (SDBIP) 36
1.8 CHALLENGES OF MANGAUNG METROPOLITAN MUNICIPALY?S
INTEGRATED DEVELOPMENT PLAN AND BUDGETARY
PROCESS 38
1.9 LAYOUT OF PRELIMINARY CHAPTERS 40
CHAPTER TWO:
THEORETICAL OVERVIEW OF INTEGRATED DEVELOPMENT PLANNING,
LOCAL GOVERNMENT TURNAROUND STRATEGY AND THEIR
IMPLEMENTATION IN THE SOUTH AFRICAN LOCAL GOVERNMENT
SPHERE
2.1 INTRODUCTION 42
2.2 THE ORIGINS OF INTEGRATED DEVELOPMENT
PLANNING 44
2.3 IMPORTANCE OF INTEGRATED DEVELOPMENT PLANNING 47
2.4 OVERVIEW OF LOCAL GOVERNMENT TURNAROUND
STRATEGY 48
2.5 NATURE AND EXTENT OF MUNICIPAL SERVICES 51
2.6 STATUTORY AND REGULATORY FRAMEWORKS OF
INTEGRATED DEVELOPMENT PLANNING 54
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2.6.1 Constitution of the Republic of South Africa, 1996
(Act 108 f 1996) 55
2.6.2 The Development Facilitation Act, 1995 Z(Act 67 of 1995)
Act 67 of 1995 56
2.6.3 Land Use Management Bill 2007 56
2.6.4 The Local Government Transition Second Amendment
Act , 1996 (Act 97 of 1996) 56
2.6.5 Inter Governmental Fiscal Relations Act, 1997 (Act 57 of 1997) 57
2.6.6 The White Paper on Local Government, 1998 57
2.6.7 Local Government: Municipal Systems Act, 2000 (Act 32 of 2000) 58
2.6.8 Intergovernmental Relations Framework 2005
(Act, 13 of 2005) 60
2.6.9 Municipal Finance Management (MFMA), 2003
(Act 56 of 2003) 60
2.6.10 Traditional Leadership and Governance Framework
Amendment Act, 2003 (Act 41 of 2003) 61
2.6.11 Local Government Turnaround Strategy, (LGTAS), 2009 62
2.6.12 National Framework for Local Economic Development
(LED), 2006 62
2.6.13 Medium Term Expenditure Framework (MTEF) 62
2.6.14 Integrated Development Planning Guide Packs 63
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2.6.15 Division of Revenue Act and Provincial Division of Revenue Act 64
2.6.16 Other national and provincial development planning policies and
framework 64
2.7 LIMITATIONS OF INTEGRATED DEVELOPMENT PLANNING 67
2.8 COMPONENTS OF INTEGRATED DEVELOPMENT PLANNING
PROCESS 69
2.8.1 Phase 1: Situation Analysis Phase 70
2.8.2 Phase 2: Strategies Phase 71
2.8.3 Phase 3: Project Phase 72
2.8.4 Phase 4: Integration Phase 73
2.8.5 Phase 5: Approval Phase 73
2.9 INTEGRATED DEVELOPMENT PLANS (IDP) AND MUNICIPAL
BUDGETS 74
2.10 IMPLEMENTATIONS OF THE MUNICIPAL BUDGET AND
THE INTEGRATED DEVELOPMENT PLAN THROUGH THE
SERVICE DELIVERY AND BUDGET IMPLEMENTATION
PLAN (SDBIP) 81
2.11 IMPLEMENTATION OF LOCAL GOVERNMENT TURNAROUND
STRATEGY 82
2.11.1 Immediate priorities prior to the 2011 elections 83
2.11.2 Medium-term of post-election 2011 to 2014 priorities 84
2.11.3 Institutional arrangements for the implementation of the Local
Government Turnaround Strategy (LGTAS) 85
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2.11.4 Success factors for the implementation of the LGSTAS 85
2.12 ROLE OF INTERGOVERNMENTAL RELATIONS 86
2.13 THE ROLE OF LOCAL ECONOMIC DEVELOPMENT 88
2.14 ROLE OF PERFORMANCE MANAGEMENT 90
2.15 ANNUAL INTEGRATED DEVELOPMENT PLANNING
REVIEW PROCESS 92
2.16 CONCLUSION 94
CHAPTER THREE:
PUBLIC PARTICIPATION, INTEGRATED DEVELOPMENT PLANNING AND GOOD
GOVERNANCE: A CONCEPTUAL PRACTICAL INTERFACE
3.1 INTRODUCTION 96
3.2 DEFINING AND CONCEPTUALIZING KEY PUBLIC PARTICI-
PATION CONCEPTS 98
3.2.1 The term participation 99
3.2.2 The terms community participation, public participation and citizen
participation 102
3.3 LEGISLATIVE AND POLICY FRAMEWORK FOR PARTICI-
PATORY GOVERNANCE 104
3.3.1 Constitution of the Republic of South Africa, 1996
(Act 108 of 1996) 104
3.3.2 White Paper on Local Government, 1998 105
3.3.3 Local Government Municipal Structures Act, 1998 (As amended
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in 2000 and 2003) 106
3.3.4 Local Government Municipal Systems Act, 2000
(Act 32 of 2000) 107
3.3.5 Municipal Finance Management Act, 2003 (Act 56 of 2003) 109
3.3.6 Local Government Municipal Property Rates Act, 2004
(Act 6 of 2004) (Amended in 2009) 110
3.3.7 National Policy Framework for Public Participation, 2007 111
3.3.8 Local Government Turnaround Strategy, 2009 and Public
Participation 112
3.3.9 South African National Development Plan, 2030 113
3.4 AN OVERVIEW OF THE DIFFERENT APPROACHES, BUILDING
BLOCKS AND MODES OF PUBLIC PARTICIPATION IN
LOCAL GOVERNMENT 115
3.4.1 Public participation and the building blocks of development 117
3.4.2 Distinction of public participation as a means and or an end 119
3.4.3 Distinction between public participation as involvement and
public participation as empowerment 121
3.4.4 Modes of Public Participation 121
3.4.5 Benefits of public participation 124
3.5 PUBLIC PARTICIPATION STRATEGIES 125
3.6 PUBLIC PARTICIPATION IN LOCAL GOVERNMENT?S
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INTEGRATED DEVELOPMENT PLANNING 128
3.6.1 Phase 1: The situation Analysis phase 130
3.6.2 Phase 2: Strategies to define local vision and objectives phase 131
3.6.3 Phase 3: The project phase 132
3.6.4 Phase 4: The integration phase 132
3.6.5 Phase 5: Approval of the Municipality?s Integrated Development
Plan (IDP) 133
3.7 CURRENT CHALLENGES OF PUBLIC PARTICIPATION IN THE
SOUTH AFRICAN LOCAL GOVERNMENT 134
3.8 COMMUNITY PARTICIPATION IN THE CASE OF MANGAUNG
METROPOLITAN MUNICIPALITY 137
3.9 GOOD GOVERNANCE 141
3.10 CONCLUSION 145
CHAPTER FOUR:
RESEARCH METHODOLOGY
4.1 INTRODUCTION 148
4.2 STUDY DESIGN AND DATA COLLECTION TECHNIQUES 150
4.2.1 Literature Review 151
4.2.2 Structured Interviews 152
4.2.3 Questionnaire 152
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4.3 STUDY POPULATION AND SAMPLING PROCEDURES 153
4.3.1 Population and sample size 153
4.4 ENSURING VALIDITY AND RELIABILITY 154
4.5 ETHICAL CONSIDERATIONS 155
4.6 STATISTICAL TECHNIQUES 156
4.7 DATA ANALYSIS AND PRESENTATION OF DATA 156
4.8 FINDINGS AND RESULTS FROM SECTION A OF THE
QUESTIONNAIRE: BIOGRAPHICAL INFORMATION OF
WARD COMMITTEE MEMBERS OF THE MANGAUNG
METROPOLITAN MUNICIPALITY 157
4.9 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 1.
LOCAL GOVERNMENT TURNAROUND STRATEGY 162
4.10 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 2
INTEGRATED DEVELOPMENT PROCESSES AND
DEVELOPMENT PROJECTS 170
4.11 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 3
GOOD GOVERNANCE 172
4.12 SUMMARY 175
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CHAPTER 5:
THE IMPACT OF LOCAL GOVERNMENT TURNAROUND STRATEGY ON
PUBLIC PARTICIPATION AND GOOD GOVERNANCE WITH RESPECT TO
INTEGRATED DEVELOPMENT PLANNING WITHIN THE MANGAUNG
METROPOLITAN MUNICIPALITY: OVERVIEW OF CHAPTERS,
RECOMMENDATIONS AND CONCLUDING REMARKS
5.1 INTRODUCTION 200
5.2 SUMMARY OF CHAPTERS 200
5.3 RESEARCH OBJECTIVES 202
5.3.1 Objective 1. To investigate through the extensive literature and
policies, the requirements, purpose, principles, objectives, and
components of the IDP and LGTAS 203
5.3.2 To investigate through the extensive literature and policies the
requirements, components and linkages of public participation
and good governance in the IDP process 204
5.3.3 To explore policies, systems, structures and approaches on the
implementation of LGTAS with respect to public participation and
good governance in the IDP process within the Mangaung Metro-
Politan Municipality 204
5.3.4 To determine through an evaluation of the annual review reports of the
2010 and 2011 as well as through structured interviews the impact of
LGTAS on public participation and good governance in the IDP process 205
5.3.5 Making recommendations based on the research findings in order
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to improve public participation and good governance of the IDP in the
Mangaung Metropolitan Municipality 205
5.4 CENTRAL THEORETICAL STATEMENTS 205
5.5 SUMMARY OF THE EMPERICAL FINDINGS 212
5.6 RECOMMENDATIONS 214
5.7 CONCLUSION 216
Bibliography
Annexure A - Letter of Consent
Annexure B – Research questionnaire
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CHAPTER ONE
RESEARCH BACKGROUND, PROBLEM STATEMENT, HYPOTHESIS,
METHODOLOGY AND KEY CONCEPTS
1.1 INTRODUCTION
Local government is a key role player in the transformation and development process in
South Africa. Since 1996 the government introduced a variety of policy directions to
ensure that local government would play a meaningful role in the development and
welfare of its citizens, such as Integrated Development Planning (hereinafter referred to
as the IDP), Local Economic Development (LED) and lately the Local Government
Turnaround Strategy (hereinafter referred to as LGTAS) that was approved by the
Cabinet in December 2009.
Section 25 of the Local Government Municipal Systems, Act 2000 (Act 32 of 2000),
(hereinafter referred to as the Municipal Systems Act, 2000) provides that all
municipalities must adopt a single, inclusive strategic plan for the development of its
area of responsibility. Integrated Development Planning (IDP) has been introduced in
1996 to ensure the sustainable provision of services, to promote social and economic
development, to promote a safe and healthy environment, to give priority to the basic
needs of communities and to encourage community participation.
The Integrated Development Planning (IDP) process refers to a process through which
municipalities prepare a strategic development plan for a five year period. Therefore, in
terms of the Municipal Systems Act 2000, all municipalities have to compile an annual
Integrated Development Plan (IDP). This plan is the principal strategic planning tool that
guides and informs all management, planning, decision-making and actions on which
annual budgets are based on in a municipality. The Integrated Development Plan (IDP)
document contains the municipal councils? development priorities, strategies, objectives,
performance indicators and a financial plans.
21
The Municipal Systems Act, 2000 also emphasises public participation when stating that
“a municipality must develop a culture of municipal governance that complements
formal representative government with a system of participatory governance.” Public
participation in the Integrated Development Planning process serves to fulfill four major
functions, namely: to take community needs and problems into account; to use the
knowledge and experience of local communities in order to arrive at appropriate and
sustainable solutions for problems and measures for problems; to encourage
cooperation and partnerships between municipal government and residents for the
Integrated Development Plans implementation and maintenance; and to ensure that it is
a public event and a forum for negotiating conflicting interests in order to create a basis
for increased transparency and accountability of local government towards local
residents (DPSA, IDP Guide Pack, I, 2000:38).
A useful starting point towards defining good governance is provided by the King?s
report on Cooperating Governance as mentioned by Edwards, (2008:48-49) that sets
out seven primary characteristics of good governance namely, discipline and
commitment by the senior management to promote sound ethical behaviour;
transparency, avoidance of conflict of interest, accountability, responsibility, fairness
and social responsibility. In the light of the above good governance in this dissertation
refers to the following as cited by the Edwards, (2008:49) namely:
? Accountability is the key requirement of good governance that requires that
public institutions must be able to account for their actions to the public.
? Responsiveness entails that public institutions and processes must be
responsive to the needs of the public.
? Effectiveness and efficiency entails that public institutions have to produce results
that meet the needs of the society while making the best use of available
resources.
? Transparency requires that information must be freely available and directly
accessible to those who will be affected by the decisions and the enforcement
thereof.
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? Public participation as a key cornerstone of good governance requires
participation of the public in government affairs that will affect them.
Despite significant improvements in service delivery by local government in South Africa
since 1994, most municipalities face a widening gap between the demand and supply of
services. Municipalities across South Africa rapidly gained a reputation for inefficiency,
corruption and incompetence. The recent incidents of unrest at the local sphere of
government raise questions about the municipalities? ability, to provide effective services
and good governance (State of Local Government in South Africa Report, 2009:4-5).
To improve the performance in municipalities the national government therefore
approved the Local Government Turnaround Strategy (LGTAS) at the end of 2009. The
twin over-arching aim of LGTAS, and the policy direction as an overall intervention, is
firstly to restore the confidence of the public in municipalities as the primary deliverer
sphere. Secondly, it aims to re-build and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government (Department of Co-operative Governance and Traditional Affairs (CoGTA),
2010:3). The Local Government Turnaround Strategy (LGTAS) is based on five
strategic objectives to ensure that local governments will play a meaningful role as
envisaged in the Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
(hereinafter referred to as the Constitution, 1996).
The former Mangaung Local Municipality was established in 2000 with the
amalgamation of four former transitional councils. However, the Mangaung Metropolitan
Municipality, a category A municipality was established directly after the April 2011
municipal elections. In terms of the Municipal Structures Act, 1998 (Act 117 of 1998)
(hereinafter referred to as Municipal Structures Act, 1998) a category A municipality
comprises the areas of jurisdiction of multiple local governments that are densely
populated and have an intense movement of people, goods and services, that are
extensively developed or urbanised and that have more than one central business
district, industrial area and concentration of employment within the area. This study
aims to explore the impact of the Local Government Turnaround Strategy (LGTAS) with
23
respect to public participation and good governance as part of the Integrated
Development Planning (IDP) process by the newly established Mangaung Metropolitan
Municipality in its geographical demarcated responsibility area.
1.2 PROBLEM STATEMENT
The State of Local Government in South Africa Report, (2009:37-38) showed that there
are serious challenges with the implementation of the Integrated Development Plans
(IDP) in most municipalities. The report further indicated that the Integrated
Development Planning process?s (IDP?s) credibility does not necessarily mean effective
implementation and that in some municipalities the service delivery challenges becomes
overwhelming. Another concern raised by the State of Local Government in South
Africa Report, (2009:37-38) holds that accountability of municipalities to communities
concerning the implementation of the Integrated Development Plan (IDP) remains a
challenge. Another challenge is the minimum participation of councilors in the Integrated
Development Planning (IDP) process. As a result of these and other challenges stated
in the State of Local Government in South Africa Report, (2009:12) one could argue that
the majority of the municipalities faced difficult circumstances concerning the successful
implementation of their Integrated Development Planning process. The research
problem therefore revolves around the impact of the Local Government Turnaround
Strategy (LGTAS) on public participation and good governance with respect to the
Integrated Development Planning (IDP) process of the Mangaung Metropolitan
Municipality.
The research questions are as follows:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
24
? What are the key requirements, purposes, objectives, and components of
public participation and good governance linked to Integrated
Development Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?
1.3 MAIN OBJECTIVES/CO-OBJECTIVES
In the light of the above, the main aim of this study is to investigate the impact of the
Local Government Turnaround Strategy (LGTAS) on public participation and good
governance with respect to the Integrated Development Planning (IDP) process in the
Mangaung Metropolitan Municipality. Emerging from the above aim, the study has the
following primary objectives:
? To investigate through the extensive literature and policies, the requirements,
purpose, principles, objectives, and components of the Integrated
Development Plan (IDP) and Local Government Turnaround Strategy
(LGTAS).
25
? To investigate through extensive literature and policies the requirements,
purpose, objectives, components and linkages of public participation and
good governance of the Integrated Development Planning (IDP) process.
? To explore policies, systems, structures, approaches and operations on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan
Municipality.
? To determine through an evaluation of the latest annual review reports as well
as through structured interviews the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance.
? To make recommendations based on research findings in order to improve
public participation and good governance of the Integrated Development Plan
(IDP) in the Mangaung Metropolitan Municipality.
1.4 LITERATURE REVIEW
Since 1994, Local Government has been responsible for social and economic
development, sustainable service delivery and the infrastructure of communities. The
Constitution of the Republic of South Africa, 1996 and other conclusive acts also
demands local government to ensure sustainable provision of basic public services, to
promote social and economic development, to promote a safe and healthy environment,
to give priority to the basic needs of communities and to encourage community
participation. In order to fulfill this developmental role the Integrated Development Plan
(IDP) was introduced in 1996 as a strategic planning framework to promote
sustainability.
The Integrated Development Plan (IDP) refers to a process through which municipalities
prepare a strategic development plan for a five year period. Therefore, in terms of the
Municipal Systems Act, 2000 all municipalities have to compile an annual Integrated
Development Plan. This plan is the principal strategic planning tool that guides and
26
informs management, planning, decision-making and actions on which annual
implementation and management support systems have been put in place by the former
Department of Provincial and Local Government to support the Integrated Development
Planning (IDP) process. It includes a training programme based on a set of guidelines,
Integrated Development Planning (IDP) funding, the establishment of implementation
and management support systems (PIMMS) in most districts, as well as an Integrated
Development Plan (IDP) task team and provincial support programme (State of Local
Government Report, 2009:4-5).
However, it is only since 2002 that municipalities completed an integrated development
plan for a five-year period as compelled by the Municipal Systems Act, 2000. An
assessment of the Integrated Development Planning (IDP) process was conducted by
the former Department of Provincial and Local Government during 2006. The report
indicated that around 90% of Integrated Development Plans (IDP?s) were submitted and
adopted by municipalities. It was also found that although the preparation of the
Integrated Development Plan (IDP) is often inadequate, the involvement of some
councilors and senior officials in the local government arena were high. The fact that
most municipalities set up Integrated Development Plans (IDPs) and representative
forums to facilitate community and role players? participation in this process, was also
highlighted in the report (Van Niekerk, 2012:57-58).
The State of Local Government in South Africa 2009 Report, (2009:71-75) showed that
much of the local government sphere is in distress. The report further showed that much
of the local government municipalities faced challenges such as huge service delivery
and backlog challenges, weak integrative focus between Integrated Development Plans
(IDP?s) and Local Economic Development (LED); increasing backlogs, poor financial
management, poor audit outcomes and credible budgets, poor communication and
accountability relationships with communities, political administrative interface,
corruption and fraud, a number of violent service delivery protests and insufficient
municipal capacity due to a lack of scarce skills. To improve the performance in
municipalities, the national government approved a comprehensive LGTAS at the end
27
of 2009. Since the end of 2009 all municipalities have to consolidate their Integrated
Development Plan (IDP) and budgets with the priorities of the Local Government
Turnaround Strategy (LGTAS). The implications are that all municipalities (Metropolitan,
District and Local Municipalities) must incorporate their own tailor-made Municipal
Turnaround Strategy (MTAS) into their Integrated Development Plan (IDP), as well as
into their budgeting, monitoring, evaluation and reporting process (Van Niekerk,
2012:55). The above Local Turnaround Strategy (LGTAS) and Integrated Development
Plan (IDP) process meant a significant step towards institutional transformation within
the sphere of local government.
The former Mangaung Local Municipality Municipality developed its own Municipal
Turnaround Strategy (MTAS) during 2010 that has been prepared against the
background of the Local Government Turnaround Strategy (LGTAS) approved by
Cabinet in December 2009. After the 2010 elections the newly established Mangaung
Metropolitan Municipality Municipal Turnaround Strategy (MTAS) focused on the
rebuilding and enhancing of basic service delivery, in order to ensure good governance
and public involvement by improving the efficiency and effectiveness of operations, to
return the municipality to financial stability, and to ensure that local economic
development as well as the development and refinement of a spatial development
framework (Mangaung Metropolitan Municipality Turnaround Strategy, 2011:1-3).
1.5 METHODOLOGY
This study followed a two-pronged approach, namely a literature study and a
questionnaire used during structured interviews. The literature study was based on a
qualitative study, which included literature, legislation, policy documents, journal
articles, books, conference papers, the Internet, government reports, IDP plans and
annual review reports. The population of this study consisted of the following with whom
structured interviews were conducted, namely:
28
? The community participation and IDP Acting Director of Mangaung Metropolitan
Municipality; and
? 15 (fifteen) ward committee members.
The probability random sampling method was used to select ten of the forty five(45)
ward committee members that took part in the structured interviews. Leedy, (1989:154)
is of the opinion that randomisation means selecting a sample from the whole
population in such a way that the characteristics of each of the units of the sample
approximates the characteristics of the total population. The reason for the use of the
above sampling method was to gather more accurate information than what might have
been obtained if one had studied the entire population (Brynard & Hanekom, 2006:43).
A questionnaire was developed using a closed and open-ended questioning methods as
to elicit information. A pilot study was conducted with the Integrated Development Plan
(IDP) Acting Director of the Department of Cooperation and Traditional Affairs of the
Free State Provincial Government to test the quality of the material to use and the
appropriateness of the research interview questionnaire.
1.6 LIMITATIONS
The study contains certain limiting conditions, namely:
? External factors that may have an influence on the study, such as the
commitment and willingness of participants to participate in the structured
interviews.
1.7 MANGAUNG METROPOLITAN MUNICIPALITY: CASE STUDY
This section deals with the profile of the Mangaung Metropolitan Municipality. The
geographical orientation, a map and the demographics, management structure,
household structure, growth and development, human capacity, employment, housing,
electricity, health and wellbeing, medium term financial plan and budgeting and
29
challenges of the Mangaung Metropolitan Municipality Integrated Development Plan
(IDP) and its budgetary process are presented.
1.7.1 Profile of the Mangaung Metropolitan Municipality
This subsection deals with the profile of the Mangaung Metropolitan Municipality,
together with the municipal location.
1.7.1.1 The Mangaung Metropolitan Municipality geographical area
The former Mangaung Local Municipality (MLM) was established in 2000 as a category
B municipality, but in April 2011 the Mangaung Metropolitan Municipality (MMM) as a
category A municipality was established. The area of the Mangaung Metropolitan
Municipality covers a total of 6 863 km². The area covers 6 863 km² and comprises
three prominent urban centres, which are surrounded by an extensive rural area. The
three urban centres include Bloemfontein, Botshabelo and Thaba Nchu. The
Mangaung Metropolitan Municipal area is centrally located within the Free State
Province. The Mangaung Metropolitan area is accessible via national infrastructure
including the N1 (which links Gauteng with the Southern and Western Cape), the N6
(which links Bloemfontein to the Eastern Cape), and the N8 (which links Lesotho in the
East with the Northern Cape in the West via Bloemfontein) (Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013-2014, 2013:41).
Mangaung Metropolitan Municipality is situated in Bloemfontein which is the sixth
largest city in South Africa and the capital of the Free State Province. Bloemfontein is
the Judicial Capital of South Africa and serves as the administrative headquarters of the
Free State Province. The city represents the economic hub of the local economy. The
area is also serviced by an east/west and north/south railway line and the Bram Fischer
International Airport (Mangaung Metropolitan Municipality?s Integrated Development
Plan, Review 2013/2014, 2013:41).
30
The second urban centre includes Botshabelo which is located 55km to the east of
Bloemfontein and represents the largest single township development in the Free State
Province. Botshabelo was established in the early 1980s and was intended to provide
the much needed labour in Bloemfontein without the inconvenience of having labour at
the employers? doorstep (Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, 2013:41)
The third urban centre includes Thaba Nchu which is situated 12km further to the east
of Botshabelo and used to be part of the former Bophuthatswana “Bantustan”. As a
result it exhibits a large area of rural settlements on former trusts lands (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, 2012:41).
31
Figure 1.1 A map of the Mangaung Metropolitan Municipality?s area of
responsibility
(Source: Mangaung Metropolitan Municipal Integrated Development Plan, Review 2013-
2014, 2013:42).
1.7.2 Demographics
Mangaung?s population is growing at a faster pace. According to Stats SA in the
Mangaung Metropolitan Integrated Development Plan, Review 2013/2014, (2013:42)
there were 747 431 people residing in the jurisdiction of the Mangaung Metropolitan
Municipality area. This figure increased from 2001 to 2011. The highest increase has
been recorded among Indians or Asians, followed by Whites as indicated in Table 1.1.
32
The relative development of the city of Bloemfontein in particular as a regional hub, has
attracted a number of people hoping to improve their livelihood?s chances. Moreover,
due to it being endowed with educational facilities of high quality, Bloemfontein attracts
students across the province and the country. Many of the students end up finding
employment in the Bloemfontein area after completing their studies, thereby remaining
permanently in the Mangaung Metropolitan Municipal area in most cases. Table 1.2
below illustrates the population since 2001 until 2011.
Table 1.1 Mangaung Population, 2001-2011
Population Group 2011 2001 Increase/Decrease
(%)
Black 622 383 534,429 16%
Coloured 37 337 32,022 17%
Indian or Asian 3 204 962 23,3%
White 82 291 78,025 5%
Other 2217 0 22%
Total 747 431 645,438 16%
(Source: Stats SA in Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013-2014, 2013:43).
The above table shows that there was an increase in the total population of the
Mangaung Metropolitan Municipality since 2001 until 2011. The Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013-2014, (2013:43) further states
that the Mangaung Metropolitan Municipality should pay attention to the volume of
migration to the area. As such special attention should be paid to monitoring migration
into the metropolitan area with the aim of developing and implementing appropriate
33
intervention plans. The Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2013:41) further states that Bloemfontein attracts students
across the province and the country due to the educational facilities of high quality in the
city. Many of the students end up finding employment in the city upon completing their
studies, thereby remaining permanently in the Mangaung Metropolitan Municipal area.
1.7.3 Management structure
The Mangaung Metropolitan Municipal administration is divided into many different
directorates and sub-directorates, all of which deliver specific services. Some sub-
directorates focus on service delivery, whilst others are more concerned with internal
affairs, such as the Corporate Services. The administration of the Mangaung
Metropolitan Municipality is based on seven departments, as well as an executive
support that are vested in two Deputy Executive Directors in the Office of the Service
Delivery and Budget Implementation Plans (SDBIPs). These are required by the
Municipal Finance Management Act (MFMA), 2003 and are central to the establishment
of Mangaung Metropolitan Municipality?s performance management system (Mangaung
Metropolitan Municipality, 2013:1).
The top level of the Service Delivery and Budget Implementation Plans (SDBIPs)
includes the objectives and targets for each Directorate, relative to what should be
implemented during the year. These also incorporate parts of the Integrated
Development Plan (IDP) Programmes that are relevant to each specific Directorate, as
well as the statutory plans for which they are responsible. The Service Delivery and
Budget Implementation Plans (SDBIPs) therefore form the key mechanism for
monitoring the different responsibilities that each Directorate must fulfill.
1.7.4 Household Structure
In 2001 there were 185 013 households in the former Mangaung Local Municipality.
However during 2011 the households in the Mangaung Metropolitan Municipality have
increased to 231 921. The average household size in 2001 was 3,4% and in 2011 the
34
size has decreased to 3,2%. Although the majority of households are headed by men,
female headed households have also increased rapidly from 40,6% in 2001 to 40,8% in
2011 (Mangaung Metropolitan Municipality Integrated Development Plan 2013/2014,
2013:47).
1.7.5 Growth and Development
According to the Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, (2013:98) the economy of the Mangaung Metropolitan Municipality
continues to experience a positive growth pattern with a modest increase in job
creation. However, the economic growth of the area is not sufficient to address the
high rise in youth unemployment as well as to eradicate poverty effectively.
Bloemfontein, as the first urban centre of the Mangaung Metropolitan Municipality,
serves as the hub of economic activities in the municipal area, as well as in the Free
State Province. The Mangaung Metropolitan Municipality Integrated Development Plan
Review 2013/2014, (2013:51-53) further maintains that the area of the Mangaung
Metropolitan Municipality is the largest contributor to the Gross Value Product (GDP) of
the Free State Province. The majority of economic sectors have declined since 1996
until 2011. Examples of this economic sector decline include a decline in agriculture
from 1,55% in 1996 to 1,2% in 2011. This is followed by a decline of 0,5 % in 1996 to
0,3% in 2011 in manufacturing, and a decline in construction from 1,7% in 1996 to 1,1%
in 2011 as well as a decline in wholesale and retail trade from 2,2% in 1996 to 2,1% in
2011. The Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:98) further identified rural development as the most important
strategy to ensure food security. The emphasis and investments of the Mangaung
Metro Rural Development Implementation Plan as provided in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2013:98)
not only strengthen the fight against poverty, but it would also create employment
opportunities and rejuvenate the economies of the rural area. The human capacity
development aspects will be discussed below.
35
1.7.6 Human Capacity Development
According to the Mangaung Metropolitan Municipality?s Annual Performance Report
2011/2012, (2012:13) education is one of the key pillars of fighting the problem of
ubiquitous poverty in the Mangaung Metropolitan Municipality area. The area has
institutions that cater for all levels of education commencing from pre-school, primary
and secondary education to Further Education and Training (FET) and tertiary
institutions.
As such, Bloemfontein as the first urban centre of the Mangaung Metropolitan
Municipality is well positioned to nurture the skills of its citizens as well as those of
neighbouring municipalities (Mangaung Metropolitan Municipality?s Annual Performance
Report 2011/2012, 2012:13).
1.7.7 Employment
Bloemfontein as the administrative headquarters of the Free State Provincial
Government offers a large number of employment opportunities within the community
services sector. According to Stats SA in the Mangaung Metropolitan Municipal
Integrated Development Plan, Review 2013/2014, (2012:52) the unemployment rate
decreased from 40.1% in 2001 to 27,7% in 2011. The Mangaung Metropolitan
Municipality Integrated Development Plan, Review, 2013/2014, (2013:52) further
indicated that the youth unemployment rate was in 2001 49,1% in 2001 and it
decreased to 37,2% in 2011. However, youth unemployment is still unacceptably high
and it remains a challenge that the Mangaung Metropolitan Municipality needs to
address.
1.7.8 Housing
Bloemfontein as the first urban centre of the Mangaung Metropolitan Municipality faces
a huge housing backlog compared to other municipalities in the Free State Province.
36
More than half of the population in the Bloemfontein area resides in township areas of
the city as a result of Bloemfontein being perceived as an economic hub of the Free
State Province and people believing that there are better work prospects and better
living conditions in this region. The Mangaung Metropolitan Municipal Integrated
Development Plan, Review 2013/2014, (2013:56) indicated that there was an increase
in the provision of formal housing from 71,9% in 2001 to 84,4% in 2011. There was
also a decrease from 23,7% to 14,2% in the informal dwellings in that more formal
houses had been provided through a range of government housing programmes. The
Review Report further holds that the housing backlog in 2010 was 53,820 houses. In
cooperation with the Provincial Department of Human Settlements the Mangaung
Metropolitan Municipality?s old and dilapidated houses were demolished and replaced
with new houses in the Batho Township area as part of the urban renewal project.
Another housing project is the Brandwag project where a total of 1052 low cost rental
units are built. This will project will increase the economic integration of the area in the
sense that it is in close proximity of businesses, educational, health and recreational
facilities. The Mangaung Metropolitan Municipality Integrated Development Plan
Review 2013/2014, (2013:59) further showed that the Mangaung Metropolitan
Municipality together with the City and Housing Development Agency (HAD) aimed at
ensuring that all urban informal initiatives are properly coordinated in terms of
prioritization, development planning, resources allocation and implementation. A
summary of the medium term financial plan will be discussed below.
1.7.9 Summary of the medium term financial plan
In terms of Section 24 of the Municipal Finance Management Act, 2003 (Act 56 of
2003), the annual budget of the Mangaung Metropolitan Municipality?s total revenue is
R6,193,762,852, with an operating expenditure of R5,368,472,823 and a capital
expenditure budget of R865,988,708 for the financial year 2012/2014. The operating
revenue budget is projected at R6,193.7 billion in 2013/2014 representing an increase
in revenue of R637,74 million (11.48%) on the 2012/2013 Adjustment Budget of
R5,556,million. The allocations for the outer two years of the Medium Term Revenue
37
Framework period is approximately R6,994,8 billion and R7,629.14 billion respectively
(Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013:306).
Furthermore, the Municipal Finance Management Act, 2003 (Act 56 of 2003) requires
the Mayor of the Mangaung Metropolitan Municipality, as in the case of all other
municipalities, to provide general political guidance over the budget process and to
priorities that must guide the preparation of a budget. According to the Mangaung
Metropolitan Municipal Integrated Development Plan, Review 2013/2014, (2013:306)
the new National Treasury Budget Regulations, gives further effect to this by prescribing
that the Mayor of the Mangaung Metropolitan Municipality must establish a Budget
Steering Committee to assist in discharging the mayor?s responsibility as set out in
Section 53 of the Municipality Financial Management Act, 2003. Compilation of the
Mangaung Metropolitan Municipality?s annual budget commenced with the presentation
of the budget parameters to the Budget Committee, composed of executive political
representatives. The committee?s terms of reference include the following:
? To provide guidance on budget principles
? To consider draft budget operational and capital parameters
? To review directorates? budget inputs via budget hearings after tabling of the draft
budget; and
? To review and advise on the outcome of the Medium-term Expenditure
Framework (Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, 2013:306).
According to the Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, (2013:23), its Integrated Development Plan (IDP) outlined the key
areas after it took into account national and regional development priorities, outcomes
and goals for the development of its short to medium term priorities. These are
commitments that the Mangaung Metropolitan Municipal Council will take forward. By
and large the Mayoral Committee played a significant role in shaping these priorities
38
and it was necessary to link them to the national, provincial, district and sector
department priorities and plans. The Mangaung Metropolitan Municipality identified the
following development priorities for the next five years, namely:
? Poverty reduction, job creation , rural and economic development;
? Financial sustainability with focus on revenue enhancement and clean audit
targets;
? Spatial development and the built environment;
? Eradication of the bucket system in the Mangaung, Botshabelo and Thaba
Nchu areas;
? Human settlements;
? Public transport;
? Environment management and climate change;
? Social and community services; and
? Good governance (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, (2013:17, 97 and 307).
1.7.10 Integrated Development Plan 2012-2016 and the Mangaung Metropolitan
Service Delivery Budget Implementation Plan (SDBIP)
In terms of the Municipal Finance Management Act, 2003 (Act 56 of 2003) (hereinafter
referred to the as Municipal Finance Management Act, 2003) all municipalities are
mandated to develop a Service Delivery Budget Implementation Plan SDBIP) that is an
integral part of the financial planning process that incorporates the Integrated
Development Plan (IDP) and the budget for a specific year. The Service Delivery
Budget Implementation Plan (SDBIP) is therefore a detailed plan approved by the
Executive Mayor for implementing the Mangaung Metropolitan Municipality Integrated
Development Plan (IDP) and its related annual budget (Mangaung Metropolitan
Municipality?s Annual Performance Report 2011/2012, 2012: 41).
39
1.8 CHALLENGES OF MANGAUNG METROPOLITAN MUNICIPALITY
INTEGRATED DEVELOPMENT PLAN AND BUDGETARY PROCESS
According to the Integrated Development Plan (IDP) Review 2011/2012 Report, (in Van
Niekerk, (2012:63-64), the Mangaung Metropolitan Municipality, like any other
municipality in the country faces a number of challenges to turn -around its financial and
operational affairs. These challenges include the effective management of expenditure,
anticipating and monitoring of revenue, maintaining the reserves, and creating and
adhering to future medium-term revenue expenditure framework (MTREF) multi-year
budgets. Van Niekerk, (2012:64) further mentioned that the Mangaung Metropolitan
Municipality also faces serious challenges in terms of service delivery backlogs and
financial resources after meeting its 2010 Soccer World Cup commitments.
Furthermore, the former Mangaung Local Municipality receives a disclaimer of opinion
audit report for the 2009/2010 and 2010/2011 financial years. In its first year as a
category A municipality, the Mangaung Metropolitan Municipality received a qualified
audit opinion during the 2011/2012 financial year (Auditors General Report on the Audit
Outcomes of the Free State Local Government, 2011 to 2012, 2012:37). Thus, although
the Local Government Turnaround Strategy was incorporated in the Mangaung
Metropolitan Municipality?s own tailor-made Municipal Turnaround Strategy (MTAS),
one of the most significant challenges in the Mangaung Metropolitan Municipality is to
become a financially viable and well-managed Metropolitan municipality.
In light of the above the Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2013:21) cited that an Integrated Development Planning
Alignment and Assessment Workshop was convened in April 2013 by the Free State
Provincial Department of Cooperative Governance and Traditional Affairs. The
workshop was attended by representatives of national, provincial and local government
to review the National Development Plan of 2030, the Free State Growth and
Development Strategy and the draft Integrated Development Plan of the Mangaung
Metropolitan Municipality to ensure that its reviewed Integrated Development Plan (IDP)
40
is aligned with national and provincial governments plans, outcomes and strategies. As
a result of the review the following challenges were identified:
? Ineffective implementation of decentralisation concerning the municipal
transformation and institutional development together with a shortage of
personnel in critical divisions such as infrastructure departments and supply
chain remains a challenge;
? The housing backlogs, and incomplete housing projects still remains a problem;
? The increase in illegal informal settlements and land invasions in areas planned
for different development initiatives;
? The development of the Mangaung Metropolitan Municipality disaster
management centre;
? Ineffective service delivery such as refuse and waste collection and ensuring
reliable water supply remains a challenge;
? Ageing service delivery infrastructure including electriticy and water line losses
and utilities remains a serious challenge; and
? Ineffective revenue collection due to the reliance on Intergovernmental Relations
transfers such as conditional grants remains a challenge (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013: 81-85).
According to the Mangaung Metropolitan Muncipailty Integrated Development Plan,
Review 2013/2014, (2013:88,96) the following aspects are key consideration in the
medium to long term as incorporated in the Mangaung Metropolitan Municipal
Integrated Development Plan (IDP) and its Local Governments Turnaround Strategy
(LGTAS) ten point plan, namely:
? Achieve clean audits by 2014
? Facilitate the development of the N8 corridor development
? Dealing with the fiscal gap by dealing with critical issues such as billing
completeness and accuracy, collections efficiency, debtors minimization and
41
management, tax and tariff increases for existing revenue sources and
expenditure efficiencies
? Ensuring the effective implementation of the bulk contribution policy such as the
7000 properties that are not metered for varied services
? Ensure water service supply and sustainability
? Mainstreaming of poverty reduction as incorporated in the IDP
? Developing Botshabelo and Thaba-Nchu to reduce transportation costs on the
poor
? Accelerating of Level 2 Housing Accreditation; and
? Leveraging resources for a number of flagship projects namely land
development, Inner city redevelopment, and township rehabilitation (including
greening, open spaces and cemeteries.
The above challenges are incorporated into current Municipality?s Integrated
Development Plan to be addressed in the medium to long- term. The layout of
chapters in this dissertation will be explained in the next section.
1.9 LAYOUT OF PRELIMINARY CHAPTERS
This study is divided into the following five chapters:
Chapter 1: Introduction and Research background
This chapter outlines the problem statement, research methodology, research questions
and objectives.
Chapter 2: Theoretical overview of integrated development planning, local
government turnaround strategy and its implementation in the South African
local government sphere
This chapter outlines the origin, statutory and regulatory framework as well as the
implementation of the LGTAS and IDPs in South African Municipalities.
42
Chapter 3: Public participation, Integrated Development Planning (IDP) and Good
Governance: A Conceptual Practical Interface
Firstly the chapter provides the legislative and policy directives of the national
government of South Africa and literature exploration with regard to public participation
and good governance with regard to the IDP. Finally, the chapter concludes by giving
an account of how public participation and good governance enables municipalities to
achieve developmental objectives by means of the IDPs.
Chapter 4: Research Methodology and Empirical Findings of the Local
Government Turnaround Strategy (LGTAS) on Public Participation and Good
Governance in the Integrated Development Planning (IDP) process: The Case of
Mangaung Metropolitan Municipality
This chapter focuses on the research methodology used in this study. The chapter
further focuses on the research conducted in the Mangaung Metropolitan Municipality
area to explore the impact of the Local Government Turnaround Strategy on public
participation and good governance in the Integrated Development Planning process.
Chapter 5: Research Summary and Recommendations
A conclusion is drawn and proposals are made on the impact of the LGTAS on public
participation and good governance in the IDP process within the Mangaung
Metropolitan Municipality based on the facts analysed from the research findings.
43
CHAPTER 2
A THEORETICAL OVERVIEW OF INTEGRATED DEVELOPMENT PLANNING, THE
LOCAL GOVERNMENT TURNAROUND STRATEGY AND THEIR
IMPLEMENTATION IN THE SOUTH AFRICAN LOCAL GOVERNMENT?S SPHERE
2.1 INTRODUCTION
Section 154 of the Constitution of the Republic of South Africa, 1996 provides that the
national and provincial governments must support and strengthen the capacity of local
authorities by legislative and other measures to manage their own affairs, to exercise
their power and to perform their functions. The Constitution, 1996 emphasises that
these authorities have a distinctive role in promoting social development and democracy
on the local sphere. Giving effect to these constitutional principles it requires all
municipalities (Metropolitan, District and Local Municipalities) to manage their
administration, budgeting and planning processes in such a manner that they give
priority to the basic needs of the community and promote the economic and social
development of their people. The introduction of the White Paper on Local Government
(WPLG), 1998 reinforced this mandate by recognising the South African local
government sphere as being primarily developmental in the sense of being committed
to working with communities to find suitable ways to meet their social, economic, and
material needs and to improve the quality of the citizens lives. Since 1996 the
government introduced a variety of policy directions to ensure that local government
would fulfill a meaningful role in the development and welfare of its citizens. In terms of
the Local Government Municipal Systems Act, 2000, all municipalities must have an
Integrated Development Plan (IDP) and should engage in an annual Integrated
Development Planning (IDP) process.
44
However, the State of Local Government in South Africa Report in 2003 and again in
2009 showed that most municipalities in South Africa routinely receive poor audit
reports and are therefore gaining a reputation of poor service delivery, ineffectiveness,
incompetence and experiencing high levels of corruption. During 2009, the Department
of Cooperative Government and Traditional Affairs (CoGTA) conducted a provincial
wide assessment to ascertain the root causes for the poor performance, distress or
disfunctionality of municipalities. Drawing from the provincial wide assessments of each
of the 283 municipalities and the 2009 State of Local Government in South Africa report,
the Department of Co-operative Governance and Traditional Affairs (CoGTA),
announced the Local Government Turnaround Strategy (LGTAS). The Local
Government Turnaround Strategy (LGTAS) is a comprehensive intergovernmental
intervention that identified five areas within the municipalities? operations that need to be
addressed and improved. The main aim of the Local Government Turnaround Strategy
(LGTAS) is to turnaround the municipalities? performance and to rebuild and improve
the basic requirements for a functional, responsive, accountable, effective and efficient
developmental local government (Department of Cooperative Governance and
Traditional Affairs (CoGTA),LGTAS, 2009:3-4).
This chapter discusses the origin of Integrated Development Planning (IDP) and the
Local Government Turnaround Strategy (LGTAS), as well as the statutory and
regulatory framework of Integrated Development Planning (IDP) and Local Government
Turnaround Strategy (LGTAS). The nature and extent of typical municipal services and
the key performance areas of Integrated Development Planning (IDP) as well as the
composition of IDP phases are also discussed in this chapter. The local Government
Turnaround Strategy (LGTAS) in context is also discussed to solicit the five strategic
objectives and immediate medium-term priorities of this strategy followed by a
discussion about the implementation of Integrated Development Planning (IDP) and the
Local Government Turnaround Strategy (LGTAS). The next section focuses on the
origin of Integrated Development Planning (IDP) and the Local Government Turnaround
Strategy (LGTAS).
45
2.2 THE ORIGINS OF INTEGRATED DEVELOPMENT PLANNING
A useful starting point is to define development. Swanepoel and De Beer (1997:43)
define development simply as the opposite of poverty in that development addresses
the poverty of people, whereas Wessels and Pauw (1999:100) maintain that
development refers to constructive work aimed at improving human welfare. Further,
Human (2007:5) asserts that development may be regarded as the process by which
poverty is reduced, not only in monetary value, but also in terms of social inclusion and
access to goods and services.
Fitzgerald (1997:3-4) cited that during the 1980?s the development debate in South
Africa was not the main priority as attention was focused on the political struggle during
the Apartheid years. In the beginning of the 1990?s there was a shift towards the
negotiated transition and slowly the development debate began to emerge. Since the
first democratic elections has taken place in 1994, and the newly established
democratic government has faced enormous challenges such as poverty, inequality and
greater access to basic public services. As a result the government began addressing
these challenges by enshrining constitutional rights to basic service access, radically
reforming economic and sector policies and funding service delivery programmes. One
such programme was the Restructuring Development Programme (RDP) that was the
first development-oriented approach of the newly established democratic government.
Pillay, Tomlinson and Du Toit (2001:23) hold that the Reconstruction and Development
Programme was an integrated, coherent socio-economic policy framework that aimed to
eradicate poverty and deprivation, to meet the basic needs of communities, to build the
economy, to promote the democratising process of the state and society, to develop
human resources and to build the nation and addresses spatial settlements. The salient
weaknesses of the Reconstruction and Development Programme were that it was not a
detailed plan with detailed targets, implementation mechanisms and budgeting. It was
rather a statement of a vision, in which development meant, first and foremost the
satisfaction of basic needs (Robinson and White (2002:316). Du Plessis, Lundy and
Swanepoel, (1998:14-15) further argue that the former Reconstruction and
Development Programme (RDP) was the first development-oriented policy since 1994
46
(IDP, Local Pathway to Sustainable Development in South Africa 2002:4-6). The latter
was replaced by the former Growth Employment and Redistribution Strategy (GEAR)
and in 2010 by the New Economic Growth Path Plan that hopes to enhance growth,
employment creation and equity in South Africa in 2010.
In light of the above, Van Niekerk (2012:55) mentioned that Integrated Development
Planning (IDP) has its roots from the United Nations Conference on Environment and
Development held in 1992 in Rio de Janeiro. Local Agenda 21 was announced at this
conference as attempts of the 180 member states to address sustainable development
through a programme of actions at local level. Local Agenda 21?s main objectives are
to raise awareness of environmental and sustainability amongst the public, to maximise
the support and involvement of local communities, and to promote economic
development and social progress while reducing environmental impact (DEAT in Van
Niekerk, 2010:55). Du Plessis, Lundy and Swanepoel, (1998:13) are of the opinion that
the principles of Local Agenda 21 are embedded in the Constitution, 1996 that gives the
following mandate to local government, namely: to provide democratic and accountable
government for all communities; to ensure the provision of services to communities in a
sustainable manner; to promote social and economic development and to promote a
safe and healthy environment.
Except for the Local Agenda 21 initiative, the poor service delivery in township areas
during the Apartheid years was appalling; this situation also prompted the idea of
integrated development planning (Krige, 1998:13). Therefore, the former Department of
Provincial and Local Government initiated the restructuring of local government and
introduced the integrated development planning in an attempt to improve the planning
process at local government sphere. Integrated Development Planning (IDP) came into
effect with the passing of the Local Government Transition Second Amendment Act,
1996 and the White Paper on Local Government, 1998 as a way to promote a
developmental local government in South Africa. The enactment required that all
transitional metropolitan, district and local municipalities prepare an Integrated
Development Planning (IDP). The effect of the enactment has been the introduction of
47
an instrument that would assist the newly constituted municipalities to execute their
functions in a coordinated, strategic, developmental and fiscally responsible manner.
The effect of the enactment was the introduction of Integrated Development Planning
that guides and informs all management, planning, decision-making and actions on
which annual budgets are based in a Municipality. Key characteristics of an Integrated
Development Planning (IDP) are that it has a lifespan of five years, and that it is aligned
directly to the term of office for local councilors. This means that after every local
government election, the new council can adopt the existing Integrated Development
Planning (IDP) or develop a new IDP that takes existing plans into consideration.
However, Pillay, Tomlinson and Du Toit (2006:196) contend that this was done in haste,
in response to a particular opportunity and that there was no time to develop the
concept of the Integrated Development Planning (IDP) before introducing the
abovementioned legislation. Most of the municipalities followed a one-size-fits-all
approach with the introduction of their first Integrated Development Plan (IDP).
Previous governmental interventions such as Project Consolidate and the five year
Strategic Local Government Agenda also applied a “one-size-fits-all” approach to
restore good performance and effective service delivery of the country?s municipalities
(Department of Co-operative Governance and Traditional Affairs (CoGTA), 2009:24).
Both of these interventions failed to focus on root causes of local government distress
(Vika, 2010:1-4).
Van Niekerk, (2012: 57-58) indicates that although much progress has been made since
2002 with the introduction of Integrated Development Planning (IDP), numerous service
delivery protests occurred since 2004 where communities were demanding effective
service delivery, infrastructure, housing, electricity and water among other essentials.
This situation demanded an urgent response as municipalities were at the centre of
delivery. The Presidency, Ten Year Review Report”, (2003:2) showed that the
government is making progress on its objectives originated in the Reconstruction and
Development Programme that includes meeting basic needs, building the economy,
democratising the state and society, developing human resources, and building the
48
nation. But the report also showed that weaknesses reside at local sphere with the
management and implementation of these objectives. However, the report also
announced that continuing on the current trajectory would precipitate a vicious cycle of
decline in all spheres. It further emphasised the need for greater participation and
interaction of communities with the Integrated Development Planning (IDP) processes.
2.3 THE IMPORTANCE OF INTEGRATED DEVELOPMENT PLANNING
According to the White Paper on Local Government, (1998:47), the purpose of
integrated Development Planning (IDP), in line with the new paradigm on development
planning, is to provide a framework within which municipalities can understand the
various dynamics operating within their areas of jurisdiction, develop a concrete vision
for their areas and formulate strategies for financing and realising their visions in
partnership with other stakeholders. The enactment of the Municipal Systems Act, 2000
underlines the importance that each municipality has to adopt a single, inclusive plan for
the development of the municipality.
The Municipal Systems Act, 2000 clearly sets out the principles, processes and
mechanisms for municipalities to shift into a new position within the landscape of
development. Requirements to enhance Integrated Development Planning (IDP) were
introduced in Section 26 of the Municipal Systems Act, 2000 as cited by Van Niekerk,
(2012:25) further determines that all Integrated Development Plans (IDPs) must reflect
Municipal Councils? vision for the long-term development of the municipality with special
emphasis on the municipality?s most critical development and internal transformation
needs. This Municipal Systems Act, 2000 also describes the content requirements to
be followed by each municipality in developing their inclusive Integrated Development
Plan (IDP). The Municipal Structures Act, 1998 (Act, 117 of 1998) (hereinafter referred
to as the Municipal Structures Act, 1998) provides that district municipalities are also
responsible for integrated development planning and sets out a framework for
integrated development plans. It should also be noted that Integrated Development
Planning (IDP) for local municipalities should be aligned with the district municipalities
IDP framework. Furthermore, each municipal Integrated Development Plan (IDP)
49
should be aligned with the provincial sector department?s policies and programmes. In
addition provincial governments are also responsible for the monitoring of the Integrated
Development Planning (IDP) process in the province and to and ensure that resources
allocations are guided by IDPs (Ceaser & Theron 1999: 60-63).
2.4 AN OVERVIEW OF THE LOCAL GOVERNMENT TURNAROUND STRATEGY
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), (LGTAS, 2009:19; and (CoGTA), LGTAS, Municipal Guidelines, 2010:3), the
Local Government Turnaround Strategy (LGTAS) is a country-wide intervention, with
strong emphasis on improving performance, monitoring, governance, and
accountability. The primary aim of the Local Government Turnaround Strategy (LGTAS)
is to ensure that all municipalities and their communities embark upon a concentrated
effort to deal with the root causes undermining the country?s municipalities and to
restore good performance and effective service delivery. One of the main aims of the
Local Government Turnaround Strategy (LGTAS) is to renew the vision of the
developmental local government. To do this the Local Government Turnaround Strategy
(LGTAS) seeks to improve the organisational and political performance of municipalities
and in turn to improve the delivery of services. The goal is to improve the lives of
citizens, and progressively meet their social, economic and material needs, thereby
restoring community confidence and trust in government (Buthelezi, 1999:21).
On the one hand, the Local Government Turnaround Strategy (LGTAS) strives to
address the communities? increasing dissatisfaction with poor municipal service
delivery, while on the other hand the intervention strives to improve the administrative
and financial performance of all municipalities. The latter was confirmed by the Auditor-
General South Africa (AGSA) Report on Local Government 2007/2008. (Van Niekerk,
2012:58) noted that an overwhelming number of municipalities had received poor audit
opinions, either disclaimers or qualified opinions, due to mismanagement and a lack of
control systems. The Local Government Turnaround Strategy (LGTAS) approach
required every municipality to draw up its own tailor-made Local Government
Turnaround Strategies that should be known as a municipality?s own Municipal
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Turnaround Strategies (MTAS) by April 2010 to remedy problems in the area of
jurisdiction (The Department of Cooperative Governance and Traditional Affairs
(CoGTA), 2009:43). Subsequently, the Municipal Turnaround Strategies (MTAS)
should find expression in the municipality?s own Integrated Development Plan (IDP), as
it is intended to address the key strategies of the municipality through key projects.
These projects must be aligned to the strategies and priorities of the municipality,
Integrated Development Plan (IDP) and the budget (Lekgoro, 2011:4-6). This means
that the Municipal Turnaround Strategy (MTAS) for each municipality cannot exist
outside that municipality?s Integrated Development Plan (IDP). Thus, the Local
Government Turnaround Strategy (LGTAS) provides the municipality with guidelines for
action, as well as with resources for support, which must be reflected in the Integrated
Development Plan (IDP). Annual and mid-term budgeting is also based on the
Integrated Development Plan (IDP) of a municipality. However, a municipality?s budget
is neither an implementation plan nor a management plan. In terms of the Local
Government: Municipal Finance Management Act, 2003 the Service Delivery and
Budget Implementation Plan (SDBIP) gives effect to the implementation of the municipal
IDP and budget. It furthermore provides the basis for measuring performance in service
delivery against end-of-year targets and budget implementation (Sol Plaatje
Municipality, 2010:28). One could argue that the Service Delivery and Budget
Implementation Plan (SDBIP) can be seen as a contract between a municipality?s
administration, the council and community, expressing the strategic objectives set by
the council as quantifiable outputs to be implemented by the administration during a
specific financial year.
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA),(2009:19) the Local Government Turnaround Strategy (LGTAS) strives to
achieve five strategic objectives, namely;
? To ensure that municipalities meet the basic service needs of their communities
? To build a clean, effective, efficient, responsive and accountable system of local
government
? To improve performance and professionalism within municipalities
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? To improve national and provincial policy, oversight and support
? To strengthen partnerships between communities, civil society and local
government (Department of Co-operative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:19).
Drawing from the State of Local Government in South Africa Report of 2009, Van
Niekerk, (2012:58) states that some municipal powers and functions were revised with
the enactment of the Municipal Systems Amendment Bill, 2010. The main objective of
this bill is to grant the Minister for Co-operative Governance and Traditional Affairs
adequate regulatory powers in respect of municipal managers and those directly
accountable to them. The Bill furthermore addresses key elements of the Local
Government Turnaround Strategy (LGTAS). Due to the inherent vagueness of the
Municipal Structures Act, 1998 concerning the power to appoint a municipal manager or
someone to act in that position, the Bill transfers this power to the Municipal Systems
Act, 2000 that specifies the requirements relating to the skills and expertise that
municipal managers must have in order to perform the duties associated with the
position. Other amendments include new provisions in the Municipal Systems Act,
2000 that will allow for the appointment of a municipal manager to lapse if a
performance agreement is not signed within 60 days. Moreover, any municipal staff
member who has been dismissed for misconduct may only be re-employed in a
municipality after a certain period of time has elapsed, while a staff member dismissed
for financial misconduct, corruption or fraud may not be re-employed in a municipality
for a period of ten years. The proposed amendments reaffirm government?s
commitment to strengthening the performance and accountability of municipalities. This
might have an effect on public decision-making, however, in that autonomy is
concentrated at the national sphere of government, and one could argue that it could
lead to delays in decision-making at local sphere.
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA, LGTAS, Municipal Guidelines, 2010:3-4) the Local Government Turnaround
Strategy (LGTAS) has different focus areas: Firstly the focus was on the immediate
52
priorities prior to the 2011 elections. Secondly, the focus from March 2011 until 2014 will
be on medium-term or post-election priorities. The immediate priorities prior to the 2011
elections consisted of four phases that commenced at the end of January 2010 and
concluded in March 2011. The first phases can be seen as a pilot project in which
selected municipalities per province developed their respective own Local Government
Turnaround Strategies referred to as the municipalities own Municipal Turnaround
Strategy (MTAS), followed by the second phase in which all municipalities followed the
same process before incorporating their Municipal Turnaround Strategy in their
Integrated Development Plan (IDP). The third phase includes the budgeting and
approval of each municipality?s Integrated Development Plan (IDP), while the fourth
phase involves implementation, monitoring and evaluation.
2.5 NATURE AND EXTENT OF MUNICIPAL SERVICES
Service delivery is one of the core functions of a municipality, whereas, Integrated
Development Planning (IDP) is a mechanism to fast-track the delivery of services by
promoting good governance, effective decision-making, public participation and
accountability at local sphere (Nealer, in Van der Waldt et al 2007:102). The objects of
local government, the required municipal services and the developmental duties of
municipalities are set out in the Constitution, 1996. Section 152 of the Constitution,
1996 indicated that the objectives of local government is to provide a democratic and
accountable government to all communities in a specific municipal area. Municipal
services should be provided in a sustainable manner, municipalities are responsible for
promoting social and economic development, promoting a safe and healthy
environment and encouraging the involvement of communities and community
organizations in the matters of local government. Whereas, Section 153 of the
Constitution 1996, sets out the developmental duties of municipalities in that all
municipalities must participate in national and provincial development programmes.
Furthermore, this section holds that all municipalities must structure and manage its
administration and budgeting and planning processes to give priority to the basic needs
53
of the community and to promote the social and economic development of the
community.
Fox and Meyer, (1995:118) refer to service delivery as the provision of public goods,
activities, benefits or satisfaction. The Municipal Systems Act, 2000 refers to basic
municipal services that are necessary to ensure an acceptable and reasonable quality
of life, and if not provided, would endanger public health or safety or the environment in
a specific municipal area. The Municipal Systems Act, 2000 further indicates that a
municipal service refers to a service that a municipality provides in terms of its powers
and functions or may provide to or for the benefit of the local community irrespective of
whether such a service is provided, or is to be provided by an internal or by an external
mechanism or fees, charges or tariffs that are levied in respect of such a service or not.
The Constitution, 1996 sets out the powers and functions of municipalities in Section
156 and Schedules 4 and 5. The functions and powers of district and local
municipalities that are divided in accordance with the provisions of the Municipal
Structures Act, 1998 maintain that metropolitan municipalities? functions and powers are
set out in Part B of Schedule 4 and 5. The Municipal Structures Act, 1998 further
provides that a district municipality has the following functions and powers conferred on
it namely:
? Integrated Development Planning (IDPs) for the district municipality
? Portable water supply systems
? A Bulk supply of electricity
? Domestic waste water and sewage disposal systems
? Solid waste disposal sites
? Municipal roads
? The regulation of passenger transport services
? Municipal airports serving the area of the district municipality as a whole
? Municipal health services
? Responsible for firefighting services, serving the area of the district
municipality
54
? To establishment and control of fresh produce markets and abattoirs serving
the area of the major proportion of the municipalities in the district
? To establishment, conduct and control of cemeteries and crematoria serving
of a major proportion of municipalities in the district
? The promotion of local tourism for the area of the district municipality
? Responsible for the receipt, allocation and distribution of grants made to the
district municipality
? Responsible for the imposition and collection of taxes, levies and duties
assigned to the district municipality
? Responsible for municipal public works and
? Any other functions assigned to the district municipality.
A local municipality is authorised to exercise a power to perform the following municipal
services as cited in Craythorne, (2006:156-157), namely:
? To provide potable water supply
? To provide a bulk supply of electricity, including the transmission, distribution
and – where applicable - the generation of electricity
? To provide a domestic waste-water and sewage disposal systems and
? To provide municipal health services.
Nealer, (in Van der Waldt et al, 2007:151) further states that local municipalities are also
responsible, amongst others, for the following municipal services:
? To provide corporate services, for example, the supply of information and
statistics
? Responsible for crime prevention and law enforcement
? Responsible for environmental management
? Responsible for housing provisioning and valuations of properties
? Responsible for social development
? To ensure good governance and
55
? Responsible for disaster management.
Although legislation clearly provides the functions and powers of the local sphere of
government, the reality is that the majority of local municipalities struggle to promote
effective service delivery. Despite the fact that much progress has been made since
2002 with the introduction of integrated development planning in all municipalities
numerous incidents of service delivery protests occurred since 2004 where communities
were demanding effective service delivery, infrastructure, housing, electricity and water
among other essentials. In response to flaring tensions, government, through the
Ministry of Local Government and Traditional Affairs, among others, commissioned a
national study on the state of Local Government. The State of Local Government
Report, 2009 in Edwards, (2010:58) found widespread municipal corruption and abuse
of political office and job status for personal gain. The report further emphasizes that in
most instances, municipalities appointed managers who are not capable and competent
to provide the necessary leadership and supervision to promote effective service
delivery (The Department of Cooperative Governance and Traditional Affairs (CoGTA),
LGTAS, 2009:52-53). This situation demanded an urgent response as municipalities
were at the centre of delivery. As a result the Department of Cooperative Governance
and Traditional Affairs (CoGTA) announced the draft Local Government Turnaround
Strategy (LGTAS) in October 2009 at the Local Government Indaba that was
subsequently approved by Cabinet in December 2009 in order to address the numerous
service delivery challenges at local government sphere (Van Niekerk, 2012:25).
2.6 THE STATUTORY AND REGULATORY FRAMEWORK OF INTEGRATED
DEVELOPMENT PLANNING
This section outlines the statutory and regulatory framework that forms the basis for the
formulation and implementation of Integrated Development Planning (IDPs) and Local
Government Turnaround Strategies (LGTAS).
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2.6.1 The Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
The concept of sustainable development is entrenched in Section 23 of the Constitution
of the Republic of South Africa, 1996 and affirms the democratic values of human
dignity, equality and freedom. The Constitution, 1996 further emphasises that everyone
has the right to an environment that is not harmful to their health or wellbeing. Section
23 of the Constitution, 1996 further affirms the need to secure ecologically sustainable
development and the use of natural resources while promoting justifiable economic and
social development. Chapter 10 of the Constitution, 1996 sets out the basic values and
principles governing public administration. The Constitution, 1996 gives the following
mandate to local authorities:
? To provide a democratic and accountable government for all citizens in their
jurisdictions
? To promote sustainable provision of services to communities
? To promote social and economic development
? To promote a safe and healthy environment and to
? Encourage community participation in matters of local government.
Section 154 of the Constitution, 1996 provides that national and provincial governments
must support and strengthen the capacity of local authorities by legislative and other
measures to manage their affairs, to exercise their power and to perform their functions,
thereby giving these authorities a distinctive role in promoting social development and
democracy on local sphere. The Constitution, 1996 also mandate municipalities with
major developmental responsibilities to ensure that the quality of life of its citizens is
improved. The role for local government includes the provision of basic services,
creation of jobs and eradication of poverty. Section 153 of the Constitution, 1996
implies that a municipality must structure and manage its administration and budgeting
and planning processes to give priority to the basic needs of the community and to
promote the social and economic development of the community (Craythorne,
2006:146).
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2.6.2 The Development Facilitation, 1995 (Act 67 of 1995)
The Development Facilitation Act, 1995 introduced a new planning ethos in South Africa
by providing the general principles for land development and development planning.
The Act further places a responsibility on local authorities to promote efficient and
integrated land development to encourage environmentally sustainable land
development practices and procedures and to prepare their annual Land Development
Objectives. The Land Development Objectives imply that land use development should
be planned in an integrated and strategic manner. The Land Development Objectives
were later incorporated into the municipalities? Integrated Development Plans (IDP) with
the introduction of the White Paper on Local Government, 1998.
2.6.3 Land Use Management Bill, 2007
The Land Use Management Bill, 2007 provides the principles that guide the formulation,
determination, development and implementation of all policies and legislation in the
three spheres of government regarding land development and land use management.
To facilitate the land development process, the Bill further requires each municipality to
align its Spatial Development Framework (SDF) a component of the Integrated
Development Plan (IDP) and land use scheme with the framework for Integrated
Development Planning (IDPs).
2.6.4 The Local Government Transition Second Amendment Act, 1996 (Act 97 of
1996)
This Act as well as the Draft Local Government Municipal Systems Bill, 1999 require
that all municipalities have an Integrated Development Plan (IDP). It also requires that
Metropolitan councils and local authorities must prepare their financial and other plans
in accordance with their Integrated Development Plans (IDPs). These authorities have
to monitor and assess their performance against their Integrated Development Plan
58
(IDP) and also report to and receive comments from their communities regarding the
objectives set in the IDPs.
2.6.5 Inter Governmental Fiscal Relations Act, 1997 (Act 57 of 1997)
The Inter Governmental Fiscal Relations Act, 1997 provides the framework that permits
the implementing of the sharing of state financing between the three spheres of
government in support of Section 214 of the Constitution, 1996.
2.6.6 White Paper on Local Government, 1998
Integrated Development Planning (IDP) came into effect with the passing of the Local
Government Transition Second Amendment Act, 1996 and the White Paper on Local
Government, 1998 to promote a developmental local government in South Africa. It
requires municipalities to address the following:
? The skewed settlement patterns which are functionally inefficient
? The extreme concentrations of taxable economic resources in formerly white
areas, demanding redistribution between and within local areas
? To manage backlogs in service infrastructure in historically underdeveloped
areas
? To entrench modes of decision-making, administration and delivery inherited
from municipalities geared for the implementation of urban and rural apartheid
? The inability to leverage private sector resources for development due to a
breakdown in the relationship between capital markets and local authorities
? The substantial variations in capacity, with some local authorities having little or
no pre-existing institutional foundations to build on
? The need to rebuild relations between local authorities and the local communities
they serve (Kroukamp, 2006:23; White Paper on Local Government, 1998:17).
The White Paper on Local Government, (1998:18) maintains that Integrated
Development Planning (IDPs) is a way of achieving developmental local government.
59
The White Paper on Local Government (1998:18) also stipulates that an Integrated
Development Plan (IDP) intends:
? To align scarce resources around agreed policy objectives
? To ensure integration between sectors with local government
? To enable alignment between provincial and local government
? To ensure transparent interaction between municipalities and residents, making
local government accountable.
The central theme of the White Paper on Local Government, 1998 is the need for
municipal councils to become more developmental in focus. It further states that local
government should fulfill its mandate to improve and accelerate the delivery of essential
services and development.
2.6.7 Local Government Municipal Systems Act, 2000 (Act 32 of 2000) and
Amendment Act, 2011 (Act 7 of 2011)
The Municipal Systems Act, 2000 (Act 32 of 2000) sets out the principles, processes
and mechanisms for municipalities to shift into a new position within the landscape of
development and included in these is the Integrated Development Planning process.
Section 25 (1) of the Municipal Systems Act, 2000 requires the municipal council, within
a prescribed period after the start of its elected term, to adopt a single, inclusive and
strategic plan for the development of the municipality namely:
? To link, integrate and coordinate plans and take into consideration proposals for
the development of the Municipality
? To align the resources and capacity of the municipality with implementation of the
plans
? To form the policy framework and general basis on which annual budgets must
be based
? To comply with the provisions of Chapter 5 of the Act
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? To ensure that the national provincial development plans and planning
requirements are binding on the municipality in terms of legislation
? In the light of the above, it means that all municipalities (i.e metropolitan district
municipalities and local municipalities) should undertake an integrated
development planning process to produce integrated development plans.
Section 26 of the Municipal Systems Act, 2000 further outlines the core components of
the Integrated Development Plan (IDP) of a municipality to reflect the following:
? The municipal council?s vision for the long-term development of the municipality
with special emphasis on the municipality?s most critical development and
internal transformation needs
? An assessment of the existing level of development in the municipality which
must include an identification of communities which do not have access to basic
municipal services
? The council?s development priorities and objectives for its elected term, including
its local economic development aims and its internal transformation needs
? The council?s development strategies which must be aligned with any national or
provincial sectoral plans and planning requirements binding on the municipality;
? The councils operational strategies
? Applicable disaster management plans
? A financial plan, which must include a budget projection for at least the next three
years.
Furthermore, Section 41 of this Act also provides the key performance indicators and
performance targets determined.
The Municipal Systems Amendment Act, 2011 (Act 7 of 2011) sought to professionalize
local governance by ensuring that officials holding senior positions have the appropriate
qualifications and that there is no conflict of interest between political office and local
government administrating by barring political office bearers from holding senior
61
positions in municipalities. Section 56 A (1) states that “A municipal manager or
manager directly accountable to a municipal manager may not hold political office in a
political party, whether in a permanent, temporary or acting capacity”. Section 57 A (I)
further states that “Any staff member dismissed for misconduct may only be re-
employed in any municipality after the expiry of a prescribed period” Section 57 A (3)
of the Municipal Systems Amendment Act, 2011 further stipulates that “A staff member
dismissed for financial misconduct, corruption or fraud, may not be re-employed in any
municipality for a period of ten years.
2.6.8 Intergovernmental Relations Framework 2005 (Act, 13 of 2005)
The Intergovernmental Relations Framework Act, 2005 presents an important support
mechanism to the Integrated Development Planning (IDP) process and provides for the
obligation of all spheres of government to allow their own planning processes to be
influenced by the municipal Integrated Development Plans (IDPs) and the Local
Government Turnaround Strategy (LGTAS).
The Intergovernmental Relations Framework Act, 2005 fosters a greater level of
cooperation across the different spheres of government based on the systems of mutual
support, information sharing, communication and coordination of activities. The
objective is thus to ensure coherent government, effective service provision and the
realization of national priorities. The Act is also a response to the limited success in the
alignment of the framework to support intergovernmental cooperation and coordination
required by the Constitution, 1996.
2.6.9 Municipal Finance Management (MFMA), 2003 (Act 56 of 2003)
The Municipal Finance Management Act, 2003 was promulgated to secure sound and
sustainable management of the financial affairs of municipalities and other institutions in
the local sphere of government. It has the objectives of modernising budget and
financial management practices in municipalities in order to maximise their capacity for
service delivery.
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Section 53 (6) of the Municipal Finance Management, 2003 provides that the mayor of a
municipality must determine how the Integrated Development Plan (IDP) is to be taken
into account or revised for the purposes of the budget. Thus, the annual budget of a
municipality should indicate how it gives effect to the municipality?s Integrated
Development Plan (IDP) over the next three budget years and how the IDP may need to
be revised, given the budgetary resources and spending commitments within the
municipality.
2.6.10 Traditional Leadership and Governance Framework Amendment Act, 2003
(Act 41 of 2003)
The Traditional Leadership and Governance Framework Amendment Act, 2003 (Act 41
of 2003) stipulates the active involvement of the traditional leadership in the formulation
and the implementation of the Integrated Development Plan (IDP). To this effect,
Section 4 of this Act provides for the establishment of traditional councils that should:
? Support municipalities in the identification of community needs
? Facilitate the involvement of the traditional community in the development or
amendment of the Integrated Development Plan (IDP) of a municipality in areas
in which the community resides
? Participate in the development of policy and legislation at the local government
sphere
? Promote the ideals of cooperative governance, integrated development planning,
sustainable development and service delivery to promote indigenous knowledge
systems for sustainable development and disaster management.
According to Mojapelo (2007:48) a significant percentage of the population in South
Africa resides in villages ruled and governed by traditional leaders. Thus, municipalities
have to ensure that traditional leaders are involved in the Integrated Development
Planning (IDP) and review process.
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2.6.11 Local Government Turnaround Strategy, (LGTAS), 2009
The Department of Cooperative Governance and Traditional Affairs (CoGTA) published
its Local Government Turnaround Strategy with the main aims to restore the confidence
of the majority of the South African citizens in our municipalities that are primarily
responsible for service delivery, and to re-build and improve the basic requirements of
our municipalities to ensure that they are functional, responsive, accountable, effective,
and an efficient developmental local government. As alluded to in Section 2.4 of this
study the Local Government Turnaround Strategy (LGTAS), 2009 identified five
strategic objectives to guide the Local Government Turnaround Strategy (LGTAS)
interventions and support framework (Department of Co-operative Governance and
Traditional Affairs (CoGTA), 2009:19).
2.6.12 National Framework for Local Economic Development (LED), 2006-2011
The National Framework for Local Economic Development, 2006-2011 was announced
by the former Department of Provincial and Local Government in 2006. The framework
promotes a strategic approach to the development of local economies. It aims to
support the development of sustainable local economies through integrated government
action.This framework has been developed as a guide that seeks to advance an
understanding of Local Economic Development (LED) and has put forward a strategic
implementation approach that municipalities, provinces and national government, state-
owned enterprises and communities may concentrate on in order to improve local
economic development (DPLG, National Framework for Local Economic Development
(LED), 2006:3).
2.6.13 Medium-term Expenditure framework (MTEF)
The 3-year Medium-term Expenditure Framework is a significant policy for Local
Government as it takes its detail from the 5 year financial Plan of the municipal
Integrated Development Plan (IDP) and the annual municipal IDP review process. The
Medium-term Expenditure Framework is a policy guide to future approaches by national
64
government to financing its programmes, including those designated in Local
Government. The MTEF requires that all three spheres of government keep to their
budget projections for a 3-year period. The MTEF further assists the different spheres
of government to establish their 3 year budgets with actual commitments for 1 year and
indicative figures for the following 2 years. The purpose of the MTEF is to increase
the scope for longer term planning and more coherent delivery over a number of years
(IDP Guide Pack VI, 2000:36).
2.6.14 Integrated Development Planning Guide Packs
The former Department of Provincial and Local Government (DPLG, IDP Guide Pack,
Guide O, An Overview 2000:5) produced a range of Integrated Development Plan (IDP)
Guide Packs to assist municipalities with their Integrated Development Planning
process to produce Integrated Development Plans (IDPs). The new more user-friendly
IDP Guide packs consist out of seven guides. The purposes of the Integrated
Development Plan (IDP) Guide Pack are firstly, to provide a summary on the complete
picture of the Integrated Development process to those stakeholders who do not need a
detailed technical understanding of the IDP, and secondly, to enable different
stakeholders of the three government spheres to know and understand their different
roles. Thirdly, it provides a quick overview of the IDP process to municipal officials
who will be responsible for the management of the IDP process. The Integrated
Development Plan (IDP) Guide Pack, consists of the following guides:
Guide O, Orientation
Guide I, General IDP Guidelines
Guide II, Preparing of the IDP Process
Guide III, IDP Methodology
Guide IV, IDP Toolbox
Guide V, Sectoral and cross-cutting policy issues
Guide VI, Implementation and Monitoring (Guide Pack, Guide O An Overview 2000:5).
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2.6.15 Division of Revenue Act and Provincial Division of Revenue Act
The annual Division of Revenue Act as cited by the DPLG, IDP Guide Pack VI,
(2000:35) defines the horisontal and vertical distribution of national finances. This
Division of Revenue Act is crucial for municipalities as it provides information on a
significant income stream that it requires to provide effective service. The Provincial
Division of Revenue Act must be passed by each Province to spell out its vertical and
horizontal disbursement of finances available to the province which informs the directing
of finances across different provincial government programmes and departments. The
Provincial Division of Revenue Act defines the financial allocations to all municipalities
within the province. The Provincial Division of Revenue Act takes some of its form from
the priorities emerging from the IDP processes within all municipalities in a specific
province (IDP Guide Pack VI, 2000:35). However, certain limitations were experienced
with the implementation of Integrated Development Plans (IDP) at local sphere, which
are outlined in the following section.
2.6.16 Other national and provincial development planning policies and
frameworks
According to the Mangaung Metropolitan Municipality?s Integrated Development Plan,
Review 2013/2014, (2013:10), a number of national and provincial policies and
development planning frameworks have a bearing on the Integrated Development
Planning (IDP) process of all municipalities (Metropolitan, District and Local
municipalities). The first of these includes the Millennium Development Goals (MDG)
that set out the eight critical economic and development priorities by 2015 that comes
from the Millennium declaration that was signed by 189 countries including South Africa
during September 2000. The eight Millennium Development Goals (MDG) as cited in
the Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:17) includes the following; “eradicate extreme poverty and hunger; to
achieve universal primary education; to promote gender equality and empower women;
to reduce child mortality, to improve maternal health; to combat HIV/AIDS, malaria and
66
other diseases; to ensure environmental sustainability and to develop a global
partnership for development”. The National Government?s Medium-term Strategic
Framework (MTSF), 2009 to 2014) that identifies the development challenges of South
Africa, outlines the medium-term strategy for improving the living conditions of South
Africans by taking into account the Millennium Development Goals (MDG). The
Medium-term Strategic Framework (MTSF, 2009 to 2014) as cited in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2013:10)
identifies the five developments, namely: “halve poverty and unemployment by 2014; to
ensure a more equitable distribution of the benefits of economic growth and to reduce
inequality; to improve the health profile of the nation as well as to improve the skills
base of the nation and to ensure access to basic services to all citizens; to build a free
country of all forms of racism, sexism, tribalism and xenophobia; and to improve the
safety of citizens by reducing incidents of corruption and crime”. The five development
objectives lead to the development of national governments twelve outcome areas,
namely:
? Outcome 1. To improve the quality of basic education
? Outcome 2. To ensure a log and healthy life for all South Africans
? Outcome 3. All people of South Africa are and feel safe
? Outcome 4. Decent employment through inclusive economic growth
? Outcome 5. A skilled and capable workforce to support an inclusive growth path
? Outcome 6. An efficient, competitive and responsive economic infrastructure
network; Outcome 7. Vibrant, equitable and sustainable rural communities with
food security for all
? Outcome 8. Sustainable human settlements and improved quality of household
life
? Outcome 9. A responsive, accountable, effective and efficient local government
system
? Outcome 10. Environmental assets and natural resources that are well protected
and continually enhanced
67
? Outcome 11. To create a better South Africa and contribute to a better and safer
Africa
? Outcome 12. To create an efficient, effective and development-oriented public
service and an empowered, fair and inclusive citizenship for all citizens
(Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:10-11).
The Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:14) further emphasized that outcome 9 is the most important outcome
for all municipalities. As such the national Department of Cooperative Governance and
Traditional Affairs (CoGTA) identified seven outputs to achieve a responsive,
accountable, effective and efficient local government system (Outcome 9). The seven
outputs include the following:
? To implement a differentiated approach to municipal financing, planning and
support
? To improve access to basic services for all citizens
? To implement Community Work Programmes
? To identify actions that is supportive of the human settlement outcomes
? To deepen democracy through a refined Ward Committee model
? To improve administrative and financial capabilities and to promote coordination
through the establishment of a “single window” of coordination (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013:14).
The above requires that all municipalities have to adopt its Integrated Development
Planning (IDP) process to implement the Community Work Programmes, as well as to
ensure Ward Committees are representative and fully involved in community
consultation processes around the IDP, budget and other strategic service delivery
aspects. It also requires that all municipalities improve municipal financial and
administrative capacity by implementing competency norms and standards and to act
68
against corruption and incompetence in a suitable manner (Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013/2014, 2013:14).
Each municipality should take into account the fundamental provincial government?s
framework, namely the Growth and Development Strategy (PGDS) that should be
aligned in its Integrated Development Planning (IDP) and budgetary process. The Free
State Provincial Growth and Development Strategy (PGDS), Vision 2030 sets out the
six key development priority areas of intervention and sets broad measurable
performance targets for the medium and longer term. The six priorities include the
following; “Inclusive economic growth and sustainable job creation; education innovation
and skills development; improved quality of life; sustainable rural development, efficient
administration and good governance and to build social cohesion” Thus, the Mangaung
Metropolitan Municipality aligns its Growth and Development Strategy and its Integrated
Development Plan (IDP) with those of the Free State Provincial Growth and
Development Strategy (PGDS), Vision 2030 (Mangaung Metropolitan Municipality
Integrated Development Plan, Review 2013/2014, 2013:16-17).
Another key development plan that was adopted by Cabinet in August 2012 is the
National Development Plan, 2030 which sets out specific development priorities and
proposes performance targets that intersect with the development mandates assigned
to all municipalities. The National Development Plan, 2030 requires from all
government departments, including municipalities, to implement the plan. Thus,
municipalities are required to respond to the development imperatives as stated in the
National Development Plan, 2030 during the IDP review process for the next five years
and as well as when developing the three-year Medium-term Revenue Expenditure
Frameworks (MTEF) of the municipality (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, (2013:14-15).
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2.7 LIMITATIONS OF INTEGRATED DEVELOPMENT PLANNING
Integrated Development Plans in South African Municipalities have several limitations
(World Bank World Bank Report on Accountability in the Public Sector in South Africa,
2011:61-62). These limitations include the following: firstly the IDPs have a five-year
strategic vision without concrete mechanisms to influence the annual budgeting and
priority setting. Secondly, Municipal Systems Act, 2000 provides that public participation
is mandatory. In reality in most municipalities, public participatory in the Integrated
Development Planning (IDP) process is limited. The report mentioned that when
citizens are effectively informed about Integrated Development Planning (IDP),
community participation in the IDP process increase. The report cited that municipal
officials drive the Integrated Development Planning (IDP) process rather than
councillors or citizens, without effective widespread public community participation. The
report further showed that councilors are informed about Integrated Development
Planning (IDP) activities, but that they are not really involved in the Integrated
Development Planning (IDP) decision-making process. Friedman (in World Bank
2011:62) is of the opinion that there are instances where the communities were asked
to comment on specific municipalities Integrated Development Planning (IDP) resource
allocations that municipal officials had already agreed on, while ward councilors had not
even seen the draft Integrated Development Plan (IDP). Therefore the report indicated
that “public participation has largely been restricted to input-gathering activities of the
Integrated Development Planning (IDP) processes with little effectiveness, because
communities are not compelled to explore and resolve competing demands and trade-
offs themselves between communities with different needs” (Pieterse et al in World
Bank Report on Accountability in the Public Sector in South Africa, 2011:62). Thirdly,
the interpretation of the purpose of the Integrated Development Plan (IDP) differs
between municipal officials and members of the community in that municipal officials
see the IDP as a strategic tool rather than operational. Municipal officials further views
community participation as a legal requirement and simply seek public agreement on
their municipalities? Integrated Development Plan (IDP). Fourthly, the report further
mentioned that although the Integrated Development Planning (IDP) processes makes
provision for consultation mechanisms it is not widespread enough to ensure that
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municipal planners are accountable to citizens for the effective implementation of their
municipal IDPs. Fifthly, the public knowledge of Integrated Development Planning
(IDPs) is low. The report showed that in Alexander a township in Gauteng province only
7 percent of the residents had heard of the Integrated Development Plan (IDP).
Sixthly, there is a major challenge in information materials outlining the Integrated
Development Plan (IDP) that should set the stage for public participation, as the
municipal IDPs are written in technical English. Often notices of public meetings are
not widely distributed. Seventhly, another limitation is that facilitation of meetings in
some municipalities is often poor and the outcomes and targets are not clear. Lastly, a
further limitation is that after the public participation meetings, the reports following the
meetings are often not created and distributed. The public participate as individuals
while civil society organisations are mostly absent from Integrated Development
Planning (IDP) public community participation meetings. The World Bank Report on
Accountability in the Public Sector, in South Africa (2011:6) further cited that in cases
where civil society organisations participate more fully, service delivery challenges are
effectively identified. The result is that the prioratisation of service delivery needs is also
more appropriate if civil society organizations attend Integrated Development Planning
(IDP) community participation meetings (World Bank Report on Accountability in the
Public Sector, in South Africa 2011:62). In the light of this the Presidency, in Towards
the Ten Year Review cited that Integrated Development Planning (IDPs) as a form of
local consultation that seeks the effective participation of local communities in order to
identify their needs to involve the communities in more decision-making processes
concerning their municipal IDPs, remains a challenge. As discussed in Section 2.7 the
Department of Cooperative Governance and Traditional Affairs (CoGTA) announced the
draft Local Government Turnaround Strategy (LGTAS) that was approved by Cabinet in
December 2009 to address the numerous challenges and amongst others, the
limitations of integrated development planning. The components of an Integrated
Development Planning (IDP) process will be discussed in the next section.
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2.8 COMPONENTS OF AN INTEGRATED DEVELOPMENT PLANNING PROCESS
The DPLG, IDP Guide Pack III, (2000:15) provides the detail on the Integrated
Development Planning (IDP) methodology that needs to be followed by all
municipalities. Whereas, DPLG, IDP Guide Pack, 0, An Overview (2000:16) states that
before the Integrated Development Planning (IDP) process can commence, a
municipality has to compile its IDP Process Plan to ensure proper management of the
planning process. The IDP Process Plan must contain the following information of a
municipality, namely the institutional structures to be established for the management of
the process, the approach that needs to be followed concerning public participation, the
structures to be established for public participation and the time schedule for the
planning process. It should also outline the roles and responsibilities and indicate how
the process will be monitored. Furthermore, as part of the preparation stage, a district
municipality must adopt a framework for Integrated Development Planning (IDP) that
will guide each municipality with the preparation of their IDP Process Plan. Thus, the
framework for Integrated Development Planning (IDP) determines the procedures for
consultation, coordination and alignment between the district and the local
municipalities IDPs.
The Integrated Development Planning (IDP) methodology consists of five phases as
cited in the IDP Guide Pack, O, An Overview (2000:16), that will be discussed in this
section. Nealer in Van der Waldt et al, (2007:102) mentioned that the Integrated
Development Planning (IDP) process should be seen as a strategic management
planning process that follows a logical sequential cycle, and a change in one phase of
the planning process will affect the other phases. Thus, each phase of the Integrated
Development Planning (IDP) process has its own challenges that will influence the
ultimate usefulness of the IDP in municipal service delivery. The Integrated
Development Planning (IDP) methodology consists of five phases that will be discussed
in this section.
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2.8.1 Phase 1: Situation Analysis Phase
During the analysis phase the municipality has to analyse the challenges faced by the
community in the municipal area such as poor service delivery, crime, unemployment,
and lack of basic service delivery amongst others. Public participation during this phase
is imperative in that the community who are affected by the challenges should be
involved in determining the nature and extent of these challenges. The challenges as
indicated by Local Government Sector Education and Training Authority (LGSETA) in
their IDP Skills Programme, Workbook III, (2000:44) are weighed according to their
urgency and their importance in that the municipality will not have sufficient resources to
address all of the various challenges faced by the community. During the situation
analysis all planning decisions need to be based on reliable and relevant information
that are used to draw conclusions and to determine priority issues. The national key
performance areas for local government as outlined in the Local Government Municipal
Planning and Performance Management Regulations, 2001, are: infrastructure and
service, socio-economic development, democratiation and governance, institutional
transformation and financial management that will assist municipalities to collect and
organize information during the situation analysis phase of the Integrated Development
Plan (IDP) according to these performance areas. This process will assist municipalities
to avoid a common mistake in the Integrated Development Planning (IDP) process
namely, to exclude institutional and financial related issues in their IDP process. The
key performance areas also inform the strategic objectives which municipalities have to
formulate during the next phase of the Integrated Development Planning (IDP) process.
The outputs of the analysis phase includes an assessment of existing level of
development, identification of priority issues, information on the extent and nature of the
causes of priority issues and information on available resources to address these issues
(LGSETA, IDP Skills Programme Workbook III, 2000: 44; IDP Guide Pack, 0, An
Overview, 2000:17).
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2.8.2 Phase 2: Strategies Phase
Once a municipality has a clear understanding of its challenges and priority issues it
must then formulate the solutions to address these challenges. The IDP Guide Pack,
O, An Overview, (2000:17) states that public participation during this phase should take
the form of a public debate on the appropriate ways to solve the challenges that were
identified during the first phase. The strategy phase includes the following outputs:
? The vision. The vision can be seen as a statement that indicates the ideal
situation the municipality would like to achieve in the long term once it has
addressed the challenges as identified during the first phase of the Integrated
Development Planning (IDP) process (IDP Guide Pack, 0, An Overview,
2000:17).
? Development objectives. The priority issues identified during the first phase
need to be translated into quantifiable and achievable objectives. IDP Guide
Pack, 0, An Overview, (2000:17) maintains that development objectives are
statements which refer to what the municipality would like to achieve in the
medium term in order to address the challenges as well as to realise the vision
statement of the municipality. The MFA, Circular 13 as cited in LGSETA, IDP
Skills Programme Workbook III, (2000:72) also requires that these strategic
objectives identified during phase 2 must be integrated into service delivery
targets in the Service Delivery and Budget Implementation Plan (SDBIP).
? Development strategies. Once the municipality has identified its development
objectives, it must then develop its development strategies as the most
appropriate way and means to achieve the set objectives (Nealer, in Van der
Waldt et al, 2007:104).
? Project identification. As soon as the municipality formulated its strategies
the municipality has to identify a list of projects. Once projects are listed, a
financial and resource discussion should follow to fund the required projects.
74
Without funding possibilities the strategy becomes problematic and the
municipality has to discuss alternatives (LGSETA, IDP Skills Programme
Workbook III, 2000:78).
2.8.3 Phase 3: Project Phase
During this phase the municipality deals with the design and specification of projects for
implementation. IDP Guide Pack, 0, An Overview, (2000:17) holds that the municipality
must ensure that the identified projects are aligned to the priority issues and the
strategic objectives that were identified during the first phase. During this phase the
target group as the beneficiary of the projects, the location of the project, the time
frames of the project, the role clarification, the resources needed and the people who
will fund the projects and the specific indicators to measure the performance of the
projects need to be clarified. The outputs of this phase include: performance indicators,
project outputs, targets and the location, the project details and time frames, and the
cost and budget estimates (Nealer in Van der Waldt et al, 2007:104; IDP Guide Pack, 0,
An Overview, 2000:17-18).
2.8.4 Phase 4: Integration Phase
During this phase the municipality has to ensure that the projects are in line with the
municipality?s objectives, strategies, resource frameworks and that it complies with legal
requirements. During this phase the municipality has to consolidate its operation
strategies which include the following:
? Integrated Sector Programmes that include the Integrated Local Economic
Development Programme (LED), poverty alleviation, an Integrated HIV/AIDS
programme and an integrated environmental program
? An Integrated institutional plan
? A 5 year financial plan
? A 5 year capital investment programme
? An Integrated Spatial Development Framework
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? A consolidated monitoring and performance management system
(LGSETA, IDP Skills Programme Workbook III, 2000:96).
2.8.5 Phase 5: Approval Phase
During this phase the municipality has to submit its Integrated Development Plan (IDP)
to the municipal council for consideration and approval. Before the council?s approval
of the municipalities? Integrated Development Plan (IDP), the municipality must give the
public an opportunity to comment on the draft IDP. Once the municipality amends the
draft Integrated Development Plan (IDP) in accordance to the input from the public the
council considers the IDP for approval (IDP Guide Pack, 0, An Overview, (2000:19).
Once a municipality has adopted its Integrated Development Plan (IDP), the Member of
Executive Council (MEC) of the province has to assess that the IDP complies with the
requirements of the Municipal System Act, 2000 and that the municipality?s IDP is not in
conflict with the IDPs and strategies of other municipalities and organs of state (IDP
Guide Pack, 0, An Overview, 2000:19). The Integrated Development Plan (IDP) of a
municipality cannot be implemented without the necessary resources and funding
available. In the next section the Integrated Development Plan (IDP) and municipal
budgets are discussed.
2.9 INTEGRATED DEVELOPMENT PLANS (IDP?s) AND MUNICIPAL BUDGETS
The Constitution, 1996 provides in Section 215 that all spheres of government must
have budgets to promote accountability, transparency and effective financial
management. Therefore the municipal budget is a legal requirement of all municipalities
and can be seen as a financial plan for the appropriation of finances for the
implementing of the Municipalities activities. The Municipal budget provides the financial
framework that sets out how resources are allocated to achieve the municipalities
objectives for each financial year. Fourie, and Opperman, (2011:122) are of the opinion
that the Integrated Development Plan (IDP) serves as the strategic blueprint of the
municipality. However, the annual municipal budget provides the financial framework
76
for the effective implementation of the municipalities? Integrated Development Plan
(IDP).
According to Fourie, and Opperman, (2011:123) a municipal budget consists of two
components, namely the capital budget and the operating expenditure budget and an
operating or operational budget that are integrated into a total budget. The capital
budgets refer to the amounts that are allocated to spend on acquiring or developing
municipal assets that have an expected lifespan of at least three years. Valeta and
Watson (in Montingoe, 2011: 29) are of the opinion that the capital and the operational
budget must be aligned with the objectives and strategies set out in the municipality?s
Integrated Development Plan (IDP). The capital budget makes provision for all capital
and development programmes and projects. Thus the capital budget represents the
fiscal expression of the Integrated Development Plan (IDP) of the municipality. The
operational budget refers to the amounts allocated to pay for the running costs of the
municipality, covering both its direct and support services (IDP Guide Pack IV 2000:
39). The capital budget is therefore a budget that addresses the acquiring or
developing of fixed assets, whereas the operational budget refers to the payment of
short term running costs of the municipality.
Fourie, and Opperman, (2011:124) further maintain that municipal budgets are
traditionally divided into votes. The purpose for dividing a budget into capital and
operating votes is to ensure that each of the principal activities and projects of the
municipality is assigned a fair portion of the resources available and to hold the relevant
head of the department or senior official accountable for managing the resources
allocated to the specific vote in an efficient manner. The votes on the operating budget
will represent the principal activities of the municipality which may be the various
departments into which the municipal structure has been divided, amongst others, as
emergency management and technical services. Fourie and Opperman, (2011:123)
further mentioned that in larger municipalities departments are often divided into several
votes as in the case of technical services it would be divided into separate votes such
as electricity services, water services, sewerage, refuse removal and related services,
roads, stromwater and public works. Whereas, in the case of the capital budget, it is
77
customary to allocate a separate vote for each project to be undertaken as well as for
each major fixed asset or group of fixed assets.
The Municipal Finance Management Act, 2003 (Act 56 of 2003) indicates that a
municipality may incur expenditure only in terms of approved budgets, and within the
limits of the amounts appropriated for the different votes in an approved budget. The
Act further provides that for each financial year the council of a municipality must
approve an annual budget for the municipality before the start of that financial year.
Although preparing the municipal budget and the Integrated Development Plan (IDP)
are separate processes, the two are closely linked. According to DPLG, IDP Guide
Pack VI, (2000:39) the budget and the Integrated Development Planning (IDP) process
of the municipality are closely linked, not only to assist the municipality to achieve its
developmental responsibilities set out in the IDP, but to also budget for outcomes and
outputs as outlined in the service delivery objectives of the municipality?s IDP as well as
inputs from the community to promote transparency with the allocation of finances. The
Municipal Finance Management Act, 2003 further provides in Section 21 that when
preparing the annual budget, the mayor of the municipality must take into account the
municipality?s Integrated Development Plan (IDP). The mayor must also coordinate the
processes for preparing the annual budget and reviewing the municipality?s Integrated
Development Plan (IDP) and budget related policies to ensure that the tabled budget
and any revisions of the IDP and budget related policies are consistent, and credible.
Thus, the municipality?s budget must conform to the municipality?s Integrated
Development Plan (IDP). According to DPLG?s, IDP Guide Pack VI, (2000:42) linkage
of the municipality?s Integrated Development Plan (IDP) and the budgeting process
further relies on the effective cooperation, role and function clarification of the different
role players within the Municipality as outlined in Table 2.1.
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Table 2.1: Roles and Functions with the municipal budgeting and IDP process
Role players
Function in IDP
process
Function in Budget
process
Role in linking the
processes
Executive Mayor To ensure the Council
fulfills its legal
responsibilities by
preparing an IDP
within legislative and
procedural guidelines
To ensure the Council
fulfills its legal
responsibilities by
preparing an annual
budget and a three
year financial plan
within legislative and
procedural guidelines
Gives key political
support to the proper
integration of
processes
Council Responsible for
approving the IDP
Responsible for
passing the Budget
Assess the linkage is
achieved at the points
of passing joint IDP
and Budget and at
interim points in the
process
Municipal Manager Strategic
management of the
Process. Responsible
to see that the IDP is
carried out as
required by legislation
and procedures
Strategic
Management of the
Budgeting Process
and preparation of a
three year plan.
Accounting Officer of
the Municipality.
Is in best position to
ensure strategically
that the process is
integrated structurally
within the Council.
IDP Manager
(If no IDP Manager
the Municipal
Manager is
responsible)
Day to day
responsibility for the
Integrated
Development
Planning Process
Day- to-day work to
link with the financial
manager in helping to
ensure IDP outputs
are integrated into
Budget.
Ensures through all
IDP activities that
linkages are made
with Budget.
Ensure the flow of
information from the
Budget process into
the IDP and IDP
outputs into the
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Role players
Function in IDP
process
Function in Budget
process
Role in linking the
processes
Budgeting process.
Financial Manager Key participant in the
IDP Steering
Committee
Day- to -day
management of the
budgeting process.
Ensures that IDP
outputs are integrated
into Budget.
Ensure timing and
alignment of the two
processes.
IDP Steering
Committee
Oversee the effective
management of the
IDP process
Contribute to the
assessing of needs
and prioritising
Ensure the
organisational linkage
with the Budget
Steering Committee.
IDP and Steering
Committees could be
structured together
under the coordination
of the Municipal
Manager.
IDP Representative
Forum
To provide community
stakeholder inputs
into all phases of the
IDP
Can provide
community
stakeholder inputs
into consultation parts
of the IDP linked to
the Budgeting
process.
Ensure that terms of
reference and
membership of forum
reflects this
contribution to both
processes.
(Source: DPLG, IDP Guide Pack VI, 2000:41).
Thus, all role players have specific functions to ensure the effective integration and
alignment between the Integrated Development Plan (IDP) and that the Budgeting
process take place. DPLG, IDP Guide Pack VI, (2000:42) further cited that the effective
interlinking of Integrated Development Plan (IDP) activities within joint time frames is
crucial. In addition, the timing of the different Integrated Development Planning (IDP)
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phases, namely the preparation phase, the analysis phase, the strategies phase, the
project phase, the integration phase and the IDP approval phase are determined by the
budgeting process. Furthermore, the Integrated Development Plan (IDP) and the
municipal budgeting process must interact with the national and provincial budget
process. The differences between the financial year of the spheres of government and
the Integrated Development Planning (IDP) process make it even more difficult to
synchronise the budgeting process. It requires from municipalities to have their priority
inputs as indicated in the Integrated Development Plan (IDP) ready 12 months before
the actual financial year in which that they will spend on the implementation (DPLG, IDP
Guide Pack VI, 2000:42). The Municipalities? five year Financial Plan must inform the
other spheres of government budget process in a proactive and timeous manner. The
Medium Term Revenue Expenditure Framework (MTREF) also requires from all three
spheres of government to do budget projections for a three year period. The Medium -
term Revenue Expenditure Framework (MTREF) takes its detail from the five year
Financial Plan of the Integrated Development Plan (IDP) and the annual IDP review.
The Medium -term Revenue Expenditure Framework (MTREF) assists the spheres to
establish their three year budgets with commitments for one year and indicative figures
for the following two years (DPLG, IDP Guide Pack VI, 2000:38-42). According to the
DPLG, IDP Guide Pack VI, (2000:38-42) the support of good financial planning and
management is central to the implementation of the IDP process and particularly the
integration of the various project costs, effective fiscal planning, the five year financial
plan and the capital and operational budget developments. The the effective interlinking
of the Integrated Development Plan (IDP) and the budgeting process thus relies on pro-
active planning and effective management of different role players. Taking cognisance
of the abovementioned alignment Van Niekerk (2012:25) mentioned that all
municipalities should ensure that their Municipal Turnaround Strategy (MTAS), the
Integrated Development Plan (IDP), the Municipal Budget, their Service Delivery Budget
Implementation Plan (SDBIP) as well as the Municipality?s Performance Management
Systems are aligned to ensure effective implementation of the budget and the
Integrated Development Plan (IDP), as well as to measure their performance optimally.
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The Municipal Finance Management Act, 2003 provides that the “funding of a
municipality?s expenditure may only be funded from realistically anticipated revenues
that may be collected, or from cash-back accumulated funds from previous years?
surpluses not committed for other purposes and borrowed funds, but only for the capital
budget”. The Municipal Finance Management Act, 2003 further provides that a
municipality may spend funds on a capital project only if the funds for the projects have
been appropriated in the capital budget, the project has been approved by the council,
and the sources of funding that have been considered, are available and have not been
committed for other purposes.
Van der Waldt et al (2007:202-203) hold that municipalities generate funds by collecting
taxes, levies, rates and service charges from the inhabitants within its municipal area.
As such a municipality must generate more than 90% of its budget from their own
revenue sources. Transfers from others spheres of government are of a much smaller
percentage of local government revenue. In obtaining financial resources the
municipality should maximise both its operational and capital financing to be able to
achieve its mandate (DPLG, IDP Guide Pack VI, 2000:42).
According to Pillay, Tomlinson and Du Toit (2001:160-161) a municipality?s revenue is
supplemented by substantial grants from the national sphere of government. The
Division of Revenue Act provided the basis for the transfers and sets out grants to all
municipalities for the next three financial years. All these transfers should be gazetted.
The three year Medium Term Revenue Expenditure Framework (MTREF) as indicated
in the DPLG, IDP Guide Pack VI, (2000:48-52) allocations by the National Sphere of
Government makes provision for the following grants:
? The National Government Grants such as the equitable share and related grant
and water and sanitation operating grant
? The capacity building and restructuring grant such as the Local Government
support Grant, the Financial Management Support Grant and the Municipal
System Improvement Programme
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? Capital grants such as the Municipal Infrastructure Grant, Community Based
Public Works and Local Economic Development (LED) grants.
According to the DPLG, IDP Guide Pack VI, (2000:52-53) provincial government loans
and direct payments refer to funds from provincial government revenue resources to
municipalities such as:
? Agency Agreements. If there is a direct transfer of finances from a provincial
government service function carried out by a Municipality on behalf of the
provincial government
? Specialist Subsidy such as a housing subsidy.
Other sources of funding refer to grants from international agencies operating within
South Africa and through international agencies without presence in South Africa
(DPLG, IDP Guide Pack VI, 2000:52: 53).
2.10 IMPLEMENTATION OF THE MUNICIPAL BUDGET AND THE INTEGRATED
DEVELOPMENT PLAN THROUGH THE SERVICE DELIVERY AND BUDGET
IMPLEMENTATION PLAN (SDBIP)
Van der Walt et al (2007:190) mentioned that both the municipality?s budget and its
integrated Development Plan (IDP) are strategic plans and not implementation plans.
Therefore, all municipalities must develop a Service Delivery and Budget
Implementation Plan (SDBIP). The Municipal Finance Management Act, 2003 provides
that each municipality must compile its Service Delivery and Budget Implementation
Plan (SDBIP) to ensure the effective implementation of its budget and IDP. The
Municipal Finance Management Act, 2003 and the National Treasury?s Circular 13 as
cited in LGSETA, IDP Skills Programme Workbook III, (2000:72) introduce the Service
Delivery and Budget Implementation Plan (SDBIP). The Service Delivery and Budget
Implementation Plan (SDBIP) is a detailed annual financial operational plan that gives
effect to the municipal Integrated Development Plan (IDP) and the municipal?s budget.
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It also serves as a contract between the municipal administration, council and
community in that it expresses the goals and objectives set by the council in quantifiable
outcomes for the next twelve months. It requires that all municipalities must report on
their achievements of the specific targets by the end of a year in relation to the budget
spent. Fourie, and Opperman, (2011:185) maintain that the Municipal Financial
Management Act, 2003 states that the Municipal Manager as the accounting officer of
the municipality must submit to the mayor a draft Service Delivery and Budget
Implementation Plan (SDBIP) for the budget year to the major no later than fourteen
days after the approval of the annual municipal budget.
In light of the above Fourie, and Opperman, (2011:185) state that the municipality?s
Service Delivery and Budget Implementation Plan (SDBIP) promotes accountability in
that it holds the municipality and its management accountable for the performance of
set targets, programmes and projects. The Service Delivery and Budget Implementation
Plan (SDBIP) does not introduce an additional monitoring process, but can be seen as a
comprehensive framework that links the budget performance with the Integrated
Development Plan (IDP) performance within the municipality?s performance
management system. The National Treasury, Circular 13 (2005:5) further holds that the
Service Delivery and Budget Implementation Plan (SDBIP) requires the transfer of
implementation measures such as specific targets and performance indicators as set in
the municipalities Integrated Development Plan (IDP) and the budget, to the
performance management system.
The Municipal Finance Management Act, 2003 and the guiding National Treasury,
Circular 13 (2005:5) requires that the following to be included in the Service Delivery
and Budget Implementation Plan (SDBIP) of all municipalities:
? Monthly projection of revenue to be collected for each source
? Monthly projections of expenditure (operating and capital) and revenue for each
vote
? Quarterly projections of service delivery targets and performance indicators for
each vote.
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Thus, the Service Delivery and Budget Implementation Plan (SDBIP) serves as the
financial operational implementation plan of a municipality?s Integrated Development
Plan (IDP) and its budget and is aligned with the performance management system of a
municipality. In the following section attention will be focused on the implementation of
the Local Government Turnaround Strategy.
2.11 IMPLEMENTATION OF LOCAL GOVERNMENT TURNAROUND STRATEGY
According to Van Niekerk (2012:58) the Local Government Turnaround Strategy
(LGTAS) is a country-wide intervention that strives to address the communities?
increasing dissatisfaction with poor municipal services, as well as to improve the
administrative and financial performance of all municipalities. The Department of
Cooperative Governance and Traditional Affairs (CoGTA, 2010:3-4) states that the
Local Government Turnaround Strategy (LGTAS) has different focus areas, namely the
immediate priorities prior to the 2011 elections and the medium-term focus or post
election priorities from March 2011 till 2014.
2.11.1 Immediate priorities prior to the 2011 elections
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:22-23) the emphasis of the immediate priorities prior to the
2011 elections are to address the immediate financial and administrative problems in
municipalities with regard to a lack of effective and efficient service delivery
mechanisms in place. Another priority is to improve and regulate the indiscriminate
hiring and firing of valuable staff members, and ultimately ensuring and implementing a
transparent municipal supply chain management system. Other immediate priorities
included the following: to strengthen the Ward Committee capacity; to ensure national
and provincial commitments in the municipal Integrated Development Planning process
(IDPs); to differentiate responsibilities and to simplify Integrated Development Planning
(IDP); to promote a funding and capacity strategy for municipal infrastructure such as
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extending the Municipal Infrastructure Grant (MIG) to 2018 in rural areas; upscale
community work programmes to ensure ward based development systems; to
implement the “Revenue Enhancement and Public Mobilisation” campaign, as well as
the launching of the “good citizenship” campaign that focus on good governance values
to unite the nation and to promote the involvement of communities in local development
affairs (CoGta, LGTAS, 2009:22-23).
The Department of Cooperative Governance and Traditional Affairs, (CoGTA, LGTAS,
2009:22-23) further states that the immediate priorities prior to the 2011 elections
consisted of four phases that commenced at the end of January 2010 and concluded in
March 2011. The first phase was a pilot project in that selected municipalities had to
complete the standardized Local Government Turnaround Strategy (LGTAS) template
provided by the Department of Cooperative Governance and Traditional Affairs in order
to develop their own tailor-made Municipal Turnaround Strategies. During the second
phase of the immediate priorities all municipalities followed the same process before
incorporating their Municipal Turnaround Strategies (MTAS) into their Integrated
Development Plan (IDP). The third phase includes the budgeting and approval of each
municipality?s Integrated Development Plan (IDP) after the incorporation of the
Municipal Turnaround Strategies (MTAS). The fourth phase involves the
implementation of the Integrated Development Plan, as well as the monitoring and
evaluation of the implementation process (Department of Cooperative Governance and
Traditional Affairs, CoGTA, LGTAS, 2009:22-23; Van Niekerk, 2012:59).
2.11.2 Medium-term of post-election 2011 to 2014 priorities
The medium-term priorities strive to achieve the Department of Cooperative
Governance and Traditional Affairs;s, Vision 2014, that includes the following priorities:
? To establish a single election for national, provincial and local government
? To reduce infrastructure backlogs, establish the clean cities approach through
the management of waste in such a way that it creates employment and wealth
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? To ensure that all schools, clinics and hospitals and other public facilities have
access to water, sanitation and electricity
? To ensure that each municipality has the necessary Information and
Communication Technology (ICT) infrastructure and connectivity
? To ensure that all provinces and all municipalities have clean audit reports;
? To reduce municipal debt by half
? To empower and capacitated organs of people?s power such as ward
committees
? To train competent councilors, traditional leaders, officials, ward committee
members, community development workers and community activists
(Department of Cooperative Governance and Traditional Affairs (CoGTA,
LGTAS, 2009:23-24 and Van Niekerk, 2012:60).
2.11.3 Institutional Arrangements for the implementation of the Local Government
Turnaround Strategy (LGTAS)
Van Niekerk (2012:60) maintains that the Department of Cooperative Governance and
Traditional Affairs (CoGTA) introduced a number of support measures to ensure that all
role players effectively contribute to the successful implementation of the Local
Government Turnaround Strategy (LGTAS). These measures include the establishment
of a special ministerial advisory and monitoring structure, the National Coordinating Unit
(NCU) that is responsible for monitoring and reporting on the the progress of the Local
Government Turnaround Strategy across government and society. Technical Services
Units (TSUs) are established in all provinces to provide technical support to all
municipalities with the implementation of their tailor-made Municipal Turnaround
Strategies (MTAS). Another support measure that was established is an
intergovernmental working group to support the implementation of the Local
Government Turnaround Strategy (LGTAS). The composition of the intergovernmental
working group consisted of officials from the various national sector departments, the
offices of provincial premiers, a representative from the South African Association of
Local Government (SALGA) and from the Department of Cooperative Governance and
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Traditional Affairs (CoGTA) (Department of Cooperative Governance and Traditional
Affairs (CoGTA), LGTAS, 2009:44).
2.11.4 Success factors for the implementation of the LGTAS
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), (LGTAS, 2009:46-47) the following success factors are an imperative for the
successful implementation of the Local Government Turnaround Strategy (LGTAS),
namely:
? Institutional capacity to develop and successfully implement each municipality?s
own the tailor-made Municipal Turnaround Strategy (MTAS)
? Political ownership at different spheres of government to oversee the
implementation of the Local Government Turnaround Strategy (LGTAS). This
means that existing institutional arrangements should be utilised at national,
provincial and local sphere that includes the Minister of the Department of
Cooperative Governance and Traditional Affairs (CoGTA), the nine Premiers, the
Members of Executive Councils responsible for Local Government and Mayors;
? Effective leadership is needed from the Municipal Managers and councillors to
implement the Local Government Turnaround Strategy effectively in all
municipalities
? Effective communication is needed to enhance public awareness through
effective consultation processes with various stakeholders concerning the
developments surrounding the implementation of the Local Government
Turnaround Strategy (LGTAS).
Thus, the successful implementation of the Local Government Turnaround Strategy
requires not only political ownership, effective management and leadership, but also
commitment from all stakeholders to turn around the financial and service delivery
challenges of each municipality.
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2.12 ROLE OF INTERGOVERNMENTAL RELATIONS
According to the Intergovernmental Relations Framework Act, (Act 13 of 2005)
Intergovernmental Relations refer to the relationships that arise between different
spheres of government or between organs of state from different governments in the
conduct of their affairs. The nature of relations between the different spheres of
government at national, provincial and local government means that different structures
are dependent on other structures for resources. Local governments depend on
resources from provincial and national government to implement specific programmes.
Furthermore the implementation of national policies requires effective cooperation and
coordination between the three spheres of government. Geldenhuys (in De Vries,
Reddy and Haque, 2008:94) indicates that the effective implementation of public
policies required effective coordination of aspects such as programming, planning and
budgeting and communication actions through the different intergovernmental relations
structures. Geldenhuys (in De Vries et al, 2008:96) is further of the opinion that
intergovernmental relations are inspired by a set of formal and informal processes and
institutional arrangements and structures that lead to bilateral and multilateral
cooperation between the different spheres of government. Integrated Development
Planning (IDP) processes and reviews serve as an example of these kinds of actions.
In light of the above, Chapter 3 of the Intergovernmental Relations Framework Act,
2005 contains specific provisions for the establishment of different municipal
intergovernmental forums such as district intergovernmental forums, Integrated
Development Planning Forums (IDP forums), the composition, role and meetings of
these forums and inter-municipality forums. Furthermore, Chapter 3 of this Act
contains specific provisions of the way to deal with the conduct of intergovernmental
relations, including provincial policies and legislation affecting local government and the
responsibility for coordinating intergovernmental relations in district municipalities.
Section 25 of the Intergovernmental Relations Framework Act, 2005 reflects the role of
the district intergovernmental forum, namely to serve as a consultative for the promotion
and facilitation of intergovernmental relations between the district municipality and the
local municipalities in the district on matters of mutual interest such as draft national and
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provincial policy and legislation that will affect local government?s interest in the district;
the implementation of national and provincial policy and legislation; matters arising in
the Premier?s intergovernmental forum that affect the district; mutual support in terms of
Section 88 of the Local Government Municipal Structures Act, 1998; the provision of
services within the district; matters concerning coherent planning and development in
the district such as the Integrated Development Plan (IDP); the coordination and
alignment of the strategic and performance plans and priorities, objectives and
strategies of the municipalities within the district area; and any other matters of strategic
importance that affect the interest of the municipalities in the district.
Section 27 of the Intergovernmental Relations Framework Act, 2005 contains specific
provisions pertaining to inter-municipality forums. The role of the inter-municipality
forum is to serve as consultative forum for the participating municipalities to discuss and
consult each other on matters of mutual interest including cooperation on municipal
development challenges affecting more than one municipality, to sharing information on
best practices and to consulting with each other on other matters of strategic
importance that affects the interest of the participating municipalities. The
Intergovernmental Relations Framework Act, 2005 also makes provision for
Intergovernmental technical support structures to provide technical support structures if
there is a need for such a service.
The role of these forums is dealing with intergovernmental relations and the operational
activities at local sphere in terms of other applicable legislation including the Local
Government?s Municipal Systems, 2000 and the Municipal Finance Management Act
(MFMA), 2003 and other applicable legislation and policies could not be over-
emphasised to ensure the effective implementation of Integrated Development Plans
(IDPs) and matters of mutual interest such as the effective implementation of Local
Government Turnaround Strategies.
Section 32 of the Municipal Systems Act, 2000, contains specific provisions for the
effective coordination and alignment of Integrated Development Plans (IDPs) of the
different municipalities within their areas, including the district and local municipalities
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within its area as well as to ensure that IDPs are in accordance with the plans,
strategies and programmes of national and provincial government. Therefore, the
successful implementation of the Integrated Development Planning (IDP) processes
depends on the effective cooperation between, and consultation with municipalities and
between all the applicable intergovernmental relations forums.
2.13 THE ROLE OF LOCAL ECONOMIC DEVELOPMENT
According to the National Framework for Local Economic Development (LED), (DPLG,
2006:9) local economic development is about creating a platform and environment to
engage stakeholders in implementing strategies and programmes. Although the
Constitution, 1996 stipulates in Section 154 that the local sphere has a distinctive role in
promoting social development, schedules 4 and 5 make provision for the functions of
local authorities. The schedules do not include Local Economic Development,
prompting views that local economic development was unfunded mandates for
municipalities. The White Paper on Local Government, 1998 reinforced the mandate by
recognising that the South African local government is primarily responsible for
developmental local government in that municipalities must be committed to work with
citizens and groups within the communities to find sustainable ways to meet their social,
economic and material needs and to improve the quality of the citizens lives. The White
Paper on Local Government, 1998 further emphasised that, local government is not
directly responsible for creating jobs, but local government is responsible for taking
active steps to ensure that the overall economic and social conditions are conducive to
promoting job creation and boosting the local economy. The White Paper on Local
Government, 1998 further emphasized that in realising the economic development
facilitation role of district municipalities, the funding for institutional capacity as well as
implementation programmes should be established through a review of powers and
functions and the equitable share grant. Municipalities should not run local economic
programmes themselves, but should rather focus on establishing forums to build
partnerships and to draw on the support of a range of stakeholders, such as Sector
Education and Training Authorities (SETAs) to address skills development in specific
areas (DPLG, LED, 2006:9).
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The National Framework for Local Economic Development (LED), as viewed by DPLG,
(2006:10) maintains that local economic development (LED) is not just about what
municipalities do, but more about what the different spheres of government and other
support stakeholders do together with municipalities to promote job creation and boost
the local economy. Therefore, municipalities can actively provide support to local
stakeholders such as local enterprises by linking up with provincial and national
agencies in different economic sectors (Kroukamp, 2006:23-24; DPLG, LED, 2006:9-
11).
In promoting local economic development DPLG, (LED, 2006:19-20) emphasised the
primarily role of municipalities, namely to focus on:
? The provision of infrastructure and services to enhance economic efficiency
? To manage spatial policies
? To provide land-use regulations and development applications
? To manage service tariff policies
? To manage a progressive property tax system
? To market the territory effectively
Thus, local authorities need to ensure that the processes of regulation are administered
in such a way that it does not impair business start-up and growth and inhibit job
creation.
Kroukamp, (2006:24) mentioned that local economic development should be directly
linked to the process of Integrated Development Planning (IDPs) that focuses on the
sustainable development of municipal areas envisaged in the Municipal Systems Act,
2000. Section 26 of the Municipal Systems Act, 2000 provided that local authorities
must compile Integrated Development Plans (IDPs) that reflect the long-term vision of
the municipality, including its local economic development objectives. The provincial
government should draw up their Provincial Growth and Development Strategies
(PGDS) in line with the National Spatial Development Perspective (NSDP) and
Integrated Development Plans (IDPs) of the district and local government authorities.
The provincial government is also responsible for its role in facilitating finances and
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promoting and coordinating practices for developing the local economy (Lukkarinen in
Kroukamp, 2006: 29) Furthermore, councilors and municipal officials must be aware
of the stipulations in the municipal Integrated Development Plan and the Provincial
Growth and Development Strategies (PGDS) and the National Spatial Development
Perspective (NSDP) to promote co-ordination among the spheres of government to
ensure that resources are effectively and efficiently utilised.
2.14 THE ROLE OF PERFORMANCE MANAGEMENT
Performance Management can be seen as tool to monitor and evaluate the delivery of a
Municipality?s Integrated Development Plan (IDP) (DPLG, IDP Guide Pack VI,
(2000:111). The Performance Management Guide for Municipalities, (DPLG, State of
Local Government Management, 2001:16) cited that Integrated Development Planning
(IDP) fulfills the planning stage of performance management. The Guide further holds
that performance management fulfills the implementation management, monitoring and
evaluation of the Integrated Development Planning (IDP) process. Therefore the
effective performance management of each municipality?s Integrated Development Plan
(IDP) will assist the municipality to make appropriate changes in delivery and
management of resources. As such performance management enables municipalities
to identify and overcome major challenges as well as to guide future planning on
developmental objectives and to ensure the effective usage of resources (DPLG, IDP
Guide Pack VI, 2000:110).
The former Department of Provincial and Local Government also implemented
measures to enhance the performance of municipalities? Integrated Development
Planning (IDPs). Section 34 of the Municipal System Act, 2000 as well as the
Integrated Development Planning Guide Pack 1, (2000:110) set out specific measures
to enhance the performance of municipalities Integrated Development Plans (IDPs).
These measures include that all municipalities have to monitor, evaluate, review and
report on their performance against indicators and targets set in the municipalities?
Integrated Development Plans (IDPs). Other support systems, such as the Performance
Management Guide for Municipalities, (DPLG) 2001 outline how the Performance
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Management System (PMS) should be implemented. It means that the Performance
Management System (PMS) can be seen as the primary mechanism to plan for
performance management, monitoring, reviewing and improving the implementation of a
municipality?s Integrated Development Plan (IDP) (Montingoe, 2011:68). Furthermore,
performance management must assist municipalities in making immediate and
appropriate changes in delivery and the management of resources. It furthers assists
municipalities to identifying and overcoming specific blockages and in guiding future
planning on developmental objectives and resources (Van Niekerk, 2012:57). The
annual review of the municipality?s Integrated Development Planning (IDP) forms part of
the Performance Management System of a Municipality that will be discussed below.
2.15 ANNUAL INTEGRATED DEVELOPMENT PLANNING REVIEW PROCESS
The Municipal Systems Act, 2000 introduces the annual review and amendment of
Integrated Development Plans (IDPs). Section 34 of this Act provides that a municipal
council must review its Integrated Development Plan (IDP) annually in accordance with
an assessment of its performance measurements such as strategic objectives, targets
and performance indicators and to the extent that changing circumstances so demand
are taken into consideration. Section 34 of this Act further maintains that the Integrated
Development Plan (IDP) may be amended in accordance with a prescribed process.
The purpose of the Integrated Development Plan annual review as described by DPLG,
IDP Guide Pack VI, (2000:119) is to ensure that the Integrated Development Plan (IDP)
as a municipality?s strategic plan is still relevant. It also informs other components of
the municipality, such as the institutional and financial planning and budgeting process
as well as the cyclical intergovernmental planning and budgeting cycle. The annually
reviewed IDP can be seen as a key form of the Municipality?s three year Medium Term
Strategic Framework (MTSF) and the Medium Term Expenditure Framework as
required by the national and provincial spheres of government (DPLG, IDP Guide Pack
VI, 2000:119-120).
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The DPLG, IDP Guide Pack VI, (2000:119) and the Municipal Systems Act, 2000
maintain that the annual Integrated Development Planning (IDP) Review process should
include the following:
? Preparing for the annual Integrated Development Plan (IDP) Review. The
annual Integrated Development Planning (IDP) Review process commences with
the preparations of the IDP review in that certain institutional preparations have
to be made to ensure that the process will be conducted effectively. These
include the designing of an action plan for the review process, assigning roles
and responsibilities and to conducting institutional arrangements including the
confirming of the Integrated Development Planning (IDP) Steering Committee
and the procedures and mechanisms for public participation (DPLG, IDP Guide
Pack VI, 2000:119).
? The monitoring process. The monitoring process that refers to the gathering of
certain information such as implementation management information, information
about the achievement of objectives set in the Integrated Development Planning
(IDP) and relevant new information that may be generated from internal or
external sources that reflects changes to the internal and external context of the
municipal area. The latter could include information such as new policies and
legislations, budget information from other spheres of government as well as
municipal budget reviews processed, new information about existing situations
and priority issues, information about new development trends, changes in the
existing situations due to unexpected events such as natural disasters and new
investments opportunities (DPLG, IDP Guide Pack VI, (2000:119).
? Evaluation. During this phase the information gathered through the process of
monitoring is analysed and synthesised for its relevance to the Integrated
Development Planning (IDP). Therefore, the information is assessed to
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understand its relevance and implications to the priority issues, objectives,
indicators and targets.
? Review. During this phase the knowledge gathered through the evaluation
proofs is taken into account by assessing the content of the existing Integrated
Development Planning (IDP) and affecting appropriate changes. The review of
the IDP includes a refined understanding of the situation around priority issues;
additional objectives, revised new strategies and revised new projects. The
review activities also include the revision of projects, sector programmes and
integrated programmes such as Local Economic Development (LED) and the
Spatial Development Framework, financial plans and programmes.
? Council Adoption of Revised Integrated Development Planning (IDP). The
revised Integrated Development Planning (IDP) has to be adopted by the
Municipal Council.
? Prepare and Adopt an Annual Budget. This means that the next annual
Municipal Budget should reflect the objectives, strategies, projects and
programmes contained in the revised IDP (IDP Guide Pack VI, 2000:119).
The DPLG, IDP Guide Pack VI, (2000:119) further holds that the Integrated
Development Planning (IDP) is reviewed annually to reflect the impact of the
Municipality?s success as well as corrective measures to address its challenges. The
annual review process also takes into consideration changing internal and external
circumstances that impact on the set priorities, objectives, strategies, projects and
programmes of the municipal Integrated Development Planning (IDP).
Both the annual Integrated Development Planning (IDP) Review process and the
performance management system can be seen as mechanisms to assist the
municipality to assessing the implementation of its IDP to improve its capacity to deliver
effective services to its community.
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2.16 CONCLUSION
This chapter outlines the evolution as well as the origin, statutory and regulatory
framework of Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS). It further highlights the Implementation of IDPs and
LGTAS. It concludes by explaining how Integrated Development Planning (IDPs) and
the Local Government Turnaround Strategy (LGTAS) are operationalized within the
municipalities and indicates how external resources, organisational culture and
leadership culture supports their implementation in South Africa.
From the discussion in the chapter, it may be inferred that Integrated Development
Planning (IDP) and the Local Government Turnaround Strategy (LGTAS) are important
strategic interventions to address development challenges and their implementation is
crucial to achieve the developmental priorities and objectives of municipalities.
It was emphasised that the Local Government Turnaround Strategy (LGTAS) was
introduced to ensure that all municipalities and their communities embark on a
concentrated effort to address the root causes of the problems undermining the
country?s municipalities.
From the discussion in the chapter, it may be inferred that a “one size fits all” approach
to the Local Government Turnaround strategy is not realistic when it comes to ensuring
that all municipalities fulfill their developmental role and promote satisfactory service
delivery for all. Therefore, each municipality has to develop and incorporate its own
tailor-made Municipal Turnaround Strategy into their municipal Integrated Development
Plan, as well as in the budgeting, monitoring, evaluation and reporting process.
In the light of all the above expositions, it can be concluded that both the IDP and LED
are essential municipal developmental tools, without which none of the goals of the
South African development agenda will be achieved. The link between the two will
enhance the likelihood of achieving the goals and objectives of development. Now that
the place and role of the local government sphere in South Africa is clear, and that the
necessary legislation and executive structures are in place, effective governance that
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leads to development can be achieved. By taking it step by step and tackling every
unsatisfactory service delivery challenge individually in an effective manner, a positive
difference can be facilitated to enable all citizens to live a better life, as one of the main
objectives of the government is to ensure and sustain a livelihood for all the citizens.
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CHAPTER 3
PUBLIC PARTICIPATION, INTEGRATED DEVELOPMENT PLANNING AND GOOD
GOVERNANCE: A CONCEPTUAL AND PRACTICAL INTERFACE
3.1 INTRODUCTION
The previous chapter provided an overview of Integrated Development Planning (IDP).
The importance and objectives of the Local Government Turnaround Strategy were also
discussed. The purpose of this chapter is to explore the interface between Integrated
Development Planning (IDP), public participation and good governance. In this chapter
the key public participation concepts are outlined, followed by a discussion about the
legislative and policy framework for participatory governance, an overview of the
different approaches, building blocks and modes of public participation in local
government, public participation strategies, and public participation in local
government?s Integrated Development Planning (IDP) process and will conclude with a
brief outline of community participation in the case of the Mangaung Metropolitan
Municipality.
Since 1996 the Constitution of the Republic of South Africa, 1996 has laid the
foundation for the grass-roots democratisation, good governance and developmental
local government. The White Paper on Local Government, (1998:37) states that
developmental local government means that local government is committed to working
with its citizens and groups within the community to find sustainable ways to meet their
social, economic and material needs in order to improve the quality of life for all citizens.
These needs are addressed in a municipality?s Integrated Development Plan (IDP). An
Integrated Development Plan (IDP) is a five year strategic plan, aimed at the integrated
development and management of a municipal area to assist municipalities to fulfill their
developmental mandate. One of the strengths of an Integrated Development Plan (IDP)
is that it recognises the linkages between development, delivery and democracy.
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The White Paper on Local Government, (1998:53) provides that one of the central roles
of a municipality is to build local democracy and to develop strategies and mechanisms
that include participative planning to continuously engage with citizens, businesses and
community groups. In addition the Local Government Municipal Systems Act, 2000 (Act
32 of 2000) provided that a municipality must develop a culture of municipal governance
that complements formal representative government with a system of participatory
governance that encourages and creates conditions for the local community to
participate in the affairs of the municipality such as the preparation, implementation and
review of its Integrated Development Planning (IDP). Furthermore, public participation
should also promote good governance at local sphere in that public participation
legitimizes a municipality?s decisions and actions.
In order to promote effective public participation, the International Association of Public
Participation (IAP2) as cited in Theron etal, (2007:8) offers seven core values that
practitioners and change agents should expect of the participation process to make the
public more effective partners in the participation process, namely:
? The public should have input in decisions about actions that affect their lives
? Public participation includes the promise that the citizens? contribution will
influence the decisions made by practitioners and politicians
? By means of the public participation process the interest and needs of all
participants should be communicated
? It seeks and facilitates the involvement of the people to be affected by or
have an interest in a decision
? The public participation process requires the input from participants in
designing how they participate
? It must also be communicated to participants how their inputs affect the
decisions made
? It provides participants with the necessary information that is needed for them
to participate in a meaningful way (Theron et al, 2007:8).
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Theron, (2007:8) is further of the opinion that the above international core values of
public participation might assist practitioners and change agents to promote effective
public participation in the South African local government.
Although public participation has received increasing attention in South Africa since
1994, the reality is that local government faces many challenges to effectively
implement participatory development through public participation effectively. Over the
last few years it was acknowledged from a wide range of government institutions that
insufficient consideration has been paid to public participation, and that existing policy
frameworks, institutional mechanisms and programme interventions are failing to
comply with government?s constitutional and statutory obligations. As a result of this and
other cases of lack of effective participation in municipalities, the former Department of
Provincial and Local Government (DPLG), developed the Draft National Policy
Document on Public Participation in 2005 and implemented it in 2007 to promote
effective public participation in the affairs of local municipalities. Thus, each
municipality developed its own Community Participation Framework that must be
reflected in its Integrated Development Plan (IDP) to promote effective public
participation in the affairs of the municipality such as the preparation, implementation
and review of its Integrated Development Plan (IDP). The key public participation
concepts are outlined in the next discussion.
3.2 DEFINING AND CONCEPTUALISING KEY PUBLIC PARTICIPATION CONCEPTS
Before discussing, the legislative and policy guidelines of public participation, some key
related definitions are reviewed. The purpose is to gain a better understanding of the
concept of public participation, community participation and civic participation in local
government affairs.
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3.2.1 The term „participation?
According to Fokane, (2008:41) there are numerous definitions of participation and it
means different things to different people upon the context and background in which it is
applied. In addition Theron et al (2008:5) is of the opinion that definitions of
participation should not be seen as blueprints, but should be dealt with as part of all
social learning processes to those that relate to grassroots interaction. Whereas
Theron, Ceasar and Davids (2007:4) maintain that confusion in the South African
context exist concerning participation in because it is so ill defined that everyone may
interpret it as they wish. De Beer and Swanepoel, (in Theron et al 2008:15) hold that
participation means that the most important role players in the development process
should be its beneficiaries. Whereas Bucher (in Van Der Waldt et al 2007:27) maintains
that participation entails more than just involving beneficiaries but that it should focus on
wide-ranging forms of engagement by citizens in policy formulation and decision-making
in key areas that affect their lives.
Understanding these concepts is crucial in the context of Integrated Development
Planning, in that it seeks to address developmental needs in a holistic manner. The
seven typologies of participation of Perry as cited in Theron, (2008:106-107) can be
used to clarify the concept and strategy of participation, namely:
? Passive participation. It means that citizens are being told what is going to
happen or what has already happened. This is a top-down approach;
? Participation in information giving. Citizens participate by means of surveys
or telephone interviews. In this case the citizens do not have the opportunity to
influence proceedings as the findings are not shared or evaluated for accuracy;
? Participation by consultation. People participate during community meetings
in that they are consulted while change agents listen to their viewpoints, but do
not include any share in the decision-making process by the participants, and
change agents are not committed to consider the public?s view. It is still a top-
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down approach because communication flows from the top to the bottom in that
the participants are passive recipients in the process of being informed;
? Participation for material incentives. This type of participation normally takes
place in rural environments where citizens participate by providing resources,
such as their labour in return for food or cash;
? Functional participation. This type of participation usually takes place after all
the important decisions have already been made in that citizens participate in a
group to meet predetermined objectives related to a project;
? Interactive participation. In this case participation is being seen as a right, not
just a means of achieving the goals of a programme in that citizens participate in
joint analysis, and the development of action plans and capacity building; and
? Self mobilisation. In this type of bottom-up participation citizens participate by
taking the initiative, independent of external institutions to change systems.
The above typologies are useful to demonstrate the different conceptions concerning
participation.
In addition to explaining these typologies, Theron, (2008:108) demonstrates the process
of public participation through which a community moves away from a less desirable
situation to a more desirable one that covers four modes that overlap with the above
typologies, namely:
? Anti-participatory model. Public participation entails a voluntary contribution in
a programme or project with no expectation from the community in shaping the
content and outcome of the development initiative;
? Manipulation model. In this model the community participates in the decision-
making, implementation and evaluation processes and benefits from the
development programme or project;
? Incremental model. In this model participation is concerned to increase the
control over resources in given social situations for communities who were
previously excluded from such control; and
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? Authentic public participation. It refers to an active process by which the
community influences the direction and execution of a development programme
or project to improve their well-being.
According to Kalk (in Van der Waldt et al. 2007:30) the various levels of participation
should be taken into account to describe participation. Information giving can be seen
as the lowest level of participation. On this level the council of a municipality makes a
policy and just informs the community about the policy without any proper and prior
consultation. Kalk (in Van der Waldt et al. 2007:30) holds that the next level of
participation refers to consultation. At this level the council sets the agenda policy
making, but although not committed to the outcomes of debates the council still invites
the community to participate in debates concerning the policy. The third level of
participation deals with advice at this level of participation. The citizens and politicians
jointly set the policy agenda and citizens participate during policy-making debates. The
fourth level refers to co-producing that can be regarded as an interactive process in that
politicians, municipal officials and interest groups jointly identify policy issues. At this
level of participation the council is committed to the outcome of the joint policy
decisions. The fifth level of participation refers to co-agenda setting where all role
players and stakeholders jointly set the policy agenda. This is the type of participation
that the municipality should promote, joint responsibility and participative decision-
making. The sixth level refers to co-responsibility for policy decisions, in that the
community will assist in ensuring that the policy outcomes and decisions of a
municipality are put into practice. Kalk?s last level as cited in Van der Waldt, et al,
(2007:30) is participative decision-making. The above levels demonstrate the different
conceptions with regard to participation.
In light of the above Davids, Theron and Maphunye, (2009:126) identified four levels
wherein municipalities should require active participation with communities, which
includes firstly, participation with the voters to ensure maximum democratic
accountability of the elected political leadership for the policies they are authorised to
promote. Secondly, it includes participation with forums established from within or
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outside local government. Thirdly, it includes participation with organised groups to
initiate policies and influence policy formulation and fourthly it requires active
participation of the community to participate in the monitoring and evaluation activities of
a municipality. In the next section the terms community participation, public
participation and citizen participation will be clarified.
3.2.2 The terms community participation, public participation and citizen
participation
The terms community, citizen and/or public participation are often used interchangeably.
The White Paper on Local Government (1998:53) refers to citizen participation, whereas
the Local Government Municipal Systems Act, 2000 refers to community participation,
while the DPLG, IDP Guide Pack, Guide 0, An Overview (2000:9-10) refers to public
participation. A useful starting point is to define the concept community in the context
of local government. There are considerable differences of opinion as to what
community participation entails. Van der Waldt et al (2007:26) maintain that community
refers to all the citizens living within the areas of a jurisdiction of a municipality.
Community participation refers to an active process by which beneficiaries should be
able to influence the direction and execution of a development activity to improve their
lives (Paul in Fokane, 2008:41). Whereas Fox and Meyer (1995:20) refer to community
participation as the involvement of citizens in a wide range of administrative policy-
making activities that include the determination of priorities, levels of service,
acceptability of physical construction projects in order to orientate government
programmes towards community need, to build public support and to encourage a
sense of cohesiveness within a society. This definition emphasises the involvement of
the community in processes that affect their lives. In addition the National Policy
Framework for Public Participation, (2007:4) defines community participation as: “an
open, accountable process through which individuals and groups within selected
communities can exchange views and influence decision- making.”
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In light of the above Oakley (in Tshabalala, 2006:44) defines of community participation
as a means to empower citizens by facilitating the development of their skills and
abilities, by enabling them to negotiate with the development system and by equipping
them to make their own decisions in terms of their development, needs and reality.
Midgley (in Tshabalala, 2006:44) emphasises the notion of institutional building in the
promotion of community participation and cited that community participation should
denote the creation of procedures for democratic decision-making at local sphere that
involve the people in these procedures to the extent that they regard them as a normal
way of conducting community affairs.
In addition, the DPLG, IDP Guide Pack VI, (2001:15) holds that an integrated
development planning representative body must be established to promote the
participation of communities in a municipality?s Integrated Development Planning (IDP)
process. Thus, community participation in the Integrated Development Planning (IDP)
process requires effective communication between the community and the municipality
to address the needs of the community and to ensure that assumptions and unrealistic
expectations can be dispelled. Midgley (in Tshabalala, 2006:44) emphasises the notion
of institutional building in the promotion of community participation and cited that
community participation should denote the creation of procedures for democratic
decision-making at local sphere that involves the people in these to the extent that they
regard them as a normal way of conducting community affairs.
In the light of the above Tshabalala (2006:44) made a distinction between community
participation and public participation in that public participation involves the broader
public that is not bound by a specific geographic area. Brynard (in Tshabalala 2006:45)
holds that public participation provides a mechanism for democratising the planning
process and as a result of this, the public manages the process to the extent that public
participation in the local sphere can be seen as a democratic right. Integrated
Development Planning provides the communities the opportunity to exercise their
democratic right in local development issues. For the purpose of this study, the
researcher will refer to the participation in the Integrated Development Planning process
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as public participation in that public participation in the local sphere is related to a
democratic right. In the next session the legislative and policy framework for
participatory governance will be discussed.
3.3 THE LEGISLATIVE AND POLICY FRAMEWORK FOR PARTICIPATORY
GOVERNANCE
Since 1994 the government has put in place many policy and legislative frameworks
which require some form of public participation in local government. Four of the key
legislative frameworks include the Constitution of the Republic of South Africa, 1996,
the White Paper on Local Government, 1998, the Municipal Structures Act, 1998 and
the Municipal Systems Act, 2000. A good starting point is to introduce the legislative
requirements concerning the above key legislative frameworks. Some of the other
legislative and policy frameworks which require some form of public participation will
also be discussed in this section.
3.3.1 Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
The Constitution, 1996 as the supreme law of the country not only makes provision in
Chapter 2 for the Bill of Rights that includes the rights of all citizens to equality, human
dignity, freedoms, environment and the right to housing, health care, food, water and
social security. The notion of public participation is also embedded in Section 151 (1).
In particular, the Section 151(1) of the Constitution, 1996 places an obligation on local
government to do the following: to provide democratic and accountable government for
all local communities; to ensure the provision of services to communities in a
sustainable manner; to promote social and economic development; to promote a safe
and healthy environment; and to encourage the involvement of communities and
community organizations in the matters of local government. In terms of Section 153 of
the Constitution, 1996 a municipality must structure and manage its administration, and
budgeting and planning processes to give priority to the basic needs of the community,
and to promote the social and economic development of the community; a municipality
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must also participate in national and provincial development programmes. While
Section 195 (1) of the Constitution, 1996 provides the basic values and principles
governing public administration that require that the people?s needs must be responded
to and public must be encouraged to participate in policy-making matters. This builds
on the commitment of government to promote effective public participation with the
promulgation of numerous policy frameworks concerning the matters of local
government that will be outlined below.
3.3.2 White Paper on Local Government, 1998
According to the Ward Committee Resource Book (2005:13) the White Paper on Local
Government (1998) often referred to as the „?mini- constitution?? for local sphere of
government, set out the vision and policies for ensuring that local government fulfills its
developmental role. The objects of community participation are embedded in the
following four principles as set out in the White Paper on Local Government, (1998: 53):
? to ensure political leaders remain accountable and work within their mandate;
? to allow citizens (as individuals or interest groups) to have continuous input into
local politics;
? to allow service consumers to have input on the way services are delivered; and
? to afford organised civil society the opportunity to enter into partnerships and
contracts with local government in order to mobilise additional resources.
In addition the White Paper, (1998:53-54) also provides that municipalities should
develop mechanisms to ensure participation and good governance in policy initiation
and formulation, as well as to promote the monitoring and evaluation (M&E) of decision-
making and implementation. Davids, et al (2012:60-61) maintain that the White Paper
on Local Government, 1998 symbolises a fundamental renewal of local government in
South Africa and it gave meaning to the paradigm shift in terms of how municipalities
should integrate their Integrated Development Plans (IDP) with community based goals.
The White Paper on Local Government, (1998:16) further emphasizes the constitutional
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concepts of human dignity, human rights and democracy as important elements of
developmental local government by including references to the redistribution of income
and opportunities in favour of the poor. Section D of the White Paper on Local
Government (1998:77) constitutes that the most important role of the municipality is to
promote local democracy. The White Paper on Local Government (1998:5) further
refers to the importance of local sphere of government as a space where citizens can
participate to shape their own living environments and extend their democratic rights.
Not only does the local sphere of government provide space for the public, but it is also
critical to cultivating participatory governance and democracy in that the public is more
likely to exert some influence over policy decision in a smaller local institution closer to
home.
3.3.3 The Local Municipal Structures Act, 1998 (As amended in 2000 and 2003)
Puntu (2006:16) contends that the Local Government Municipal Structures Act, 1998
(Act 117 of 1998) requires the municipality to strive towards achieving the goals set out
in Section 152 of the Constitution, 1996. Chapter 4 of the Municipal Structures Act,
1998 holds that the municipality must establish ward committees as a structured system
which encourages the participation of communities. The Act sets out the powers and
functions of a ward committee. In this regard, the Local Government Municipal
Structures Act (1998:52) requires that a Category A municipality with a sub-council or a
ward participatory system, or a Category B municipality with a ward participatory and
executive committees or mayors must report on an annual basis on the participation of
communities and community organisations concerning the local matters of the
municipality. Upon the establishment of ward committees, which promote public
participation, Section 73 of the Municipal Structures Act, 1998 stipulates that if a
metropolitan municipality or a local council decides to have ward committees, it must
establish a ward committee for each in the municipalities that consisting of a ward
councilor representing that ward on the council and who must also be the chairperson of
the committee and not more than ten other persons of the ward. The Act further holds
that a metropolitan municipality or local council must make rules regulating the ward
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committee that includes the procedure to elect the ten other members of the ward
committees by taking into account the need for women to be equitably represented on a
ward committee. Provision should also be made for the circumstances under which
those members must vacate office and the frequency of meetings of ward committees.
The Act also provides that a metropolitan municipality or local council may take
administrative arrangements to enable ward committees to perform their functions and
practice their powers effectively. The Ward Committee Resource Book (2005:14)
outlines that Section 5(1) of the Municipal Structures Act (1998) set out the rights and
duties of the members of local community. In terms of the Act the community has the
right to contribute to the decision-making process of the municipality as well as to be
able to submit written or oral recommendations, representations and complaints to the
municipal council
3.3.4 The Local Government Municipal Systems Act, 2000 (Act 32 of 2000)
According to Puntu (2006:18) the Municipal Systems Act, 2000 (Act 32 of 2000), states
in Chapter 4 Section 17(2) that a municipality must establish appropriate mechanisms
processes and procedures to enable the local community to participate in the affairs of
the municipality. Similarly the Ward Committee Resource Book (2005:14) also confirms
that the Municipal Systems Act (2000) requires municipalities to develop a culture of
government within a system of participatory governance and public participation.
Section 4 of the Municipal Systems Act, 2000 requires that municipalities must
determine strategies to consult the community about the level of quality, range and
impact of municipal services provided by the municipality, either directly or through
another service provider.
Section 5 of the Act states that members of the community have the right to contribute
to the decision-making processes of the municipality and submit written or oral
recommendations, representations and complaints to the municipal council.
Furthermore, the Act requires that the community should be informed about decisions of
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the municipal council as well as to get regular disclosure of the affairs of the municipality
including the financial affairs of the municipality. Section 16 of the Municipal Systems,
Act, 2000 makes provision for the following requirements concerning public
participation:
? A municipality must develop a culture of municipal governance that supports
formal representative government through a system of participatory governance;
and
? A municipality must encourage and create conditions for the community to
participate in the affairs of the municipality, including participation in a
municipality Integrated Development Planning, performance management
system, monitoring and review of performance, the preparation of its budget, and
strategic decisions about the provision of municipal services.
Regarding the mechanisms, processes and procedures for public participation, Section
17 of the Municipal Systems Act, 2000 requires amongst other issues that public
participation by the local community in the affairs of the municipality must take place
through the political structures for participation as set out in the Municipal Structures
Act, 1998 (as amended in 2000 and 2003). Furthermore in terms of Section 17 of the
Municipal Systems Act, 2000 municipalities must create conditions that will allow
members of the community, such as disabled people, other disadvantaged groups and
people who are illiterate, to participate in the affairs of the municipality.
In terms of Section 18 (1) of the Municipal Systems Act, 2000 the municipality must
communicate to its community information about public participation and must
communicate what are the available mechanisms, processes and procedures are in
order to encourage and facilitate participation. Section 19 of the Act requires that the
municipal manager must give notice to the community as determined by the council,
about the date, time and venue of every meeting and urgent meeting of the council and
every special or urgent meeting of the council, unless time constraints make it
impossible. Furthermore, Section 20 provides that meetings of the council and its
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committees are open to the public, including the media and neither the council nor its
committees may exclude the public and media. In addition the council has the right to
take the necessary steps to regulate public access and public conduct during its
meetings.
Section 26 of the Act sets out the core components of the Integrated Development Plan
(IDP) that all municipalities (Metropolitan, district and local municipalities) should
undertake to produce its own Integrated Development Plan (IDP).
Whereas, Section 42 of the Municipal Systems Act, 2000 provides that a municipality
must involve the local community through appropriate mechanisms, processes and
procedures in the development, implementation and review of the municipalities
performance management system and must allow the community to participate in the
setting of appropriate key performance indicators and performance targets of the
municipality.
3.3.5 Municipal Finance Management Act, 2003 (Act 56 of 2003)
According to the Ward Committee Resource Book (2005:17) the purpose of the
Municipal Finance Management Act, 2003 includes the following:
? to bring about transparent and effective financial management in municipalities
and municipal entities;
? to set up a municipal financial recovery service which allows the National
Treasury to intervene where a municipality faces a financial emergency; and
? to show the difference between short-term borrowing and long-term capital
investment.
The objective of the Municipal Finance Management Act, 2003 is to modernise budget
and financial management processes and practices of local government to maximize
their capacity as well as to promote effective service delivery. The Municipal Finance
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Management Act, 2003 requires municipalities to engage communities in the following
activities of the budget process.
? The preparation, tabling and approval of the annual budget; and
? The annual review of the IDP and other budget related policies;
In terms of Section 53 (6) of the Municipal Finance Management Act, 2003 the Mayor of
a municipality must ensure that the annual budget of a municipality should indicate how
it will implement the objectives set out in its Integrated Development Plan (IDP) over the
next three years. In addition the municipality should also indicate how its integrated
development plan will be revised by taking into consideration the budget and spending
commitments.
3.3.6 Local Government Municipal Property Rates Act, 2004 (Act 6 of 2004)
(Amended in 2009)
The Local Government Municipal Property Rates Act, 2004 further provides that the
municipal manager of a municipality must clearly display the draft rates policy for a
period of at least 30 days at the municipality?s head and satellite offices, at libraries and
on an official website of the municipality to ensure that the public has access to the
information. The municipality must advertise in the media notices by stating that a draft
rates policy has been prepared for submission to the council and that a draft rates policy
is available in the municipality?s head office and on its websites for inspection during
office hours. Furthermore, the municipality has to invite the local community to submit
comments and representation to the municipality within a period specified in the notice
which may not be less than 30 days. The Act also provides that a municipal council
must take all comments and representations made to it or received by it into account
when it considers the draft rates policy. The Municipal Property Rates Act, 2004 also
requires that public participation in amendments to a rates policy must be reflected
through the municipality?s annual budget process.
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3.3.7 The National Policy Framework for Public Participation, 2007
The National Policy Framework for Public Participation, 2007 provides a policy
framework for public participation in all municipalities (Metropolitan, district and local).
Firstly, the Framework identifies certain minimum requirements which municipalities
must meet for its constitutional obligation of participatory governance. The requirements
entail inter alia that all municipalities must implement a community complaints
management system. It requires that all municipalities must take steps to publicize the
municipality?s public participation principles that in general set the norms and values of
participatory governance within the municipality. Therefore, a municipality must publish
and distribute its Citizen Participation Framework that spells out the various local
structures to contact as well as the public participation mechanisms that exist within a
municipality in order to maximise public participation. The National Policy Framework for
Public Participation, 2007 encourages municipalities to conduct citizen satisfaction
surveys as a means of becoming aware of its community satisfaction concerning
service delivery within its area.
Secondly, the National Policy Framework for Public Participation, 2007 requires that
municipalities empower and support ward committees to promote participatory
governance. As such, ward committees must be involved in key municipal processes of
development planning, the budget, the performance management system, performance
assessment and service delivery agreement as required by the Municipal Systems Act,
2000. The Framework further requires that municipalities must incorporate
representatives from their ward committees to serve on audit committees as well as on
the personal performance evaluation panel. In order to promote effective public
participation the election and operation of ward committees must be adopted in policies
and by-laws. The Framework further requires that municipalities should empower and
support its Integrated Development Plan representative forums, also known as the IDP
forums, to promote participatory governance. The National Policy Framework for
Public Participation, 2007 also requires that municipalities must keep a comprehensive
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local stakeholders register, to ensure the full inclusion of as many community members
as possible.
Thirdly, the National Policy Framework for Public Participation, 2007 recommended that
municipalities use local stakeholders that include representatives from applicable ward
committees and local stakeholder groups to assist the municipality in its monitoring and
evaluation of the implementation of projects as set out in its Integrated Development
Plan (IDP). The National Policy Framework for Public Participation, 2007 further
recommended that the responsibility for coordinating public participation should be
fulfilled by a Public Participation Unit that is overseen by the Speaker. The Framework
also recommended that the Public Participation Unit will be responsible to draw up an
annual public participation plan which specifies the responsibilities of all role players
responsible for participatory governance within the municipality. Lastly the Framework
recommended that public participation key performance areas, indicators and targets
should be included in contracts of officials to secure a basic threshold of participatory
governance.
3.3.8 The Local Government Turnaround Strategy, 2009 and Public Participation
The Local Government Turnaround Strategy was introduced during 2009 as a strategic
intervention to address the challenges as identified in an assessment of the state of
local government. These challenges in municipalities include aspects such as poor
governance and accountability, weak financial management and high vacancy rates in
critical senior management positions. The findings further found that some
municipalities do not have the capacity to deliver on the core set of critical municipal
services. Therefore, the Local Government Turnaround Strategy aims to restore the
confidence of South Africans in local government as the primary delivery organ of the
developmental state as well as to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government. Furthermore, the Local Government Turnaround Strategy strives to
intervene in communities increasing dissatisfaction with poor service delivery, as well as
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to improve the administrative and financial performance of all municipalities
(metropolitan, district and local municipalities). The Local Government Turnaround
Strategy aims to achieve five strategic objectives, namely: to ensure that municipalities
meet the basic service needs of their communities; to build a clean, effective, efficient,
responsive and accountable system of local government; to improve performance and
professionalism within municipalities; to improve national and provincial policy, oversight
and support; and to strengthen partnerships between communities, civil society and
local government (The Department of Cooperative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:19). The Local Government Turnaround Strategy identified its
immediate priorities prior to the 2011 elections, as well as its medium-term and post-
election priorities until 2014. The immediate priorities prior to the 2011 elections were a
pilot project in which selected municipalities per province had to develop their own
Municipal Turnaround Strategies. During the Medium -term that have commenced after
the 2011 elections until 2014 requires that all municipalities have to develop and
incorporate their own Municipal Turnaround Strategy in their Integrated Development
Plan (IDP) as well as to monitor and evaluate the municipality?s performance. During
this phase the municipalities have to ensure that communities take part in the process.
The Local Government Turnaround Strategy further requires that all municipalities must
produce quarterly in-year financial reports to promote transparency. The result is that
the National Treasury releases the In-Year Management, Monitoring and Reporting
System for Local Government that enables national and provincial government to
exercise their oversight role over municipalities as well as to identify possible challenges
in implementing municipal budgets and conditional grants.
3.3.9 The South African National Development Plan, 2030
The South African National Development Plan, 2030 aims to eradicate poverty and to
reduce inequality by 2030. The National Development Plan identified six interlinked
priorities:
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? To utilise all South Africans around a common programme to achieve prosperity
and equity;
? To promote active citizenry to strengthen development, democracy and
accountability;
? To bring about faster economic growth, higher investment and greater labour
absorption;
? To focus on key capabilities of people and the state;
? To build on a capable and developmental state; and
? To encourage strong leadership from government, business, labour and
throughout society to address South Africans current challenges effectively (The
National Development Plan 2030, Executive Summary, 2012:16).
The National Development Plan, 2030, Executive Summary (2012:44-45) further
emphasised that more needs be done to remedy the uneven and often poor
performance of government including local government. Not only should accountability
be reinforced by clarifying lines of accountability and to strengthen coordination through
the intergovernmental system, but more needs to be done to strengthen the public-
interest as well as to promote transparency.The National Development Plan 2030,
Executive Summary (2012:44-45) further provides that municipalities should avoid
undermining democratic accountability for service delivery. Thus, more needs to be
done to make it easier for citizens to raise their concerns concerning service delivery.
The rising number of service delivery protests indicate that the state also needs to
promote effective public participation to promote active citizenry as well as to strengthen
participatory governance and accountability. An overview of the different approaches,
building blocks and dimensions of public participation in local government will be
provided in the following section.
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3.4 AN OVERVIEW OF THE DIFFERENT APPROACHES, BUILDING BLOCKS AND
MODES OF PUBLIC PARTICIPATION IN LOCAL GOVERNMENT
According to Olivier (2005: 22) participation within the context of local governments has
three sources. Firstly, participation was used in the 1950?s by social activists and project
field workers as part of development projects. Olivier (2005:22) further maintains that
the World Bank, as well as the Development Bank of Southern Africa have taken the
notion of participation as a prerequisite for successful project implementation at local
government sphere.
Secondly, participation within the context of good governance emerged in the 1980?s
and 1990?s as a result of democratic disengagement and unresponsive and inefficient
local government in Western democracies. Olivier (2005:22) also indicated that South
Africa experienced the same trends after the 1994 elections. It prompted a range of
initiatives to re-establish the legitimacy of local councilors, to address social exclusion
and to improve participation and good governance in representative democracy. It leads
to new forms of democratic participation to improve representative democracy such as
the increase of residential community associations and community development
corporations.
Thirdly, the empowerment approach to community participation is located within the
radical paradigm of alternative development that manifests itself in the mobilisation of
popular political power. An example of this approach was the dialogical forums at local
government sphere prior to the 1994 elections in South Africa, where stakeholder
groups with a political empowerment agenda engaged the local state in participating on
a wide range of development initiatives. After 1994 these dialogical forums still form the
dominant mode of participation in the preparation of Municipal Integrated Development
Plans. Olivier (2005:22) further holds that municipalities often intermingles participation
on a project-based engagement in a similar manner as consultation in the municipalities
integrated development planning process that falls more within the good governance
realm. At other times communities with which municipalities engage often resemble
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empowerment by using participation as political engagement. Thus, there is no one
approach or model of participation. Participation should therefore be understood in the
context within which communities are engaged by local government to ensure that the
most appropriate participative mechanisms and processes are used to promote
effective participation of communities in their own development.
In the light of the above Abbot (in Olivier 2000:22-23) acknowledges that different
approaches to community participation exist, namely community development,
empowerment and negotiated development. Abbot (in Olivier 2000:22-23) further
mentioned that each of the participation approaches or models display specific
characteristics of participation as shown in Table 3.2 below.
Table 3.1 The different participation approaches or models
Participation
approach or model
Participation
approach or model
Participation
approach or model
Characteristics Community
development
Empowerment Negotiated
development
Role of
government
Open Close Open
Nature of decision-
making
Small development
programmes and
projects with clearly
defined outputs,
often a single output
Political and or
economic targeted
development
programmes with
clearly defined
agendas and
outputs
Complies multi
variable and
multifaceted
development
programmes.
Community Focuses through Focuses through
strength of needs or
Diffuse,
heterogeneous and
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Participation
approach or model
Participation
approach or model
Participation
approach or model
dynamics project selection development
initiatives or issues
required level of
moderation
Primary purpose
of the participation
process
Limited Participation Participation
centered around a
dispute between
community and
government
An integrated
system approach
with a wide range of
interaction
(Source: Abbot in Olivier 2000:22-23).
Thus, different approaches to participation exist and are appropriate for different
contexts. Practitioners in the South African local government need to use a variety of
participation approaches or modes, as the context within which the participation takes
place, will determine the most appropriate form of participation that needs to be applied.
3.4.1 Public participation and the building blocks of development
Max-Neef (in Davids, et al, 2009:122) points out that public participation is one of the
needs of humans that should be satisfied through the development process. Public
participation is thus an integral part of the human development approach and it is as
complex as human nature itself. According to Meyer and Theron (in Davids et al
2009:122-123) the building blocks of development consist of the following processes in
a logical sequence:
? Public participation. Public participation can be seen as the first building block
of development that is also a component of human growth. Davids et al,
(2009:122-123) mentioned that public participation is one of the essential
conditions for development, in that it is a basic human need and this means that
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the most important role player in development initiatives must be the public.
Through public participation, the public as the beneficiaries of development
initiatives should not only be able to share in the programmes but should also be
able to influence and direct the process. It implies that ward councilors, as
change agents when facilitating the process of public participation, should
always take the inputs of the public as the beneficiaries as of utmost importance
? Social Learning approach. The second building block of development entails
the social learning approach that needs to be introduced once public
participation has been set in place (Meyer & Theron (in Davids, et al 2009:132).
In addition Kotze and Kellerman in Davids, et al (2009:133) indicate that the
social learning process has its origin in Senge?s idea of the learning organisation
that supports the principle of bottom-up planning and public participation. It
entails that ward councilors should adopt learning in a partnership approach with
the beneficiaries of development initiatives. The integrated development plan of
a municipality can be seen as an example of a bottom-up planning, where ward
committees and ward councilors can be engaged in public participation. Theron
(in Davids et al 2009;123) maintains that through the social learning process
approach, the public contributes to integrated development planning through
their indigenous knowledge systems (IKS) and experience
? Empowerment. According to Davids, et al (2009:124-125) the third building
block of a development approach is empowerment. Public participation and
empowerment are essential issues to the planning process and to sustainable
development. It also requires that the public is equipped with the power to decide
and to take action concerning their own development. As such public
participation as empowerment and social learning process, leads to collective
action at grassroots level, making the public self-aware and self-reliant (Theron
and Oakley as cited in Fokane, 2008:51)
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? Sustainability. Theron (in Fokane, 2008:51) states that together with the other
blocks of development public participation and sustainability are devolutions of
power wherein the public should have access to decentralised institution that will
address the public needs and priorities in development initiatives. Furthermore,
public participation and sustainability are the devolution of power. Sustainability
also entails that the public should have access to local government institutions
that should honour their priorities, and it means that these institutions through
the focus on developmental local government, are represented by the IDP at
local government level.
The above building blocks of development are important to move form a less desirable
to a more desirable approach in development of which public participation is an integral
part to promote a reciprocal relationship and a partnership in development.
In light of the above Section 16 of the Municipal Systems Act, 2000 provided that
municipalities must develop a culture of municipal governance that complements formal
representative government with a system of cooperative and participatory governance.
The Act further states that municipalities must encourage and create conditions for the
local community to participate in the affairs of the municipality that include participation
during the preparation, implementation and review of a municipalities? Integrated
Development Plan (IDP). Thus, the success or failure of a municipality?s cooperative
and participatory governance depends on how effective the reciprocal relationship
between the municipality and its community is managed throughout the preparation,
implementation and review process of its Integrated Development Planning (IDP)
process. The distinction of public participation as a means and end will be emphasised
below.
3.4.2 Distinction of public participation as a means and/or an end
Oakley (in Davids et al, 2009:118) argues that public participation can be distinguished
as a means and/or an end. Public participation as a means relates to passive
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participation while public participation as an end relates to active participation. When
public participation is viewed as an end, it becomes a long-term process, to develop in
that it strengthens the capabilities of the public to participate directly in development
issues. The distinction is presented below in Table 3.1 as cited by Davids et al,
(2009:118):
Table 3.2: Distinction between public participation as a means and/or an end
Participation as a means Participation as an end
? Implies the use of participation to
achieve some predetermined
objective.
? Attempts to use resources in order
to achieve the objectives of a
development programme or project.
? It is common in government
development programmes, to
mobilise and involve the community
to improve the efficiency of delivery
systems.
? It is generally a short-term process.
? It appears to be a passive form of
participation.
? It attempts to empower people to
take part in their own
developments.
? It attempts to increase the role of
the community in development
issues.
? It focuses on improving the ability of
the community to participate rather
than just achieving the objectives of
a development programme or
project.
? It is favoured by non-governmental
organisations but less favoured by
government agencies.
? It becomes a long-term process in
that it is more active and dynamic
than participation as a means.
(Davids et al, 2009:118).
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From the above table it can be deduced that by considering public participation as a
means to an end entails that it is a social learning process, which is necessary for the
success of any development programme or project.
3.4.3 Distinction between public participation as involvement and public
participation as empowerment
Another distinction that often contributes to the confusion in conceptualizing public
participation is the kind of public participation needed. This distinction as cited by De
Beer (in Davids et al, 2009:119) refers to the distinction between public participation as
involvement and public participation as empowerment. On the other hand public
participation and involvement entails “weak”public participation that refers to a top-down
decision-making process that can be seen as a manipulative form of participation. On
the other hand public participation as empowerment entails “strong” participation that
can be seen as a social learning process, or a capacity building process that includes a
bottom-up decision-making process. Public participation as empowerment requires the
decentralization of decision-making. The different modes of public participation will be
discussed below.
3.4.4 Modes of public participation
According to Booysen in (in Anon, 2007:22-25) the following six modes of participation
are distinguished:
? Proactive or conventional participation. In this mode of participation members of
civil society could actively engage in the phases of agenda setting or in policy
formulation. It may emanate from community and or non-governmental
organisations (NGO?s) initiatives.
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? Representation or representational participation. In this top-down mode of
participation citizens might be satisfied with having their interest represented by
their elected members of government.
? Centre driven initiatives. Another top-down mode of participation is where
political and public service officials are responsible for a range of participatory
initiatives.
? Community engagement participation. This mode of participation is identified as
participation that relates to a range of different phases of the policy process and
governance and has a bearing on engagement with members of political and
bureaucratic spheres of government. This mode of participation brings
executives, legislatives, bureaucrats and citizens together to discuss
development issues.
? Alternative or unconventional participation. It refers to a situation where civil
society members regard protest and mobilisation as the required form of policy
participation.
? Information related modes of engagement with government. This mode of
participation takes place when citizens use policy-related information that they
have received from government or from government media, or from mass
electronic and print media on government to become more active participants in
public affairs.
In addition, Oakley and Marsden (in Theron, 2008:108) holds that the process of
participation can be presented on a continuum that covers four modes through which a
community moves away from a less desirable to a more desirable situation. The four
modes as explained by Oakley and Marsden (in Theron et al 2008:108) consist of the
following:
? Anti-participatory mode. In this mode participation can be considered as a
voluntary contribution by the community but the beneficiaries are not expected to
take part in shaping a development programme or project?s content and
outcomes.
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? Manipulation mode. In this mode participation includes the involvement of the
beneficiaries in decision-making processes and the implementation of
development programmes or projects as well as in the sharing of the benefits
sharing in the benefits, and involvement in the evaluation of the project or
programme.
? Incremental mode. In this mode participation is concerned with efforts to
increase control over resources and to ensure that groups or movements are
excluded from such control over resources of a development programme or
project.
? Authentic participation. In this mode of participation, participation can be seen as
an active process by which the communities or beneficiaries influence the
direction and execution of a development programme or project with a view to
enhance their wellbeing in terms of income, personal growth, self-reliance or
other values that they seek (Oakley and Marsden in Theron et al 2008:108).
In light of the above modes of participation Arnstein and Pretty (in Davids, et al
2012:116-117) developed seven typologies to demonstrate the different conceptions
concerning public participation. The seven typologies of participation consist of the
following:
? Passive participation. In this type of participation community members remain
clueless and powerless in that the community participates by being told what is
going to happen or what has already happened concerning a development
project or programme.
? Participation in information giving. In this type of participation community
members participate by taking part in surveys or interviews or other participation
strategies but they do not have the opportunity to influence or direct
proceedings. The findings are also not shared with community members.
? Participation by consultation. In this type of participation community members
are being consulted by professionals. However the professionals are under no
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obligation to consider the public view and the community members have no
share in decision-making concerning the development initiative.
? Participation for material incentives. In this type of participation, the community
participates in the development initiative in return for food or monetary
incentives.
? Functional participation. In this type of participation community members
participate in a group context at the early stages of a development programme
or project to meet predetermined objectives related to a the programme or
project.
? Interactive participation. In this case participation is being seen as a right not just
a means to achieve a project goal.
? Self-mobilisation. In this type of participation community members retain control
over how resources are used in a development programme or project.
Thus, considering the modes or typologies of participation one could argue that
participation varies from passive participation where the community is being told what to
do to self-mobilisation where the community members control the development process.
3.4.5 The benefits of public participation
According to the National Policy Framework for Public Participation, (DPLG, 2007:17-
20) the benefits of public participation include, but are not limited to the following:
? Public participation assists municipalities to increase levels of information to
communities
? Public participation contributes to the improvement of service delivery and assists
in better identification of the needs of communities
? Public participation helps the public to develop a clear sense of direction
concerning development initiatives
? Public participation contributes to achievement of greater accountability in that it
contributes to restore municipal credibility with the public
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? Public participation also assist the stakeholders to identify alternatives to be
considered when addressing development priorities and issues
? Public participation also creates a better understanding of a development
initiative and its objectives amongst the public.
The above benefits emphasised the importance of effective public participation of the
community in the affairs of a municipality to promote cooperative and participatory
governance.
3.5 PUBLIC PARTICIPATION STRATEGIES
Public participation strategies should not be seen as blueprints for development. Each
development initiative requires a specific, relevant combination of strategies depending
on the expectations of the local sphere and the beneficiaries of the development
programme or project (Theron, 2008:111-112). In addition Theron et al (2008:111-112)
refers to a spectrum of participation that includes informing the public, consulting the
public, involving the public to collaborating and empowering of the public through a
process of public participation. Firstly public participation strategies should be aimed at
informing the public. These strategies are merely intended to inform the public to
become aware of a development programme or project (Theron et al 2008:113-114;
Davids et al, 2009;128-130). Options utilized under this strategy include the following:
? Legal notices
? Advertisements
? News articles
? Background information material
? Exhibits and displays
? Technical reports
? Websites
? Field trips
? Press conferences
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? Radio and television talk shows
? Expert panels
(Theron, 2008:113-114 and Davids et al, 2009;128-130)
Secondly public participation strategies, through consultation require that relevant
stakeholders are contacted and assembled at a specific point to be consulted about a
development initiative. However, public participation is considered a voluntary
contribution by the public and they are not necessarily expected to take part in shaping
the development programme or projects content or outcome. Options of this strategy
involved include the following:
? Public or community meetings
? Public hearings
? Open days
? Briefings
? Central information contact
? Field offices of information centres
? Comments and response sheets
? Surveys and polls
? Interviews
? Telephone hotlines
? Electronic democracy
(Theron, 2008:113-114; Davids et al, 2009:128-130).
Thirdly, public participation strategies aimed at involving the public to collaborate as well
as to empower the public, provide a reciprocal learning relationship between the
beneficiaries and the development agencies such as local government. Options of this
strategy include the following:
? Focus groups key stakeholder meetings and workshops
? Advisory committees and panels
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? Task force
? Citizen juries
? Consensus conference
? Imbizo
? Indaba
? Participatory rural appraisal, participatory learning action
(Theron et al2008:128-130).
Thus, municipalities should use a combination of strategies to promote effective
participatory governance.
According to Olivier (2005:16-17) the most common options in South African
municipalities relating to participation are:
? Formal advertising in the press to ensure that municipalities adhere to the
minimum legal requirements for considering the views of the community about
their own development
? Dialogue forums such as IDP forums, sectoral forums are other applicable ward-
based forums
? Ad-hoc meetings around specific issues that occur occasionally;
? Market research and opinion polls
? Ward participatory structures that exist in many municipalities are set up through
formal provincial notices and requiring by-laws
? E-Government provided by larger municipalities and metropolitan municipalities
makes provision for online voting to gain a measure of public opinion on
development issues
? Communication capacity through corporate communication services, such as
occasional newsletters, to reach communities. Other examples include the use of
community radio stations, newspapers and media, and even television to reach
community members concerning development issues
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? Customer relations and Citizen Charters driven by the need to manage the public
expectations concerning development. Examples of these options include one-
stop shops where a range of services are combined in one area, self service
facilities and electronic services, and even the internet. Other options that
municipalities use include help desks where all inquiries can be lodged through a
single portal.
In the light of the above Theron (2008:112) warns that a one-size-fits-all strategic
approach is not recommended. The challenge is to present local government with a
mixture of approaches and strategies to promote effective public participation within a
particular municipal context.
3.6 PUBLIC PARTICIPATION IN LOCAL GOVERNMENT?S INTEGRATED
DEVELOPMENT PLANNING
As shown in previous sections of this chapter the White Paper on Local Government,
1998, the Municipal Structures Act, 1998, the Municipal Systems Act, 2000 and the
Local Government Finance Management Act, 2003 provides the involvement of the
public in local matters. The White Paper on Local Government, (1998:53) is explicit on
the importance of public participation by communities at the local sphere of government.
It obliges municipalities to develop mechanisms to ensure citizen participation in policy
initiation, formulation and implementation, and an evaluation of its programmes takes
place. The White Paper on Local Government, (1998:53) further required that
municipalities should develop strategies and mechanisms to continuously promote
participation with the public and the community groups.
In terms of Section 16 of the Local Government Municipal Systems Act, 2000, a
municipality must strive to develop a culture of municipal governance that complements
formal representative government with a system of participatory governance. It further
requires that municipalities should encourage and create conditions for the local
community to participate in the affairs of the municipality such as in the strategic
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decision-making relating to municipal services. It further requires the community to
participate in the preparation, implementation and review of its integrated development
plan and annual budget. It also requires that the community should be involved in the
establishment, implementation and review of its performance management system.
Whereas Section 17 of the Local Government Municipal Systems Act, 2000 provides
that participation by local community in the affairs of the municipality must take place
through political structures that is laid out in terms of the Municipal Structure Act, 1998.
In addition the National Policy Framework for Public Participation of 2007 provides a
formal framework for public participation.
The former Department of Provincial and Local Government developed the Integrated
Development Planning (IDP) Guide Packs in 2000 to assist municipalities with
guidelines in the preparation, review and implementation of their IDP?s. The DPLG, IDP,
Guide Pack, VI, (2000:120-123) proposes that an Integrated Development Planning
Forum (IDP Forum) needs to be established to promote effective participation of
community members during each phase of the Integrated Development Planning (IDP)
process. Van der Waldt, et al (2007:105) cited that the purpose of this forum is to
provide a structure for discussions, negotiations, joint decision-making and participation
in the planning and implementation process of local government issues such as
integrated development planning. Van der Waldt et al (2007:105) stipulated that the
Integrated Development Planning Forum (IDP Forum) should include the following
members:
? Members of the Integrated Development Planning Committee
? Councilors, including various districts
? Traditional leaders
? Ward committee representatives
? Senior officials and heads of municipalities
? Representatives from organised groups
? Other suitable community representatives.
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The above mentioned members participate in the Integrated Development Planning
Forum to inform stakeholders and the communities about relevant planning activities.
The forum also determined the Integrated Development Planning priorities and it strives
to reach consensus concerning these priorities. Van der Waldt, et al (2007:105) state
that members of the forum should participate in the design and evaluation of project
proposals and are also responsible for monitoring the implementation performance of
the municipalities. Govender, Khan and Moodley, (2007:72) cited that most
municipalities have chosen to establish ward committees to comply with the aspect of
public participation concerning the Integrated Development Planning process. However,
some municipalities choose to refer to these to participatory structures or development
forums that have the same purpose as the ward committees.
As noted in previous sections in this chapter the Municipal Systems Act, 2000 commits
in Section 16 of Chapter 4 that the local community must take part in the preparation,
implementation and review of the municipalities Integrated Development Plans (IDP?s).
This means that all municipalities must create a platform for the public participation
concerning the Integrated Development Planning process. The DPLG, IDP Guide Pack
O, An Overview, (2000:15-19) prescribes that the process of developing an Integrated
Development Plan (IDP) should consist of five phases that should be carried out in
consultation with the community. Public participation during these phases will be
discussed in the next session.
3.6.1 Phase 1. The Situation Analysis phase
As shown in Chapter 2 of this study during the situation analysis phase the municipality
has to analyse the challenges faced by the community in the municipal area such as
poor service delivery, crime, unemployment and a lack of basic service delivery
amongst others. Public participation during this phase is an imperative in that the
community who are affected by the challenges should be involved in determining the
nature and extent of these challenges. During this phase the municipality must also
identify the needs and priorities of the community through an interactive process
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between the municipality and the community. This needs assessment process provides
an opportunity to the community to inform the IDP process of which needs should be
responded to by the municipality. Van der Waldt, et al (2007:105) states that the
following public participation activities should be encouraged during this phase namely;
community meetings such as the ward meetings arranged by ward councilors,
stakeholder meetings and surveys and opinion polls to gain the views of the public
about the communities challenges and development needs.
It is also important to consult with different community organizations such as women
groups, youth groups and civic organizations should take part in the needs assessment
process of the community. The municipality should ensure that the needs assessment
process does not merely become a „?wish-list? generating process”. Therefore, it is
important that public officials of the municipality must validate information; this also
leads to increased accountability. After the needs assessment has been completed both
the municipality and the stakeholders of the community have to reach an agreement on
the priorities for the community. This constitutes phase 2 of the Integrated Development
Planning process (IDP Guide Pack 0, An Overview, 2000:17; Van der Waldt, et al
2007:103-104).
3.6.2 Phase 2: Strategies to define local vision and the objectives phase
Once a municipality has a clear understanding of its challenges and priority issues it
must then formulate the solutions to address these challenges. The IDP Guide Pack, 0,
An Overview, (2000:17) states that public participation during this phase should take the
form of a public debate on the appropriate ways to solve the challenges that were
identified during the first phase. The strategy phase includes the following outputs: the
municipality?s vision, its development objectives, development strategies and the
project. The municipality?s vision provides a clear picture of the goals of the
municipality. Tshabalala (2006:62) cited that it is important that the community supports
the municipality?s vision and that it is not imposed upon them by the municipality.
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Van der Waldt et al, (2007:104) maintains that objectives indicate what the municipality
would like to achieve in the medium term in order to address the challenges of the
community and it should also contribute to the realisation of the municipality?s vision.
Thus, though a continuous communication process, both the community and the
municipality have to reach an agreement about the vision statement and its objectives.
Once the objectives have been identified the municipality should formulate strategies to
reach its objectives. During this phase the municipality should consult with the public
through public debate on the appropriate strategies in accordance with the
municipality?s development mandate. Other forms of public participation during this
phase should include meetings with the Integrated Development Planning
representative forum such as the ward committee as well as meetings with affected
communities and stakeholders (Van der Waldt, et al 2007:105). Once the strategies are
formulated and the municipality has to identify its development projects.
3.6.3 Phase 3: The project phase
During the project phase the municipality has to design projects and deal with its
specifications. The municipality has to ensure that the identified projects have direct
linkage to the priorities and objectives that were identified in the previous phases.
Community participation in the project design is as important as participation in
decision-making as it ensures that the Integrated Development Plan will become a
reality. Van der Waldt, et al (2007:105) mentioned that participatory meetings should be
arranged with representatives of stakeholders on project sub-committees. Performance
targets and indicators should also be formulated in order to measure the performance
and impact of the projects (Van der Waldt, et al 2007:104 and Hoff in Tshabalala,
2006:63).
3.6.4 Phase 4: The integration phase
During the integration phase the municipality has to ensure that the projects are in line
with the municipality?s objectives, strategies and resource frameworks and that it
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complies with legal requirements. Furthermore, the municipality has to consolidate its
operation strategy with its Integrated Sector Programmes such as its Integrated Local
Economic Development Programme (LED), Poverty alleviation, Integrated HIV/AIDS
programme, and an Integrated environmental program, its integrated institutional plan,
its 5-year financial plan, 5-year capital investment programme, the municipality?s
Integrated Spatial Development Framework and its consolidated monitoring and
performance management system. The Integrated Development Planning
representative forum should also be consulted during this phase to promote effective
public participation. The municipality has to involve all relevant departments through
consultation to reflect a multi-sectoral approach in order to ensure the integration and
coordination with the programmes of other spheres of government (Van der Waldt, et al
2007:105 and Tshabalala, 2006:64).
3.6.5 Phase 5: Approval of the municipality?s Integrated Development Plan (IDP)
During this phase the municipality has to submit its IDP to the Municipal Council for
consideration and approval. Section 25 of the Municipal Systems Act, 2000 provided
that the public must be given an opportunity to comment on the draft IDP within 14 days
of the adoption of the municipality?s Integrated Development Plan (ID). Once the
municipality amends its IDP in accordance with the input from the public, the council,
considers the IDP for approval (IDP Guide Pack, An Overview, 2000:19). Thus, public
participation in the Integrated Development Planning process is not only a legislative
requirement but without it the municipality?s Integrated Development Plan (IDP) would
become just another strategic plan that fails to respond to the expectations and needs
of the public within a specific municipal area.
In terms of Section 34 of the Municipal Systems Act, 2000 the municipal council must
review its Integrated Development Plan (IDP) annually in accordance with an
assessment of its performance measurements to the extent that changing
circumstances so demand. It further provides that the municipality may amend its
Integrated Development Plan (IDP) in accordance with a prescribed process. The
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Municipal Systems Act, 2000 further provides that the aims of the review is to ensure
that the municipality?s Integrated Development Plan (IDP) remains relevant and to make
the necessary changes to the plan. During the review process the budget must be
informed by the IDP because the budget must reflect the objectives, programmes and
projects contained in the revised IDP. In terms of the Municipal Systems Act, 2000 the
review process must include the following stages. Firstly, officials of the municipality
are responsible for the institutional arrangements and the preparation includes the
design of action programme, to assign roles and responsibilities and finalise the
procedure and mechanisms for public participation during the review process.
Secondly, the Municipal Systems Act, 2000 states that monitoring entails the gathering
of relevant information that relates to the implementation of projects and programmes
and the achievement of objectives, while evaluation of the information gathered entails
that the necessary adjustments need to be made to improve delivery. Review calls for
an assessment of the contents of a municipality?s current Integrated Development Plan
to identify the appropriate changes that need to take taken into account and that need to
be incorporated in the municipality?s other plans. Thirdly, the adoption by Municipal
Council of the revised Integrated Development Plan (IDP) should take place in
accordance with the Municipal Planning and Performance Regulations, 2001. Lastly,
the Municipal Systems Act, 2000 further provides that the preparation of the municipal
annual budget requires that the budget must be informed by its revised Integrated
Development Plan (IDP).
3.7 CURRENT CHALLENGES OF PUBLIC PARTICIPATION IN THE SOUTH
AFRICAN LOCAL GOVERNMENT
Although constitutional mandates require participatory governance, the National Policy
Framework for Public Participation, (DPLG, 2007:7) warns that most municipalities
struggle to encourage communities and community organisations to become involved in
the affairs of their municipality. One whole chapter namely, Chapter 4 of the Municipal
Systems Act, 2000 emphasises the importance of public participation in the affairs of all
municipalities. The National Policy Framework for Public Participation, (DPLG, 2007:7),
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further holds that although the Municipal Systems Act, 2000 is fairly prescriptive on what
is required by municipalities concerning public participation the Act does not provide
clear detailed guidelines on how municipalities should achieve more effective public
participation but rather leaves it to the discretion of municipalities. As a result the
absence of a well-planned, well-resourced and structured active participation
programme in most municipalities resulted in the development of the Draft National
Policy Framework for Public Participation, that was announced in 2005 and
implemented in 2007 to serve as a guideline for all municipalities with the
implementation of their own Public Participation Framework Plan to overcome the public
participation challenges in local government.
In addition Theron et al (in Davids, et al 2009:131) identifies the following challenges
concerning public participation:
? The confusion surrounding the concept of participation needs to be clarified
? The stakeholders such as clients, concerned individuals and interested and
affected parties need to be identified
? Deciding which government spheres are responsible for the public participation
engagement and intervention
? The role and responsibility of the municipal Integrated Development Planning
office concerning public participation need to be clarified
? Identifying an interdisciplinary public participation team that should include the
Integrated Development Planning (IDP) office of the municipality and change
agents of the community such as ward councilors and other stakeholders of the
community who possess indigenous knowledge and the necessary people skills
to collaboratively plan for public participation
? The public needs to be re-orientated to take part in decisions which will affect
their lives
? Public officials at local spheres should be trained and re-oriented to not only
become change agents, but also to engage with stakeholders and beneficiaries
and to involve the public in development issues in promoting public participation.
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Theron, Caesar and Davids, (2007: 6-7) further argue that most of the municipal officials
and the ward community members do not have the capacity to manage and implement
effective public participation concerning the municipalities Integrated Development Plan
(IDP). By addressing the above challenges, municipalities have to ensure that a shift
from a top-down planning to a bottom-up planning approach at local sphere, about
public participation take place.
Fokane, (2008:54) identifies obstacles such as those that can be attributed to the poor
participation. These external obstacles include biases emanating from the role of
development professionals, governments orientation toward promoting participation, the
application of selective participation and other issues such as technical, as well as
financial biases of development agencies (Fokane, 2008:54). Except for these external
obstacles Botes (in Fokane, (2008:54-55) further identifies the following internal
obstacles that contribute to poor participation, namely:
? Assumptions that the majority of development programmes or projects are
initiated by government or development agencies and rarely come from the
community
? Lack of communities? interest in participating, especially when their expectations
were not fulfilled
? Conflicting interests within the public as the beneficiaries of public participation
could arise as a result of competition among community based institutions for
access to resources (Botes in Fokane, 2008:54-55).
In a study conducted by Tshabalala during 2005 and 2006 about the role of community
participation in the Integrated Development Plan of Govan Mbeki Municipality
Tshabalala (2006:65-68) identified the following obstacles to community participation in
the Integrated Development Planning (IDP) process:
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? A lack of active involvement of communities can have a negative impact on the
Integrated Development Planning process on agreement on the communities
development needs and priorities;
? Diversity amongst people in a community creates different interests which might
give rise to difficulty in reaching an agreement on a common vision or plan such
as the municipality?s Integrated Development Plan (IDP). This situation raises
concerns about the status of the municipality?s Integrated Development Plan, in
particular whether it is a truly representative process or whether it is dominated
by certain people of the community that could lead to poor participation;
? Lack of accountability in that community members cannot be held liable for
wrong decisions that they take during the public participation process; and
? A lack of proper guidance by most of the municipalities to provide enough
information to communities to ensure that their participation in decision-making is
effective.
From the above as well as the statement made by the National Policy Framework for
Public Participation, (DPLG, 2007:7) that most municipalities struggle to encourage
communities and community organizations to become involved in the affairs of their
municipality. Therefore, one could argue that all municipalities must promote community
participation in their Integrated Development Planning (IDP) process. Thus,
municipalities should embark on a well-planned, well-resourced and structured public
participation process that should be incorporated into its Integrated Development
Planning (IDP) process to promote effective cooperation and participatory governance.
3.8 COMMUNITY PARTICIPATION IN THE CASE OF THE MANGAUNG
METROPOLITAN MUNICIPALITY
As discussed in Section 3.3 the South African government has put in place many
statutory policy and legislative frameworks which require some form of public
participation in local government. Section 153 of the Constitution, 1996 states that all
municipalities must structure and manage its administration, budgeting and planning
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processes, in such a manner that it gives priority to the basic needs of the community.
In addition Section 151(1) of the Constitution, 1996 places an obligation on local
government to encourage the involvement of communities and community
organiSations in the matters of local government. The Municipal Systems Act, 2000
(Act 32 of 2000), states in Chapter 4 Section 17(2) that a municipality must establish
appropriate mechanisms processes and procedures to enable the local community to
participate in the affairs of the municipality. The National Policy Framework for Public
Participation, 2007 also requires that municipalities must keep a comprehensive local
Stakeholder Register, to ensure the full inclusion of as many community members as
possible in its engagements with stakeholders. Furthermore, all municipalities in the
provinces have to ensure that their reviewed Integrated Development Plans (IDPs) are
aligned with the Free State Provincial Growth and Development Strategy (PGDS),
Vision 2030. In addition, all municipalities within the province Integrated Development
Plans (IDPs) must be aligned with and complement the Integrated Development Plans
(IDPs) and strategies of other affected municipalities and other organs of state to give
effect to the principle of cooperative and participatory governance. According to the
Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
(2012:21) the Free State Provincial Department of Cooperative Governance and
Traditional Affairs, (CoGTA) held in April 2012 an Integrated Development Planning
(IDP) Alignment and Assessment Workshop wherein the National Development Plan,
2030, the Free State Provincial Growth and Development Strategy (PGDS), Vision 2030
as well as the draft reviewed Integrated Development Plans (IDPs) of all municipalities
in the provinces were thoroughly reviewed and assessed. The workshop was attended
by Integrated Development Planning (IDP) officials from the Mangaung Metropolitan
Municipality and other municipalities within the region, and representatives of other
sector departments from national and provincial government.
As a result community participation in the affairs of the Mangaung Metropolitan
Municipality, including in its Integrated Development Planning (IDP) and review process
are being seen as a very urgent and important matter. For this reason the Mangaung
Metropolitan Municipality organised - as indicated in the (Mangaung Metropolitan
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Municipality Integrated Development Plan, Review 2013/2014, 2012:21-22) - a number
of meetings, consultations and public hearings with all interested stakeholders such as
national, provincial departments, organised businesses, traditional leadership councilors
and members of the community, as well as ward committees in the short and medium
term. As cited in the Mangaung Metropolitan Municipality Integrated Development
Plan, review 2013/2014 (2012:21-22), a total of 19 engagements with communities were
made by the Mangaung Metropolitan Municipality during 2012 and 2013 that involved
interactions with communities at ward levels, interactions with rural communities, and
business and youth representatives which represented various regions of the
Mangaung Metropolitan Municipality. The Mangaung Metropolitan Municipality
Integrated Development Plan, Review 2013/2014, (2012:21-22) clearly lists the place
where the engagements took place, the ward community who took part in the
engagements as well as the dates of the engagements. However what is missing in
the Mangaung Metropolitan Municipality Integrated Development Plan, Review of
2013/2014 is that the total number of ward committee members who attended the
community engagements was not listed. This type of information could assist the
researcher in establishing whether the community engagements were attended by a
representative audience from each ward.
As a result of the above engagements a number of development challenges were raised
during these interactions with various community ward representatives and have been
in turn been aligned with key development thrusts as indicated in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2012:22-
24). According to the Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2012:24-39) some of the issues that were raised during the
interactions with various community ward representatives that are affecting communities
include poor maintenance of existing infrastructure, particularly roads and drainage as
well as sewage systems, matters of safety and well-being of the residents received
considerable attention. In addition residents complained about low maintenance or
lack of street or high mast lights that affect personal safety, the erection of speed humps
to reduce accidents. The key development thrusts of the Mangaung Metropolitan
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Municipality include the following; “poverty eradication, rural and economic
development and job creation; financial sustainability including revenue enhancement
and clean audits; spatial development and the build environment; eradication of bucket
systems in Botshabelo, Mangaung and Thaba Nchu regions; other issues include
building solar farming, power plant feasibility study, safety and security; human
settlements, public transport, environmental management and climate change and
social and community services”.
As a result of the above engagements the Mangaung Metropolitan Municipality
identified six community needs priorities that will be addressed in the short, medium and
long term by the Metropolitan, including:
? Upgrading of tarring and gravel roads, fixing potholes and building speed humps
in all wards
? Controlling and maintaining of storm water channels in all wards
? Attending to water cuts and regular disruptions of water supply due to poor
maintenance in all wards
? Providing, connecting and maintaining of waterborne sewerage systems in the
place of bucket systems in some of the wards
? High electricity bills need to be addressed in all wards
? Addressing theft of electrical cables, electricity failure at all times in all wards and
? Social and recreation facilities, libraries youth centres and community halls in all
wards need attention (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, 2012:39-40).
One could argue that the above priorities are the result of a well planned and well
structured community engagement strategy to promote effective public participation in
the Mangaung Metropolitan Municipality region.
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3.9 GOOD GOVERNANCE
The Constitution, 1996, Section 195 provides the constitutional guidelines for effective
public administration that need to be implemented in all spheres of government to
promote good governance. As explained in Chapter 1, Section 1.1, a useful starting
point towards defining good governance is provided by the King?s report on Cooperating
Governance as mentioned by the Anon, Parliament Research Unit, (2008:2-3) which
sets out seven primary characteristics of good governance namely: discipline and
commitment by the senior management to promote sound ethical behavior,
transparency, avoidance of conflict of interest, accountability, responsibility, fairness
and social responsibility. In the light of the above good governance in this article refers
to the following as cited by Anon, Local Democracy in Action, (2008:12) namely:
? Accountability is the key requirement of good governance that requires that
public institutions must be accountable for their actions to the public.
? Responsiveness entails that public institutions and processes must be
responsive to the needs of the public.
? Effectiveness and efficiency entail that public institutions have to produce results
that meet the needs of the society while making the best use of available
resources.
? Transparency requires that information must be freely available and directly
accessible to those who will be affected by the decisions and the enforcement
thereof.
? Public participation as a key cornerstone of good governance requires
participation of the public in government affairs that will affect them.
In light of the above, Edwards (2009:48-49) believes that good governance is not only
about social responsibility and effective and efficient delivery of services, but that it
should also be reflected in councilors? and municipal manager?s leadership abilities to
inspire and influence people to contribute toward change for the benefit of the
community as a whole. Kroukamp (in Van Niekerk, (2010:49-50) agrees with the
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above statement by indicating that good governance is not only reflected in terms of
value driven perspectives that include aspects such as effective, legitimate democratic
governance but that good governance is also reflected in the ability of the leadership
cadre in local government to promote effective service delivery to all citizens to improve
the general welfare of all citizens.
In light of the above, Van Niekerk, (2012:59-60) asserts that the Local Government
Turnaround Strategy (LGTAS) provided a strategy to restore the confidence in
government at local sphere and to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government. Van Niekerk, (2012: 59-60) further maintains that the Local Government
Turnaround Strategy (LGTAS) strives to promote good governance in all municipalities
in that the strategy strives to ensure the following in the short to medium term: to ensure
that local government sphere meets the basic needs of communities; to build a clean,
responsive and accountable local government; to improve functionality, performance
and professionalism in municipalities; to improve national and provincial policy, support
and oversight to local government and to strengthen partnerships between local
government, communities and society.
In the case of the Mangaung Metropolitan Municipality good governance is critical to
ensure the effective and efficient utilisation of all resources to meet the needs of the
communities within the region. According to the Mangaung Metropolitan Municipality?s
Integrated Development Plan, Review 2013/2014, (2013:174) states that the council of
the Mangaung Metropolitan Municipality places a strong emphasis on good governance
by ensuring effective leadership, accountability and effective management of all
resources but in particularly financial resources. The Mangaung Metropolitan
Municipality reflected in its reviewed Integrated Development Plan, 2013 clear
strategies, objectives and critical performance indicators to promote good governance
for the next five years. The strategies to promote good governance as constituted in the
Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
(2013:175-191) include the following:
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? Providing strategic leadership and planning with well defined targets aligned to
the budget
? Improving performance management and accountability
? Implementing of the Institutional Performance Management System (IPMS)
? Ensuring effective functioning of the Audit, Oversight and Public Account
Committees
? Establishing of effective, functioning Audit, Oversights and Public Account
Committees as well as to ensuring that the committees consist of knowledgeable
persons
? Fully capacitated Intern Audit Activities consisting of competent and
knowledgeable staff
? Developing and monitoring of an Information Technology governance model, and
strategies to promote effectiveness
? Proper record keeping of all information communication technology and related
equipment, systems and software
? Redeveloping of the Mangaung Metropolitan Municipalities Intranet system and
upgrading of current information communication technology systems
? Analysing of all current information systems used by the Mangaung Metropolitan
Municipality
? Maintaining a 2-hour turnaround time on support calls
? Effective proactive risk management governance framework and processes
? Enhancing public participation in the affairs of the municipality
? Fostering good relationships with organized labour and conclude all outstanding
labour disputes
? Promoting the retention of skilled employees
? Maintaining effective work place skills plan
? Institutional transformation and re-design
? Tracking of decisions made by council
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? Developing guidance on good practices with the aim of establishing and
consistent standards of records
? Establishing common and consistent standards of records
? Establishing and linking operational modules throughout the Mangaung
Metropolitan Municipality (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, 2013:176-191).
From the above it is clear that the Mangaung Metropolitan Municipality has well- defined
strategies to promote good governance.The effective implementation remains a
challenge in that the former Mangaung Local Municipality received a disclaimer audit
report in the 2010 an 2011 financial year. Although the Mangaung Municipality received
a qualified with opinion audit report during its first year as a Metropolitan for the financial
year 2011/2012 more needs to be done to promote good governance and effective
financial management in the Metropolitan. Furthermore, the Mangaung Metropolitan
Municipality has to ensure that it receives a clean audit report by 2014 as required by
the Local Government Turnaround Strategy. In addition, the Auditor General Report on
the Audit Outcomes of Local Government in the Free State, 2011/2012, (2012:40)
states that it is a concern that the Mangaung Metropolitan Municipality had findings on
both usefulness and reliability of reported information because it is expected from the
Mangaung Metropolitan Municipality to set the example in the Free State Province. All
municipalities including the Mangaung Metropolitan Municipality had findings on non-
compliance with laws and regulations and it has become a norm as no municipality in
the Free State province addressed its findings of the previous year. Non-compliance in
all municipalities as stated in the above report relates to material misstatements in
submitted financial statements; the prevention and addressing of unauthorized irregular
as well as fruitless and waste full expenditure need urgent attention; matters relating to
annual reports such as the annual performance reports that were not prepared based
on the Integrated Development Plans (IDPs), and other areas of non-compliance
included procurement and contract management, budgets, internal audit units and audit
committees (The Auditor General Report on the Audit Outcomes of Local Government
in the Free State, 2011/2012, (2012:14). Other concerns regarding the Mangaung
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Metropolitan Municipality as stated in the Auditor General Report on the Audit
Outcomes of Local Government in the Free State, 2011/2012, (2012:140) include the
following:
? “The current liabilities of the Mangaung Metropolitan Municipality exceeds its
current assets;
? The Mangaung Metropolitan Municipality did not always settle debts within 30
days, as required by national legislation;
? The Mangaung Metropolitan Municipality was experiencing serious difficulties
with regard to debt collection;
? The Mangaung Metropolitan Municipality has not set any funds aside to settle
significant defined benefit obligations; and
? The Mangaung Metropolitan Municipality may therefore be unable to realize its
assets and discharge its liabilities in the normal course of business”.
Thus, one could argue that although the Mangaung Metropolitan Municipality has clear
strategies, to promote good governance the leadership should ensure that the
strategies are effectively implemented to promote good governance, effective financial
management and effective service delivery in the region.
3.10 CONCLUSION
The key concepts of public participation were clarified in this chapter. The chapter
further outlined the legislative and policy framework of public participation. From this
discussion it is clear that the key legislative frameworks include the Constitution of the
Republic of South Africa, 1996, (Act 108 of 1996) the White Paper on Local
Government, 1998, the Municipal Structure Act, 1998 (Act 117 of 1998) and the
Municipal Systems Act, 2000 (Act 32 of 2000).
The Municipal Systems Act, 2000 not only emphasises the importance of public
participation in the matters of all municipalities, but also stipulates that members of the
local community have the right to contribute to the decision-making process of the
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municipality as well as to submit written or oral recommendations and complaints to the
municipal council. Furthermore, the discussion holds that although the Municipal
Systems Act, 2000 provides in Chapter 4 specific guidelines on what is required by
municipalities about public participation Act 4, the Act leaves the way in which
municipalities should achieve more effective public participation to the discretion of
municipalities. The discussion further showed that due to a lack of well planned, well-
resourced and structured active public participation in most municipalities, the National
Policy Framework for Public Participation, 2007 was introduced by national government
to assist all municipalities with the implementation of a more structured participatory
governance approach. As explained in the discussion the Local Government
Turnaround Strategy was introduced due to the poor performance of most municipalities
as stated in the Department of Local Government, State of Local Government Report of
2009. One of the strategic objectives of the Local Government Turnaround Strategy is
to strengthen partnerships between communities, civil society and local government.
The strategy further aims to ensure that all municipalities developed and incorporated
their own Municipal Turnaround Strategy in their Integrated Development Plan (IDP), as
well as to monitor and evaluate the municipality?s performance and to promote effective
public participation.
The discussion also showed that although the Municipal Systems Act, 2000, provides
that a municipality must encourage and create conditions for the community to
participate in the affairs of the municipality including the Integrated Development
Planning process, it does not provide clear and detailed guidelines concerning the
process and structure for identifying appropriate means of achieving more effective
public participation in the municipalities integrated development planning. It was argued
that the Municipal Systems Act, 2000 promotes a descriptive and even a top-down
approach to participation in the Integrated Development Planning process of a
municipality that could further contribute to poor public participation. Another concern
that was raised is that most of the municipal officials and the ward community members
do not have the capacity to manage and implement effective public participation during
the municipality?s Integrated Development Planning process. As explained in the
discussion a lack of active involvement of communities can have a negative impact on
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integrated development planning process on agreement on the communities?
development needs and priorities.
The rising number of service delivery protest indicates that the government needs to
promote effective service delivery as well as to strengthen participatory governance and
accountability. Many challenges concerning the promotion of effective public
participation remain. Even the South African National Development Plan, 2030 states
that municipalities should avoid undermining democratic accountability for service
delivery. It is clear that more needs be done to strengthen the public interest as well as
to promote transparency in local government. Although national government
announced the National Policy Framework for Public Participation in 2007 and the Local
Government Turnaround Strategy in 2009 to promote effective participation in particular
in the Integrated Development Planning (IDP) process, more needs to be done to
ensure that all municipalities embark on a well-planned, well-resourced and structured
public participation process to promote effective participatory governance. The next
chapter explores the research methodology used during the empirical study.
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CHAPTER 4
RESEARCH METHODOLOGY, PRESENTATIONS AND
INTERPRETATION OF EMPIRICAL FINDINGS
4.1 INTRODUCTION
While in the previous chapters details were given about the current state of Integrated
Development Planning (IDP), the Local Government Turnaround Strategy (LGTAS), as
well as the role of public participation, Integrated Development Planning and good
governance with specific reference to the Mangaung Metropolitan Municipality, this
chapter will explore the research methodology, the presentations and interpretations of
the empirical findings.
The research methodology as cited by Brynard and Hanekom, (2006:35) refers to the
collection and processing of data within the framework of the research process. This
chapter is also linked to the research objective, namely to determine through structured
interviews the impact of the Local Government Turnaround Strategy on public
participation and good governance of the Integrated Development Plans in the
Mangaung Metropolitan Municipality. A literature review was used for qualitative data
and a structured questionnaire was used to collect data, which was statistically
analysed.
As discussed in Chapter 1, the aim of the study was to explore the impact of the Local
Government Turnaround Strategy (LGTAS) with respect to public participation and good
governance as part of the Integrated Development Planning (IDP) process in the newly
established Mangaung Metropolitan Municipality. The research problem of this study
revolved around the impact of the Local Government Turnaround Strategy (LGTAS) on
the Integrated Development Planning (IDP) process, public participation and good
governance on local government with specific reference to the Integrated Development
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Planning (IDP) process of the Mangaung Metropolitan Municipality. The following
research questions were asked:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
? What are the key requirements, purposes, objectives, and components of
public participation and good governance of Integrated Development
Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within Mangaung Metropolitan Municipality?
The research objective of the study were the following:
? To investigate through extensive literature and policies the requirements,
purpose, objectives, components and linkages of public participation and good
governance of the Integrated Development Planning (IDP) process
? To explore policies, systems, structures, approaches and operations on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
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respect to public participation and good governance of the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality
? To determine through an evaluation of the latest annual review reports, as well
as through structured interviews the impact of the Local Government Turnaround
Strategy (LGTAS) on public participation and good governance
? To make recommendations based on research findings in order to improve public
participation and good governance of the Integrated Development Plan (IDP) in
the Mangaung Metropolitan Municipality.
The above research objectives gave effect to the layout and organization of the
chapters in this study. This chapter therefore considered the research design and data
collection techniques and sampling procedures, as well as a statistical analysis of the
results. It also clarified the rationale behind the methodology applied, how the
questionnaire was pre-tested, the ethical consideration and what measures were taken
to ensure the validity and reliability of this study.
4.2 STUDY DESIGN AND DATA COLLECTION TECHNIQUES
The research design is a general plan of how the researcher goes about answering the
research question (Saunders, Lewis and Thornhill, 2009:136). According to Cooper and
Schindler (2003:149), a research design is regarded as the blueprint for collecting,
measuring and analyzing data. As explained in Chapter 1, Section 1.5 a two-pronged
approach, namely a literature study and a questionnaire used during structured
interviews was used in this study. The literature study was based on a qualitative study,
which includes literature, legislation, policy documents, journal articles, books,
conference papers, published and unpublished documents, the internet, government
reports, Integrated Development Plans and annual review reports and performance
management reports concerning the Mangaung Metropolitan Municipality. The study
was conducted using a single case study method that is the Mangaung Metropolitan
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Municipality which implied that the researcher focused on one setting and its processes
without comparing it to other case studies or settings. Welman, Kruger and Mitchell,
(2007:25 and 193) explain that the term case study pertains to the fact that a limited
number of units of analysis are studied intensively. In this approach research is directed
at understanding the uniqueness and idiosyncrasy of a particular case study in all its
complexity. The aim of using a case study is to investigate the dynamics of some single
bounded system, such as a group, community, participants in a project, institution and
practice.
According to Maree et al, (2009:257) qualitative research refers to an approach through
which data is collected from people immersed in the setting of everyday life in which the
study is framed. Welman, et al (2007: 188) as well as Brynard et al (2006:39) agrees
with this statement and indicates that a qualitative study does not provide the
researcher with a step-by step plan to follow, but is determined by the researcher?s
choices and actions. In a quantitative approach, the researchers? designs are more
fixed and more specified in advance of execution and defined by technical
considerations.
4.2.1 Literature review
According to Lues and Lategan (2006:20) a literature review investigates the
information and data that have been published on a topic and considers their
contribution and weakness. The literature review in this study was based on a number
of both published and unpublished relevant primary and secondary sources such as
literature, legislation, policy documents, journal articles, books, conference papers,
published and unpublished documents, the internet, government reports, Integrated
Development Plans and annual review reports, and performance management reports
to provide relevant information that led to a better understanding of the strategies
adopted in this study.
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4.2.2 Structured Interviews
In this study structured interviews were conducted in order to gather information. Bless
and Higson-Smith, (2000:107) explain that structured interviews refer to the most
structured way of getting information directly from respondents is by means of a
scheduled structured interview. Bless and Higson-Smith, (2000:107) further explain that
this method is based on an established questionnaire that consists out of a set of
predetermined questions. An advantage of a structured questionnaire is that it is
presented to each respondent in exactly the same way to minimize the role of
influences of the interviewer. It also provides a more objective comparison of the
results. In this study a structured interview were conducted with the respondents by
using a structured questionnaire to elicit information.
4.2.3 Questionnaire
According to Babbie and Mouton (2001:205) the construction of a questionnaire
requires considerable time and thoroughness as the measuring instrument has the
greatest influence on the reliability of data collected. In this study a structured
questionnaire was used during the structured interviews conducted with the
respondents to ensure a high response rate and to avoid the challenges of a low
response rate as in the case of mailed questionnaires. A well designed structured
questionnaire with clear and concise instructions was developed. Items in the structured
questionnaire were arranged and grouped into logically coherent sections to increase
cooperation. The questionnaire consisted of closed as well as open-ended questions
method to collect information from respondents during structured interviews. According
to Welman, et al, (2007: 174-175) close questioning offers the respondent a range of
answers to choose from, while open-ended questioning is one of which the interviewer
asks a question without any prompting with regards to the range of answers expected.
In this study a line or space was left for the respondent to write his or her own answer
and there was no prior list of answers with the open-ended questioning.
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Section A of the structured questionnaire consisted out of 6 questions to elicited
biological information, while Section B of the structured questionnaire consisted of three
categories to elicit information concerning the Local Government Turnaround Strategy
(LGTAS), good governance and the Integrated Development Planning (IDP) process
(See Annexure B- research questionnaire). The result was that Category 1 of Section B
of the structured questionnaire focused on questions about the Local Government
Turnaround Strategy (LGTAS) and consisted of 8 questions to collect information.
Whereas, Category 2 of Section B focused on the Integrated Development Planning
(IDP) process and consisted out of 10 questions. Lastly, Category 3 of the structured
questionnaire focused on good governance and consisted of 5 questions.
4.3 STUDY POPULATION AND SAMPLING PROCEDURES
A sample is a representative part of a population. Therefore, sampling means that the
research sample should be selected in a manner that ensures that each and every
member of a defined population has an equal chance of being included in the sample
(Maree et al, 2009:172). For the purpose of this study the population and sampling
procedures are described below.
4.3.1 Population and sample size
The population of this study consisted of the following with whom structured interviews
were conducted namely:
? The Community Participation and IDP Manager of Mangaung Metropolitan
Municipality
? Fifteen (15) Ward Committee members of the Mangaung Metropolitan
Municipality.
The probability random sampling method was used to select fifteen of the forty-five ward
committee members that took part in the structured interviews. Leedy, (1989:154) is of
156
the opinion that randomization means selecting a sample from the whole population in
such a way that the characteristics of each of the units of the sample approximates the
characteristics of the total population. The reason why the above sampling method was
used was to gather more accurate information that what might have been obtained if
one had studied the entire population (Brynard and Hanekom, 2006:43).
Probability sampling is described as a method in which each person or other sampling
unit in the population has the same chance of being chosen and the researcher can
specify in advance that each segment of the population will be represented in the
sample (Leedy, 1989:154).
4.4 ENSURING VALIDITY AND RELIABILITY
According to Brynard and Hanekom, (2006:47) validity refers to the potential of an
instrument to achieve or measure what it intends to measure. A valid measuring
instrument is doing what it is intended to do, as measuring what it is supposed to
measure, and as yielding scores whose differences reflect the true differences of the
variable being measured rather than random or constant errors (De Vos, Strydom,
Fouche and Delport, 2005:166). In this regard, the following validity criterion has been
developed:
? Content Validity- Usually refers to the correctness and appropriateness of
the questions included in a test or questionnaire.
? Construct Validity- A measurement technique has high construct validity if it
uncovers the information which it was designed to uncover.
? Face Validity- Face validity is concerned with the way the instrument
appears to the participants. For example, do they view it as so simple,
childish, and boring that they experience it as an insult to their intellect, or
does it appear so difficult that the participants give up even before starting?
Face validity is therefore based on the subjective judgement of the researcher
and the respondents for whom a specific instrument is intended and it is
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important because without it, resistance on the part of respondents may be
encountered which may in turn adversely affect the results obtained.
? External Validity- Depending on the representativeness of the sample, and
the study being a simulation of the real world and real-life situations, the
conclusions reached with the research should be applicable to similar
problems (Struwig and Stead, 2010:143).
On the other hand Brynard and Hanekom, (2006:48) defined reliability as the accuracy
and consistency of measures. It means that same instrument must be able to produce
the same results at a later stage under similar conditions.
Therefore in this study efforts were made to ensure both validity and reliability of the
questionnaire. Literature related to the research topic was consulted and a thorough
planning was done before constructing a questionnaire. In the case of this study a
statistician provided inputs and recommendations about the instrument and mistakes
were corrected before the interviews were conducted to ensure that the instrument
measure what it intended to measure. A pilot study was conducted with the Acting
Director of Integrated Development Plan (IDP) of the Department of Cooperation and
Traditional Affairs of the Free State Provincial Government as an expert in Integrated
Development Planning (IDP) to ensure that the instrument measured what it intended to
measure, as well as to ensure the accuracy and consistency of measuring by repeating
two of the questions in the pilot study instrument.
4.5 ETHICAL CONSIDERATIONS
The following principles of ethical conduct were considered and adhered to in this study:
? Letters of consent. A letter was submitted to the Senior Director Corporate
Services of the Mangaung Metropolitan Municipality to make the municipality
aware of the research purpose and to get the consent to conduct the interviews
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with the Ward Committee members by means of a structured questionnaire (See
Annexure A).
? Voluntary participation of respondents to the questionnaire.
? Informed consent. Participants were made aware of the research purpose and
were asked to give their consent to participate in the research.
? Privacy. The confidentiality of information and anonymity of participants were
protected at all times.
4.6 STATISTICAL TECHNIQUES
Statistics is a summary measure that is computed to describe characteristics from only
a sample of the population. It encompasses the collection, presentation and
characterisation of information to assist in both data analysis and the decision-making
process. Descriptive statistics were used to summarise the results where categorical
variables were summarised by frequencies and percentages. In this study the collected
data was analysed by a statistician using the SAS Version 9.2 programme.
4.7 DATA ANALYSIS AND THE PRESENTATION OF DATA
Data analysis in a qualitative research begins with data collection. According to
Mouton, (2005:108) data analysis means the “breaking up” of the data into manageable
themes, patterns, trends and relationships. The data collected is then analysed for the
purpose of drawing certain conclusions that reflect on the issues that initiated the
enquiry. In this study the data was classified into categories on the structured
questionnaire that was used during the structured interviews with fifteen (15) ward
committee members (See Annexure B - research questionnaire).
The presentation of data collected from face-to-face structured interviews took place
with fifteen (15) Ward Committee members of the Mangaung Metropolitan Municipality.
The structured questionnaire consists of two sections. Section A focused on the
biographical information, whereas Section B consisted of three categories. Category
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one (1) focused on the Municipal Turnaround Strategy and eight specific questions were
asked to assess the strategy. Category Two (2) focused on the IDP process and
development projects and ten questions with specific sub-questions were asked.
Category three (3) concentrated on good governance that addressed five specific
statements assessed.
4.8 FINDINGS AND RESULTS FROM SECTION A OF THE QUESTIONNAIRE:
BIOGRAPHICAL INFORMATION OF WARD COMMITTEE MEMBERS OF THE
MANGAUNG METROPOLITAN MUNICIPALITY
Section A of the questionnaire focused on the biographical details of the respondents.
Question 1 of this section in the structured questionnaire was about the respondents?
gender. From Figure 4.1 below it can be depicted that 40% of the respondents were
males and 60% were female respondents. The aim of this question was to draw the
attention to the gender differences of the respondents.
Figure 4.1. Gender of the respondents
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Question 2, of Section A of the structured questionnaire was asked to determine the
age of the ward committee members as showed in the figure below (Figure 4.2).
Figure 4.2 Ages of research participants
The figure above demonstrated that 40% of the participants were between the ages of
29 and 36 and 60% were between the ages of 37 and 60. The main aim of this
question was asked was to draw the attention to the age group and category of the
respondents.
In question 3 of Section A of the structured questionnaire the designation of the
respondents were asked. The results were as follows:
60%
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Figure 4.3 Official designation
OFFICIAL DESIGNATION OF RESPONDENTS
OTHER MUNICIPALITIES -
0%
MANGAUNG
METROPOLITAN
MUNICIPALITY - 100%
100%
From the above graphical information, 100% of the respondents are ward committee
members from the Mangaung Metropolitan Municipality. The respondents were asked in
in Question 4 of Section A, to indicate which ward they are representing. The results
are shown in the table below (Table 4.1).
Table 4.1 Wards represented by the respondents
Question 4 (Section A) Wards represented in the Mangaung Metropolitan Municipality
Ward represented Frequency Percentage
Cumulative
Frequency
Cumulative
Percent
Ward 11 1 6.67 1 6.67
Ward 15 1 6.67 2 13.33
Ward 16 1 6.67 3 20.00
Ward 18 1 6.67 4 26.67
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Question 4 (Section A) Wards represented in the Mangaung Metropolitan Municipality
Ward represented Frequency Percentage
Cumulative
Frequency
Cumulative
Percent
Ward 2 1 6.67 5 33.33
Ward 22 1 6.67 6 40.00
Ward 23 1 6.67 7 46.67
Ward 24 1 6.67 8 53.33
Ward 27 1 6.67 9 60.00
Ward 3 1 6.67 10 66.67
Ward 4 1 6.67 11 73.33
Ward 46 1 6.67 12 80.00
Ward 47 1 6.67 13 86.67
Ward 5 1 6.67 14 93.33
Ward 8 1 6.67 15 100.00
From Table 4.1 it can be deduced that at least 30% of the forty five ward committee
members in the Mangaung Metropolitan Municipality was presented and the ward
committee members were interviewed. In question 5 of Section A of the structured
questionnaire the focus was on the highest level of education of the ward committee
members. The results were as follows:
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Figure 4.4 Highest level of Education
HIGHEST LEVEL OF EDUCATION OF RESPONDENTS
Tertiary qualifacations
33%
Secondary education
67%
33%
67%
Figure 4.4 shows that 67% of the respondents have completed secondary education
and only 33% of the respondents have tertiary qualifications. In Section A, Question 6
the question was asked: “How long have you lived in the Mangaung Metropolitan
Municipality Area?” The results were as follows:
Table 4.2 Total years lived in the Mangaung Metropolitan Municipality
Question 6 (Section A) Total years lived in Mangaung Metropolitan Municipality
Total years Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Over 10 years 15 100.00 15 100.00
Table 5.2 demonstrated that 100% of the respondents have been living in the
Mangaung Metropolitan Municipality?s area for over ten years and more.
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4.9 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 1. LOCAL
GOVERNMENT TURNAROUND STRATEGY
This part of the structured questionnaire consists of questions that seek to collect
information about the Local Government Turnaround Strategy. The results of question
1.1 of Section B, Category 1 of the structured questionnaire were as follows:
Figure 4.5 What is your understanding of the Local Government Turnaround
Strategy?
The above graph depicts that 80% of the respondents? understanding of the Local
Government Turnaround Strategy is that it was introduced to bridge the gaps in the
Integrated Development Planning (IDP) process with a view of improving the
municipality?s performance levels, whereas 20% of the respondents are of the opinion
that the Municipal Turnaround Strategy was introduced to bring about change in the
overall economic growth levels in the municipality. This shows that the majority of the
ward committee members were of the opinion that the Local Government Turnaround
Strategy (LGTAS) was introduced to bridge the gaps in Integrated Development
Planning (IDP).
165
In Question 1.2 of Section B, Category 1 of the structured questionnaire the
respondents were asked: “What is the main aim of the Local Government Turnaround
Strategy?” The results were as follows:
Table 4.3 What is the main aim of the Local Government Turnaround Strategy
(LGTAS)?
Question 1.2 (Section B)
What is the main aim of the LGTAS? Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Bridge a gap between service delivery
imbalances
1 6.67 1 6.67
Bring about change in the economy 1 6.67 2 13.33
Increase economic growth and create job
opportunities
2 13.33 4 26.67
Promote economic growth through LGTAS 1 6.67 5 33.33
Strengthen municipalities in performing 1 6.67 6 40.00
Strengthen the IDP process 8 53.33 14 93.33
Strengthen the ties between LGTAS and IDP 1 6.67 15 100.00
Table 4.3 shows that 93% of the respondents believe that the LGTAS was introduced
solely with an aim of strengthening the IDP process and bridging gaps and loopholes in
service delivery processes, while 26% of the respondents view the LGTAS as a
mechanism of increasing economic growth and job creation opportunities. A total of
40% of the respondents were of the opinion that the main aim of the Local Government
Turnaround Strategy is to strengthen the municipality?s performance. A total of 100% of
the respondents mentioned that the main aim is to strengthen the ties between the
Local Government Turnaround Strategy and Integrated Development Planning. In
addition 6% of the respondents were of the opinion that the main aim is to bridge a gap
166
between service delivery imbalances. Chapter 2, Section 2.1 of the study states that
the main aim of the Local Government Turnaround Strategy is to turnaround the
municipality?s performance and to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government (COGTA, 2009:3-40). The conclusion that may be drawn is that if the
ward council members are not familiar with such a crucial governmental intervention
such as the aim of the Local Government Turnaround Strategy, that aims solely to
turnaround the municipality?s performance and to rebuild and improve the basic
requirements for a functional, responsive, accountable, effective and efficient
developmental of local government. It is therefore unlikely that the ward committee
councilors will communicate the correct aim to the community who needs to be
consulted on the affairs of the Mangaung Metropolitan Municipality. The scenario
above suggests that the MunicipaI Manager of the Mangaung Metropolitan Municipality
needs to clarify the purpose and main aim of the Local Government Turnaround
Strategy within the Mangaung Metropolitan Municipality with all stakeholders including
the ward committee members to obtain a clear understanding of the role of the Local
Government Turnaround Strategy.
In Question 1.3, Section B, Category 1 of the structured questionnaire the respondents
were asked whether they had taken part during the implementation of the Local
Government Turnaround Strategy of the former Mangaung Local Municipality in 2010.
167
Figure 4.6 Section B, Question 1.3: “Have you taken part in the implementation
of the LGTAS in the Mangaung Metropolitan Municipality?”
0%
20%
40%
60%
80%
100%
120%
Yes - No
HAVE YOU TAKEN PART IN THE IMPLEMENTATION
OF THE LGTAS
From the above figure one can see that 100% of the respondents have answered “yes”
to the question of whether they have taken part in the implementation of the LGTAS in
the former Mangaung Local Municipality. In Chapter 2, Section 2.4 the literature
showed that the Local Government Turnaround Strategy has different focus areas:
Firstly the focus was on the immediate priorities prior to the 2011 elections. Secondly,
the focus from March 2011 until 2014 will be on medium-term or post-election priorities.
The immediate priorities prior to the 2011 elections consisted of four phases that
commenced at the end of January 2010 and concluded in March 2011. The first phases
can be seen as a pilot project in which selected municipalities per province developed
their respective own Local Government Turnaround Strategies referred to as the
municipalities? own Municipal Turnaround Strategy, followed by the second phase in
which all municipalities followed the same process before incorporating their Municipal
Turnaround Strategy in their Integrated Development Plan (IDP). The third phase
includes the budgeting and approval of each municipality?s IDP, while the fourth phase
involves implementation, monitoring and evaluation. The conclusion may be drawn that
168
the majority of the respondents took part in the development of the former Mangaung
Local Government?s own Municipal Turnaround Strategy during 2010 as well as with the
incorporation of the different phases of the Local Government Turnaround strategy in
the Integrated Development Plan of the municipality that received metro status during
2011.
In Question 1.4, Section B, Category 1 of the structured questionnaire the focus was on
the respondents' personal involvement in the Mangaung Metropolitan Municipality?s own
Municipal Turnaround Strategy Process. The results were as follows (Figure 4.7):
Figure 4.7 Personal Involvement in the Local Government Turnaround Process
93%
7%
PERSONAL INVOLVEMENT IN THE
LGTAS
From the above figure it can be detected that 93% of the respondents were personally
involved in the Mangaung Metropolitan Municipality?s own Local Government
Turnaround Strategic (LGTAS) process by serving as representatives of communities in
the decision-making process of the municipality. Only 7% of the respondents said they
were never involved in the implementation of the Local Government Turnaround
Strategy process as proper training was not given. The conclusion that may be drawn
is that if all ward committee members are not familiar with such a crucial strategy that
was develop solely to turnaround municipalities? performance and to rebuild and
improve the basic requirements for a functional, responsive, accountable, effective and
efficient developmental local government - as stated in Chapter 2, Section 2.4 of the
169
study – it unlikely that the main aim as well as the implementation processes of the
Local Government Strategy were clearly communicated during 2010 to all ward
committee members.
Question 1. 5, Section B of the structured questionnaire focused on whether the ward
committee members were informed of the implementation of the Local Government
Turnaround Strategy. The results were as follows (Figure 4.8):
Figure 4.8 “Were the ward committee members informed of the implementation
of the LGTAS in the former Mangaung Metropolitan Municipality?”
0
20
40
60
80
100
Yes No
Yes
No
A total of 100% of the respondents have responded that they were informed during
Council and General members meetings of the implementation of the Local Government
Turnaround Strategy (LGTAS) though they were never trained and inducted as to what
will be expected of them, why and how? In Chapter 3, Section 3.6 the Local
Government Municipal Structures Act, 1998, Section 74 provides that one of the
functions of ward committee members is to make recommendations on any matter
affecting its ward. The implementation of the Local Government Turnaround Strategy
within the Mangaung Metropolitan Municipality should have implications for all the
wards within its area and as such ward councillors should be informed by Council or any
relevant sub-council of any matters affecting its ward with the implementation of the
170
Local Government Turnaround Strategy (LGTAS) and the incorporation into the
Integrated Development Plan (IDP) as seen in Chapter 2, Section 2.4.
In Question 1.6 of Section B of the structured questionnaire the respondents were
asked whether there were any improvements in the Mangaung Metropolitan Municipality
since the introduction of the Local Government Turnaround Strategy as indicated in
Figure 4.9 below.
Figure 4.9 Section B, Question 1.6: “Was there any improvement in the
Mangaung Metropolitan Municipality since the introduction of LGTAS?”
0
20
40
60
80
100
Yes No
Yes
No
Figure 4.9 shows that 93% of the respondents said yes that they have seen
improvements in the Mangaung Metropolitan Municipality since the introduction of the
Local Government Turnaround Strategy, while 7% of the respondents said that they
have seen no changes in the Mangaung Metropolitan Municipality since the introduction
of the Local Government Turnaround Strategy. In Chapter 2, Section 2.4. it was seen in
the literature that the intention of the Local Government Turnaround Strategy is to turn
around the poor service delivery and performance of local government in general. It is
171
the responsibility of the municipal manager of each municipality to ensure that the
objectives of the Local Government Turnaround Strategy as stressed in Chapter 2,
Section 2.4 are effectively implemented and incorporated in the Mangaung Metropolitan
Muncipality?s Integrated Development Plan (IDP).
In Section B question 1.6.1,respondents who said yes to the above question were
asked to provide at least three improvements made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround Strategy. The
results were as follows:
Table 4.4 The following improvements were made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround Strategy
Section B Question 1.6.1 Improvements made in the Mangaung Metropolitan Municipality
since the introduction of the
Local Government Turnaround Strategy
Improvements identified by the
respondents
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Better basic services for everyone 1 7.14 1 7.14
Increase in job creation projects and basic
services
1 7.14 2 14.29
Overall service delivery such as water,
electricity and sanitation
12 85.71 14 100.00
Table 4.4 shows that 100% of the respondents mentioned that overall service delivery
such as water, electricity and sanitation was improved since the Local Government
Turnaround Strategy was introduced, while 14% of the respondents were of the opinion
172
that the introduction of the Local Government Turnaround Strategy leads to the increase
in job creation projects and basic services. A total of 7% of the respondents mentioned
that since the introduction of the Local Government Turnaround Strategy, better basic
services for everyone were made in the Manguang Metropolitan Municipality. It may be
concluded that none of the respondents indicated that the overall performance of the
Mangaung Metropolitan Municipality has improved since the Local Government
Turnaround Strategy was introduced. It is the responsibility of the municipal manager to
ensure that the aim of the Local Government Turnaround Strategy, namely to
turnaround the Mangaung Metropolitan Municipalities performance and to rebuild and
improve the basic requirements for a functional, responsive, accountable, effective and
efficient developmental local government as shown in Chapter 2 Section 2.4 of this
study is acheived.
In question 1.7, Section B, Category 1 of the structured questionnaire, the respondents
were asked whether there were any improvements in the Mangaung Metropolitan
Municipality?s performance to obtain a clean audit report since the introduction of the
Local Government Turnaround Strategy. The results were as follows (Figure 4.10):
Figure 4.10. “Were there any improvements in the Mangaung Metropolitan
Municipality in obtaining clean audit reports”
0
10
20
30
40
50
60
70
80
90
Yes No
Yes
No
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In Figure 4.10 a total 87% of the respondents said that the Mangaung Metropolitan
Municipality has obtained clean audit reports, as they are aware of the efforts of the
municipality to introduce strict measures of doing away with corrupt activities more
especially in the management of finances. In addition only 7% said that the municipality
have not received any clean audit reports as there is still corruption in the management
of finances and that there are no effective mechanisms to reduce corruption. As seen
in Chapter 2, Section, 2.9 the Municipal Financial Management Act, 2003 was
promulgated to secure the sound and sustainable management of the financial affairs of
municipalities and other institutions in the local sphere of government. The literature
review presented in Chapter 2, Section 2.4 and again in Section 2.6.11 stated that one
of the objectives of the Local Government Strategy is to promote a clean, effective,
efficient, responsive and accountable system of local government.
In Question 1.7.1 the respondents were asked to provide reasons for their answer. The
results were shown below in Table 4.5:
Table 4.5: Provide reasons why you indicated that there were not any
improvements in the Mangaung Metropolitan Municipality in obtaining clean audit
reports
Section B, Category 1, Question 7.1.1 Provide reasons why you indicated that there were not
any improvements in the Mangaung Metropolitan Municipality in obtaining clean audit reports
Reasons Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Corruption in the municipality still continue 1 50.00 1 50.00
No mechanisms to reduce corruption in the
municipality
1 50.00 2 100.00
A total of 50% of the respondents indicated that the reasons why there were not any
improvements in the Mangaung Metropolitan Municipality in obtaining clean audit
174
reports, were that corruption in the municipality still continues. In addition 50% of the
respondents mentioned that the reason was due to the fact that no mechanisms were in
place to reduce corruption in the Mangaung Metropolitan Municipality. As discussed in
Chapter 2, Section 6 it is the municipal manager?s responsibility to ensure that all
applicable legislation is implemented in the Mangaung Metropolitan Municipality. As
seen in Chapter 2, Section 2.4 and Section 6.11 one of the main aims of the Local
Government Turnaround Strategy is to promote effective and efficient governance in
local government. It is crucial that the Council of the Mangaung Metropolitan
Municipality should ensure as part of their oversight role that legislation such as the
Municipal Financial Management Act, 2003 be effectively implemented.
Question 1.8, Section B, Category 1 of the structured questionnaire asked “In your
opinion has the Mangaung Metropolitan Municipality successfully achieved a responsive
and accountable system of local government?” The results were as follows (Figure
4.11):
Figure 4.11 “Has the Mangaung Metropolitan Municipality achieved a responsive
and accountable system of local government?”
0
10
20
30
40
50
60
70
80
90
100
Yes No
Yes
No
175
From the above graph 93% of the respondents said that the municipality has achieved a
responsive and accountable system, while only 7% of the respondents said that the
municipality is not achieved a responsive and accountable system, because the
municipality is not transparent in terms of the management of financial resources and
other resources as well. In Chapter 2, Section 2.6.9 it was stated that the Municipal
Financial Management Act, 2003 was promulgated to secure the sound and sustainable
management of the financial affairs of municipalities and other institutions in the local
sphere of government. It has the objectives of modernising budget and financial
management practices in municipalities in order to maximise their capacity for service
delivery. It is crucial that the Council should ensure that the municipal manager be held
accountable for the financial affairs of the Mangaung Metropolitan Municipality.
In Question 1.8.1, Section B, Category 1 of the structured questionnaire on the reasons
why the respondents were of the opinion that the Mangaung Metropolitan Municipality
successfully achieved a responsive and accountable system of local government, the
results were as follows (Table 4.6):
Table 4.6. Reasons why the respondents were of the opinion that the Mangaung
Metropolitan Municipality successfully achieved a responsive and accountable
system of local government
Section B, Category 1. Question 1.8.1
Reasons why the respondents were of the
opinion that the Mangaung Metropolitan
Municipality successfully achieved a
responsive and accountable system of local
government
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Implementation of some projects EPWP 1 7.14 1 7.14
At least there is an increase in learnerships
and internships for the unemployed
1 7.14 2 14.29
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Section B, Category 1. Question 1.8.1
Reasons why the respondents were of the
opinion that the Mangaung Metropolitan
Municipality successfully achieved a
responsive and accountable system of local
government
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Communities needs must be prioritized 3 21.43 5 35.71
Corruption was exposed totally 1 7.14 6 42.86
Improved financial management and
economic growth
2 14.29 8 57.14
Limited resources to satisfy unlimited wants 1 7.14 9 64.29
Overall improvement on service delivery 1 7.14 10 71.43
Service delivery challenges can be responded
to promptly
1 7.14 11 78.57
Standard of living of the poor has increased 1 7.14 12 85.71
There is an increase in economic growth and
development
2 14.29 14 95.00
A total of 86% of the respondents were of the opinion that the Mangaung Metropolitan
Municipality successfully achieved a responsive and accountable system of local
government. Fourteen respondents (95%) indicated that there is an increase in
economic growth and development. Only 1 (7%) of the respondents mentioned that
some of the EPWP projects were implemented, while 2 (14%) of the respondents
indicated that there is an increase in learnership and internships for the unemployed. A
total of 6 respondents (43%) held that corruption was exposed totally, whereas, 8
respondents (57%) maintained that there is improved financial management and
economic growth. A total of 12 respondents (86%) mentioned that the standard of living
of the poor has increased and a total of 10 respondents (71%) were of the opinion that
there was an overall improvement on service delivery. Only 5 respondents (36%) were
of the opinion that communities need must be prioritized. It is crucial that the Municipal
177
Manager as head of administration ensures that all stakeholders are aware of progress
being made within the Mangaung Metropolitan Municipality since the implementation of
the Local Government Turnaround Strategy and the incorporation in the Integrated
Development Plan (IDP).
4.10 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 2 INTEGRATED
DEVELOPMENT PROCESSES AND DEVELOPMENT PROJECTS
This part of the structured questionnaire consists of questions that seek to collect
information about the Integrated Development Processes (IDP) and development
projects including public participation.
In Question 2.1, Section B, Category 2 of the structured questionnaire the respondents
were asked the following: “In your opinion does communities benefit from participating
in the IDP process?”. The results were as follows (Figure: 4.12):
Figure 4.12 Does the community benefit from participating in the IDP process
0
20
40
60
80
100
120
Yes No
Yes
N0
All 15 respondents (100% of the respondents) to this question responded with a “yes”.
178
In Question 2.1.1, as shown in Table 4.7 below, all 14 respondents (100%) mentioned
that the reason why communities benefit from participating in the Integrating
Development Planning (IDP) process of the Mangaung Metropolitan Municipality is that
the services they receive are of good quality as they expect. Only 14% of the
respondents (93%) mentioned that the interest and opinions of communities are taken
into consideration. Only 2 of the respondents (13%) maintained that the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality added
value to the decision-making within the municipality. A total of 8 respondents (53%) said
that consultation is vital in improving service delivery, 6 of the respondents (40%) holds
that consultation before service delivery is equally important, while only 3 of the
respondents (20%) said that communities air their views easily enough. Only 4 of the
respondents (27%) maintain that communities are satisfied with the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality.
Chapter 3, Section 3.1 of the study states that the White Paper on Local Government-
1998 provides that one of the central roles of a municipality is to build local democracy
and to develop strategies and mechanisms that include participative planning to
continuously engage with citizens, businesses and community groups. In addition the
Local Government Municipal Systems Act, 2000 (Act 32 of 2000) provided that a
municipality must develop a culture of municipal governance that complements formal
representative government with a system of participatory governance that encourages
and creates conditions for the local community to participate in the affairs of the
municipality such as the preparation, implementation and review of its Integrated
Development Plan (IDP). It may be concluded that the Municipal Manager of the
Mangaung Metropolitan Municipality has to create conditions for the local community to
participate in the affairs of the municipality such as the preparation, implementation and
review of its Integrated Development Plan (IDP).
179
Table 4.7 Reasons why the respondents were of the opinion that communities
benefit from participating in the Integrating Development Planning (IDP) process
Section B, Category 2, Question 2.1.1: Reasons why the respondents were of the opinion that
communities benefit from participating in the Integrating Development Planning (IDP) process.
Reasons why the respondents were of the opinion
that communities benefit from participating in the
Integrating Development Planning (IDP) process
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
The municipality knows what to deliver when and
how
1 6.67 1 6.67
Added value to the decision making within the
municipality
1 6.67 2 13.33
Communities air their views easily enough 1 6.67 3 20.00
Communities are satisfied 1 6.67 4 26.67
Consultation before service delivery is equally
important
2 13.33 6 40.00
Consultation with communities is of utmost
importance
1 6.67 7 46.67
Consultation is vital in improving service delivery 1 6.67 8 53.33
Improved overall service delivery 3 20.00 11 73.33
Interests and opinions are taken into consideration 3 20.00 14 93.33
Services they receive are of good quality as they
expect
1 6.67 15 100.00
From the above table one can determine that 20% of the respondents are of the opinion
that the reason why communities benefit from participating in the Integrated
Development Planning (IDP) process is that their interest and opinions are taken into
consideration. A total of 20% of the respondents holds that another reason was that
public participation in the Integrated Development Planning (IDP) process would
improve the overall service delivery of the Mangaung Metropolitan Municipality, while
180
7% of the respondents hold that consultation with communities concerning the
Integrated Development Plan (IDP) is of utmost importance. Another 7% of the
respondents indicated that communities have to participate in order to ensure that the
services that they receive are of good quality. The literature review presented in
Chapter 3, Section 3.1, Chapter 2 stated that the Local Government Municipal Systems
Act, 2000 requires that the community should be involved in the establishment,
implementation and review of its performance management system. This means that
the Mangaung Metropolitan Municipality has to ensure that mechanisms are in place to
promote effective participation of the communities in the Integrated Development
Planning (IDP) process.
In Question 2.2, Section B, Category 2, the respondents were asked to indicate what
meetings have they attended, while in Question 2.3 the respondents were asked how
often they attended the meetings. The combined results are indicated in Figure 4.13
below:
Figure 4.13 Attendance of ward councillors, the IDP Steering committee and
community ward meetings
181
From the above graph 60% of the respondents responded that they have attended all of
the meetings once in a while when necessary to attend and 40% has attended all the
meetings every time, regardless of whether it is necessary for them to attend or not. In
Chapter 3, Section 3.7 of the study, it was stated that the IDP, Guide Pack, 2001
proposes that an Integrated Development Planning (IDP) forum be created such as
stakeholders and community members in the IDP process. The purpose of this forum of
which ward committee members should be included is to provide a structure for
discussions, negotiations, joint decision-making and participation in the planning and
implementation process of local government issues such as Integrated Development
Planning (IDP).
Chapter 3, Section 6.2 of the study found that the Municipal Structures Act (1998)
makes provision for the establishment of ward committees as a possible way of
encouraging public participation. It was also seen in the literature in Chapter 3, Section
6.2 that a Metropolitan or Local Council may take administrative arrangements to
enable ward committees to perform their functions and practice their powers effectively.
In Question 2.4 of Section B, Category 2 the focus was on the mechanisms used by the
Mangaung Metropolitan Municipality to engage with the communities on the Integrated
Development Planning process. The outcome was as follows (Figure 4.14):
182
Figure 4.14 Mechanisms used by the Mangaung Metropolitan Municipality to
engage with the community about the IDP process.
MECHANISMS USED BY THE MANGAUNG METROPOLITAN
MUNICIPALITY TO ENGAGE WITH THE COMMUNITY ABOUT
THE IDP PROCESS
All of the mechanisms but
once in a while
All of the mechanisms but
not at the same time
9%
91%
From the above it can be depicted that a total of 91% of the respondents indicated that
the Mangaung Metropolitan Municipality makes use of all the mechanisms once in a
while, such as ward committee meetings, road shows, work group discussions and
public invitations to access the IDP at a central place (for example as a community
centre or a public library) to engage with the community. A total of 9% of the
respondents indicated that the Mangaung Metropolitan Municipality makes use of all the
mechanisms to engage with the community, but not at the same time. None of the
respondents indicated that the Mangaung Metropolitan Municipality makes use of other
mechanisms as listed above to engage with the community about the IDP processes.
The literature review presented in Chapter 3, Section 3.5.1 indicated the various public
participation mechanisms or strategies that aim to inform the communities to participate
and to become aware of Integrated Development Planning (IDP) process, development
programmes or projects of the Mangaung Metropolitan Municipality.
183
In Question 2.5 of Section B, Category 2 of the structured questionnaire the
respondents were asked to describe the extent of public participation of ward
community members over the last five years concerning the Integrated Development
Planning (IDP) process. The outcome was as follows (Figure 4.15)
Figure 4.15 The extent of public participation of ward community members over
the last five years
0
10
20
30
40
50
60
70
80
Yes No
Yes
No
From the graph above one can determine that 73% of the respondents regarded the
extent of public participation of ward community members over the past five years as
very good because most community members know how and when to practise their
rights and are more empowered and enriched than before. Only 27% of the
respondents have responded that the public participation of ward community members
is average. The latter could be contributed to the fact that not all ward committee
members attended the engagement opportunities, such as ward committee meetings on
a regular basis. The literature review in Chapter 3, Section 3.6.2 of the study states that
the Municipal Structures Act (1998) provides that the Council of a metropolitan or local
municipality may take administrative arrangements to enable ward committees to
184
perform their functions and practise their powers as well as the frequency of meetings of
ward committees effectively.
In Question 2.6 of Section B, Category 2 of the structured questionnaire the
respondents were asked to indicate whether they were aware of the projected projects
listed in the Mangaung Metropolitan Municipality? The results were as follows (Figure
4.16):
Figure 4.16 “Were the ward committee members aware of the projected projects
of the municipality?”
A total of 87% of the respondents have responded with a yes that they were aware of
the projected projects listed in the Mangaung Metropolitan Municipality and only 13% of
the respondents responded with a no that they were not aware of the projected projects
listed in the Mangaung Metropolitan Municipality. It may be concluded that not all of the
ward committee members are aware of the projected projects listed in the Mangaung
Metropolitan Municipality Integrated Development Plan (IDP). Chapter 3, Section 3.7.3
of the study states that a municipality has to design projects and deal with its
specifications during the project phase of the Integrated Development Plan (IDP). The
87%
13%
185
literature further states that each municipality has to ensure, through public participation
that the identified projects have direct linkage to the priorities and objectives that were
identified in the previous phases. The conclusion may be drawn that the Mangaung
Metropolitan Municipality should ensure that it promotes community participation in the
project design phase to ensure that the identified projects listed in the Integrated
Development Plan (IDP) will become a reality.
In Question 2.7 of Section B, Category 2 of the structured questionnaire the
respondents were asked whether they had received any feedback from the engagement
of the Mangaung Metropolitan Municipality with the community. The results are showed
below in (Figure 4.17):
Figure 4.17 Have you ever received feedback from the engagement of the
municipality with the community?
0
20
40
60
80
100
Feedback
Received
Feedback
No Feedback
All of the respondents (100%) as community ward committee members have responded
with a yes that they do receive feedback from community members after engaging with
the municipality. For example, when the Mangaung Metropolitan Municipality identified
and analysed the needs of communities, the community members had to provide
feedback to the Mangaung Metropolitan Municipality about the priorities and needs from
186
the various wards. Another example listed by respondents was that communities
provided feedback especially if they are not satisfied with the level and standard of
services received from the Mangaung Metropolitan Municipality.
In Question 2.8.1, of Section B, Category 2 of the structured questionnaire focused on
whether the ward community committees are very effective in articulating the interest of
the community. The results were as follows (Figure 4.18):
Figure 4.18 The ward community committees are very effective in articulating
the interest of the community
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree or
Disagree
Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
A total of 73% of the respondents strongly agreed that ward committees are effective in
articulating the needs and interests of the communities, while a total of 27% agreed.
None of the respondents disagreed, strongly disagreed, or neither agreed nor disagreed
with the statement.
In Question 2.8.2, of Section B, Category 2 the focus was on whether the community
members received feedback on how their inputs affected decisions made by the
Mangaung Metropolitan Municipality. The outcome was as follows (Figure 4.19):
187
Figure 4.19 The community members received feedback on how their inputs
affected decisions made by the Mangaung Metropolitan Municipality
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree or
Disagree
Strongly Agree
Agree
Netiher Agree
Disagree
Strongly Disagree
The above graph shows that a total of 73% of the respondents strongly agreed while
27% agreed that community members received feedback on how their inputs affected
decisions made by the Mangaung Metropolitan Municipality. Chapter 3, Section 3.3.6 of
the study stressed that the Local Government Municipal Systems Act, 2000 requires
that municipalities should encourage and create conditions for the local community to
participate not only in the preparation and implementation of the Integrated
Development Plan (IDP), but also during the review of its Integrated Development Plan
(IDP) and annual budget. It is crucial that the Municipal Manager of the Mangaung
Metropolitan Municipality as head of administration ensures that effective participation
of the local community is promoted not only during the preparation, and implementation
of its IDP but that the community is also involved in the review proves of its IDP to
ensure that the community receives feedback concerning the progress of its Integrated
Development Plan (IDP).
188
In Question 2.83 of Section B, Category 2 it was stated that only a few selected
members of the community participated in the IDP process. The results were as follows
(Figure 4.20):
Figure 4.20 Only a few selected members of the community participated in the
IDP process
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
The above graph indicates that a total of 80% of the respondents strongly agreed that
selected members of the community participate in the IDP process, while a total of 13%
of the respondents agreed with the above statement. Whereas, 7% of the respondents
neither agreed, nor disagreed with the above statement, none of the respondents
disagreed or strongly disagreed with the above statement. The literature review
presented in Chapter 3, Section 3.6.3 of this study stated that municipalities are also
required in terms of Chapter 3 of the Municipal Systems Act (2000), to create conditions
that will allow for the most members of the community, such as disabled people,
disadvantaged groups and people who are illiterate, to participate in the affairs of the
municipality, whereas, Chapter 3, section 3.3.5 states that public participation strategies
aimed at empowering the public provide a reciprocal learning relationship between the
beneficiaries and the municipality by using specific strategies to reach as many
189
members of the community as possible. These strategies include various dialogue
forums such as IDP forums and the Ward Committee system that have clear criteria for
membership to town-hall meetings that occur occasionally.
In Question 8.4 of Section B, Category 2 on whether public participation in the
Integrated Development Planning (IDP) process is meaningful, the results were as
follows (Figure 4.21):
Figure 4.21 Public participation in the IDP process is meaningful
0
10
20
30
40
50
60
70
80
Strongly
Agree
Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
From the above graph one can determine that 80% of the respondents strongly agreed
with the statement that public participation in the IDP process is meaningful. A total of
20% of the respondents agreed that public participation in the IDP process is
meaningful.
Question 2.8.5, Section B, Category 2 of the structured questionnaire aimed to
determine whether the IDP aims to respond to local communities? needs. The outcome
was as follows:
190
Figure 4.22 The IDP aims to respond to local communities needs
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Neither
Agree or
Disagree
Strongly
Disagree
East
Strongly Agree
Agree
Neither Agree or
Disagree
Strongly Disagree
A total of 93% of the respondents strongly agreed that the Integrated Development
Planning (IDP) aims to respond to local communities? needs. Another 7% indicated that
they agreed with the statement. Chapter 3, Section 3.1 of the study states that the
White Paper on Local Government, (1998:37) states that developmental local
government means that local government is committed to working with its citizens and
groups within the community to find sustainable ways to meet their social, economic
and material needs to improve the quality of life for all citizens.
In Question 8.6 of Section B, Category 2 of the structured questionnaire the
respondents were asked to whether the community is given a chance to identify and
prioritise the projects which should be implemented. The outcome was as follows
(Figure 4.23):
191
Figure 4.23 The community is given a chance to identify and prioritise the
projects which should be implemented
0
5
10
15
20
25
30
35
40
45
50
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or Disagree
Disagree
Strongly Disagree
The above graph shows that 40% of the respondents strongly agreed that the
community is given a chance to identify and prioritise the projects which should be
implemented. In contradiction a total of 47% of the respondents strongly disagreed with
this statement, while 7% agreed and 7% of the respondents neither agreed nor
disagreed with the statement that the community is given a chance to identify and
prioritise the projects which should be implemented. As seen in Chapter 3, Section 3.7
of the study the IDP Guide Pack, 2001 maintains that the Integrated Development
Planning (IDP) forum should be determined by the Integrated Development Planning
(IDP) priorities and it strives to reach consensus concerning these priorities. This forum
also promotes public participation in that the members of the forum include ward
committee representatives as well as representatives from organized groups and other
suitable community representatives. As stressed in Chapter 3 it is crucial that the
members of the above members participate in the Integrated Development Planning
(IDP) forum to inform stakeholders and the communities about relevant planning
activities.
192
In Question 2.8.7 the focus was on whether the IDP is instrumental in implementing the
projects that were prioritized by the community through public participation. The results
were indicated in Figure 4.24 below:
Figure 4.24 The IDP is instrumental in implementing the projects that were
prioritized by the community through public participation
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or Disagree
From the above graph one can determine that 87% of the respondents strongly agreed,
while 13% of the respondents agreed that the IDP is instrumental in implementing the
projects that were prioritized by the community through public participation.
In Question 2. 8.8, Section B, Category 2 of the structured questionnaire on whether the
involvement of the community in the IDP process should take place during the
implementation process, the outcome was as follows (Figure 4.25):
193
Figure 4.25 The involvement of the community in the IDP process should take
place during the implementation process
The chart above shows that 53% of the respondents strongly agreed and 13% agreed
with the statement that the involvement of the community in the IDP process should
take place during the implementation process. In contradiction, 33% of the respondents
strongly disagreed with the statement.
In Question 2.8.9, Section B, Category 2 of the structured questionnaire on whether
effective public participation can boost rural development in the Mangaung Metropolitan
Municipality Area, the outcome was as follows (Figure 4.26):
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Figure 4.26 Effective public participation can boost rural development in the
Mangaung Metropolitan Municipality area
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
A total of 86% of the respondents strongly agreed, and 14% agreed with the statement
that effective public participation can boost rural development in the Mangaung
Metropolitan Municipality Area.
In Question 2.9, Section B, Category 2 on whether there were any systems in place in
the Mangaung Metropolitan Municipality to measure the performance of public
participation, the results were as follows:
195
Figure 4.27 “Are there any systems in place in the Mangaung Metropolitan
Municipality to measure the performance of public participation?”
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Yes No No Sure
Yes
No
Not sure
From the above graph it shows that 87% of the respondents have responded yes to the
fact that there are systems in place to measure the performance of public participation
and only 7% of the respondents have said that they do not know of any systems in
place and 7% of the respondents responded that they were not sure whether there are
any systems in place in the Mangaung Metropolitan Municipality to measure the
performance of public participation. As stressed in the literature review presented in
Chapter 3, Section 3.3.6 it is crucial that the Mangaung Metropolitan Municipality
ensures that local communities also participate in the establishment, implementation
and review of the municipal performance management system.
In Question 2.10, Section B, Category 2 on what are the main challenges that prevent
public participation of community members in the Integrated Development Planning
(IDP) process and developmental projects, the results are as follows:
196
Table 4.8 “What are the main challenges that prevent the public participation of
community members in the Integrated Development Planning (IDP) process and
developmental projects?”
Question 2.10, Section B, Category 2
What are the main challenges that prevent the
public participation of community members in the
Integrated Development Planning (IDP) process
and developmental projects
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Corruption of Municipal managers 1 6.67 1 6.67
Greediness and non-transparent leaders 1 6.67 2 13.33
High unemployment rate increases corruption 2 13.33 4 26.67
Lack of transparency 2 13.33 6 40.00
Limited financial resources to satisfy unlimited
wants
1 6.67 7 46.67
Maladministration of financial resources 1 6.67 8 53.33
Mismanagement of resources 1 6.67 12 80.00
Non adherence to local government rules and
regulations
1 6.67 13 86.67
Selfish and selfless leaders who are corrupt 1 6.67 14 93.33
Unemployment, Corruption 1 6.67 15 100.00
From the above table in can be depicted that most of the respondents have responded
that the maladministration of financial resources are the main challenges that prevent
public participation of community members in the Integrated Development Planning
(IDP) process and developmental projects? A total of 27% of the respondents holds
that the lack of transparency in the Mangaung Metropolitan Municipality is the main
challenge. As stressed in Chapter 3, Section 3.6.4 of the study states that the purpose
of the Municipal Finance Management Act, 2003 is to bring about transparent and
effective financial management in municipalities and municipal entities. It is crucial that
197
the Municipal Manager of the Mangaung Metropolitan Municipality ensures that it
promotes about transparent and effective financial management.
In Question 2.11, Section B, Category 2 on what should be done to improve public
participation in the Integrated Development Planning (IDP) process, the outcome was
as follows:
Table 4.9 “What should be done to improve public participation in the
integrated development planning process (IDP)?”
Question 2.11, Section B, Category 2
What should be done to improve public
participation in the Integrated Development
Planning (IDP) process?
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Communities needs must be put first 4 26.67 4 26.67
Communities views must be taken into account
from the formulation stage
1 6.67 5 33.33
Consultation is of utmost importance 1 6.67 6 40.00
Encourage the communities to take part in the
decision-making process
1 6.67 7 46.67
Limited financial resources must be managed
effectively
1 6.67 8 53.33
Municipalities must meet the desires and needs of
communities
1 6.67 9 60.00
Municipalities must show appreciation of
communities views and opinions
1 6.67 10 66.67
Needs of communities must be prioritised 3 20.00 13 86.67
The municipality must become more transparent 1 6.67 14 93.33
Transparency plays a vital role in this instance 1 6.67 15 100.00
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From the above table concerning what should be done to improve public participation in
the Integrated Development Planning (IDP) process one can determine that the majority
of the respondents (27%) indicated that the communities? needs should be placed first.
In addition 20% of the respondents mentioned that the needs of the communities must
be prioritised. A total of 14% of the respondents held that the municipality must become
more transparent, while 7% of the respondents also mentioned that limited financial
resources must be managed effectively. A total of 7% of the respondents held that
communities? views must be taken into account from the formulation stage in the
Integrated Development Planning (IDP) process. Another 7% of the population
maintains that consultation is of utmost importance to improve public participation in the
Integrated Development Planning (IDP) process. Another 7% of the respondents
maintain that communities must be involved in the decision making process from the
process of policy formulation to implementation.
The literature review presented in Chapter 3, Section 3.6.2 stated that the Municipal
Structures Act (1998) sets out the rights and duties of the members of local community
and the public to contribute to the decision-making process of the municipality. The
literature review further states in Chapter 3, Section 3.1 that the White Paper on Local
Government, (1998:37) requires from local government to work with its citizens and
groups within the community to find sustainable ways to meet their social, economic
and material needs in order to improve the quality of life for all citizens.
4.11 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 3 GOOD
GOVERNANCE
This part of the structured questionnaire consists of questions that seek to collect
information about good governance. On Question 3.1.1, Section B, Category 3 of the
structured questionnaire the outcome was as follows (Table 4.10):
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Table 4.10 The degree of agreement or disagreement with the level of good
governance
Statement number
Statement
Outcome
Statement 3.1.1
The Municipal Turnaround
Strategy has contributed to a
responsive municipality
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.2
The Municipal Turnaround
Strategy has contributed to
accountable municipality
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.3
Public participation in the IDP
process in the Mangaung
Metropolitan Municipality
promotes transparency
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.4
Public participation increases
public awareness of the
Municipal Turnaround Strategy
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.5 Public participation in the IDP
process ensures that the
Mangaung Metropolitan
Municipality uses scarce
resources efficiently and
effectively
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
From the above table one can determine that in all five statements 87% of the
respondents strongly agreed with all five statements while 13% of the respondents
agreed with all five statements. Chapter 2, Section 2.5 of the study states that Section
152 of the Constitution, 1996 indicates that the objectives of local government are to
provide democratic and accountable government to all communities in a specific
municipal area, to provide municipal services in a sustainable manner, and for
municipalities to be responsible and to social and economic development. They are
200
responsible to promote a safe and healthy environment and municipalities must
encourage the involvement of communities and community organizations in the matters
of local government. It is crucial that the Mangaung Metropolitan Municipality promotes
the above requirements of good governance.
4.12 SUMMARY
Chapter 5 provides the findings of the empirical research of the study. The findings are
presented and interpreted in this chapter. From these research findings it is evident that
the effective, efficient and sustainable implementation and incorporation of the Local
Government Turnaround strategy would not be possible if the ward councilors - as the
chairpersons of the ward committees of the Metropolitan Municipality - are not familiar
with the main aims and objectives of such a crucial governmental intervention. The
conclusion that may be drawn is that if the ward council members are not familiar with
such a crucial governmental intervention such as the aim of the Local Government
Turnaround Strategy that aims solely to turn around the municipalities performance and
to rebuild and improve the basic requirements for a functional, responsive, accountable,
effective and efficient developmental local government. It is therefore unlikely that the
ward committee councilors will communicate the correct aim to the community who
needs to be consulted on the affairs of the Mangaung Metropolitan Municipality. One
could argue that the Municipal Manager of the Mangaung Metropolitan Municipality
needs to clarify the purpose, main aim and objectives of the Local Government
Turnaround Strategy with all stakeholders, including the ward committee members so
that all stakeholders obtain a clear understanding of the purpose, aims, objectives of the
Local Government Turnaround Strategy that needs to be incorporated in the Mangaung
Metropolitan Municipalities Integrated Development Plan (IDP).
The results obtained from the interviews also revealed that a total of 27% of the
respondents responded that the local community is satisfied with the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality. One
could argue that the Municipal Manager of the Mangaung Metropolitan Municipality has
to create conditions for the local community to participate in the affairs of the
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municipality such as the preparation, implementation and review of its Integrated
Development Plan (IDP).
Another concern is that the majority of the respondents strongly agreed that only
selected members of the local community participate in the Integrated Development
Planning (IDP) process. Therefore, it is crucial that the Municipal Manager of the
Mangaung Metropolitan Municipality as head of administration ensures that effective
participation of the local community is promoted by using various strategies to reach the
majority of the local community. The municipality has to ensure that the local
community participates not only during the preparation and implementation of its
Integrated Development Plan (IDP) but that the community is also involved in the review
process of its Integrated Development Plan (IDP) to ensure that the community received
feedback concerning the progress of its Integrated Development Plan (IDP). Another
concern is that the majority of the respondents responded that the municipality must
become more transparent and should use financial resources more effectively.
In Chapter 5 a summary is made and a conclusion drawn from Chapters 2, 3 and 4 and
recommendations are made to rectify the situation relating to challenges in the
Mangaung Metropolitan Municipality to implement and incorporate the Local
Government Strategy into its Integrated Development Plan (IDP) as well as to promote
effective participation of the local community in the Integrated Development Planning
(IDP) process.
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CHAPTER 5
THE IMPACT OF THE LOCAL GOVERNMENT TURNAROUND
STRATEGY ON PUBLIC PARTICIPATION AND GOOD GOVERNANCE
WITH RESPECT TO INTEGRATED DEVELOPMENT PLANNING WITHIN
THE MANGAUNG METROPOLITAN MUNICIPALITY: AN OVERVIEW OF
CHAPTERS RECOMMENDATIONS AND CONCLUDING REMARKS
5.1 INTRODUCTION
This chapter firstly starts by focusing on the summary of Chapters 1,2,3 and 4. It
furthermore analyses the research objectives and gives an overview on how these
objectives have been met. This chapter will reiterate the main theoretical statement
proposed in Chapter 1 and finally will conclude by making recommendations and
suggesting ways on how the outstanding medium to long-term strategies of the Local
Government Turnaround Strategy as incorporated in and by Mangaung Metropolitan
Municipality?s Integrated Development Plan (IDP) would be achieved to promote good
governance and effective public participation in the affairs or the Metropolitan.
5.2 SUMMARY OF CHAPTERS
The main aim of this study was to investigate the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance with respect
to the Integrated Development Planning (IDP) process in the Mangaung Metropolitan
Municipality.
Chapter 1: Introduction: This chapter outlines the problem statement, research,
questions, research objectives, methodology as well as provisional chapters of the
study. Chapter 1 also provides a profile of the Mangaung Metropolitan Municipality.
Chapter 2: Theoretical Overview of integrated Development Planning, the Local
Government Turnaround Strategy and their implementation in the South African Local
203
Government Sphere. This chapter outlines the origin, statutory and regulatory
framework as well as the implementation of the Local Government Turnaround Strategy
(LGTAS) and Integrated Development Planning (IDP) in the context of South African
Municipalities, with specific references to the Integrated Development Planning (IDP)
process as well as the implementation of the Local Government Turnaround Strategy
(LGTAS) in the case of Mangaung Metropolitan Municipality. The information obtained
during the development of this chapter established a basis for exploring the conceptual
link between the Local Government Turnaround Strategy (LGTAS) the Integrated
Development Planning (IDP) process, and public participation and good governance
that will be discussed in the next chapter.
Chapter 3: Public Participation, Integrated Development Planning (IDP) and Good
Governance: A conceptual practical interface. Firstly the chapter provides the legislative
and policy frameworks and directives of the national government of South Africa and
literature exploration with regards to public participation and good governance in the
Integrated Development Planning (IDP) process, with specific reference to the case of
Mangaung Metropolitan Municipality.
Chapter 4: Research Methodology. This chapter explained the research methodology,
data gathering and sampling techniques used in the study. The chapter also presented
the empirical findings of the Local Government Turnaround Strategy (LGTAS) on Public
Participation and Good Governance in the Integrated Development Planning (IDP)
process in the case of the Mangaung Metropolitan Municipality. The chapter presented
the empirical findings by presenting the data which was gathered as well as an analysis
of the findings.
Chapter 5: Research Summary, Recommendations and Concluding Remarks. A
conclusion is drawn and proposals are made on the impact of the Local Government
Turnaround Strategy (LGTAS) on the Integrated Development Planning (IDP) process
within the Mangaung Metropolitan Municipality, public participation and good
governance based on the facts analysed from the research findings.
204
5.3 RESEARCH OBJECTIVES
The research questions were proposed in Chapter 1 of the study:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
? What are the key requirements, purposes, objectives, and components of
public participation and good governance of Integrated Development
Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?
In order to answer the research questions and corresponding research objectives, the
requirements of different legislative frameworks as well as the different views of different
authors in Chapter 2 and Chapter 3 of the literature review should be considered.
Chapter 2 provides the theoretical overview and outlines the origin of Integrated
Development Planning (IDP) and the Local Government Turnaround Strategy (LGTAS),
as well as the statutory and regulatory framework of Integrated Development Planning
(IDP) and the Local Government Turnaround Strategy (LGTAS). The nature and extent
205
of typical municipal services and the key performance areas of Integrated Development
Planning (IDP) as well as the composition of the Integrated Development Planning (IDP)
phases were also discussed. The Local Government Turnaround Strategy (LGTAS) in
context was also discussed to solicit the five strategic objectives and immediate medium
term priorities of this strategy followed by a discussion about the implementation of
Integrated Development Planning (IDP) and Local Government Turnaround Strategy
(LGTAS) in the case of Mangaung Metropolitan Municipality.
Chapter 3 explores the interface between Integrated Development Planning (IDPs),
public participation and good governance. The chapter outlines the key public
participation concepts, followed by a discussion about the legislative and policy
framework for participatory governance, an overview of the different approaches,
building blocks and modes of public participation in local government, public
participation strategies, and public participation in local government?s Integrated
Development Planning (IDP) process and concludes with a brief outline of good
governance and community participation in the case of the Mangaung Metropolitan
Municipality. The following were the research objectives of this study as proposed in
Chapter 1, Section 3.1:
5.3.1 Objective 1. To investigate through the extensive literature and policies, the
requirements, purpose, principles, objectives, and components of the Integrated
Development Plan (IDP) and the Local Government Turnaround Strategy (LGTAS).
A question was asked in Chapter 1, Section 1.3 of this study as to what are the theories,
principles and legislative requirements associated with Integrated Development
Planning (IDP) and the Local Government Turnaround Strategy (LGTAS) are? Chapter
2 and 3 of this study must be considered to respond to the research questions and the
views of authors applied must also be taken into consideration. A question was posed
in Chapter 1 on the extent of existing policies, systems, structures and approaches
within the Mangaung Metropolitan Municipality to implement the LGTAS. This is outlined
in Chapter 2
206
5.3.2 Objective 2. To investigate through the extensive literature and policies the
requirements, components and linkages of public participation and good
governance in the Integrated Development Planning (IDP) process.
A question was a question posed in Chapter 1 on what the key requirements, purposes,
objectives, and components of public participation and good governance of Integrated
Development Planning (IDP) are. Chapter 3 explores the extent of existing policies,
components and linkages of the public participation good governance and the
Integrated Development Planning (IDP) process. Chapter 3 also explores the efforts of
Mangaung Metropolitan Municipality to promote good governance and public
participation through the Integrated Development Planning (IDP) process.
5.3.3 Objective 3. To explore policies, systems, structures and approaches on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance in the Integrated
Development Planning (IDP) process within the Mangaung Metropolitan
Municipality.
A question was asked in Chapter 1, Section 1.3 of this study as to what the existing
policies, systems, structures, approaches and operations with respect to public
participation and good governance of the Integrated Development Planning (IDP) and
the Local Government Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality are? Chapter 3 explores the efforts of the Mangaung Metropolitan
Municipality to incorporate the Local Government Turnaround Strategy (LGTAS) as well
as to promotes good governance and public participation through the Integrated
Development Planning (IDP) process.
207
5.3.4 Objective 4. To determine through an evaluation of the LATEST annual
review reports as well as through structured interviews the impact of the Local
Government Turnaround Strategy (LGTAS) on public participation and good
governance in the Integrated Development Planning (IDP) process.
A question was posed in Chapter 1 of this study on the effectiveness of the policies,
systems, structures, approaches and operations of the Local Government Turnaround
Strategy (LGTAS) with respect to public participation and good governance of the
Integrated Development Plan (IDP) in the Mangaung Metropolitan Municipality. As
indicated above Chapter 3 explores the efforts of the Mangaung Metropolitan
Municipality to incorporate the Local Government Turnaround Strategy (LGTAS) to
promotes good governance and public participation through the Integrated Development
Planning (IDP) process. While chapter 4, indicates how an empirical study was
undertaken in this regard and a summary of the findings is presented in Section 5.5
below.
5.3.5 Objective 5. Making recommendations based on the research findings in
order to improve public participation and good governance of the IDP in the
Mangaung Metropolitan Municipality.
A question was posed in Chapter 1: “What recommendations may be made to ensure
the effective and efficient implementation of public participation and good governance
as part of the Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?” This chapter
concludes by offering the recommendations.
5.4 CENTRAL THEORETICAL STATEMENTS
Chapter 1, Section 1.8 emphasised that although the Local Government Turnaround
Strategy was incorporated in the Mangaung Metropolitan Municipality?s own tailor-made
208
Municipal Turnaround Strategy (MTAS), one of the most significant challenges in the
Mangaung Metropolitan Municipality is to become a financially viable and well-managed
Metropolitan Municipality. As discussed in Chapter 1, Section 1.8 the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014 states that
the ageing service delivery infrastructure including electricity and water line loses and
utilities remains a serious challenge as well as the ineffective revenue collection due to
the reliance on Intergovernmental Relations transfers such as conditional grants
remains a challenge. Section 1.8 further emphasised that the Mangaung Metropolitan
Municipality still need to achieve the following medium to long term priorities of the
Local Governments Turnaround Strategy (LGTAS) as incorporated in the Metropole?s
Integrated Development Plan (IDP), namely:
? To achieve clean audits by 2014;
? Facilitate the development of the N8 corridor development;
? To deal with the fiscal gap by dealing with critical issues such as billing
completeness and accuracy, collections efficiency, debtors minimization and
management, tax and tariff increases for existing revenue sources and
expenditure efficiencies;
? To ensure the effective implementation of the bulk contribution policy such as the
7000 properties that are not metered for varied services;
? To ensure water service supply and sustainability;
? To mainstream poverty reduction as incorporated in the IDP;
? To develop Botshabelo and Thaba-Nchu to reduce transportation cost on the
poor;
? To accelerate of Level 2 Housing Accreditation; and
? To leverage resources for a number of flagship projects namely land
development, Inner city redevelopment, and township rehabilitation (including
greening, open spaces and cemeteries.
Chapter 2.2 highlights the statutory and regulatory frameworks of Integrated
Development Planning (IDP) and states that Section 154 of the Constitution, 1996
provided that national and provincial governments must support and strengthen the
209
capacity of local authorities by legislative and other measures to manage their affairs, to
exercise their power and to perform their functions, thereby given these authorities a
distinctive role in promoting social development and democracy on local sphere. The
Constitution, 1996 also mandated municipalities with major developmental
responsibilities to ensure that the quality of life of its citizens is improved. The role for
local government includes the provision of basic services, creation of jobs and
eradication of poverty. Section 153 of the Constitution, 1996 implies that a municipality
must structure and manage its administration and budgeting and planning processes to
give priority to the basic needs of the community and to promote the social and
economic development of the community. Section 2.1 states the main aim of the Local
Government Turnaround Strategy (LGTAS) namely, to turn around the municipalities?
performance and to rebuild and improve the basic requirements for a functional,
responsive, accountable, effective and efficient developmental local government
Chapter 2 further highlights in Section, 2.6.16 that the Mangaung Metropolitan
Municipality effectively incorporates the Local Government Turnaround Strategy
(LGTAS) and aligns the Free State Provincial Government?s Growth and Development
Strategy as well as the National Development Plan and the National Strategic
Framework (NSF) priorities in its Integrated Development Plan Review 2013/2014.
Chapter 3 Section 3.3 emphasised that the South African government has put in place
many statutory policy and legislative frameworks which require some form of public
participation in local government. It was explained in Chapter 3 that Section 153 of the
Constitution, 1996 states that all municipalities must structure and manage its
administration, budgeting and planning processes, in such a manner that it gives priority
to the basic needs of the community. In addition Section 151(1) of the Constitution,
1996 places an obligation on local government to encourage the involvement of
communities and community organizations in the matters of local government.
Whereas, the Municipal Systems Act, 2000 (Act 32 of 2000), states in Section 17(2) that
a municipality must establish appropriate mechanisms processes and procedures to
enable the local community to participate in the affairs of the municipality.
210
Chapter 3, Section 3.8 of this study clearly indicated that the Mangaung Metropolitan
Municipality has a well planned and well structured community engagement strategy
that is included in its Integrated Development Plan Review of 2013/2014 to promote
effective public participation in the region. In Chapter 3, Section 3.8 it was explained
that the Mangaung Metropolitan Municipality identified six community needs priorities
that will be addressed in the short, medium and long term, including:
? Upgrading tarring and gravel roads, fixing potholes and build speed humps in all
wards;
? Controlling and maintaining of storm water channels in all wards;
? Attending to water cuts and regular disruption of water supply due to poor
maintenance in all wards;
? Providing, connecting and maintaining of waterborne sewerage systems in the
place of bucket systems in some of the wards;
? Addressing high electricity bills need to be addressed in all wards;
? Addressing the theft of electrical cables, electricity failure at all times in all wards;
and
? Attending to social and recreation facilities, libraries youth centres and
community halls in all wards.
Chapter 3, Section 3.8 further discussed that the Mangaung Metropolitan Municipality
organized as indicated in the its Integrated Development Plan (IDP), Review of
2013/2014, that a number of meetings, consultations and public hearings with all
interested stakeholders such as national and provincial departments, organised
business, traditional leadership councilors and members of the community, and ward
committees in the short and medium term. A total of 19 engagement with communities
were made by the Mangaung Metropolitan Municipality during 2012 and 2013 that
involve interactions with communities at ward levels and with rural communities,
business and youth representatives which represented various regions of the
Mangaung Metropolitan Municipality. Section 3.8 also indicated that the Mangaung
Metropolitan Municipality states in its Integrated Development Plan (IDP), Review
211
2013/2014, that the Free State Provincial Department of Cooperative Governance and
Traditional Affairs, (CoGTA) held an Integrated Development Planning (IDP) Alignment
and Assessment Workshop in April 2012 during which the National Development Plan,
2030, the Free State Provincial Growth and Development Strategy (PGDS), Vision 2030
as well as the draft reviewed Integrated Development Plans (IDPs) of all municipalities
in the provinces were thoroughly reviewed and assessed. The workshop was attended
by Integrated Development Planning (IDP) officials from the Mangaung Metropolitan
Municipality and other municipalities within the region, and representatives of other
sector departments from national and provincial government.
Section 3.8 and Section 3.9 listed some of the issues that were raised during the
interactions with various community ward representatives that are affecting the various
communities that are listed in the Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, and that are receiving considerable attention.
These include issues such as poor maintenance of existing infrastructure, particularly
roads and drainage as well as sewage systems, and matters of safety and well- being of
the residents. Section 3.8 in Chapter 3 further emphasised in the Mangaung
Metropolitan Municipality Integrated Development Plan (IDP), Review of 2013/2014,
the key development thrusts of the Mangaung Metropolitan Municipality that still needs
to be achieved includes; “poverty eradication, rural and economic development and job
creation; financial sustainability including revenue enhancement and clean audits;
spatial development and the build environment; the eradication of bucket systems in
Botshabelo, Mangaung and Thaba Nchu regions; and other issues including building
solar farming, a power plant feasibility study, safety and security; human settlements,
public transport, environmental management and climate change and social and
community services”.
In Chapter 3, Section 3.9 concerning good governance. It was explained that the
Mangaung Metropolitan Municipality Integrated Development Plan (IDP), Review
2013/2014 states that the council of the Mangaung Metropolitan Municipality places a
strong emphasis on good governance by ensuring effective leadership, accountability
212
and effective management of all resources particularly financial resources. Section 3.9
further explained that the Mangaung Metropolitan Municipality reflected in its reviewed
Integrated Development Plan, 2013 clear strategies, objectives and critical performance
indicators to promote good governance for the next five years. The strategies to
promote good governance as constituted in the Mangaung Metropolitan Municipality
Integrated Development Plan, Review (IDP) 2013/2014, include the following:
? Providing strategic leadership and planning with well- defined targets aligned to
the budget;
? Improving performance management and accountability;
? Implementing of the Institutional Performance Management System (IPMS);
? Ensuring the effective functioning of the Audit, Oversight and Public Account
Committees;
? Establishing effective, functioning Audit, Oversights and Public Account
Committees as well as ensuring that the committees consist of knowledgeable
persons;
? Fully capacitated Intern Audit Activities consisting of competent and
knowledgeable staff;
? Developing and monitoring of an Information Technology governance model, and
strategies to promote effectiveness;
? Proper record keeping of all information communication technology and related
equipment, systems and software;
? Redevelopment of the Mangaung Metropolitan Municipality?s Intranet system and
upgrading current information communication technology systems;
? Analysis all current information systems used by the Mangaung Metropolitan
Municipality;
? Maintaining a two-hour turn- around time on support calls;
? Effective proactive risk management governance framework and processes;
? Enhancing public participation in the affairs of the municipality;
? Fostering good relationships with organised labour and concluding all
outstanding labour disputes;
213
? Promoting the retention of skilled employees;
? Maintaining effective work place skills plan;
? Institutional transformation and re-design;
? Tracking of decisions made by council;
? Developing guidance on good practices with the aim of establishing and
consistent standards of records;
? Establishing common and consistent standards of records; and
? Establishing and link operational modules throughout the Mangaung Metropolitan
Municipality.
It was further emphasised in Chapter 3, Section 3.9 that although the Mangaung
Metropolitan Municipality places a strong emphasis on good governance as reflected in
its Integrated Development Review (IDP) of 2013/2014 the Auditors Auditor General
Report on the Audit Outcomes of Local Government in the Free State, 2011/2012,
clearly indicated that more needs to be done to promote good governance in the
Mangaung Metropolitan Municipality. In this regard the Auditors Auditor General Report
on the Audit Outcomes of Local Government in the Free State, 2011/2012 states that it
is a concern that the Mangaung Metropolitan Municipality had findings on both the
usefulness and reliability of reported information because it is expected from the
Mangaung Metropolitan Municipality to set the example in the Free State Province. It
was further emphasised in Chapter 3, Section 3.9 that the Auditors Auditor General
Report on the Audit Outcomes of Local Government in the Free State, 2011/2012 holds
that all municipalities including the Mangaung Metropolitan Municipality findings on non-
compliance with laws and regulations; this has become a norm as no municipality in the
Free State province addressed its findings of the previous year. The Auditors Auditor
General Report on the Audit Outcomes of Local Government in the Free State,
2011/2012 further states that non-compliance in all municipalities relate to material
misstatements in submitted financial statements; the prevention and addressing of
unauthorised irregular as well as fruitless and wasteful expenditures need urgent
attention, such as matters relating to annual reports such as the annual performance
reports that were not prepared based on the Integrated Development Plans (IDPs), and
214
other areas of non-compliance, including procurement and contract management,
budgets, internal audit units and audit committees. Other concerns of the Auditors
Auditor General in its Report on the Audit Outcomes of Local Government in the Free
State, 2011/2012 regarding the Mangaung Metropolitan Municipality as stated Chapter
3, Section 3.9 include the following:
? “The current liabilities of the Mangaung Metropolitan Municipality exceeds its
current assets;
? Mangaung Metropolitan Municipality did not always settle debts within 30 days,
as required by national legislation;
? The Mangaung Metropolitan Municipality was experiencing serious difficulties
with regard to debt collection;
? Mangaung Metropolitan Municipality has not set any funds aside to settle
significant defined benefit obligations; and
? The Mangaung Metropolitan Municipality may therefore be unable to realize its
assets and discharge its liabilities in the normal course of business”.
5.5 SUMMARY OF THE EMPIRICAL FINDINGS
It was summarised in Chapter 4 Section 4.12 that it was evident from the research
findings that the effective, efficient and sustainable implementation and incorporation of
the Local Government Turnaround Strategy would not be possible if ward councilors as
the chairperson of the Ward Committees of the Metropolitan Municipality are not familiar
with the main aims and objectives of such a crucial governmental intervention. It is
therefore unlikely that the ward committee councilors will communicate the correct aim
to the community who needs to be consulted on the affairs of the Mangaung
Metropolitan Municipality. Although the Mangaung Metropolitan Municipality clearly
incorporated the Local Government Turnaround Strategy in its reviewed Integrated
Development Plan of 2013 as indicated in Chapter 1 Section 1.8 it is still important to
ensure that it is clearly communicated to the Ward Committee members.
215
The following is a summary of the findings of Chapter 5 of this study.
? Ward committee members within the Mangaung Metropolitan Municipality do
have an idea of the purpose and aims of the Municipal Turnaround Strategy.
However the Manager of the Mangaung Metropolitan Municipality needs to clarify
the purpose, main aim and objectives of the Local Government Turnaround
Strategy with all stakeholders, including the Ward Committee members to ensure
that all stakeholders obtain a clear understanding of the purpose, aims and
objectives the Local Government Turnaround Strategy that needs to be
incorporated in the Metropolitan?s Integrated Development Plan (IDP).
? There is a lack of proper guidelines and processes in place to give direction
towards the successful implementation of the Mangaung Metropolitan
Municipality?s Integrated Development Plan (IDP) and other plans;
? The Mangaung Metropolitan Municipality has to ensure that community
participation do not only takes place during the preparation and implementation
processes of by also during the review or its Integrated Development Plan (IDP).
In this manner it will ensure that the community received feedback concerning
the progress of its Integrated Development Plan (IDP).
? The Municipal Manager of the Mangaung Metropolitan Municipality as the head
of administration has to ensure that various public participation strategies are
used to reach the majority of the local community.
? Another concern was raised that the majority of the respondents responded that
the municipality must become more transparent and should use financial
resources more effectively.
? There is a lack of ward committee members? involvement and representation in
the top decision making structures within the municipality.
? Vague and ambiguous responsibilities given to ward committee members.
? There is a lack of clear reporting mechanisms, as ward committee members
deem feedback and consultation key in successfully implementing the short,
medium and long-term priorities of the Local government Turnaround Strategy
(LGTAS) and the Integrated Development Plan (IDP).
216
5.6 RECOMMENDATIONS
The main purpose of this study was to determine the Impact of the Local Government
Turnaround Strategy on public participation and good governance in the IDP process
within the Mangaung Metropolitan Municipality. It was found during the literature review
that although the Local Government Turnaround Strategy (LGTAS) was successfully
incorporated in the Mangaung Metropolitan Municipality Integrated Development Plan
as showed in the Integrated Development Plan as showed in the Review of 2013/2014,
more needs to be done to ensure that the Review of 2013/2014, more needs to be done
to ensure that the medium-term and long-term priorities are effectively implemented to
promote good governance, and effective service delivery within Mangaung Metropolitan
Municipality. Based on the theoretical and empirical research undertaken, the following
serve as recommendations to promote the effective implementation of the medium and
long term priorities of the Local Government Turnaround Strategy as incorporated in the
Integrated Development Plan (IDP) as well as to promote effective public participation
and good governance in the Mangaung Metropolitan Municipality:
? Although the study showed that Mangaung Metropolitan Municipality has a set of
well planned and well structured strategies to ensure that the medium and long-
term priorities of the Local Government Strategy (LGTAS) as incorporated in its
Integrated Development Plan Review of 2013/2014 it is clear that more needs to
be done to ensure the effective implementation of these strategies.
? Although the study showed that Mangaung Metropolitan Municipality has a well
planned and well structured community engagement strategy that is
incorporated in its Integrated Development Plan Review of 2013/2014 these
strategies need to be effectively implemented to promote effective public
participation in the region.
? Although the Mangaung Metropolitan Municipality places a strong emphasis on
good governance as reflected in its Integrated Development Review (IDP) of
2013/2014, a concern is that the Auditors Auditor General Report on the Audit
217
Outcomes of Local Government in the Free State, 2011/2012, clearly indicated
that more needs to be done to promote good governance in the Mangaung
Metropolitan Municipality.
? A holistic and more extensive training programme must be developed and
undertaken by Ward Committee Councillors and Ward Committee members and
other relevant municipal officials involved in the implementation of the Integrated
Development Plan (IDP);
? The municipality must draw up clear and understandable guiding documents and
processes to enable the Ward Committee representatives to clearly understand
their responsibilities as well as the procedures and channels to follow to
strengthen public participation within the Mangaung Metropolitan Municipality.
? Although the Local Government Turnaround Strategy (LGTAS) was successfully
incorporated in the Mangaung Metropolitan Municipality?s Integrated
Development Plan (IDP) Review of 2013/2014, more needs to be done to ensure
that the medium and long- term priorities will still be implemented effectively to
promote good governance, and effective service delivery in the Metropolitan.
? Although the Mangaung Metropolitan Muncipality has strategies in place as
indicated in its Integrated Development Plan (IDP) Review of 2013/2014 more
needs to be done to ensure the effective implementation of these strategies to
ensure that the Metropolitan becomes a financially viable and well-managed
Metropolitan Municipality.
? Although the Mangaung Metropolitan Municipality has clear public participation
strategies and numerous engagement activities with communities during the
different phases of the Integrated Development Planning and Review process,
more needs to be done to ensure that the communities are effectively
represented during these public participation consultation activities to ensure that
the needs of the communities are addressed.
? The Mangaung Metropolitan Municipality should include the amount of
community members who were present during the public participation
consultation sessions and not only indicates the type of participation, the date
and the venue. In this manner the Mangaung Metropolitan Municipality will
218
ensure that the communities are effectively represented and consulted during the
different phases of the Integrated Development Planning (IDP) and Review
processes.
? Ward Committee Councillors must be engaged in the top decision-making
structures, of the Mangaung Metropolitan Municipality and not only during the
implementation phases.
? Feedback should play a vital role in improving service delivery and the standard
of living of communities as the municipality will learn from their mistakes and
redress the imbalances and the gaps.
5.7 CONCLUSION
This chapter focuses on the summary of the entire study and summarised the
findings made in the earlier chapters based on the research questions and
objectives. Based on the findings, conclusions were drawn, and recommendations
were made.
The study attempted to determine the impact of the Local Government Strategy
(LGTAS) on public participation and good governance with respect to the Integrated
Development Planning (IDP) process within and by the Mangaung Metropolitan
Municipality.
The dissertation was completed in the hope that the findings recorded here and the
recommendations will be useful to the Mangaung Metropolitan Municipality.
219
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231
ANNEXURE A - LETTER OF CONSENT
23 July 2012
To: Dr Henk Boshoff
Director Corporate Services, Mangaung Metropolitan Municipality
From: Ms Patricia Mathane
M Tech Public Management student
Research Study : The impact of the Local Government Turnaround Strategy on public
participation and good governance with regard to the Integrated Development Planning process:
The case of Mangaung Metropolitan Municipality
The telephonically discussion with Dr Henk Boshoff who granted permission telephonically to conduct the
research interviews with respondents from the Mangaung Metropolitan Municipality refers to. I Ms LP
Mathane M Tech Public Management student with student number 205059392, confirm hereby that I will
make every effort to safeguard the confidentiality of the following respondents with who I will conduct
interview:
? The Community Participation and IDP manager of Mangaung Metropolitan Municipality.
? The manager Rural Development and LED of Mangaung Metropolitan Municipality.
? Ten ward committee members.
Kind Regards
Ms LP Mathane
Central University of Technology, Free State (CUT)
232
ANNEXURE B - RESEARCH QUESTIONNAIRE
Respondent number
QUESTIONNAIRE STRUCTURED INTERVIEWS
EXPERIENCES AND PERCEPTIONS OF WARD COUNCILLOR?S AND OFFICIALS OF THE
MANGAUNG METROPOLITAN MUNICIPALITY ABOUT THE IMPACT OF THE LOCAL
GOVERNMENT TURNAROUND STRATEGY ON PUBLIC PARTICIPATION AND GOOD
GOVERNANCE WITH RESPECT TO INTEGRATED DEVELOPMENT PLANNING (IDP) :
Purpose of the survey:
The purpose of the survey is to determine the impact of the Local Government Turnaround Strategy on
public participation and good governance with respect to the Integrated Development Planning (IDP)
process in Mangaung Metropolitan Municipality.
Note to the respondent
? I would appreciate your willingness to assist in this research project; please take note that you are
not compelled to partake in this survey.
? Your contributions to the interview will remain private and confidential and no one will be able to
trace your responses back to you as an individual.
? Your permission to use these responses is required for the purpose of this master study.
How the survey should be completed:
? The researcher is only interested in your opinion regarding community participation.
? Read each question carefully.
? Please use a pen to mark your responses by placing a cross, in the appropriate box is write your
comments in the appropriate lines.
? If you are unable (illiterate) to complete the questionnaire the researcher will assist you by placing
a cross in an appropriate column on your behalf.
Thank you for your participation.
233
SECTION A
Biological Information
Please mark with an X
1. What is your Gender?
Female Male
2. How old are you?
3. What is your official designation?
Official
Ward Committee Member Other
4. Which ward are you representing?
……………………………
5. What is your highest level of education?
Illiterate
Primary
Secondary
Tertiary
6. How long have you lived in Mangaung Metropolitan Municipality Area?
1-10 years
Over 10 years
234
SECTION B
Local Government Turnaround Strategy
Good Governance
Integrated Development Planning
This section consist of question that seek to collect information about the impact of Local Government
turnaround strategy on public participation, good governance and the Integrated development Planning.
Category 1. The Municipal Turnaround Strategy
1.1. What is your understanding of the Municipal Turnaround Strategy that was introduced at the end of
2009?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………………………………………………….
1.2 What is the main aim of the Municipal Turnaround Strategy?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
1.3 Have you taken part in the implementation process of the Municipal Turn Around strategy process in
the former Mangaung Local Municipality?
Yes
No
1.4 What was your personal involvement in the Municipal Turnaround Strategy process in former
Mangaung Local Municipality?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………
235
1.5 One of the strategic objectives of the Municipal Turnaround strategy is to strengthen the partnership
between communities, civil society and the local government. Were the different ward community
members informed about the Municipal Turnaround Strategy of the former Mangaung Local Municipality?
Yes
No
1.5.1 If YES in 1.5 above, HOW were they informed?
Face to face
By a messenger
Telephone conversation
SMS or text message
E-mail
Other
If OTHER, please specify:…………………………………………………………………………………
1.6 Was there any improvement in the Mangaung Metropolitan Municipalities performance since the
introduction of the Municipal Turnaround Strategy to meet the basic service delivery needs of their
communities?
1.6.1 If Yes please provide at least three important improvements made.
1.7 Were there any improvements in the Manguang Metropolitan Municipality performance to obtain a
clean audit report since the introduction of the Municipal Turnaround Strategy?
Yes
No
Yes
No
236
1.7.1 If Yes or No please provide reasons for your answer.
.……………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………
1.8 In your opinion has the Mangaung Metropolitan Municipality successfully achieved a responsive and
accountable system of local government?
1.8.1 If Yes or No please provide reasons for your answer.
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………
Category 2: IDP process and development projects
2.1 In your opinion does communities benefit from participating in the IDP process?
2.1.1 If Yes or No please provide reasons for your answer.
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………
2.2 Indicate which of the following you have attended and state how often you have attended.
Type of meetings Every time Once in a while Never
Ward Councilor Meetings
Ward Committee Meetings
Branch Manager Meetings
Municipal Manager Meetings
Mayor Meetings
IDP Steering Committee
IDP Forum Meetings
Community ward meetings
Other
Yes
No
Yes
No
237
…………………………………………………………………………………………………………………………
……………………………………………………………………………………………………………………….
2.4 Which of the following mechanisms does the Mangaung Metropolitan Municipality use to engage the
community in the IDP process: (Mark each by means of an X)
Mechanisms Monthly Sometimes used Never used
Ward committee meetings
Road Shows
Work group discussions
Public invitations to access the IDP at a central place
such as a community centre or a public library
Other mechanisms
2.5 How would you describe the extent of public participation of ward community members over the last
five years concerning the IDP process? Please mark with an X.
Very good
Average
Poor
2.5.1 Please provide a reason for your answer in 2.5 above?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
2.6 Are you aware of the projected projects listed in the Mangaung Metropolitan Municipality?
Yes
No
Not sure
2.7 Have you ever received any feedback after the Mangaung Metropolitan Municipality engage with the
community
Yes
No
Not sure
2.7.1 If YES, please provide an example:
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
238
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………………………………………
2.8 Please indicate the degree of agreement or disagreement with the following statements concerning
how public participation may be practices during the IDP process.
Nr Statements
Strongly
Agree
Agree
Neither
Agree
Nor
Disagree
Disagree
Strongly
Disagree
2.8.1 The ward community committees are
very effective in articulating the interest
of the community
2.8.2 The community members received
feedback on how their inputs affected
decisions made by the Mangaung
Metropolitan Municipality
2.8.3 Only a few selected members of the
community participate in the process
2.8.4 Public participation in the IDP process is
meaningful
2.8.5 The IDP aims to respond to local
communities needs
2.8.6 The community is given a change to
identify and prioritise the projects which
should be implemented
2.8.7 The IDP is instrumental in implementing
the projects that were prioritized by the
community through public participation.
2.8.8 The involvement of the community in the
IDP process should take place during
the implementation process
2.8.9 Effective public participation can boost
rural development in the Manguang
Metropolitan Municipality Area
2.9 Are there systems in place in the Mangaung Metropolitan Municipality to measure public
participation?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
239
2.10. What are the main challenges that prevent public participation of community members into the IDP
process and developmental projects?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………
2.11 What should be done to improve public participation in the IDP process?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
Category 3: Good Governance
3.1 Please indicate the degree of agreement or disagreement with the following statements
concerning how public participation and good governance in the Mangaung Metropolitan municipality.
Nr Statements
1
Strongly
agree
2 Agree
3 neither
agree nor
disagree
4Disagree
5
Strongly
disagree
3.1.1 The Municipal Turnaround Strategy
contributed to a
responsive local government through
public participation
3.1.2 The Municipal Turnaround Strategy
contributed to accountable local
government through public
participation
3.1.3 Public participation in the IDP process
in the Mangaung Metropolitan
Municipality promotes transparency
3.1.4 Public participation increases public
awareness of the Municipal Turn
Around strategy and the IDP process
3.1.5 Public participation in the IDP process
ensures that the Mangaung
Metropolitan Municipality uses scares
resources efficiently and effectively
Thank you very much for taking part in this survey.
doc_750937931.pdf
The impact of the local government turnaround strategy on public participation and good governance with regard to the integrated development planning process the case of mangaung metropolitan municipality.
THE IMPACT OF THE LOCAL GOVERNMENT TURNAROUND
STRATEGY ON PUBLIC PARTICIPATION AND GOOD
GOVERNANCE WITH REGARD TO THE INTEGRATED
DEVELOPMENT PLANNING PROCESS: THE CASE OF
MANGAUNG METROPOLITAN MUNICIPALITY
LETSHEGO PATRICIA MATHANE
Dissertation submitted in partial fulfillment of requirements for the
MAGISTER TECHNOLOGIA:
PUBLIC MANAGEMENT
Department of Government Management
Faculty of Management Sciences
Central University of Technology, Free State
Supervisor: Prof T Van Niekerk
2013
1
DECLARATION OF INDEPENDENT WORK
DECLARATION WITH REGARD TO
INDEPENDENT WORK
I,LETSHEGO PATRICIA MATHANE, identity number and student number
205059392, do hereby declare that this research project submitted to the Central
University of Technology, Free State for the Degree MAGISTER TECHNOLOGIAE:
PUBLIC MANAGEMENT, is my own independent work; and complies with the Code of
Academic Integrity, as well as other relevant policies, procedures, rules and regulations of
the Central University of Technology, Free State; and has not been submitted before to
any institution by myself of any other person in fulfilment (or partial fulfilment) of the
requirements for the attainment of any qualification.
______________________________ 27/11/2013
SIGNATURE OF STUDENT DATE
2
ABSTRACT
During 2009 the State of Local Government in South Africa 2009 Report, (2009:71-75)
showed that much of local government is in distress and it also showed that much of the
local government municipalities faced serious challenges such as the lack of service
delivery, poor financial management and weak integration between the Integrated
Development Plan (IDP) and the Local Economic Development (LED). To improve the
performance of the municipalities, the national government approved a comprehensive
Local Government Turnaround Strategy (LGTAS) that serves as a country-wide
intervention with the aim to address the communities? increasing dissatisfaction with
poor municipal services, as well as to improve the administrative and financial
performance of all municipalities.
The purpose of the study was to investigate the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance with respect
to the Integrated Development Planning (IDP) process in the Mangaung Metropolitan
Municipality. It was found during the literature review that although the Local
Government Turnaround Strategy (LGTAS) was successfully incorporated in the
Mangaung Metropolitan Municipality Integrated Development Plan Review of
2013/2014, more needs to be done to ensure that the medium-term priorities are
effectively implemented to promote good governance, and effective service delivery of
Mangaung Metropolitan Municipality. The study found that although the Mangaung
Metropolitan Municipality has a well-planned and well-structured community
engagement strategy to promote effective public participation, more needs to be done to
ensure that the communities are effectively represented during the various public
participation consultation activities to ensure that the needs of the majority of the
communities are addressed. The study also found that the Mangaung Metropolitan
Municipality has well-defined strategies to promote good governance in its Integrated
Development Plan (IDP), the effective implementation remains a challenge.
3
ACKNOWLEDGEMENTS
I wish to express my sincere appreciation and gratitude to the following individuals for
their assistance and encouragement in the development and completion of this study:
? My Supervisor, Professor Tryna Van Niekerk for her positive guidance, support
and availability throughout the study period.
? My precious Son, Thuto, my mother Puseletso Molehe, my grandmother,
Kenalemang, brothers Kamogelo and Itumeleng Choaro and sister Reokedicoe
for their support, patience and encouragement throughout.
? Statistician Maryn Viljoen for analyzing the data from the research.
? The Mangaung Metropolitan Municipality Ward Committee Members for their
time and effort in responding to the questionnaires, and all staff members who
assisted with the pilot study.
4
LIST OF ABBREVIATIONS
AGSA: Auditor General South Africa
COGTA: Cooperative Governance and Traditional Affairs
DBSA: Development Bank of Southern Africa
DFA: Development Facilitation Act
DEAT: Department of Environmental Affairs and Tourism
DWA: Department of Water Affairs
EPWP: Expanded Public Works Programme
GEAR: Growth Employment and Redistribution Strategy
IGFRA: Inter Governmental Fiscal Relations Act
LED: Local Economic Development
LGTAS: Local Government Turnaround Strategy
LGMS: Local Government Municipal Systems Act
LUMB: Land Use Management Act
LGSETA: Local Government Sector Education and Training Authority
MTAS: Municipal Turnaround Strategy
MTREF: Medium Term Revenue Expenditure Framework
MOU: Memorandum of Agreement
NCU: National Coordinating Unit
NSDP: National Spatial Development Perspective
PIMMS: Planning, Implementation and Management Support Systems
5
PGDS: Provincial Growth Development Strategy
RSA: Republic of South Africa
RDP: Reconstruction and Development Plan
SALGA: South African Local Government Authority
SETA: Sector Education Training Authority
SDF: Spatial Development Framework
SDBIP: Service Delivery and Budget Implementation Plan
WPLG: White Paper on Local Government
6
LIST OF FIGURES
Figure 1.1 Map of the Mangaung Metropolitan Municipality
Figure 4.1 Gender of the respondents
Figure 4.2 Ages of Research Participants
Figure 4.3 Official Designation
Figure 4.4 Highest level of Education
Figure 4.5 What is your understanding of the Local Government Turnaround
Strategy?
Figure 4.6 Section B, Question 1.3: “Have they taken part in the implementation of
the LGTAS in die Mangaung Metropolitan Municipality?
Figure 4.7 Personal Involvement in the Local Government Turnaround Process
Figure 4.8 “Were the ward committee members informed of the implementation of the
LGTAS in the former Mangaung Metropolitan Municipality?”
Figure 4.9 Was there any improvements in the Mangaung Metropolitan Municipality
since the introduction of Local Government Turnaround Strategy
Figure 4.10 “Were there any improvements in the Mangaung Metropolitan Municipality
in obtaining clean audit reports”
Figure 4.11 Has the Mangaung Metropolitan Municipality achieved a responsive and
accountable system of local government?
Figure 4.12 Does the community benefit from participating in the IDP Process?
Figure 4.13 Attendance of Ward councilors, IDP Steering Committee and ward
meetings
Figure 4.14 Mechanisms used by the municipality to engage with the community about
the IDP.
7
Figure 4.15 The extent of public participation of ward community members over the
last five years
Figure 4.16 Were the ward committee members aware of the projected projects of the
municipality?
Figure 4.17 Have you ever received feedback from the engagement of the municipality
with the community?
Figure 4.18 The ward community committees are very effective in articulating the
interests of the community
Figure 4.19 The community members received feedback on how their inputs affected
decisions made by the municipality
Figure 4.20 Only a few selected members of the community participate in the IDP
process
Figure 4.21 Public participation in the IDP process is meaningful
Figure 4.22 The IDP aims to respond to local communitie?s needs
Figure 4.23 The community is given a chance to identify and prioritize the projects
which should be implemented
Figure 4.24 The IDP is instrumental in implementing the projects that were prioritized
by the community through public participation
Figure 4.25 The involvement of the community in the IDP process should take place
during the implementation process
Figure 4.26 Effective public participation can boost rural development in the
Mangaung Metropolitan Municipality area
8
Figure 4.27 Are there any systems in place in the Mangaung Metropolitan Municipality
to measure the performance of public participation?
9
LIST OF TABLES
Table 1.1 Mangaung Population 2001-2011
Table 2.1 Roles and Functions with the Municipal budgeting and IDP Process
Table 3.1 Different participation approaches or models of Abbot (1996)
Table 3.2 Different participation approaches or models
Table 4.1 Wards represented by the respondents
Table 4.2 Total years lived in Mangaung Metropolitan Municipality
Table 4.3 What is the main aim of the Local Government Turnaround Strategy
(LGTAS)?
Table 4.4 The following improvements were made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround
Strategy
Table 4.5 Provide reasons why you indicated that there were not any improvements
in the Mangaung Metropolitan Municipality in obtaining a clean audit report
Table 4.6 Reasons why the respondents were of the opinion that the Mangaung
Metropolitan Municipality successfully achieved a responsive and
accountable system of Local Government
Table 4.7 Reasons why the respondents were of the opinion that communities
benefited from the IDP process
Table 4.8 What are the main challenges that prevent public participation of
community members in the IDP process and developmental projects?
Table 4.9 What should be done to improve public participation in the IDP process?
Table 4.10 The degree of agreement or disagreement with the level of good
governance
10
TABLE OF CONTENTS
CHAPTER ONE:
RESEARCH BACKGROUND, PROBLEM STATEMENT, HYPOTHESES, METHO-
DOLOGY AND KEY CONCEPTS
1.1 INTRODUCTION 19
1.2 PROBLEM STATEMENT 22
1.3 MAIN OBJECTIVES/CO-OBJECTIVES 23
1.4 LITERATURE REVIEW 24
1.5 METHODOLOGY 26
1.6 LIMITATIONS 27
1.7 MANGAUNG METROPOLITAN MUNICIPALITY: CASE
STUDY 27
1.7.1 Profile of the Mangaung Metropolitan Municipality 28
1.7.2 Demographics 30
1.7.3 Management structure 31
1.7.4 Household Structure 32
1.7.5 Growth and Development 33
1.7.6 Human Capacity Development 34
1.7.7 Employment 34
1.7.8 Housing 34
1.7.9 Summary of the medium- term financial plan 35
11
1.7.10 Integrated Development Plan 2012-2016 and the Mangaung
Metropolitan Service Development Budget Implementation
Plan (SDBIP) 36
1.8 CHALLENGES OF MANGAUNG METROPOLITAN MUNICIPALY?S
INTEGRATED DEVELOPMENT PLAN AND BUDGETARY
PROCESS 38
1.9 LAYOUT OF PRELIMINARY CHAPTERS 40
CHAPTER TWO:
THEORETICAL OVERVIEW OF INTEGRATED DEVELOPMENT PLANNING,
LOCAL GOVERNMENT TURNAROUND STRATEGY AND THEIR
IMPLEMENTATION IN THE SOUTH AFRICAN LOCAL GOVERNMENT
SPHERE
2.1 INTRODUCTION 42
2.2 THE ORIGINS OF INTEGRATED DEVELOPMENT
PLANNING 44
2.3 IMPORTANCE OF INTEGRATED DEVELOPMENT PLANNING 47
2.4 OVERVIEW OF LOCAL GOVERNMENT TURNAROUND
STRATEGY 48
2.5 NATURE AND EXTENT OF MUNICIPAL SERVICES 51
2.6 STATUTORY AND REGULATORY FRAMEWORKS OF
INTEGRATED DEVELOPMENT PLANNING 54
12
2.6.1 Constitution of the Republic of South Africa, 1996
(Act 108 f 1996) 55
2.6.2 The Development Facilitation Act, 1995 Z(Act 67 of 1995)
Act 67 of 1995 56
2.6.3 Land Use Management Bill 2007 56
2.6.4 The Local Government Transition Second Amendment
Act , 1996 (Act 97 of 1996) 56
2.6.5 Inter Governmental Fiscal Relations Act, 1997 (Act 57 of 1997) 57
2.6.6 The White Paper on Local Government, 1998 57
2.6.7 Local Government: Municipal Systems Act, 2000 (Act 32 of 2000) 58
2.6.8 Intergovernmental Relations Framework 2005
(Act, 13 of 2005) 60
2.6.9 Municipal Finance Management (MFMA), 2003
(Act 56 of 2003) 60
2.6.10 Traditional Leadership and Governance Framework
Amendment Act, 2003 (Act 41 of 2003) 61
2.6.11 Local Government Turnaround Strategy, (LGTAS), 2009 62
2.6.12 National Framework for Local Economic Development
(LED), 2006 62
2.6.13 Medium Term Expenditure Framework (MTEF) 62
2.6.14 Integrated Development Planning Guide Packs 63
13
2.6.15 Division of Revenue Act and Provincial Division of Revenue Act 64
2.6.16 Other national and provincial development planning policies and
framework 64
2.7 LIMITATIONS OF INTEGRATED DEVELOPMENT PLANNING 67
2.8 COMPONENTS OF INTEGRATED DEVELOPMENT PLANNING
PROCESS 69
2.8.1 Phase 1: Situation Analysis Phase 70
2.8.2 Phase 2: Strategies Phase 71
2.8.3 Phase 3: Project Phase 72
2.8.4 Phase 4: Integration Phase 73
2.8.5 Phase 5: Approval Phase 73
2.9 INTEGRATED DEVELOPMENT PLANS (IDP) AND MUNICIPAL
BUDGETS 74
2.10 IMPLEMENTATIONS OF THE MUNICIPAL BUDGET AND
THE INTEGRATED DEVELOPMENT PLAN THROUGH THE
SERVICE DELIVERY AND BUDGET IMPLEMENTATION
PLAN (SDBIP) 81
2.11 IMPLEMENTATION OF LOCAL GOVERNMENT TURNAROUND
STRATEGY 82
2.11.1 Immediate priorities prior to the 2011 elections 83
2.11.2 Medium-term of post-election 2011 to 2014 priorities 84
2.11.3 Institutional arrangements for the implementation of the Local
Government Turnaround Strategy (LGTAS) 85
14
2.11.4 Success factors for the implementation of the LGSTAS 85
2.12 ROLE OF INTERGOVERNMENTAL RELATIONS 86
2.13 THE ROLE OF LOCAL ECONOMIC DEVELOPMENT 88
2.14 ROLE OF PERFORMANCE MANAGEMENT 90
2.15 ANNUAL INTEGRATED DEVELOPMENT PLANNING
REVIEW PROCESS 92
2.16 CONCLUSION 94
CHAPTER THREE:
PUBLIC PARTICIPATION, INTEGRATED DEVELOPMENT PLANNING AND GOOD
GOVERNANCE: A CONCEPTUAL PRACTICAL INTERFACE
3.1 INTRODUCTION 96
3.2 DEFINING AND CONCEPTUALIZING KEY PUBLIC PARTICI-
PATION CONCEPTS 98
3.2.1 The term participation 99
3.2.2 The terms community participation, public participation and citizen
participation 102
3.3 LEGISLATIVE AND POLICY FRAMEWORK FOR PARTICI-
PATORY GOVERNANCE 104
3.3.1 Constitution of the Republic of South Africa, 1996
(Act 108 of 1996) 104
3.3.2 White Paper on Local Government, 1998 105
3.3.3 Local Government Municipal Structures Act, 1998 (As amended
15
in 2000 and 2003) 106
3.3.4 Local Government Municipal Systems Act, 2000
(Act 32 of 2000) 107
3.3.5 Municipal Finance Management Act, 2003 (Act 56 of 2003) 109
3.3.6 Local Government Municipal Property Rates Act, 2004
(Act 6 of 2004) (Amended in 2009) 110
3.3.7 National Policy Framework for Public Participation, 2007 111
3.3.8 Local Government Turnaround Strategy, 2009 and Public
Participation 112
3.3.9 South African National Development Plan, 2030 113
3.4 AN OVERVIEW OF THE DIFFERENT APPROACHES, BUILDING
BLOCKS AND MODES OF PUBLIC PARTICIPATION IN
LOCAL GOVERNMENT 115
3.4.1 Public participation and the building blocks of development 117
3.4.2 Distinction of public participation as a means and or an end 119
3.4.3 Distinction between public participation as involvement and
public participation as empowerment 121
3.4.4 Modes of Public Participation 121
3.4.5 Benefits of public participation 124
3.5 PUBLIC PARTICIPATION STRATEGIES 125
3.6 PUBLIC PARTICIPATION IN LOCAL GOVERNMENT?S
16
INTEGRATED DEVELOPMENT PLANNING 128
3.6.1 Phase 1: The situation Analysis phase 130
3.6.2 Phase 2: Strategies to define local vision and objectives phase 131
3.6.3 Phase 3: The project phase 132
3.6.4 Phase 4: The integration phase 132
3.6.5 Phase 5: Approval of the Municipality?s Integrated Development
Plan (IDP) 133
3.7 CURRENT CHALLENGES OF PUBLIC PARTICIPATION IN THE
SOUTH AFRICAN LOCAL GOVERNMENT 134
3.8 COMMUNITY PARTICIPATION IN THE CASE OF MANGAUNG
METROPOLITAN MUNICIPALITY 137
3.9 GOOD GOVERNANCE 141
3.10 CONCLUSION 145
CHAPTER FOUR:
RESEARCH METHODOLOGY
4.1 INTRODUCTION 148
4.2 STUDY DESIGN AND DATA COLLECTION TECHNIQUES 150
4.2.1 Literature Review 151
4.2.2 Structured Interviews 152
4.2.3 Questionnaire 152
17
4.3 STUDY POPULATION AND SAMPLING PROCEDURES 153
4.3.1 Population and sample size 153
4.4 ENSURING VALIDITY AND RELIABILITY 154
4.5 ETHICAL CONSIDERATIONS 155
4.6 STATISTICAL TECHNIQUES 156
4.7 DATA ANALYSIS AND PRESENTATION OF DATA 156
4.8 FINDINGS AND RESULTS FROM SECTION A OF THE
QUESTIONNAIRE: BIOGRAPHICAL INFORMATION OF
WARD COMMITTEE MEMBERS OF THE MANGAUNG
METROPOLITAN MUNICIPALITY 157
4.9 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 1.
LOCAL GOVERNMENT TURNAROUND STRATEGY 162
4.10 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 2
INTEGRATED DEVELOPMENT PROCESSES AND
DEVELOPMENT PROJECTS 170
4.11 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 3
GOOD GOVERNANCE 172
4.12 SUMMARY 175
18
CHAPTER 5:
THE IMPACT OF LOCAL GOVERNMENT TURNAROUND STRATEGY ON
PUBLIC PARTICIPATION AND GOOD GOVERNANCE WITH RESPECT TO
INTEGRATED DEVELOPMENT PLANNING WITHIN THE MANGAUNG
METROPOLITAN MUNICIPALITY: OVERVIEW OF CHAPTERS,
RECOMMENDATIONS AND CONCLUDING REMARKS
5.1 INTRODUCTION 200
5.2 SUMMARY OF CHAPTERS 200
5.3 RESEARCH OBJECTIVES 202
5.3.1 Objective 1. To investigate through the extensive literature and
policies, the requirements, purpose, principles, objectives, and
components of the IDP and LGTAS 203
5.3.2 To investigate through the extensive literature and policies the
requirements, components and linkages of public participation
and good governance in the IDP process 204
5.3.3 To explore policies, systems, structures and approaches on the
implementation of LGTAS with respect to public participation and
good governance in the IDP process within the Mangaung Metro-
Politan Municipality 204
5.3.4 To determine through an evaluation of the annual review reports of the
2010 and 2011 as well as through structured interviews the impact of
LGTAS on public participation and good governance in the IDP process 205
5.3.5 Making recommendations based on the research findings in order
19
to improve public participation and good governance of the IDP in the
Mangaung Metropolitan Municipality 205
5.4 CENTRAL THEORETICAL STATEMENTS 205
5.5 SUMMARY OF THE EMPERICAL FINDINGS 212
5.6 RECOMMENDATIONS 214
5.7 CONCLUSION 216
Bibliography
Annexure A - Letter of Consent
Annexure B – Research questionnaire
20
CHAPTER ONE
RESEARCH BACKGROUND, PROBLEM STATEMENT, HYPOTHESIS,
METHODOLOGY AND KEY CONCEPTS
1.1 INTRODUCTION
Local government is a key role player in the transformation and development process in
South Africa. Since 1996 the government introduced a variety of policy directions to
ensure that local government would play a meaningful role in the development and
welfare of its citizens, such as Integrated Development Planning (hereinafter referred to
as the IDP), Local Economic Development (LED) and lately the Local Government
Turnaround Strategy (hereinafter referred to as LGTAS) that was approved by the
Cabinet in December 2009.
Section 25 of the Local Government Municipal Systems, Act 2000 (Act 32 of 2000),
(hereinafter referred to as the Municipal Systems Act, 2000) provides that all
municipalities must adopt a single, inclusive strategic plan for the development of its
area of responsibility. Integrated Development Planning (IDP) has been introduced in
1996 to ensure the sustainable provision of services, to promote social and economic
development, to promote a safe and healthy environment, to give priority to the basic
needs of communities and to encourage community participation.
The Integrated Development Planning (IDP) process refers to a process through which
municipalities prepare a strategic development plan for a five year period. Therefore, in
terms of the Municipal Systems Act 2000, all municipalities have to compile an annual
Integrated Development Plan (IDP). This plan is the principal strategic planning tool that
guides and informs all management, planning, decision-making and actions on which
annual budgets are based on in a municipality. The Integrated Development Plan (IDP)
document contains the municipal councils? development priorities, strategies, objectives,
performance indicators and a financial plans.
21
The Municipal Systems Act, 2000 also emphasises public participation when stating that
“a municipality must develop a culture of municipal governance that complements
formal representative government with a system of participatory governance.” Public
participation in the Integrated Development Planning process serves to fulfill four major
functions, namely: to take community needs and problems into account; to use the
knowledge and experience of local communities in order to arrive at appropriate and
sustainable solutions for problems and measures for problems; to encourage
cooperation and partnerships between municipal government and residents for the
Integrated Development Plans implementation and maintenance; and to ensure that it is
a public event and a forum for negotiating conflicting interests in order to create a basis
for increased transparency and accountability of local government towards local
residents (DPSA, IDP Guide Pack, I, 2000:38).
A useful starting point towards defining good governance is provided by the King?s
report on Cooperating Governance as mentioned by Edwards, (2008:48-49) that sets
out seven primary characteristics of good governance namely, discipline and
commitment by the senior management to promote sound ethical behaviour;
transparency, avoidance of conflict of interest, accountability, responsibility, fairness
and social responsibility. In the light of the above good governance in this dissertation
refers to the following as cited by the Edwards, (2008:49) namely:
? Accountability is the key requirement of good governance that requires that
public institutions must be able to account for their actions to the public.
? Responsiveness entails that public institutions and processes must be
responsive to the needs of the public.
? Effectiveness and efficiency entails that public institutions have to produce results
that meet the needs of the society while making the best use of available
resources.
? Transparency requires that information must be freely available and directly
accessible to those who will be affected by the decisions and the enforcement
thereof.
22
? Public participation as a key cornerstone of good governance requires
participation of the public in government affairs that will affect them.
Despite significant improvements in service delivery by local government in South Africa
since 1994, most municipalities face a widening gap between the demand and supply of
services. Municipalities across South Africa rapidly gained a reputation for inefficiency,
corruption and incompetence. The recent incidents of unrest at the local sphere of
government raise questions about the municipalities? ability, to provide effective services
and good governance (State of Local Government in South Africa Report, 2009:4-5).
To improve the performance in municipalities the national government therefore
approved the Local Government Turnaround Strategy (LGTAS) at the end of 2009. The
twin over-arching aim of LGTAS, and the policy direction as an overall intervention, is
firstly to restore the confidence of the public in municipalities as the primary deliverer
sphere. Secondly, it aims to re-build and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government (Department of Co-operative Governance and Traditional Affairs (CoGTA),
2010:3). The Local Government Turnaround Strategy (LGTAS) is based on five
strategic objectives to ensure that local governments will play a meaningful role as
envisaged in the Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
(hereinafter referred to as the Constitution, 1996).
The former Mangaung Local Municipality was established in 2000 with the
amalgamation of four former transitional councils. However, the Mangaung Metropolitan
Municipality, a category A municipality was established directly after the April 2011
municipal elections. In terms of the Municipal Structures Act, 1998 (Act 117 of 1998)
(hereinafter referred to as Municipal Structures Act, 1998) a category A municipality
comprises the areas of jurisdiction of multiple local governments that are densely
populated and have an intense movement of people, goods and services, that are
extensively developed or urbanised and that have more than one central business
district, industrial area and concentration of employment within the area. This study
aims to explore the impact of the Local Government Turnaround Strategy (LGTAS) with
23
respect to public participation and good governance as part of the Integrated
Development Planning (IDP) process by the newly established Mangaung Metropolitan
Municipality in its geographical demarcated responsibility area.
1.2 PROBLEM STATEMENT
The State of Local Government in South Africa Report, (2009:37-38) showed that there
are serious challenges with the implementation of the Integrated Development Plans
(IDP) in most municipalities. The report further indicated that the Integrated
Development Planning process?s (IDP?s) credibility does not necessarily mean effective
implementation and that in some municipalities the service delivery challenges becomes
overwhelming. Another concern raised by the State of Local Government in South
Africa Report, (2009:37-38) holds that accountability of municipalities to communities
concerning the implementation of the Integrated Development Plan (IDP) remains a
challenge. Another challenge is the minimum participation of councilors in the Integrated
Development Planning (IDP) process. As a result of these and other challenges stated
in the State of Local Government in South Africa Report, (2009:12) one could argue that
the majority of the municipalities faced difficult circumstances concerning the successful
implementation of their Integrated Development Planning process. The research
problem therefore revolves around the impact of the Local Government Turnaround
Strategy (LGTAS) on public participation and good governance with respect to the
Integrated Development Planning (IDP) process of the Mangaung Metropolitan
Municipality.
The research questions are as follows:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
24
? What are the key requirements, purposes, objectives, and components of
public participation and good governance linked to Integrated
Development Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?
1.3 MAIN OBJECTIVES/CO-OBJECTIVES
In the light of the above, the main aim of this study is to investigate the impact of the
Local Government Turnaround Strategy (LGTAS) on public participation and good
governance with respect to the Integrated Development Planning (IDP) process in the
Mangaung Metropolitan Municipality. Emerging from the above aim, the study has the
following primary objectives:
? To investigate through the extensive literature and policies, the requirements,
purpose, principles, objectives, and components of the Integrated
Development Plan (IDP) and Local Government Turnaround Strategy
(LGTAS).
25
? To investigate through extensive literature and policies the requirements,
purpose, objectives, components and linkages of public participation and
good governance of the Integrated Development Planning (IDP) process.
? To explore policies, systems, structures, approaches and operations on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan
Municipality.
? To determine through an evaluation of the latest annual review reports as well
as through structured interviews the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance.
? To make recommendations based on research findings in order to improve
public participation and good governance of the Integrated Development Plan
(IDP) in the Mangaung Metropolitan Municipality.
1.4 LITERATURE REVIEW
Since 1994, Local Government has been responsible for social and economic
development, sustainable service delivery and the infrastructure of communities. The
Constitution of the Republic of South Africa, 1996 and other conclusive acts also
demands local government to ensure sustainable provision of basic public services, to
promote social and economic development, to promote a safe and healthy environment,
to give priority to the basic needs of communities and to encourage community
participation. In order to fulfill this developmental role the Integrated Development Plan
(IDP) was introduced in 1996 as a strategic planning framework to promote
sustainability.
The Integrated Development Plan (IDP) refers to a process through which municipalities
prepare a strategic development plan for a five year period. Therefore, in terms of the
Municipal Systems Act, 2000 all municipalities have to compile an annual Integrated
Development Plan. This plan is the principal strategic planning tool that guides and
26
informs management, planning, decision-making and actions on which annual
implementation and management support systems have been put in place by the former
Department of Provincial and Local Government to support the Integrated Development
Planning (IDP) process. It includes a training programme based on a set of guidelines,
Integrated Development Planning (IDP) funding, the establishment of implementation
and management support systems (PIMMS) in most districts, as well as an Integrated
Development Plan (IDP) task team and provincial support programme (State of Local
Government Report, 2009:4-5).
However, it is only since 2002 that municipalities completed an integrated development
plan for a five-year period as compelled by the Municipal Systems Act, 2000. An
assessment of the Integrated Development Planning (IDP) process was conducted by
the former Department of Provincial and Local Government during 2006. The report
indicated that around 90% of Integrated Development Plans (IDP?s) were submitted and
adopted by municipalities. It was also found that although the preparation of the
Integrated Development Plan (IDP) is often inadequate, the involvement of some
councilors and senior officials in the local government arena were high. The fact that
most municipalities set up Integrated Development Plans (IDPs) and representative
forums to facilitate community and role players? participation in this process, was also
highlighted in the report (Van Niekerk, 2012:57-58).
The State of Local Government in South Africa 2009 Report, (2009:71-75) showed that
much of the local government sphere is in distress. The report further showed that much
of the local government municipalities faced challenges such as huge service delivery
and backlog challenges, weak integrative focus between Integrated Development Plans
(IDP?s) and Local Economic Development (LED); increasing backlogs, poor financial
management, poor audit outcomes and credible budgets, poor communication and
accountability relationships with communities, political administrative interface,
corruption and fraud, a number of violent service delivery protests and insufficient
municipal capacity due to a lack of scarce skills. To improve the performance in
municipalities, the national government approved a comprehensive LGTAS at the end
27
of 2009. Since the end of 2009 all municipalities have to consolidate their Integrated
Development Plan (IDP) and budgets with the priorities of the Local Government
Turnaround Strategy (LGTAS). The implications are that all municipalities (Metropolitan,
District and Local Municipalities) must incorporate their own tailor-made Municipal
Turnaround Strategy (MTAS) into their Integrated Development Plan (IDP), as well as
into their budgeting, monitoring, evaluation and reporting process (Van Niekerk,
2012:55). The above Local Turnaround Strategy (LGTAS) and Integrated Development
Plan (IDP) process meant a significant step towards institutional transformation within
the sphere of local government.
The former Mangaung Local Municipality Municipality developed its own Municipal
Turnaround Strategy (MTAS) during 2010 that has been prepared against the
background of the Local Government Turnaround Strategy (LGTAS) approved by
Cabinet in December 2009. After the 2010 elections the newly established Mangaung
Metropolitan Municipality Municipal Turnaround Strategy (MTAS) focused on the
rebuilding and enhancing of basic service delivery, in order to ensure good governance
and public involvement by improving the efficiency and effectiveness of operations, to
return the municipality to financial stability, and to ensure that local economic
development as well as the development and refinement of a spatial development
framework (Mangaung Metropolitan Municipality Turnaround Strategy, 2011:1-3).
1.5 METHODOLOGY
This study followed a two-pronged approach, namely a literature study and a
questionnaire used during structured interviews. The literature study was based on a
qualitative study, which included literature, legislation, policy documents, journal
articles, books, conference papers, the Internet, government reports, IDP plans and
annual review reports. The population of this study consisted of the following with whom
structured interviews were conducted, namely:
28
? The community participation and IDP Acting Director of Mangaung Metropolitan
Municipality; and
? 15 (fifteen) ward committee members.
The probability random sampling method was used to select ten of the forty five(45)
ward committee members that took part in the structured interviews. Leedy, (1989:154)
is of the opinion that randomisation means selecting a sample from the whole
population in such a way that the characteristics of each of the units of the sample
approximates the characteristics of the total population. The reason for the use of the
above sampling method was to gather more accurate information than what might have
been obtained if one had studied the entire population (Brynard & Hanekom, 2006:43).
A questionnaire was developed using a closed and open-ended questioning methods as
to elicit information. A pilot study was conducted with the Integrated Development Plan
(IDP) Acting Director of the Department of Cooperation and Traditional Affairs of the
Free State Provincial Government to test the quality of the material to use and the
appropriateness of the research interview questionnaire.
1.6 LIMITATIONS
The study contains certain limiting conditions, namely:
? External factors that may have an influence on the study, such as the
commitment and willingness of participants to participate in the structured
interviews.
1.7 MANGAUNG METROPOLITAN MUNICIPALITY: CASE STUDY
This section deals with the profile of the Mangaung Metropolitan Municipality. The
geographical orientation, a map and the demographics, management structure,
household structure, growth and development, human capacity, employment, housing,
electricity, health and wellbeing, medium term financial plan and budgeting and
29
challenges of the Mangaung Metropolitan Municipality Integrated Development Plan
(IDP) and its budgetary process are presented.
1.7.1 Profile of the Mangaung Metropolitan Municipality
This subsection deals with the profile of the Mangaung Metropolitan Municipality,
together with the municipal location.
1.7.1.1 The Mangaung Metropolitan Municipality geographical area
The former Mangaung Local Municipality (MLM) was established in 2000 as a category
B municipality, but in April 2011 the Mangaung Metropolitan Municipality (MMM) as a
category A municipality was established. The area of the Mangaung Metropolitan
Municipality covers a total of 6 863 km². The area covers 6 863 km² and comprises
three prominent urban centres, which are surrounded by an extensive rural area. The
three urban centres include Bloemfontein, Botshabelo and Thaba Nchu. The
Mangaung Metropolitan Municipal area is centrally located within the Free State
Province. The Mangaung Metropolitan area is accessible via national infrastructure
including the N1 (which links Gauteng with the Southern and Western Cape), the N6
(which links Bloemfontein to the Eastern Cape), and the N8 (which links Lesotho in the
East with the Northern Cape in the West via Bloemfontein) (Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013-2014, 2013:41).
Mangaung Metropolitan Municipality is situated in Bloemfontein which is the sixth
largest city in South Africa and the capital of the Free State Province. Bloemfontein is
the Judicial Capital of South Africa and serves as the administrative headquarters of the
Free State Province. The city represents the economic hub of the local economy. The
area is also serviced by an east/west and north/south railway line and the Bram Fischer
International Airport (Mangaung Metropolitan Municipality?s Integrated Development
Plan, Review 2013/2014, 2013:41).
30
The second urban centre includes Botshabelo which is located 55km to the east of
Bloemfontein and represents the largest single township development in the Free State
Province. Botshabelo was established in the early 1980s and was intended to provide
the much needed labour in Bloemfontein without the inconvenience of having labour at
the employers? doorstep (Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, 2013:41)
The third urban centre includes Thaba Nchu which is situated 12km further to the east
of Botshabelo and used to be part of the former Bophuthatswana “Bantustan”. As a
result it exhibits a large area of rural settlements on former trusts lands (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, 2012:41).
31
Figure 1.1 A map of the Mangaung Metropolitan Municipality?s area of
responsibility
(Source: Mangaung Metropolitan Municipal Integrated Development Plan, Review 2013-
2014, 2013:42).
1.7.2 Demographics
Mangaung?s population is growing at a faster pace. According to Stats SA in the
Mangaung Metropolitan Integrated Development Plan, Review 2013/2014, (2013:42)
there were 747 431 people residing in the jurisdiction of the Mangaung Metropolitan
Municipality area. This figure increased from 2001 to 2011. The highest increase has
been recorded among Indians or Asians, followed by Whites as indicated in Table 1.1.
32
The relative development of the city of Bloemfontein in particular as a regional hub, has
attracted a number of people hoping to improve their livelihood?s chances. Moreover,
due to it being endowed with educational facilities of high quality, Bloemfontein attracts
students across the province and the country. Many of the students end up finding
employment in the Bloemfontein area after completing their studies, thereby remaining
permanently in the Mangaung Metropolitan Municipal area in most cases. Table 1.2
below illustrates the population since 2001 until 2011.
Table 1.1 Mangaung Population, 2001-2011
Population Group 2011 2001 Increase/Decrease
(%)
Black 622 383 534,429 16%
Coloured 37 337 32,022 17%
Indian or Asian 3 204 962 23,3%
White 82 291 78,025 5%
Other 2217 0 22%
Total 747 431 645,438 16%
(Source: Stats SA in Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013-2014, 2013:43).
The above table shows that there was an increase in the total population of the
Mangaung Metropolitan Municipality since 2001 until 2011. The Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013-2014, (2013:43) further states
that the Mangaung Metropolitan Municipality should pay attention to the volume of
migration to the area. As such special attention should be paid to monitoring migration
into the metropolitan area with the aim of developing and implementing appropriate
33
intervention plans. The Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2013:41) further states that Bloemfontein attracts students
across the province and the country due to the educational facilities of high quality in the
city. Many of the students end up finding employment in the city upon completing their
studies, thereby remaining permanently in the Mangaung Metropolitan Municipal area.
1.7.3 Management structure
The Mangaung Metropolitan Municipal administration is divided into many different
directorates and sub-directorates, all of which deliver specific services. Some sub-
directorates focus on service delivery, whilst others are more concerned with internal
affairs, such as the Corporate Services. The administration of the Mangaung
Metropolitan Municipality is based on seven departments, as well as an executive
support that are vested in two Deputy Executive Directors in the Office of the Service
Delivery and Budget Implementation Plans (SDBIPs). These are required by the
Municipal Finance Management Act (MFMA), 2003 and are central to the establishment
of Mangaung Metropolitan Municipality?s performance management system (Mangaung
Metropolitan Municipality, 2013:1).
The top level of the Service Delivery and Budget Implementation Plans (SDBIPs)
includes the objectives and targets for each Directorate, relative to what should be
implemented during the year. These also incorporate parts of the Integrated
Development Plan (IDP) Programmes that are relevant to each specific Directorate, as
well as the statutory plans for which they are responsible. The Service Delivery and
Budget Implementation Plans (SDBIPs) therefore form the key mechanism for
monitoring the different responsibilities that each Directorate must fulfill.
1.7.4 Household Structure
In 2001 there were 185 013 households in the former Mangaung Local Municipality.
However during 2011 the households in the Mangaung Metropolitan Municipality have
increased to 231 921. The average household size in 2001 was 3,4% and in 2011 the
34
size has decreased to 3,2%. Although the majority of households are headed by men,
female headed households have also increased rapidly from 40,6% in 2001 to 40,8% in
2011 (Mangaung Metropolitan Municipality Integrated Development Plan 2013/2014,
2013:47).
1.7.5 Growth and Development
According to the Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, (2013:98) the economy of the Mangaung Metropolitan Municipality
continues to experience a positive growth pattern with a modest increase in job
creation. However, the economic growth of the area is not sufficient to address the
high rise in youth unemployment as well as to eradicate poverty effectively.
Bloemfontein, as the first urban centre of the Mangaung Metropolitan Municipality,
serves as the hub of economic activities in the municipal area, as well as in the Free
State Province. The Mangaung Metropolitan Municipality Integrated Development Plan
Review 2013/2014, (2013:51-53) further maintains that the area of the Mangaung
Metropolitan Municipality is the largest contributor to the Gross Value Product (GDP) of
the Free State Province. The majority of economic sectors have declined since 1996
until 2011. Examples of this economic sector decline include a decline in agriculture
from 1,55% in 1996 to 1,2% in 2011. This is followed by a decline of 0,5 % in 1996 to
0,3% in 2011 in manufacturing, and a decline in construction from 1,7% in 1996 to 1,1%
in 2011 as well as a decline in wholesale and retail trade from 2,2% in 1996 to 2,1% in
2011. The Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:98) further identified rural development as the most important
strategy to ensure food security. The emphasis and investments of the Mangaung
Metro Rural Development Implementation Plan as provided in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2013:98)
not only strengthen the fight against poverty, but it would also create employment
opportunities and rejuvenate the economies of the rural area. The human capacity
development aspects will be discussed below.
35
1.7.6 Human Capacity Development
According to the Mangaung Metropolitan Municipality?s Annual Performance Report
2011/2012, (2012:13) education is one of the key pillars of fighting the problem of
ubiquitous poverty in the Mangaung Metropolitan Municipality area. The area has
institutions that cater for all levels of education commencing from pre-school, primary
and secondary education to Further Education and Training (FET) and tertiary
institutions.
As such, Bloemfontein as the first urban centre of the Mangaung Metropolitan
Municipality is well positioned to nurture the skills of its citizens as well as those of
neighbouring municipalities (Mangaung Metropolitan Municipality?s Annual Performance
Report 2011/2012, 2012:13).
1.7.7 Employment
Bloemfontein as the administrative headquarters of the Free State Provincial
Government offers a large number of employment opportunities within the community
services sector. According to Stats SA in the Mangaung Metropolitan Municipal
Integrated Development Plan, Review 2013/2014, (2012:52) the unemployment rate
decreased from 40.1% in 2001 to 27,7% in 2011. The Mangaung Metropolitan
Municipality Integrated Development Plan, Review, 2013/2014, (2013:52) further
indicated that the youth unemployment rate was in 2001 49,1% in 2001 and it
decreased to 37,2% in 2011. However, youth unemployment is still unacceptably high
and it remains a challenge that the Mangaung Metropolitan Municipality needs to
address.
1.7.8 Housing
Bloemfontein as the first urban centre of the Mangaung Metropolitan Municipality faces
a huge housing backlog compared to other municipalities in the Free State Province.
36
More than half of the population in the Bloemfontein area resides in township areas of
the city as a result of Bloemfontein being perceived as an economic hub of the Free
State Province and people believing that there are better work prospects and better
living conditions in this region. The Mangaung Metropolitan Municipal Integrated
Development Plan, Review 2013/2014, (2013:56) indicated that there was an increase
in the provision of formal housing from 71,9% in 2001 to 84,4% in 2011. There was
also a decrease from 23,7% to 14,2% in the informal dwellings in that more formal
houses had been provided through a range of government housing programmes. The
Review Report further holds that the housing backlog in 2010 was 53,820 houses. In
cooperation with the Provincial Department of Human Settlements the Mangaung
Metropolitan Municipality?s old and dilapidated houses were demolished and replaced
with new houses in the Batho Township area as part of the urban renewal project.
Another housing project is the Brandwag project where a total of 1052 low cost rental
units are built. This will project will increase the economic integration of the area in the
sense that it is in close proximity of businesses, educational, health and recreational
facilities. The Mangaung Metropolitan Municipality Integrated Development Plan
Review 2013/2014, (2013:59) further showed that the Mangaung Metropolitan
Municipality together with the City and Housing Development Agency (HAD) aimed at
ensuring that all urban informal initiatives are properly coordinated in terms of
prioritization, development planning, resources allocation and implementation. A
summary of the medium term financial plan will be discussed below.
1.7.9 Summary of the medium term financial plan
In terms of Section 24 of the Municipal Finance Management Act, 2003 (Act 56 of
2003), the annual budget of the Mangaung Metropolitan Municipality?s total revenue is
R6,193,762,852, with an operating expenditure of R5,368,472,823 and a capital
expenditure budget of R865,988,708 for the financial year 2012/2014. The operating
revenue budget is projected at R6,193.7 billion in 2013/2014 representing an increase
in revenue of R637,74 million (11.48%) on the 2012/2013 Adjustment Budget of
R5,556,million. The allocations for the outer two years of the Medium Term Revenue
37
Framework period is approximately R6,994,8 billion and R7,629.14 billion respectively
(Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013:306).
Furthermore, the Municipal Finance Management Act, 2003 (Act 56 of 2003) requires
the Mayor of the Mangaung Metropolitan Municipality, as in the case of all other
municipalities, to provide general political guidance over the budget process and to
priorities that must guide the preparation of a budget. According to the Mangaung
Metropolitan Municipal Integrated Development Plan, Review 2013/2014, (2013:306)
the new National Treasury Budget Regulations, gives further effect to this by prescribing
that the Mayor of the Mangaung Metropolitan Municipality must establish a Budget
Steering Committee to assist in discharging the mayor?s responsibility as set out in
Section 53 of the Municipality Financial Management Act, 2003. Compilation of the
Mangaung Metropolitan Municipality?s annual budget commenced with the presentation
of the budget parameters to the Budget Committee, composed of executive political
representatives. The committee?s terms of reference include the following:
? To provide guidance on budget principles
? To consider draft budget operational and capital parameters
? To review directorates? budget inputs via budget hearings after tabling of the draft
budget; and
? To review and advise on the outcome of the Medium-term Expenditure
Framework (Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, 2013:306).
According to the Mangaung Metropolitan Municipality Integrated Development Plan,
Review 2013/2014, (2013:23), its Integrated Development Plan (IDP) outlined the key
areas after it took into account national and regional development priorities, outcomes
and goals for the development of its short to medium term priorities. These are
commitments that the Mangaung Metropolitan Municipal Council will take forward. By
and large the Mayoral Committee played a significant role in shaping these priorities
38
and it was necessary to link them to the national, provincial, district and sector
department priorities and plans. The Mangaung Metropolitan Municipality identified the
following development priorities for the next five years, namely:
? Poverty reduction, job creation , rural and economic development;
? Financial sustainability with focus on revenue enhancement and clean audit
targets;
? Spatial development and the built environment;
? Eradication of the bucket system in the Mangaung, Botshabelo and Thaba
Nchu areas;
? Human settlements;
? Public transport;
? Environment management and climate change;
? Social and community services; and
? Good governance (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, (2013:17, 97 and 307).
1.7.10 Integrated Development Plan 2012-2016 and the Mangaung Metropolitan
Service Delivery Budget Implementation Plan (SDBIP)
In terms of the Municipal Finance Management Act, 2003 (Act 56 of 2003) (hereinafter
referred to the as Municipal Finance Management Act, 2003) all municipalities are
mandated to develop a Service Delivery Budget Implementation Plan SDBIP) that is an
integral part of the financial planning process that incorporates the Integrated
Development Plan (IDP) and the budget for a specific year. The Service Delivery
Budget Implementation Plan (SDBIP) is therefore a detailed plan approved by the
Executive Mayor for implementing the Mangaung Metropolitan Municipality Integrated
Development Plan (IDP) and its related annual budget (Mangaung Metropolitan
Municipality?s Annual Performance Report 2011/2012, 2012: 41).
39
1.8 CHALLENGES OF MANGAUNG METROPOLITAN MUNICIPALITY
INTEGRATED DEVELOPMENT PLAN AND BUDGETARY PROCESS
According to the Integrated Development Plan (IDP) Review 2011/2012 Report, (in Van
Niekerk, (2012:63-64), the Mangaung Metropolitan Municipality, like any other
municipality in the country faces a number of challenges to turn -around its financial and
operational affairs. These challenges include the effective management of expenditure,
anticipating and monitoring of revenue, maintaining the reserves, and creating and
adhering to future medium-term revenue expenditure framework (MTREF) multi-year
budgets. Van Niekerk, (2012:64) further mentioned that the Mangaung Metropolitan
Municipality also faces serious challenges in terms of service delivery backlogs and
financial resources after meeting its 2010 Soccer World Cup commitments.
Furthermore, the former Mangaung Local Municipality receives a disclaimer of opinion
audit report for the 2009/2010 and 2010/2011 financial years. In its first year as a
category A municipality, the Mangaung Metropolitan Municipality received a qualified
audit opinion during the 2011/2012 financial year (Auditors General Report on the Audit
Outcomes of the Free State Local Government, 2011 to 2012, 2012:37). Thus, although
the Local Government Turnaround Strategy was incorporated in the Mangaung
Metropolitan Municipality?s own tailor-made Municipal Turnaround Strategy (MTAS),
one of the most significant challenges in the Mangaung Metropolitan Municipality is to
become a financially viable and well-managed Metropolitan municipality.
In light of the above the Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2013:21) cited that an Integrated Development Planning
Alignment and Assessment Workshop was convened in April 2013 by the Free State
Provincial Department of Cooperative Governance and Traditional Affairs. The
workshop was attended by representatives of national, provincial and local government
to review the National Development Plan of 2030, the Free State Growth and
Development Strategy and the draft Integrated Development Plan of the Mangaung
Metropolitan Municipality to ensure that its reviewed Integrated Development Plan (IDP)
40
is aligned with national and provincial governments plans, outcomes and strategies. As
a result of the review the following challenges were identified:
? Ineffective implementation of decentralisation concerning the municipal
transformation and institutional development together with a shortage of
personnel in critical divisions such as infrastructure departments and supply
chain remains a challenge;
? The housing backlogs, and incomplete housing projects still remains a problem;
? The increase in illegal informal settlements and land invasions in areas planned
for different development initiatives;
? The development of the Mangaung Metropolitan Municipality disaster
management centre;
? Ineffective service delivery such as refuse and waste collection and ensuring
reliable water supply remains a challenge;
? Ageing service delivery infrastructure including electriticy and water line losses
and utilities remains a serious challenge; and
? Ineffective revenue collection due to the reliance on Intergovernmental Relations
transfers such as conditional grants remains a challenge (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013: 81-85).
According to the Mangaung Metropolitan Muncipailty Integrated Development Plan,
Review 2013/2014, (2013:88,96) the following aspects are key consideration in the
medium to long term as incorporated in the Mangaung Metropolitan Municipal
Integrated Development Plan (IDP) and its Local Governments Turnaround Strategy
(LGTAS) ten point plan, namely:
? Achieve clean audits by 2014
? Facilitate the development of the N8 corridor development
? Dealing with the fiscal gap by dealing with critical issues such as billing
completeness and accuracy, collections efficiency, debtors minimization and
41
management, tax and tariff increases for existing revenue sources and
expenditure efficiencies
? Ensuring the effective implementation of the bulk contribution policy such as the
7000 properties that are not metered for varied services
? Ensure water service supply and sustainability
? Mainstreaming of poverty reduction as incorporated in the IDP
? Developing Botshabelo and Thaba-Nchu to reduce transportation costs on the
poor
? Accelerating of Level 2 Housing Accreditation; and
? Leveraging resources for a number of flagship projects namely land
development, Inner city redevelopment, and township rehabilitation (including
greening, open spaces and cemeteries.
The above challenges are incorporated into current Municipality?s Integrated
Development Plan to be addressed in the medium to long- term. The layout of
chapters in this dissertation will be explained in the next section.
1.9 LAYOUT OF PRELIMINARY CHAPTERS
This study is divided into the following five chapters:
Chapter 1: Introduction and Research background
This chapter outlines the problem statement, research methodology, research questions
and objectives.
Chapter 2: Theoretical overview of integrated development planning, local
government turnaround strategy and its implementation in the South African
local government sphere
This chapter outlines the origin, statutory and regulatory framework as well as the
implementation of the LGTAS and IDPs in South African Municipalities.
42
Chapter 3: Public participation, Integrated Development Planning (IDP) and Good
Governance: A Conceptual Practical Interface
Firstly the chapter provides the legislative and policy directives of the national
government of South Africa and literature exploration with regard to public participation
and good governance with regard to the IDP. Finally, the chapter concludes by giving
an account of how public participation and good governance enables municipalities to
achieve developmental objectives by means of the IDPs.
Chapter 4: Research Methodology and Empirical Findings of the Local
Government Turnaround Strategy (LGTAS) on Public Participation and Good
Governance in the Integrated Development Planning (IDP) process: The Case of
Mangaung Metropolitan Municipality
This chapter focuses on the research methodology used in this study. The chapter
further focuses on the research conducted in the Mangaung Metropolitan Municipality
area to explore the impact of the Local Government Turnaround Strategy on public
participation and good governance in the Integrated Development Planning process.
Chapter 5: Research Summary and Recommendations
A conclusion is drawn and proposals are made on the impact of the LGTAS on public
participation and good governance in the IDP process within the Mangaung
Metropolitan Municipality based on the facts analysed from the research findings.
43
CHAPTER 2
A THEORETICAL OVERVIEW OF INTEGRATED DEVELOPMENT PLANNING, THE
LOCAL GOVERNMENT TURNAROUND STRATEGY AND THEIR
IMPLEMENTATION IN THE SOUTH AFRICAN LOCAL GOVERNMENT?S SPHERE
2.1 INTRODUCTION
Section 154 of the Constitution of the Republic of South Africa, 1996 provides that the
national and provincial governments must support and strengthen the capacity of local
authorities by legislative and other measures to manage their own affairs, to exercise
their power and to perform their functions. The Constitution, 1996 emphasises that
these authorities have a distinctive role in promoting social development and democracy
on the local sphere. Giving effect to these constitutional principles it requires all
municipalities (Metropolitan, District and Local Municipalities) to manage their
administration, budgeting and planning processes in such a manner that they give
priority to the basic needs of the community and promote the economic and social
development of their people. The introduction of the White Paper on Local Government
(WPLG), 1998 reinforced this mandate by recognising the South African local
government sphere as being primarily developmental in the sense of being committed
to working with communities to find suitable ways to meet their social, economic, and
material needs and to improve the quality of the citizens lives. Since 1996 the
government introduced a variety of policy directions to ensure that local government
would fulfill a meaningful role in the development and welfare of its citizens. In terms of
the Local Government Municipal Systems Act, 2000, all municipalities must have an
Integrated Development Plan (IDP) and should engage in an annual Integrated
Development Planning (IDP) process.
44
However, the State of Local Government in South Africa Report in 2003 and again in
2009 showed that most municipalities in South Africa routinely receive poor audit
reports and are therefore gaining a reputation of poor service delivery, ineffectiveness,
incompetence and experiencing high levels of corruption. During 2009, the Department
of Cooperative Government and Traditional Affairs (CoGTA) conducted a provincial
wide assessment to ascertain the root causes for the poor performance, distress or
disfunctionality of municipalities. Drawing from the provincial wide assessments of each
of the 283 municipalities and the 2009 State of Local Government in South Africa report,
the Department of Co-operative Governance and Traditional Affairs (CoGTA),
announced the Local Government Turnaround Strategy (LGTAS). The Local
Government Turnaround Strategy (LGTAS) is a comprehensive intergovernmental
intervention that identified five areas within the municipalities? operations that need to be
addressed and improved. The main aim of the Local Government Turnaround Strategy
(LGTAS) is to turnaround the municipalities? performance and to rebuild and improve
the basic requirements for a functional, responsive, accountable, effective and efficient
developmental local government (Department of Cooperative Governance and
Traditional Affairs (CoGTA),LGTAS, 2009:3-4).
This chapter discusses the origin of Integrated Development Planning (IDP) and the
Local Government Turnaround Strategy (LGTAS), as well as the statutory and
regulatory framework of Integrated Development Planning (IDP) and Local Government
Turnaround Strategy (LGTAS). The nature and extent of typical municipal services and
the key performance areas of Integrated Development Planning (IDP) as well as the
composition of IDP phases are also discussed in this chapter. The local Government
Turnaround Strategy (LGTAS) in context is also discussed to solicit the five strategic
objectives and immediate medium-term priorities of this strategy followed by a
discussion about the implementation of Integrated Development Planning (IDP) and the
Local Government Turnaround Strategy (LGTAS). The next section focuses on the
origin of Integrated Development Planning (IDP) and the Local Government Turnaround
Strategy (LGTAS).
45
2.2 THE ORIGINS OF INTEGRATED DEVELOPMENT PLANNING
A useful starting point is to define development. Swanepoel and De Beer (1997:43)
define development simply as the opposite of poverty in that development addresses
the poverty of people, whereas Wessels and Pauw (1999:100) maintain that
development refers to constructive work aimed at improving human welfare. Further,
Human (2007:5) asserts that development may be regarded as the process by which
poverty is reduced, not only in monetary value, but also in terms of social inclusion and
access to goods and services.
Fitzgerald (1997:3-4) cited that during the 1980?s the development debate in South
Africa was not the main priority as attention was focused on the political struggle during
the Apartheid years. In the beginning of the 1990?s there was a shift towards the
negotiated transition and slowly the development debate began to emerge. Since the
first democratic elections has taken place in 1994, and the newly established
democratic government has faced enormous challenges such as poverty, inequality and
greater access to basic public services. As a result the government began addressing
these challenges by enshrining constitutional rights to basic service access, radically
reforming economic and sector policies and funding service delivery programmes. One
such programme was the Restructuring Development Programme (RDP) that was the
first development-oriented approach of the newly established democratic government.
Pillay, Tomlinson and Du Toit (2001:23) hold that the Reconstruction and Development
Programme was an integrated, coherent socio-economic policy framework that aimed to
eradicate poverty and deprivation, to meet the basic needs of communities, to build the
economy, to promote the democratising process of the state and society, to develop
human resources and to build the nation and addresses spatial settlements. The salient
weaknesses of the Reconstruction and Development Programme were that it was not a
detailed plan with detailed targets, implementation mechanisms and budgeting. It was
rather a statement of a vision, in which development meant, first and foremost the
satisfaction of basic needs (Robinson and White (2002:316). Du Plessis, Lundy and
Swanepoel, (1998:14-15) further argue that the former Reconstruction and
Development Programme (RDP) was the first development-oriented policy since 1994
46
(IDP, Local Pathway to Sustainable Development in South Africa 2002:4-6). The latter
was replaced by the former Growth Employment and Redistribution Strategy (GEAR)
and in 2010 by the New Economic Growth Path Plan that hopes to enhance growth,
employment creation and equity in South Africa in 2010.
In light of the above, Van Niekerk (2012:55) mentioned that Integrated Development
Planning (IDP) has its roots from the United Nations Conference on Environment and
Development held in 1992 in Rio de Janeiro. Local Agenda 21 was announced at this
conference as attempts of the 180 member states to address sustainable development
through a programme of actions at local level. Local Agenda 21?s main objectives are
to raise awareness of environmental and sustainability amongst the public, to maximise
the support and involvement of local communities, and to promote economic
development and social progress while reducing environmental impact (DEAT in Van
Niekerk, 2010:55). Du Plessis, Lundy and Swanepoel, (1998:13) are of the opinion that
the principles of Local Agenda 21 are embedded in the Constitution, 1996 that gives the
following mandate to local government, namely: to provide democratic and accountable
government for all communities; to ensure the provision of services to communities in a
sustainable manner; to promote social and economic development and to promote a
safe and healthy environment.
Except for the Local Agenda 21 initiative, the poor service delivery in township areas
during the Apartheid years was appalling; this situation also prompted the idea of
integrated development planning (Krige, 1998:13). Therefore, the former Department of
Provincial and Local Government initiated the restructuring of local government and
introduced the integrated development planning in an attempt to improve the planning
process at local government sphere. Integrated Development Planning (IDP) came into
effect with the passing of the Local Government Transition Second Amendment Act,
1996 and the White Paper on Local Government, 1998 as a way to promote a
developmental local government in South Africa. The enactment required that all
transitional metropolitan, district and local municipalities prepare an Integrated
Development Planning (IDP). The effect of the enactment has been the introduction of
47
an instrument that would assist the newly constituted municipalities to execute their
functions in a coordinated, strategic, developmental and fiscally responsible manner.
The effect of the enactment was the introduction of Integrated Development Planning
that guides and informs all management, planning, decision-making and actions on
which annual budgets are based in a Municipality. Key characteristics of an Integrated
Development Planning (IDP) are that it has a lifespan of five years, and that it is aligned
directly to the term of office for local councilors. This means that after every local
government election, the new council can adopt the existing Integrated Development
Planning (IDP) or develop a new IDP that takes existing plans into consideration.
However, Pillay, Tomlinson and Du Toit (2006:196) contend that this was done in haste,
in response to a particular opportunity and that there was no time to develop the
concept of the Integrated Development Planning (IDP) before introducing the
abovementioned legislation. Most of the municipalities followed a one-size-fits-all
approach with the introduction of their first Integrated Development Plan (IDP).
Previous governmental interventions such as Project Consolidate and the five year
Strategic Local Government Agenda also applied a “one-size-fits-all” approach to
restore good performance and effective service delivery of the country?s municipalities
(Department of Co-operative Governance and Traditional Affairs (CoGTA), 2009:24).
Both of these interventions failed to focus on root causes of local government distress
(Vika, 2010:1-4).
Van Niekerk, (2012: 57-58) indicates that although much progress has been made since
2002 with the introduction of Integrated Development Planning (IDP), numerous service
delivery protests occurred since 2004 where communities were demanding effective
service delivery, infrastructure, housing, electricity and water among other essentials.
This situation demanded an urgent response as municipalities were at the centre of
delivery. The Presidency, Ten Year Review Report”, (2003:2) showed that the
government is making progress on its objectives originated in the Reconstruction and
Development Programme that includes meeting basic needs, building the economy,
democratising the state and society, developing human resources, and building the
48
nation. But the report also showed that weaknesses reside at local sphere with the
management and implementation of these objectives. However, the report also
announced that continuing on the current trajectory would precipitate a vicious cycle of
decline in all spheres. It further emphasised the need for greater participation and
interaction of communities with the Integrated Development Planning (IDP) processes.
2.3 THE IMPORTANCE OF INTEGRATED DEVELOPMENT PLANNING
According to the White Paper on Local Government, (1998:47), the purpose of
integrated Development Planning (IDP), in line with the new paradigm on development
planning, is to provide a framework within which municipalities can understand the
various dynamics operating within their areas of jurisdiction, develop a concrete vision
for their areas and formulate strategies for financing and realising their visions in
partnership with other stakeholders. The enactment of the Municipal Systems Act, 2000
underlines the importance that each municipality has to adopt a single, inclusive plan for
the development of the municipality.
The Municipal Systems Act, 2000 clearly sets out the principles, processes and
mechanisms for municipalities to shift into a new position within the landscape of
development. Requirements to enhance Integrated Development Planning (IDP) were
introduced in Section 26 of the Municipal Systems Act, 2000 as cited by Van Niekerk,
(2012:25) further determines that all Integrated Development Plans (IDPs) must reflect
Municipal Councils? vision for the long-term development of the municipality with special
emphasis on the municipality?s most critical development and internal transformation
needs. This Municipal Systems Act, 2000 also describes the content requirements to
be followed by each municipality in developing their inclusive Integrated Development
Plan (IDP). The Municipal Structures Act, 1998 (Act, 117 of 1998) (hereinafter referred
to as the Municipal Structures Act, 1998) provides that district municipalities are also
responsible for integrated development planning and sets out a framework for
integrated development plans. It should also be noted that Integrated Development
Planning (IDP) for local municipalities should be aligned with the district municipalities
IDP framework. Furthermore, each municipal Integrated Development Plan (IDP)
49
should be aligned with the provincial sector department?s policies and programmes. In
addition provincial governments are also responsible for the monitoring of the Integrated
Development Planning (IDP) process in the province and to and ensure that resources
allocations are guided by IDPs (Ceaser & Theron 1999: 60-63).
2.4 AN OVERVIEW OF THE LOCAL GOVERNMENT TURNAROUND STRATEGY
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), (LGTAS, 2009:19; and (CoGTA), LGTAS, Municipal Guidelines, 2010:3), the
Local Government Turnaround Strategy (LGTAS) is a country-wide intervention, with
strong emphasis on improving performance, monitoring, governance, and
accountability. The primary aim of the Local Government Turnaround Strategy (LGTAS)
is to ensure that all municipalities and their communities embark upon a concentrated
effort to deal with the root causes undermining the country?s municipalities and to
restore good performance and effective service delivery. One of the main aims of the
Local Government Turnaround Strategy (LGTAS) is to renew the vision of the
developmental local government. To do this the Local Government Turnaround Strategy
(LGTAS) seeks to improve the organisational and political performance of municipalities
and in turn to improve the delivery of services. The goal is to improve the lives of
citizens, and progressively meet their social, economic and material needs, thereby
restoring community confidence and trust in government (Buthelezi, 1999:21).
On the one hand, the Local Government Turnaround Strategy (LGTAS) strives to
address the communities? increasing dissatisfaction with poor municipal service
delivery, while on the other hand the intervention strives to improve the administrative
and financial performance of all municipalities. The latter was confirmed by the Auditor-
General South Africa (AGSA) Report on Local Government 2007/2008. (Van Niekerk,
2012:58) noted that an overwhelming number of municipalities had received poor audit
opinions, either disclaimers or qualified opinions, due to mismanagement and a lack of
control systems. The Local Government Turnaround Strategy (LGTAS) approach
required every municipality to draw up its own tailor-made Local Government
Turnaround Strategies that should be known as a municipality?s own Municipal
50
Turnaround Strategies (MTAS) by April 2010 to remedy problems in the area of
jurisdiction (The Department of Cooperative Governance and Traditional Affairs
(CoGTA), 2009:43). Subsequently, the Municipal Turnaround Strategies (MTAS)
should find expression in the municipality?s own Integrated Development Plan (IDP), as
it is intended to address the key strategies of the municipality through key projects.
These projects must be aligned to the strategies and priorities of the municipality,
Integrated Development Plan (IDP) and the budget (Lekgoro, 2011:4-6). This means
that the Municipal Turnaround Strategy (MTAS) for each municipality cannot exist
outside that municipality?s Integrated Development Plan (IDP). Thus, the Local
Government Turnaround Strategy (LGTAS) provides the municipality with guidelines for
action, as well as with resources for support, which must be reflected in the Integrated
Development Plan (IDP). Annual and mid-term budgeting is also based on the
Integrated Development Plan (IDP) of a municipality. However, a municipality?s budget
is neither an implementation plan nor a management plan. In terms of the Local
Government: Municipal Finance Management Act, 2003 the Service Delivery and
Budget Implementation Plan (SDBIP) gives effect to the implementation of the municipal
IDP and budget. It furthermore provides the basis for measuring performance in service
delivery against end-of-year targets and budget implementation (Sol Plaatje
Municipality, 2010:28). One could argue that the Service Delivery and Budget
Implementation Plan (SDBIP) can be seen as a contract between a municipality?s
administration, the council and community, expressing the strategic objectives set by
the council as quantifiable outputs to be implemented by the administration during a
specific financial year.
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA),(2009:19) the Local Government Turnaround Strategy (LGTAS) strives to
achieve five strategic objectives, namely;
? To ensure that municipalities meet the basic service needs of their communities
? To build a clean, effective, efficient, responsive and accountable system of local
government
? To improve performance and professionalism within municipalities
51
? To improve national and provincial policy, oversight and support
? To strengthen partnerships between communities, civil society and local
government (Department of Co-operative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:19).
Drawing from the State of Local Government in South Africa Report of 2009, Van
Niekerk, (2012:58) states that some municipal powers and functions were revised with
the enactment of the Municipal Systems Amendment Bill, 2010. The main objective of
this bill is to grant the Minister for Co-operative Governance and Traditional Affairs
adequate regulatory powers in respect of municipal managers and those directly
accountable to them. The Bill furthermore addresses key elements of the Local
Government Turnaround Strategy (LGTAS). Due to the inherent vagueness of the
Municipal Structures Act, 1998 concerning the power to appoint a municipal manager or
someone to act in that position, the Bill transfers this power to the Municipal Systems
Act, 2000 that specifies the requirements relating to the skills and expertise that
municipal managers must have in order to perform the duties associated with the
position. Other amendments include new provisions in the Municipal Systems Act,
2000 that will allow for the appointment of a municipal manager to lapse if a
performance agreement is not signed within 60 days. Moreover, any municipal staff
member who has been dismissed for misconduct may only be re-employed in a
municipality after a certain period of time has elapsed, while a staff member dismissed
for financial misconduct, corruption or fraud may not be re-employed in a municipality
for a period of ten years. The proposed amendments reaffirm government?s
commitment to strengthening the performance and accountability of municipalities. This
might have an effect on public decision-making, however, in that autonomy is
concentrated at the national sphere of government, and one could argue that it could
lead to delays in decision-making at local sphere.
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA, LGTAS, Municipal Guidelines, 2010:3-4) the Local Government Turnaround
Strategy (LGTAS) has different focus areas: Firstly the focus was on the immediate
52
priorities prior to the 2011 elections. Secondly, the focus from March 2011 until 2014 will
be on medium-term or post-election priorities. The immediate priorities prior to the 2011
elections consisted of four phases that commenced at the end of January 2010 and
concluded in March 2011. The first phases can be seen as a pilot project in which
selected municipalities per province developed their respective own Local Government
Turnaround Strategies referred to as the municipalities own Municipal Turnaround
Strategy (MTAS), followed by the second phase in which all municipalities followed the
same process before incorporating their Municipal Turnaround Strategy in their
Integrated Development Plan (IDP). The third phase includes the budgeting and
approval of each municipality?s Integrated Development Plan (IDP), while the fourth
phase involves implementation, monitoring and evaluation.
2.5 NATURE AND EXTENT OF MUNICIPAL SERVICES
Service delivery is one of the core functions of a municipality, whereas, Integrated
Development Planning (IDP) is a mechanism to fast-track the delivery of services by
promoting good governance, effective decision-making, public participation and
accountability at local sphere (Nealer, in Van der Waldt et al 2007:102). The objects of
local government, the required municipal services and the developmental duties of
municipalities are set out in the Constitution, 1996. Section 152 of the Constitution,
1996 indicated that the objectives of local government is to provide a democratic and
accountable government to all communities in a specific municipal area. Municipal
services should be provided in a sustainable manner, municipalities are responsible for
promoting social and economic development, promoting a safe and healthy
environment and encouraging the involvement of communities and community
organizations in the matters of local government. Whereas, Section 153 of the
Constitution 1996, sets out the developmental duties of municipalities in that all
municipalities must participate in national and provincial development programmes.
Furthermore, this section holds that all municipalities must structure and manage its
administration and budgeting and planning processes to give priority to the basic needs
53
of the community and to promote the social and economic development of the
community.
Fox and Meyer, (1995:118) refer to service delivery as the provision of public goods,
activities, benefits or satisfaction. The Municipal Systems Act, 2000 refers to basic
municipal services that are necessary to ensure an acceptable and reasonable quality
of life, and if not provided, would endanger public health or safety or the environment in
a specific municipal area. The Municipal Systems Act, 2000 further indicates that a
municipal service refers to a service that a municipality provides in terms of its powers
and functions or may provide to or for the benefit of the local community irrespective of
whether such a service is provided, or is to be provided by an internal or by an external
mechanism or fees, charges or tariffs that are levied in respect of such a service or not.
The Constitution, 1996 sets out the powers and functions of municipalities in Section
156 and Schedules 4 and 5. The functions and powers of district and local
municipalities that are divided in accordance with the provisions of the Municipal
Structures Act, 1998 maintain that metropolitan municipalities? functions and powers are
set out in Part B of Schedule 4 and 5. The Municipal Structures Act, 1998 further
provides that a district municipality has the following functions and powers conferred on
it namely:
? Integrated Development Planning (IDPs) for the district municipality
? Portable water supply systems
? A Bulk supply of electricity
? Domestic waste water and sewage disposal systems
? Solid waste disposal sites
? Municipal roads
? The regulation of passenger transport services
? Municipal airports serving the area of the district municipality as a whole
? Municipal health services
? Responsible for firefighting services, serving the area of the district
municipality
54
? To establishment and control of fresh produce markets and abattoirs serving
the area of the major proportion of the municipalities in the district
? To establishment, conduct and control of cemeteries and crematoria serving
of a major proportion of municipalities in the district
? The promotion of local tourism for the area of the district municipality
? Responsible for the receipt, allocation and distribution of grants made to the
district municipality
? Responsible for the imposition and collection of taxes, levies and duties
assigned to the district municipality
? Responsible for municipal public works and
? Any other functions assigned to the district municipality.
A local municipality is authorised to exercise a power to perform the following municipal
services as cited in Craythorne, (2006:156-157), namely:
? To provide potable water supply
? To provide a bulk supply of electricity, including the transmission, distribution
and – where applicable - the generation of electricity
? To provide a domestic waste-water and sewage disposal systems and
? To provide municipal health services.
Nealer, (in Van der Waldt et al, 2007:151) further states that local municipalities are also
responsible, amongst others, for the following municipal services:
? To provide corporate services, for example, the supply of information and
statistics
? Responsible for crime prevention and law enforcement
? Responsible for environmental management
? Responsible for housing provisioning and valuations of properties
? Responsible for social development
? To ensure good governance and
55
? Responsible for disaster management.
Although legislation clearly provides the functions and powers of the local sphere of
government, the reality is that the majority of local municipalities struggle to promote
effective service delivery. Despite the fact that much progress has been made since
2002 with the introduction of integrated development planning in all municipalities
numerous incidents of service delivery protests occurred since 2004 where communities
were demanding effective service delivery, infrastructure, housing, electricity and water
among other essentials. In response to flaring tensions, government, through the
Ministry of Local Government and Traditional Affairs, among others, commissioned a
national study on the state of Local Government. The State of Local Government
Report, 2009 in Edwards, (2010:58) found widespread municipal corruption and abuse
of political office and job status for personal gain. The report further emphasizes that in
most instances, municipalities appointed managers who are not capable and competent
to provide the necessary leadership and supervision to promote effective service
delivery (The Department of Cooperative Governance and Traditional Affairs (CoGTA),
LGTAS, 2009:52-53). This situation demanded an urgent response as municipalities
were at the centre of delivery. As a result the Department of Cooperative Governance
and Traditional Affairs (CoGTA) announced the draft Local Government Turnaround
Strategy (LGTAS) in October 2009 at the Local Government Indaba that was
subsequently approved by Cabinet in December 2009 in order to address the numerous
service delivery challenges at local government sphere (Van Niekerk, 2012:25).
2.6 THE STATUTORY AND REGULATORY FRAMEWORK OF INTEGRATED
DEVELOPMENT PLANNING
This section outlines the statutory and regulatory framework that forms the basis for the
formulation and implementation of Integrated Development Planning (IDPs) and Local
Government Turnaround Strategies (LGTAS).
56
2.6.1 The Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
The concept of sustainable development is entrenched in Section 23 of the Constitution
of the Republic of South Africa, 1996 and affirms the democratic values of human
dignity, equality and freedom. The Constitution, 1996 further emphasises that everyone
has the right to an environment that is not harmful to their health or wellbeing. Section
23 of the Constitution, 1996 further affirms the need to secure ecologically sustainable
development and the use of natural resources while promoting justifiable economic and
social development. Chapter 10 of the Constitution, 1996 sets out the basic values and
principles governing public administration. The Constitution, 1996 gives the following
mandate to local authorities:
? To provide a democratic and accountable government for all citizens in their
jurisdictions
? To promote sustainable provision of services to communities
? To promote social and economic development
? To promote a safe and healthy environment and to
? Encourage community participation in matters of local government.
Section 154 of the Constitution, 1996 provides that national and provincial governments
must support and strengthen the capacity of local authorities by legislative and other
measures to manage their affairs, to exercise their power and to perform their functions,
thereby giving these authorities a distinctive role in promoting social development and
democracy on local sphere. The Constitution, 1996 also mandate municipalities with
major developmental responsibilities to ensure that the quality of life of its citizens is
improved. The role for local government includes the provision of basic services,
creation of jobs and eradication of poverty. Section 153 of the Constitution, 1996
implies that a municipality must structure and manage its administration and budgeting
and planning processes to give priority to the basic needs of the community and to
promote the social and economic development of the community (Craythorne,
2006:146).
57
2.6.2 The Development Facilitation, 1995 (Act 67 of 1995)
The Development Facilitation Act, 1995 introduced a new planning ethos in South Africa
by providing the general principles for land development and development planning.
The Act further places a responsibility on local authorities to promote efficient and
integrated land development to encourage environmentally sustainable land
development practices and procedures and to prepare their annual Land Development
Objectives. The Land Development Objectives imply that land use development should
be planned in an integrated and strategic manner. The Land Development Objectives
were later incorporated into the municipalities? Integrated Development Plans (IDP) with
the introduction of the White Paper on Local Government, 1998.
2.6.3 Land Use Management Bill, 2007
The Land Use Management Bill, 2007 provides the principles that guide the formulation,
determination, development and implementation of all policies and legislation in the
three spheres of government regarding land development and land use management.
To facilitate the land development process, the Bill further requires each municipality to
align its Spatial Development Framework (SDF) a component of the Integrated
Development Plan (IDP) and land use scheme with the framework for Integrated
Development Planning (IDPs).
2.6.4 The Local Government Transition Second Amendment Act, 1996 (Act 97 of
1996)
This Act as well as the Draft Local Government Municipal Systems Bill, 1999 require
that all municipalities have an Integrated Development Plan (IDP). It also requires that
Metropolitan councils and local authorities must prepare their financial and other plans
in accordance with their Integrated Development Plans (IDPs). These authorities have
to monitor and assess their performance against their Integrated Development Plan
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(IDP) and also report to and receive comments from their communities regarding the
objectives set in the IDPs.
2.6.5 Inter Governmental Fiscal Relations Act, 1997 (Act 57 of 1997)
The Inter Governmental Fiscal Relations Act, 1997 provides the framework that permits
the implementing of the sharing of state financing between the three spheres of
government in support of Section 214 of the Constitution, 1996.
2.6.6 White Paper on Local Government, 1998
Integrated Development Planning (IDP) came into effect with the passing of the Local
Government Transition Second Amendment Act, 1996 and the White Paper on Local
Government, 1998 to promote a developmental local government in South Africa. It
requires municipalities to address the following:
? The skewed settlement patterns which are functionally inefficient
? The extreme concentrations of taxable economic resources in formerly white
areas, demanding redistribution between and within local areas
? To manage backlogs in service infrastructure in historically underdeveloped
areas
? To entrench modes of decision-making, administration and delivery inherited
from municipalities geared for the implementation of urban and rural apartheid
? The inability to leverage private sector resources for development due to a
breakdown in the relationship between capital markets and local authorities
? The substantial variations in capacity, with some local authorities having little or
no pre-existing institutional foundations to build on
? The need to rebuild relations between local authorities and the local communities
they serve (Kroukamp, 2006:23; White Paper on Local Government, 1998:17).
The White Paper on Local Government, (1998:18) maintains that Integrated
Development Planning (IDPs) is a way of achieving developmental local government.
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The White Paper on Local Government (1998:18) also stipulates that an Integrated
Development Plan (IDP) intends:
? To align scarce resources around agreed policy objectives
? To ensure integration between sectors with local government
? To enable alignment between provincial and local government
? To ensure transparent interaction between municipalities and residents, making
local government accountable.
The central theme of the White Paper on Local Government, 1998 is the need for
municipal councils to become more developmental in focus. It further states that local
government should fulfill its mandate to improve and accelerate the delivery of essential
services and development.
2.6.7 Local Government Municipal Systems Act, 2000 (Act 32 of 2000) and
Amendment Act, 2011 (Act 7 of 2011)
The Municipal Systems Act, 2000 (Act 32 of 2000) sets out the principles, processes
and mechanisms for municipalities to shift into a new position within the landscape of
development and included in these is the Integrated Development Planning process.
Section 25 (1) of the Municipal Systems Act, 2000 requires the municipal council, within
a prescribed period after the start of its elected term, to adopt a single, inclusive and
strategic plan for the development of the municipality namely:
? To link, integrate and coordinate plans and take into consideration proposals for
the development of the Municipality
? To align the resources and capacity of the municipality with implementation of the
plans
? To form the policy framework and general basis on which annual budgets must
be based
? To comply with the provisions of Chapter 5 of the Act
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? To ensure that the national provincial development plans and planning
requirements are binding on the municipality in terms of legislation
? In the light of the above, it means that all municipalities (i.e metropolitan district
municipalities and local municipalities) should undertake an integrated
development planning process to produce integrated development plans.
Section 26 of the Municipal Systems Act, 2000 further outlines the core components of
the Integrated Development Plan (IDP) of a municipality to reflect the following:
? The municipal council?s vision for the long-term development of the municipality
with special emphasis on the municipality?s most critical development and
internal transformation needs
? An assessment of the existing level of development in the municipality which
must include an identification of communities which do not have access to basic
municipal services
? The council?s development priorities and objectives for its elected term, including
its local economic development aims and its internal transformation needs
? The council?s development strategies which must be aligned with any national or
provincial sectoral plans and planning requirements binding on the municipality;
? The councils operational strategies
? Applicable disaster management plans
? A financial plan, which must include a budget projection for at least the next three
years.
Furthermore, Section 41 of this Act also provides the key performance indicators and
performance targets determined.
The Municipal Systems Amendment Act, 2011 (Act 7 of 2011) sought to professionalize
local governance by ensuring that officials holding senior positions have the appropriate
qualifications and that there is no conflict of interest between political office and local
government administrating by barring political office bearers from holding senior
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positions in municipalities. Section 56 A (1) states that “A municipal manager or
manager directly accountable to a municipal manager may not hold political office in a
political party, whether in a permanent, temporary or acting capacity”. Section 57 A (I)
further states that “Any staff member dismissed for misconduct may only be re-
employed in any municipality after the expiry of a prescribed period” Section 57 A (3)
of the Municipal Systems Amendment Act, 2011 further stipulates that “A staff member
dismissed for financial misconduct, corruption or fraud, may not be re-employed in any
municipality for a period of ten years.
2.6.8 Intergovernmental Relations Framework 2005 (Act, 13 of 2005)
The Intergovernmental Relations Framework Act, 2005 presents an important support
mechanism to the Integrated Development Planning (IDP) process and provides for the
obligation of all spheres of government to allow their own planning processes to be
influenced by the municipal Integrated Development Plans (IDPs) and the Local
Government Turnaround Strategy (LGTAS).
The Intergovernmental Relations Framework Act, 2005 fosters a greater level of
cooperation across the different spheres of government based on the systems of mutual
support, information sharing, communication and coordination of activities. The
objective is thus to ensure coherent government, effective service provision and the
realization of national priorities. The Act is also a response to the limited success in the
alignment of the framework to support intergovernmental cooperation and coordination
required by the Constitution, 1996.
2.6.9 Municipal Finance Management (MFMA), 2003 (Act 56 of 2003)
The Municipal Finance Management Act, 2003 was promulgated to secure sound and
sustainable management of the financial affairs of municipalities and other institutions in
the local sphere of government. It has the objectives of modernising budget and
financial management practices in municipalities in order to maximise their capacity for
service delivery.
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Section 53 (6) of the Municipal Finance Management, 2003 provides that the mayor of a
municipality must determine how the Integrated Development Plan (IDP) is to be taken
into account or revised for the purposes of the budget. Thus, the annual budget of a
municipality should indicate how it gives effect to the municipality?s Integrated
Development Plan (IDP) over the next three budget years and how the IDP may need to
be revised, given the budgetary resources and spending commitments within the
municipality.
2.6.10 Traditional Leadership and Governance Framework Amendment Act, 2003
(Act 41 of 2003)
The Traditional Leadership and Governance Framework Amendment Act, 2003 (Act 41
of 2003) stipulates the active involvement of the traditional leadership in the formulation
and the implementation of the Integrated Development Plan (IDP). To this effect,
Section 4 of this Act provides for the establishment of traditional councils that should:
? Support municipalities in the identification of community needs
? Facilitate the involvement of the traditional community in the development or
amendment of the Integrated Development Plan (IDP) of a municipality in areas
in which the community resides
? Participate in the development of policy and legislation at the local government
sphere
? Promote the ideals of cooperative governance, integrated development planning,
sustainable development and service delivery to promote indigenous knowledge
systems for sustainable development and disaster management.
According to Mojapelo (2007:48) a significant percentage of the population in South
Africa resides in villages ruled and governed by traditional leaders. Thus, municipalities
have to ensure that traditional leaders are involved in the Integrated Development
Planning (IDP) and review process.
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2.6.11 Local Government Turnaround Strategy, (LGTAS), 2009
The Department of Cooperative Governance and Traditional Affairs (CoGTA) published
its Local Government Turnaround Strategy with the main aims to restore the confidence
of the majority of the South African citizens in our municipalities that are primarily
responsible for service delivery, and to re-build and improve the basic requirements of
our municipalities to ensure that they are functional, responsive, accountable, effective,
and an efficient developmental local government. As alluded to in Section 2.4 of this
study the Local Government Turnaround Strategy (LGTAS), 2009 identified five
strategic objectives to guide the Local Government Turnaround Strategy (LGTAS)
interventions and support framework (Department of Co-operative Governance and
Traditional Affairs (CoGTA), 2009:19).
2.6.12 National Framework for Local Economic Development (LED), 2006-2011
The National Framework for Local Economic Development, 2006-2011 was announced
by the former Department of Provincial and Local Government in 2006. The framework
promotes a strategic approach to the development of local economies. It aims to
support the development of sustainable local economies through integrated government
action.This framework has been developed as a guide that seeks to advance an
understanding of Local Economic Development (LED) and has put forward a strategic
implementation approach that municipalities, provinces and national government, state-
owned enterprises and communities may concentrate on in order to improve local
economic development (DPLG, National Framework for Local Economic Development
(LED), 2006:3).
2.6.13 Medium-term Expenditure framework (MTEF)
The 3-year Medium-term Expenditure Framework is a significant policy for Local
Government as it takes its detail from the 5 year financial Plan of the municipal
Integrated Development Plan (IDP) and the annual municipal IDP review process. The
Medium-term Expenditure Framework is a policy guide to future approaches by national
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government to financing its programmes, including those designated in Local
Government. The MTEF requires that all three spheres of government keep to their
budget projections for a 3-year period. The MTEF further assists the different spheres
of government to establish their 3 year budgets with actual commitments for 1 year and
indicative figures for the following 2 years. The purpose of the MTEF is to increase
the scope for longer term planning and more coherent delivery over a number of years
(IDP Guide Pack VI, 2000:36).
2.6.14 Integrated Development Planning Guide Packs
The former Department of Provincial and Local Government (DPLG, IDP Guide Pack,
Guide O, An Overview 2000:5) produced a range of Integrated Development Plan (IDP)
Guide Packs to assist municipalities with their Integrated Development Planning
process to produce Integrated Development Plans (IDPs). The new more user-friendly
IDP Guide packs consist out of seven guides. The purposes of the Integrated
Development Plan (IDP) Guide Pack are firstly, to provide a summary on the complete
picture of the Integrated Development process to those stakeholders who do not need a
detailed technical understanding of the IDP, and secondly, to enable different
stakeholders of the three government spheres to know and understand their different
roles. Thirdly, it provides a quick overview of the IDP process to municipal officials
who will be responsible for the management of the IDP process. The Integrated
Development Plan (IDP) Guide Pack, consists of the following guides:
Guide O, Orientation
Guide I, General IDP Guidelines
Guide II, Preparing of the IDP Process
Guide III, IDP Methodology
Guide IV, IDP Toolbox
Guide V, Sectoral and cross-cutting policy issues
Guide VI, Implementation and Monitoring (Guide Pack, Guide O An Overview 2000:5).
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2.6.15 Division of Revenue Act and Provincial Division of Revenue Act
The annual Division of Revenue Act as cited by the DPLG, IDP Guide Pack VI,
(2000:35) defines the horisontal and vertical distribution of national finances. This
Division of Revenue Act is crucial for municipalities as it provides information on a
significant income stream that it requires to provide effective service. The Provincial
Division of Revenue Act must be passed by each Province to spell out its vertical and
horizontal disbursement of finances available to the province which informs the directing
of finances across different provincial government programmes and departments. The
Provincial Division of Revenue Act defines the financial allocations to all municipalities
within the province. The Provincial Division of Revenue Act takes some of its form from
the priorities emerging from the IDP processes within all municipalities in a specific
province (IDP Guide Pack VI, 2000:35). However, certain limitations were experienced
with the implementation of Integrated Development Plans (IDP) at local sphere, which
are outlined in the following section.
2.6.16 Other national and provincial development planning policies and
frameworks
According to the Mangaung Metropolitan Municipality?s Integrated Development Plan,
Review 2013/2014, (2013:10), a number of national and provincial policies and
development planning frameworks have a bearing on the Integrated Development
Planning (IDP) process of all municipalities (Metropolitan, District and Local
municipalities). The first of these includes the Millennium Development Goals (MDG)
that set out the eight critical economic and development priorities by 2015 that comes
from the Millennium declaration that was signed by 189 countries including South Africa
during September 2000. The eight Millennium Development Goals (MDG) as cited in
the Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:17) includes the following; “eradicate extreme poverty and hunger; to
achieve universal primary education; to promote gender equality and empower women;
to reduce child mortality, to improve maternal health; to combat HIV/AIDS, malaria and
66
other diseases; to ensure environmental sustainability and to develop a global
partnership for development”. The National Government?s Medium-term Strategic
Framework (MTSF), 2009 to 2014) that identifies the development challenges of South
Africa, outlines the medium-term strategy for improving the living conditions of South
Africans by taking into account the Millennium Development Goals (MDG). The
Medium-term Strategic Framework (MTSF, 2009 to 2014) as cited in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2013:10)
identifies the five developments, namely: “halve poverty and unemployment by 2014; to
ensure a more equitable distribution of the benefits of economic growth and to reduce
inequality; to improve the health profile of the nation as well as to improve the skills
base of the nation and to ensure access to basic services to all citizens; to build a free
country of all forms of racism, sexism, tribalism and xenophobia; and to improve the
safety of citizens by reducing incidents of corruption and crime”. The five development
objectives lead to the development of national governments twelve outcome areas,
namely:
? Outcome 1. To improve the quality of basic education
? Outcome 2. To ensure a log and healthy life for all South Africans
? Outcome 3. All people of South Africa are and feel safe
? Outcome 4. Decent employment through inclusive economic growth
? Outcome 5. A skilled and capable workforce to support an inclusive growth path
? Outcome 6. An efficient, competitive and responsive economic infrastructure
network; Outcome 7. Vibrant, equitable and sustainable rural communities with
food security for all
? Outcome 8. Sustainable human settlements and improved quality of household
life
? Outcome 9. A responsive, accountable, effective and efficient local government
system
? Outcome 10. Environmental assets and natural resources that are well protected
and continually enhanced
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? Outcome 11. To create a better South Africa and contribute to a better and safer
Africa
? Outcome 12. To create an efficient, effective and development-oriented public
service and an empowered, fair and inclusive citizenship for all citizens
(Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:10-11).
The Mangaung Metropolitan Municipality Integrated Development Plan, Review
2013/2014, (2013:14) further emphasized that outcome 9 is the most important outcome
for all municipalities. As such the national Department of Cooperative Governance and
Traditional Affairs (CoGTA) identified seven outputs to achieve a responsive,
accountable, effective and efficient local government system (Outcome 9). The seven
outputs include the following:
? To implement a differentiated approach to municipal financing, planning and
support
? To improve access to basic services for all citizens
? To implement Community Work Programmes
? To identify actions that is supportive of the human settlement outcomes
? To deepen democracy through a refined Ward Committee model
? To improve administrative and financial capabilities and to promote coordination
through the establishment of a “single window” of coordination (Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
2013:14).
The above requires that all municipalities have to adopt its Integrated Development
Planning (IDP) process to implement the Community Work Programmes, as well as to
ensure Ward Committees are representative and fully involved in community
consultation processes around the IDP, budget and other strategic service delivery
aspects. It also requires that all municipalities improve municipal financial and
administrative capacity by implementing competency norms and standards and to act
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against corruption and incompetence in a suitable manner (Mangaung Metropolitan
Municipality Integrated Development Plan, Review 2013/2014, 2013:14).
Each municipality should take into account the fundamental provincial government?s
framework, namely the Growth and Development Strategy (PGDS) that should be
aligned in its Integrated Development Planning (IDP) and budgetary process. The Free
State Provincial Growth and Development Strategy (PGDS), Vision 2030 sets out the
six key development priority areas of intervention and sets broad measurable
performance targets for the medium and longer term. The six priorities include the
following; “Inclusive economic growth and sustainable job creation; education innovation
and skills development; improved quality of life; sustainable rural development, efficient
administration and good governance and to build social cohesion” Thus, the Mangaung
Metropolitan Municipality aligns its Growth and Development Strategy and its Integrated
Development Plan (IDP) with those of the Free State Provincial Growth and
Development Strategy (PGDS), Vision 2030 (Mangaung Metropolitan Municipality
Integrated Development Plan, Review 2013/2014, 2013:16-17).
Another key development plan that was adopted by Cabinet in August 2012 is the
National Development Plan, 2030 which sets out specific development priorities and
proposes performance targets that intersect with the development mandates assigned
to all municipalities. The National Development Plan, 2030 requires from all
government departments, including municipalities, to implement the plan. Thus,
municipalities are required to respond to the development imperatives as stated in the
National Development Plan, 2030 during the IDP review process for the next five years
and as well as when developing the three-year Medium-term Revenue Expenditure
Frameworks (MTEF) of the municipality (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, (2013:14-15).
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2.7 LIMITATIONS OF INTEGRATED DEVELOPMENT PLANNING
Integrated Development Plans in South African Municipalities have several limitations
(World Bank World Bank Report on Accountability in the Public Sector in South Africa,
2011:61-62). These limitations include the following: firstly the IDPs have a five-year
strategic vision without concrete mechanisms to influence the annual budgeting and
priority setting. Secondly, Municipal Systems Act, 2000 provides that public participation
is mandatory. In reality in most municipalities, public participatory in the Integrated
Development Planning (IDP) process is limited. The report mentioned that when
citizens are effectively informed about Integrated Development Planning (IDP),
community participation in the IDP process increase. The report cited that municipal
officials drive the Integrated Development Planning (IDP) process rather than
councillors or citizens, without effective widespread public community participation. The
report further showed that councilors are informed about Integrated Development
Planning (IDP) activities, but that they are not really involved in the Integrated
Development Planning (IDP) decision-making process. Friedman (in World Bank
2011:62) is of the opinion that there are instances where the communities were asked
to comment on specific municipalities Integrated Development Planning (IDP) resource
allocations that municipal officials had already agreed on, while ward councilors had not
even seen the draft Integrated Development Plan (IDP). Therefore the report indicated
that “public participation has largely been restricted to input-gathering activities of the
Integrated Development Planning (IDP) processes with little effectiveness, because
communities are not compelled to explore and resolve competing demands and trade-
offs themselves between communities with different needs” (Pieterse et al in World
Bank Report on Accountability in the Public Sector in South Africa, 2011:62). Thirdly,
the interpretation of the purpose of the Integrated Development Plan (IDP) differs
between municipal officials and members of the community in that municipal officials
see the IDP as a strategic tool rather than operational. Municipal officials further views
community participation as a legal requirement and simply seek public agreement on
their municipalities? Integrated Development Plan (IDP). Fourthly, the report further
mentioned that although the Integrated Development Planning (IDP) processes makes
provision for consultation mechanisms it is not widespread enough to ensure that
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municipal planners are accountable to citizens for the effective implementation of their
municipal IDPs. Fifthly, the public knowledge of Integrated Development Planning
(IDPs) is low. The report showed that in Alexander a township in Gauteng province only
7 percent of the residents had heard of the Integrated Development Plan (IDP).
Sixthly, there is a major challenge in information materials outlining the Integrated
Development Plan (IDP) that should set the stage for public participation, as the
municipal IDPs are written in technical English. Often notices of public meetings are
not widely distributed. Seventhly, another limitation is that facilitation of meetings in
some municipalities is often poor and the outcomes and targets are not clear. Lastly, a
further limitation is that after the public participation meetings, the reports following the
meetings are often not created and distributed. The public participate as individuals
while civil society organisations are mostly absent from Integrated Development
Planning (IDP) public community participation meetings. The World Bank Report on
Accountability in the Public Sector, in South Africa (2011:6) further cited that in cases
where civil society organisations participate more fully, service delivery challenges are
effectively identified. The result is that the prioratisation of service delivery needs is also
more appropriate if civil society organizations attend Integrated Development Planning
(IDP) community participation meetings (World Bank Report on Accountability in the
Public Sector, in South Africa 2011:62). In the light of this the Presidency, in Towards
the Ten Year Review cited that Integrated Development Planning (IDPs) as a form of
local consultation that seeks the effective participation of local communities in order to
identify their needs to involve the communities in more decision-making processes
concerning their municipal IDPs, remains a challenge. As discussed in Section 2.7 the
Department of Cooperative Governance and Traditional Affairs (CoGTA) announced the
draft Local Government Turnaround Strategy (LGTAS) that was approved by Cabinet in
December 2009 to address the numerous challenges and amongst others, the
limitations of integrated development planning. The components of an Integrated
Development Planning (IDP) process will be discussed in the next section.
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2.8 COMPONENTS OF AN INTEGRATED DEVELOPMENT PLANNING PROCESS
The DPLG, IDP Guide Pack III, (2000:15) provides the detail on the Integrated
Development Planning (IDP) methodology that needs to be followed by all
municipalities. Whereas, DPLG, IDP Guide Pack, 0, An Overview (2000:16) states that
before the Integrated Development Planning (IDP) process can commence, a
municipality has to compile its IDP Process Plan to ensure proper management of the
planning process. The IDP Process Plan must contain the following information of a
municipality, namely the institutional structures to be established for the management of
the process, the approach that needs to be followed concerning public participation, the
structures to be established for public participation and the time schedule for the
planning process. It should also outline the roles and responsibilities and indicate how
the process will be monitored. Furthermore, as part of the preparation stage, a district
municipality must adopt a framework for Integrated Development Planning (IDP) that
will guide each municipality with the preparation of their IDP Process Plan. Thus, the
framework for Integrated Development Planning (IDP) determines the procedures for
consultation, coordination and alignment between the district and the local
municipalities IDPs.
The Integrated Development Planning (IDP) methodology consists of five phases as
cited in the IDP Guide Pack, O, An Overview (2000:16), that will be discussed in this
section. Nealer in Van der Waldt et al, (2007:102) mentioned that the Integrated
Development Planning (IDP) process should be seen as a strategic management
planning process that follows a logical sequential cycle, and a change in one phase of
the planning process will affect the other phases. Thus, each phase of the Integrated
Development Planning (IDP) process has its own challenges that will influence the
ultimate usefulness of the IDP in municipal service delivery. The Integrated
Development Planning (IDP) methodology consists of five phases that will be discussed
in this section.
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2.8.1 Phase 1: Situation Analysis Phase
During the analysis phase the municipality has to analyse the challenges faced by the
community in the municipal area such as poor service delivery, crime, unemployment,
and lack of basic service delivery amongst others. Public participation during this phase
is imperative in that the community who are affected by the challenges should be
involved in determining the nature and extent of these challenges. The challenges as
indicated by Local Government Sector Education and Training Authority (LGSETA) in
their IDP Skills Programme, Workbook III, (2000:44) are weighed according to their
urgency and their importance in that the municipality will not have sufficient resources to
address all of the various challenges faced by the community. During the situation
analysis all planning decisions need to be based on reliable and relevant information
that are used to draw conclusions and to determine priority issues. The national key
performance areas for local government as outlined in the Local Government Municipal
Planning and Performance Management Regulations, 2001, are: infrastructure and
service, socio-economic development, democratiation and governance, institutional
transformation and financial management that will assist municipalities to collect and
organize information during the situation analysis phase of the Integrated Development
Plan (IDP) according to these performance areas. This process will assist municipalities
to avoid a common mistake in the Integrated Development Planning (IDP) process
namely, to exclude institutional and financial related issues in their IDP process. The
key performance areas also inform the strategic objectives which municipalities have to
formulate during the next phase of the Integrated Development Planning (IDP) process.
The outputs of the analysis phase includes an assessment of existing level of
development, identification of priority issues, information on the extent and nature of the
causes of priority issues and information on available resources to address these issues
(LGSETA, IDP Skills Programme Workbook III, 2000: 44; IDP Guide Pack, 0, An
Overview, 2000:17).
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2.8.2 Phase 2: Strategies Phase
Once a municipality has a clear understanding of its challenges and priority issues it
must then formulate the solutions to address these challenges. The IDP Guide Pack,
O, An Overview, (2000:17) states that public participation during this phase should take
the form of a public debate on the appropriate ways to solve the challenges that were
identified during the first phase. The strategy phase includes the following outputs:
? The vision. The vision can be seen as a statement that indicates the ideal
situation the municipality would like to achieve in the long term once it has
addressed the challenges as identified during the first phase of the Integrated
Development Planning (IDP) process (IDP Guide Pack, 0, An Overview,
2000:17).
? Development objectives. The priority issues identified during the first phase
need to be translated into quantifiable and achievable objectives. IDP Guide
Pack, 0, An Overview, (2000:17) maintains that development objectives are
statements which refer to what the municipality would like to achieve in the
medium term in order to address the challenges as well as to realise the vision
statement of the municipality. The MFA, Circular 13 as cited in LGSETA, IDP
Skills Programme Workbook III, (2000:72) also requires that these strategic
objectives identified during phase 2 must be integrated into service delivery
targets in the Service Delivery and Budget Implementation Plan (SDBIP).
? Development strategies. Once the municipality has identified its development
objectives, it must then develop its development strategies as the most
appropriate way and means to achieve the set objectives (Nealer, in Van der
Waldt et al, 2007:104).
? Project identification. As soon as the municipality formulated its strategies
the municipality has to identify a list of projects. Once projects are listed, a
financial and resource discussion should follow to fund the required projects.
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Without funding possibilities the strategy becomes problematic and the
municipality has to discuss alternatives (LGSETA, IDP Skills Programme
Workbook III, 2000:78).
2.8.3 Phase 3: Project Phase
During this phase the municipality deals with the design and specification of projects for
implementation. IDP Guide Pack, 0, An Overview, (2000:17) holds that the municipality
must ensure that the identified projects are aligned to the priority issues and the
strategic objectives that were identified during the first phase. During this phase the
target group as the beneficiary of the projects, the location of the project, the time
frames of the project, the role clarification, the resources needed and the people who
will fund the projects and the specific indicators to measure the performance of the
projects need to be clarified. The outputs of this phase include: performance indicators,
project outputs, targets and the location, the project details and time frames, and the
cost and budget estimates (Nealer in Van der Waldt et al, 2007:104; IDP Guide Pack, 0,
An Overview, 2000:17-18).
2.8.4 Phase 4: Integration Phase
During this phase the municipality has to ensure that the projects are in line with the
municipality?s objectives, strategies, resource frameworks and that it complies with legal
requirements. During this phase the municipality has to consolidate its operation
strategies which include the following:
? Integrated Sector Programmes that include the Integrated Local Economic
Development Programme (LED), poverty alleviation, an Integrated HIV/AIDS
programme and an integrated environmental program
? An Integrated institutional plan
? A 5 year financial plan
? A 5 year capital investment programme
? An Integrated Spatial Development Framework
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? A consolidated monitoring and performance management system
(LGSETA, IDP Skills Programme Workbook III, 2000:96).
2.8.5 Phase 5: Approval Phase
During this phase the municipality has to submit its Integrated Development Plan (IDP)
to the municipal council for consideration and approval. Before the council?s approval
of the municipalities? Integrated Development Plan (IDP), the municipality must give the
public an opportunity to comment on the draft IDP. Once the municipality amends the
draft Integrated Development Plan (IDP) in accordance to the input from the public the
council considers the IDP for approval (IDP Guide Pack, 0, An Overview, (2000:19).
Once a municipality has adopted its Integrated Development Plan (IDP), the Member of
Executive Council (MEC) of the province has to assess that the IDP complies with the
requirements of the Municipal System Act, 2000 and that the municipality?s IDP is not in
conflict with the IDPs and strategies of other municipalities and organs of state (IDP
Guide Pack, 0, An Overview, 2000:19). The Integrated Development Plan (IDP) of a
municipality cannot be implemented without the necessary resources and funding
available. In the next section the Integrated Development Plan (IDP) and municipal
budgets are discussed.
2.9 INTEGRATED DEVELOPMENT PLANS (IDP?s) AND MUNICIPAL BUDGETS
The Constitution, 1996 provides in Section 215 that all spheres of government must
have budgets to promote accountability, transparency and effective financial
management. Therefore the municipal budget is a legal requirement of all municipalities
and can be seen as a financial plan for the appropriation of finances for the
implementing of the Municipalities activities. The Municipal budget provides the financial
framework that sets out how resources are allocated to achieve the municipalities
objectives for each financial year. Fourie, and Opperman, (2011:122) are of the opinion
that the Integrated Development Plan (IDP) serves as the strategic blueprint of the
municipality. However, the annual municipal budget provides the financial framework
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for the effective implementation of the municipalities? Integrated Development Plan
(IDP).
According to Fourie, and Opperman, (2011:123) a municipal budget consists of two
components, namely the capital budget and the operating expenditure budget and an
operating or operational budget that are integrated into a total budget. The capital
budgets refer to the amounts that are allocated to spend on acquiring or developing
municipal assets that have an expected lifespan of at least three years. Valeta and
Watson (in Montingoe, 2011: 29) are of the opinion that the capital and the operational
budget must be aligned with the objectives and strategies set out in the municipality?s
Integrated Development Plan (IDP). The capital budget makes provision for all capital
and development programmes and projects. Thus the capital budget represents the
fiscal expression of the Integrated Development Plan (IDP) of the municipality. The
operational budget refers to the amounts allocated to pay for the running costs of the
municipality, covering both its direct and support services (IDP Guide Pack IV 2000:
39). The capital budget is therefore a budget that addresses the acquiring or
developing of fixed assets, whereas the operational budget refers to the payment of
short term running costs of the municipality.
Fourie, and Opperman, (2011:124) further maintain that municipal budgets are
traditionally divided into votes. The purpose for dividing a budget into capital and
operating votes is to ensure that each of the principal activities and projects of the
municipality is assigned a fair portion of the resources available and to hold the relevant
head of the department or senior official accountable for managing the resources
allocated to the specific vote in an efficient manner. The votes on the operating budget
will represent the principal activities of the municipality which may be the various
departments into which the municipal structure has been divided, amongst others, as
emergency management and technical services. Fourie and Opperman, (2011:123)
further mentioned that in larger municipalities departments are often divided into several
votes as in the case of technical services it would be divided into separate votes such
as electricity services, water services, sewerage, refuse removal and related services,
roads, stromwater and public works. Whereas, in the case of the capital budget, it is
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customary to allocate a separate vote for each project to be undertaken as well as for
each major fixed asset or group of fixed assets.
The Municipal Finance Management Act, 2003 (Act 56 of 2003) indicates that a
municipality may incur expenditure only in terms of approved budgets, and within the
limits of the amounts appropriated for the different votes in an approved budget. The
Act further provides that for each financial year the council of a municipality must
approve an annual budget for the municipality before the start of that financial year.
Although preparing the municipal budget and the Integrated Development Plan (IDP)
are separate processes, the two are closely linked. According to DPLG, IDP Guide
Pack VI, (2000:39) the budget and the Integrated Development Planning (IDP) process
of the municipality are closely linked, not only to assist the municipality to achieve its
developmental responsibilities set out in the IDP, but to also budget for outcomes and
outputs as outlined in the service delivery objectives of the municipality?s IDP as well as
inputs from the community to promote transparency with the allocation of finances. The
Municipal Finance Management Act, 2003 further provides in Section 21 that when
preparing the annual budget, the mayor of the municipality must take into account the
municipality?s Integrated Development Plan (IDP). The mayor must also coordinate the
processes for preparing the annual budget and reviewing the municipality?s Integrated
Development Plan (IDP) and budget related policies to ensure that the tabled budget
and any revisions of the IDP and budget related policies are consistent, and credible.
Thus, the municipality?s budget must conform to the municipality?s Integrated
Development Plan (IDP). According to DPLG?s, IDP Guide Pack VI, (2000:42) linkage
of the municipality?s Integrated Development Plan (IDP) and the budgeting process
further relies on the effective cooperation, role and function clarification of the different
role players within the Municipality as outlined in Table 2.1.
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Table 2.1: Roles and Functions with the municipal budgeting and IDP process
Role players
Function in IDP
process
Function in Budget
process
Role in linking the
processes
Executive Mayor To ensure the Council
fulfills its legal
responsibilities by
preparing an IDP
within legislative and
procedural guidelines
To ensure the Council
fulfills its legal
responsibilities by
preparing an annual
budget and a three
year financial plan
within legislative and
procedural guidelines
Gives key political
support to the proper
integration of
processes
Council Responsible for
approving the IDP
Responsible for
passing the Budget
Assess the linkage is
achieved at the points
of passing joint IDP
and Budget and at
interim points in the
process
Municipal Manager Strategic
management of the
Process. Responsible
to see that the IDP is
carried out as
required by legislation
and procedures
Strategic
Management of the
Budgeting Process
and preparation of a
three year plan.
Accounting Officer of
the Municipality.
Is in best position to
ensure strategically
that the process is
integrated structurally
within the Council.
IDP Manager
(If no IDP Manager
the Municipal
Manager is
responsible)
Day to day
responsibility for the
Integrated
Development
Planning Process
Day- to-day work to
link with the financial
manager in helping to
ensure IDP outputs
are integrated into
Budget.
Ensures through all
IDP activities that
linkages are made
with Budget.
Ensure the flow of
information from the
Budget process into
the IDP and IDP
outputs into the
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Role players
Function in IDP
process
Function in Budget
process
Role in linking the
processes
Budgeting process.
Financial Manager Key participant in the
IDP Steering
Committee
Day- to -day
management of the
budgeting process.
Ensures that IDP
outputs are integrated
into Budget.
Ensure timing and
alignment of the two
processes.
IDP Steering
Committee
Oversee the effective
management of the
IDP process
Contribute to the
assessing of needs
and prioritising
Ensure the
organisational linkage
with the Budget
Steering Committee.
IDP and Steering
Committees could be
structured together
under the coordination
of the Municipal
Manager.
IDP Representative
Forum
To provide community
stakeholder inputs
into all phases of the
IDP
Can provide
community
stakeholder inputs
into consultation parts
of the IDP linked to
the Budgeting
process.
Ensure that terms of
reference and
membership of forum
reflects this
contribution to both
processes.
(Source: DPLG, IDP Guide Pack VI, 2000:41).
Thus, all role players have specific functions to ensure the effective integration and
alignment between the Integrated Development Plan (IDP) and that the Budgeting
process take place. DPLG, IDP Guide Pack VI, (2000:42) further cited that the effective
interlinking of Integrated Development Plan (IDP) activities within joint time frames is
crucial. In addition, the timing of the different Integrated Development Planning (IDP)
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phases, namely the preparation phase, the analysis phase, the strategies phase, the
project phase, the integration phase and the IDP approval phase are determined by the
budgeting process. Furthermore, the Integrated Development Plan (IDP) and the
municipal budgeting process must interact with the national and provincial budget
process. The differences between the financial year of the spheres of government and
the Integrated Development Planning (IDP) process make it even more difficult to
synchronise the budgeting process. It requires from municipalities to have their priority
inputs as indicated in the Integrated Development Plan (IDP) ready 12 months before
the actual financial year in which that they will spend on the implementation (DPLG, IDP
Guide Pack VI, 2000:42). The Municipalities? five year Financial Plan must inform the
other spheres of government budget process in a proactive and timeous manner. The
Medium Term Revenue Expenditure Framework (MTREF) also requires from all three
spheres of government to do budget projections for a three year period. The Medium -
term Revenue Expenditure Framework (MTREF) takes its detail from the five year
Financial Plan of the Integrated Development Plan (IDP) and the annual IDP review.
The Medium -term Revenue Expenditure Framework (MTREF) assists the spheres to
establish their three year budgets with commitments for one year and indicative figures
for the following two years (DPLG, IDP Guide Pack VI, 2000:38-42). According to the
DPLG, IDP Guide Pack VI, (2000:38-42) the support of good financial planning and
management is central to the implementation of the IDP process and particularly the
integration of the various project costs, effective fiscal planning, the five year financial
plan and the capital and operational budget developments. The the effective interlinking
of the Integrated Development Plan (IDP) and the budgeting process thus relies on pro-
active planning and effective management of different role players. Taking cognisance
of the abovementioned alignment Van Niekerk (2012:25) mentioned that all
municipalities should ensure that their Municipal Turnaround Strategy (MTAS), the
Integrated Development Plan (IDP), the Municipal Budget, their Service Delivery Budget
Implementation Plan (SDBIP) as well as the Municipality?s Performance Management
Systems are aligned to ensure effective implementation of the budget and the
Integrated Development Plan (IDP), as well as to measure their performance optimally.
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The Municipal Finance Management Act, 2003 provides that the “funding of a
municipality?s expenditure may only be funded from realistically anticipated revenues
that may be collected, or from cash-back accumulated funds from previous years?
surpluses not committed for other purposes and borrowed funds, but only for the capital
budget”. The Municipal Finance Management Act, 2003 further provides that a
municipality may spend funds on a capital project only if the funds for the projects have
been appropriated in the capital budget, the project has been approved by the council,
and the sources of funding that have been considered, are available and have not been
committed for other purposes.
Van der Waldt et al (2007:202-203) hold that municipalities generate funds by collecting
taxes, levies, rates and service charges from the inhabitants within its municipal area.
As such a municipality must generate more than 90% of its budget from their own
revenue sources. Transfers from others spheres of government are of a much smaller
percentage of local government revenue. In obtaining financial resources the
municipality should maximise both its operational and capital financing to be able to
achieve its mandate (DPLG, IDP Guide Pack VI, 2000:42).
According to Pillay, Tomlinson and Du Toit (2001:160-161) a municipality?s revenue is
supplemented by substantial grants from the national sphere of government. The
Division of Revenue Act provided the basis for the transfers and sets out grants to all
municipalities for the next three financial years. All these transfers should be gazetted.
The three year Medium Term Revenue Expenditure Framework (MTREF) as indicated
in the DPLG, IDP Guide Pack VI, (2000:48-52) allocations by the National Sphere of
Government makes provision for the following grants:
? The National Government Grants such as the equitable share and related grant
and water and sanitation operating grant
? The capacity building and restructuring grant such as the Local Government
support Grant, the Financial Management Support Grant and the Municipal
System Improvement Programme
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? Capital grants such as the Municipal Infrastructure Grant, Community Based
Public Works and Local Economic Development (LED) grants.
According to the DPLG, IDP Guide Pack VI, (2000:52-53) provincial government loans
and direct payments refer to funds from provincial government revenue resources to
municipalities such as:
? Agency Agreements. If there is a direct transfer of finances from a provincial
government service function carried out by a Municipality on behalf of the
provincial government
? Specialist Subsidy such as a housing subsidy.
Other sources of funding refer to grants from international agencies operating within
South Africa and through international agencies without presence in South Africa
(DPLG, IDP Guide Pack VI, 2000:52: 53).
2.10 IMPLEMENTATION OF THE MUNICIPAL BUDGET AND THE INTEGRATED
DEVELOPMENT PLAN THROUGH THE SERVICE DELIVERY AND BUDGET
IMPLEMENTATION PLAN (SDBIP)
Van der Walt et al (2007:190) mentioned that both the municipality?s budget and its
integrated Development Plan (IDP) are strategic plans and not implementation plans.
Therefore, all municipalities must develop a Service Delivery and Budget
Implementation Plan (SDBIP). The Municipal Finance Management Act, 2003 provides
that each municipality must compile its Service Delivery and Budget Implementation
Plan (SDBIP) to ensure the effective implementation of its budget and IDP. The
Municipal Finance Management Act, 2003 and the National Treasury?s Circular 13 as
cited in LGSETA, IDP Skills Programme Workbook III, (2000:72) introduce the Service
Delivery and Budget Implementation Plan (SDBIP). The Service Delivery and Budget
Implementation Plan (SDBIP) is a detailed annual financial operational plan that gives
effect to the municipal Integrated Development Plan (IDP) and the municipal?s budget.
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It also serves as a contract between the municipal administration, council and
community in that it expresses the goals and objectives set by the council in quantifiable
outcomes for the next twelve months. It requires that all municipalities must report on
their achievements of the specific targets by the end of a year in relation to the budget
spent. Fourie, and Opperman, (2011:185) maintain that the Municipal Financial
Management Act, 2003 states that the Municipal Manager as the accounting officer of
the municipality must submit to the mayor a draft Service Delivery and Budget
Implementation Plan (SDBIP) for the budget year to the major no later than fourteen
days after the approval of the annual municipal budget.
In light of the above Fourie, and Opperman, (2011:185) state that the municipality?s
Service Delivery and Budget Implementation Plan (SDBIP) promotes accountability in
that it holds the municipality and its management accountable for the performance of
set targets, programmes and projects. The Service Delivery and Budget Implementation
Plan (SDBIP) does not introduce an additional monitoring process, but can be seen as a
comprehensive framework that links the budget performance with the Integrated
Development Plan (IDP) performance within the municipality?s performance
management system. The National Treasury, Circular 13 (2005:5) further holds that the
Service Delivery and Budget Implementation Plan (SDBIP) requires the transfer of
implementation measures such as specific targets and performance indicators as set in
the municipalities Integrated Development Plan (IDP) and the budget, to the
performance management system.
The Municipal Finance Management Act, 2003 and the guiding National Treasury,
Circular 13 (2005:5) requires that the following to be included in the Service Delivery
and Budget Implementation Plan (SDBIP) of all municipalities:
? Monthly projection of revenue to be collected for each source
? Monthly projections of expenditure (operating and capital) and revenue for each
vote
? Quarterly projections of service delivery targets and performance indicators for
each vote.
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Thus, the Service Delivery and Budget Implementation Plan (SDBIP) serves as the
financial operational implementation plan of a municipality?s Integrated Development
Plan (IDP) and its budget and is aligned with the performance management system of a
municipality. In the following section attention will be focused on the implementation of
the Local Government Turnaround Strategy.
2.11 IMPLEMENTATION OF LOCAL GOVERNMENT TURNAROUND STRATEGY
According to Van Niekerk (2012:58) the Local Government Turnaround Strategy
(LGTAS) is a country-wide intervention that strives to address the communities?
increasing dissatisfaction with poor municipal services, as well as to improve the
administrative and financial performance of all municipalities. The Department of
Cooperative Governance and Traditional Affairs (CoGTA, 2010:3-4) states that the
Local Government Turnaround Strategy (LGTAS) has different focus areas, namely the
immediate priorities prior to the 2011 elections and the medium-term focus or post
election priorities from March 2011 till 2014.
2.11.1 Immediate priorities prior to the 2011 elections
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:22-23) the emphasis of the immediate priorities prior to the
2011 elections are to address the immediate financial and administrative problems in
municipalities with regard to a lack of effective and efficient service delivery
mechanisms in place. Another priority is to improve and regulate the indiscriminate
hiring and firing of valuable staff members, and ultimately ensuring and implementing a
transparent municipal supply chain management system. Other immediate priorities
included the following: to strengthen the Ward Committee capacity; to ensure national
and provincial commitments in the municipal Integrated Development Planning process
(IDPs); to differentiate responsibilities and to simplify Integrated Development Planning
(IDP); to promote a funding and capacity strategy for municipal infrastructure such as
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extending the Municipal Infrastructure Grant (MIG) to 2018 in rural areas; upscale
community work programmes to ensure ward based development systems; to
implement the “Revenue Enhancement and Public Mobilisation” campaign, as well as
the launching of the “good citizenship” campaign that focus on good governance values
to unite the nation and to promote the involvement of communities in local development
affairs (CoGta, LGTAS, 2009:22-23).
The Department of Cooperative Governance and Traditional Affairs, (CoGTA, LGTAS,
2009:22-23) further states that the immediate priorities prior to the 2011 elections
consisted of four phases that commenced at the end of January 2010 and concluded in
March 2011. The first phase was a pilot project in that selected municipalities had to
complete the standardized Local Government Turnaround Strategy (LGTAS) template
provided by the Department of Cooperative Governance and Traditional Affairs in order
to develop their own tailor-made Municipal Turnaround Strategies. During the second
phase of the immediate priorities all municipalities followed the same process before
incorporating their Municipal Turnaround Strategies (MTAS) into their Integrated
Development Plan (IDP). The third phase includes the budgeting and approval of each
municipality?s Integrated Development Plan (IDP) after the incorporation of the
Municipal Turnaround Strategies (MTAS). The fourth phase involves the
implementation of the Integrated Development Plan, as well as the monitoring and
evaluation of the implementation process (Department of Cooperative Governance and
Traditional Affairs, CoGTA, LGTAS, 2009:22-23; Van Niekerk, 2012:59).
2.11.2 Medium-term of post-election 2011 to 2014 priorities
The medium-term priorities strive to achieve the Department of Cooperative
Governance and Traditional Affairs;s, Vision 2014, that includes the following priorities:
? To establish a single election for national, provincial and local government
? To reduce infrastructure backlogs, establish the clean cities approach through
the management of waste in such a way that it creates employment and wealth
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? To ensure that all schools, clinics and hospitals and other public facilities have
access to water, sanitation and electricity
? To ensure that each municipality has the necessary Information and
Communication Technology (ICT) infrastructure and connectivity
? To ensure that all provinces and all municipalities have clean audit reports;
? To reduce municipal debt by half
? To empower and capacitated organs of people?s power such as ward
committees
? To train competent councilors, traditional leaders, officials, ward committee
members, community development workers and community activists
(Department of Cooperative Governance and Traditional Affairs (CoGTA,
LGTAS, 2009:23-24 and Van Niekerk, 2012:60).
2.11.3 Institutional Arrangements for the implementation of the Local Government
Turnaround Strategy (LGTAS)
Van Niekerk (2012:60) maintains that the Department of Cooperative Governance and
Traditional Affairs (CoGTA) introduced a number of support measures to ensure that all
role players effectively contribute to the successful implementation of the Local
Government Turnaround Strategy (LGTAS). These measures include the establishment
of a special ministerial advisory and monitoring structure, the National Coordinating Unit
(NCU) that is responsible for monitoring and reporting on the the progress of the Local
Government Turnaround Strategy across government and society. Technical Services
Units (TSUs) are established in all provinces to provide technical support to all
municipalities with the implementation of their tailor-made Municipal Turnaround
Strategies (MTAS). Another support measure that was established is an
intergovernmental working group to support the implementation of the Local
Government Turnaround Strategy (LGTAS). The composition of the intergovernmental
working group consisted of officials from the various national sector departments, the
offices of provincial premiers, a representative from the South African Association of
Local Government (SALGA) and from the Department of Cooperative Governance and
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Traditional Affairs (CoGTA) (Department of Cooperative Governance and Traditional
Affairs (CoGTA), LGTAS, 2009:44).
2.11.4 Success factors for the implementation of the LGTAS
According to the Department of Cooperative Governance and Traditional Affairs
(CoGTA), (LGTAS, 2009:46-47) the following success factors are an imperative for the
successful implementation of the Local Government Turnaround Strategy (LGTAS),
namely:
? Institutional capacity to develop and successfully implement each municipality?s
own the tailor-made Municipal Turnaround Strategy (MTAS)
? Political ownership at different spheres of government to oversee the
implementation of the Local Government Turnaround Strategy (LGTAS). This
means that existing institutional arrangements should be utilised at national,
provincial and local sphere that includes the Minister of the Department of
Cooperative Governance and Traditional Affairs (CoGTA), the nine Premiers, the
Members of Executive Councils responsible for Local Government and Mayors;
? Effective leadership is needed from the Municipal Managers and councillors to
implement the Local Government Turnaround Strategy effectively in all
municipalities
? Effective communication is needed to enhance public awareness through
effective consultation processes with various stakeholders concerning the
developments surrounding the implementation of the Local Government
Turnaround Strategy (LGTAS).
Thus, the successful implementation of the Local Government Turnaround Strategy
requires not only political ownership, effective management and leadership, but also
commitment from all stakeholders to turn around the financial and service delivery
challenges of each municipality.
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2.12 ROLE OF INTERGOVERNMENTAL RELATIONS
According to the Intergovernmental Relations Framework Act, (Act 13 of 2005)
Intergovernmental Relations refer to the relationships that arise between different
spheres of government or between organs of state from different governments in the
conduct of their affairs. The nature of relations between the different spheres of
government at national, provincial and local government means that different structures
are dependent on other structures for resources. Local governments depend on
resources from provincial and national government to implement specific programmes.
Furthermore the implementation of national policies requires effective cooperation and
coordination between the three spheres of government. Geldenhuys (in De Vries,
Reddy and Haque, 2008:94) indicates that the effective implementation of public
policies required effective coordination of aspects such as programming, planning and
budgeting and communication actions through the different intergovernmental relations
structures. Geldenhuys (in De Vries et al, 2008:96) is further of the opinion that
intergovernmental relations are inspired by a set of formal and informal processes and
institutional arrangements and structures that lead to bilateral and multilateral
cooperation between the different spheres of government. Integrated Development
Planning (IDP) processes and reviews serve as an example of these kinds of actions.
In light of the above, Chapter 3 of the Intergovernmental Relations Framework Act,
2005 contains specific provisions for the establishment of different municipal
intergovernmental forums such as district intergovernmental forums, Integrated
Development Planning Forums (IDP forums), the composition, role and meetings of
these forums and inter-municipality forums. Furthermore, Chapter 3 of this Act
contains specific provisions of the way to deal with the conduct of intergovernmental
relations, including provincial policies and legislation affecting local government and the
responsibility for coordinating intergovernmental relations in district municipalities.
Section 25 of the Intergovernmental Relations Framework Act, 2005 reflects the role of
the district intergovernmental forum, namely to serve as a consultative for the promotion
and facilitation of intergovernmental relations between the district municipality and the
local municipalities in the district on matters of mutual interest such as draft national and
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provincial policy and legislation that will affect local government?s interest in the district;
the implementation of national and provincial policy and legislation; matters arising in
the Premier?s intergovernmental forum that affect the district; mutual support in terms of
Section 88 of the Local Government Municipal Structures Act, 1998; the provision of
services within the district; matters concerning coherent planning and development in
the district such as the Integrated Development Plan (IDP); the coordination and
alignment of the strategic and performance plans and priorities, objectives and
strategies of the municipalities within the district area; and any other matters of strategic
importance that affect the interest of the municipalities in the district.
Section 27 of the Intergovernmental Relations Framework Act, 2005 contains specific
provisions pertaining to inter-municipality forums. The role of the inter-municipality
forum is to serve as consultative forum for the participating municipalities to discuss and
consult each other on matters of mutual interest including cooperation on municipal
development challenges affecting more than one municipality, to sharing information on
best practices and to consulting with each other on other matters of strategic
importance that affects the interest of the participating municipalities. The
Intergovernmental Relations Framework Act, 2005 also makes provision for
Intergovernmental technical support structures to provide technical support structures if
there is a need for such a service.
The role of these forums is dealing with intergovernmental relations and the operational
activities at local sphere in terms of other applicable legislation including the Local
Government?s Municipal Systems, 2000 and the Municipal Finance Management Act
(MFMA), 2003 and other applicable legislation and policies could not be over-
emphasised to ensure the effective implementation of Integrated Development Plans
(IDPs) and matters of mutual interest such as the effective implementation of Local
Government Turnaround Strategies.
Section 32 of the Municipal Systems Act, 2000, contains specific provisions for the
effective coordination and alignment of Integrated Development Plans (IDPs) of the
different municipalities within their areas, including the district and local municipalities
90
within its area as well as to ensure that IDPs are in accordance with the plans,
strategies and programmes of national and provincial government. Therefore, the
successful implementation of the Integrated Development Planning (IDP) processes
depends on the effective cooperation between, and consultation with municipalities and
between all the applicable intergovernmental relations forums.
2.13 THE ROLE OF LOCAL ECONOMIC DEVELOPMENT
According to the National Framework for Local Economic Development (LED), (DPLG,
2006:9) local economic development is about creating a platform and environment to
engage stakeholders in implementing strategies and programmes. Although the
Constitution, 1996 stipulates in Section 154 that the local sphere has a distinctive role in
promoting social development, schedules 4 and 5 make provision for the functions of
local authorities. The schedules do not include Local Economic Development,
prompting views that local economic development was unfunded mandates for
municipalities. The White Paper on Local Government, 1998 reinforced the mandate by
recognising that the South African local government is primarily responsible for
developmental local government in that municipalities must be committed to work with
citizens and groups within the communities to find sustainable ways to meet their social,
economic and material needs and to improve the quality of the citizens lives. The White
Paper on Local Government, 1998 further emphasised that, local government is not
directly responsible for creating jobs, but local government is responsible for taking
active steps to ensure that the overall economic and social conditions are conducive to
promoting job creation and boosting the local economy. The White Paper on Local
Government, 1998 further emphasized that in realising the economic development
facilitation role of district municipalities, the funding for institutional capacity as well as
implementation programmes should be established through a review of powers and
functions and the equitable share grant. Municipalities should not run local economic
programmes themselves, but should rather focus on establishing forums to build
partnerships and to draw on the support of a range of stakeholders, such as Sector
Education and Training Authorities (SETAs) to address skills development in specific
areas (DPLG, LED, 2006:9).
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The National Framework for Local Economic Development (LED), as viewed by DPLG,
(2006:10) maintains that local economic development (LED) is not just about what
municipalities do, but more about what the different spheres of government and other
support stakeholders do together with municipalities to promote job creation and boost
the local economy. Therefore, municipalities can actively provide support to local
stakeholders such as local enterprises by linking up with provincial and national
agencies in different economic sectors (Kroukamp, 2006:23-24; DPLG, LED, 2006:9-
11).
In promoting local economic development DPLG, (LED, 2006:19-20) emphasised the
primarily role of municipalities, namely to focus on:
? The provision of infrastructure and services to enhance economic efficiency
? To manage spatial policies
? To provide land-use regulations and development applications
? To manage service tariff policies
? To manage a progressive property tax system
? To market the territory effectively
Thus, local authorities need to ensure that the processes of regulation are administered
in such a way that it does not impair business start-up and growth and inhibit job
creation.
Kroukamp, (2006:24) mentioned that local economic development should be directly
linked to the process of Integrated Development Planning (IDPs) that focuses on the
sustainable development of municipal areas envisaged in the Municipal Systems Act,
2000. Section 26 of the Municipal Systems Act, 2000 provided that local authorities
must compile Integrated Development Plans (IDPs) that reflect the long-term vision of
the municipality, including its local economic development objectives. The provincial
government should draw up their Provincial Growth and Development Strategies
(PGDS) in line with the National Spatial Development Perspective (NSDP) and
Integrated Development Plans (IDPs) of the district and local government authorities.
The provincial government is also responsible for its role in facilitating finances and
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promoting and coordinating practices for developing the local economy (Lukkarinen in
Kroukamp, 2006: 29) Furthermore, councilors and municipal officials must be aware
of the stipulations in the municipal Integrated Development Plan and the Provincial
Growth and Development Strategies (PGDS) and the National Spatial Development
Perspective (NSDP) to promote co-ordination among the spheres of government to
ensure that resources are effectively and efficiently utilised.
2.14 THE ROLE OF PERFORMANCE MANAGEMENT
Performance Management can be seen as tool to monitor and evaluate the delivery of a
Municipality?s Integrated Development Plan (IDP) (DPLG, IDP Guide Pack VI,
(2000:111). The Performance Management Guide for Municipalities, (DPLG, State of
Local Government Management, 2001:16) cited that Integrated Development Planning
(IDP) fulfills the planning stage of performance management. The Guide further holds
that performance management fulfills the implementation management, monitoring and
evaluation of the Integrated Development Planning (IDP) process. Therefore the
effective performance management of each municipality?s Integrated Development Plan
(IDP) will assist the municipality to make appropriate changes in delivery and
management of resources. As such performance management enables municipalities
to identify and overcome major challenges as well as to guide future planning on
developmental objectives and to ensure the effective usage of resources (DPLG, IDP
Guide Pack VI, 2000:110).
The former Department of Provincial and Local Government also implemented
measures to enhance the performance of municipalities? Integrated Development
Planning (IDPs). Section 34 of the Municipal System Act, 2000 as well as the
Integrated Development Planning Guide Pack 1, (2000:110) set out specific measures
to enhance the performance of municipalities Integrated Development Plans (IDPs).
These measures include that all municipalities have to monitor, evaluate, review and
report on their performance against indicators and targets set in the municipalities?
Integrated Development Plans (IDPs). Other support systems, such as the Performance
Management Guide for Municipalities, (DPLG) 2001 outline how the Performance
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Management System (PMS) should be implemented. It means that the Performance
Management System (PMS) can be seen as the primary mechanism to plan for
performance management, monitoring, reviewing and improving the implementation of a
municipality?s Integrated Development Plan (IDP) (Montingoe, 2011:68). Furthermore,
performance management must assist municipalities in making immediate and
appropriate changes in delivery and the management of resources. It furthers assists
municipalities to identifying and overcoming specific blockages and in guiding future
planning on developmental objectives and resources (Van Niekerk, 2012:57). The
annual review of the municipality?s Integrated Development Planning (IDP) forms part of
the Performance Management System of a Municipality that will be discussed below.
2.15 ANNUAL INTEGRATED DEVELOPMENT PLANNING REVIEW PROCESS
The Municipal Systems Act, 2000 introduces the annual review and amendment of
Integrated Development Plans (IDPs). Section 34 of this Act provides that a municipal
council must review its Integrated Development Plan (IDP) annually in accordance with
an assessment of its performance measurements such as strategic objectives, targets
and performance indicators and to the extent that changing circumstances so demand
are taken into consideration. Section 34 of this Act further maintains that the Integrated
Development Plan (IDP) may be amended in accordance with a prescribed process.
The purpose of the Integrated Development Plan annual review as described by DPLG,
IDP Guide Pack VI, (2000:119) is to ensure that the Integrated Development Plan (IDP)
as a municipality?s strategic plan is still relevant. It also informs other components of
the municipality, such as the institutional and financial planning and budgeting process
as well as the cyclical intergovernmental planning and budgeting cycle. The annually
reviewed IDP can be seen as a key form of the Municipality?s three year Medium Term
Strategic Framework (MTSF) and the Medium Term Expenditure Framework as
required by the national and provincial spheres of government (DPLG, IDP Guide Pack
VI, 2000:119-120).
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The DPLG, IDP Guide Pack VI, (2000:119) and the Municipal Systems Act, 2000
maintain that the annual Integrated Development Planning (IDP) Review process should
include the following:
? Preparing for the annual Integrated Development Plan (IDP) Review. The
annual Integrated Development Planning (IDP) Review process commences with
the preparations of the IDP review in that certain institutional preparations have
to be made to ensure that the process will be conducted effectively. These
include the designing of an action plan for the review process, assigning roles
and responsibilities and to conducting institutional arrangements including the
confirming of the Integrated Development Planning (IDP) Steering Committee
and the procedures and mechanisms for public participation (DPLG, IDP Guide
Pack VI, 2000:119).
? The monitoring process. The monitoring process that refers to the gathering of
certain information such as implementation management information, information
about the achievement of objectives set in the Integrated Development Planning
(IDP) and relevant new information that may be generated from internal or
external sources that reflects changes to the internal and external context of the
municipal area. The latter could include information such as new policies and
legislations, budget information from other spheres of government as well as
municipal budget reviews processed, new information about existing situations
and priority issues, information about new development trends, changes in the
existing situations due to unexpected events such as natural disasters and new
investments opportunities (DPLG, IDP Guide Pack VI, (2000:119).
? Evaluation. During this phase the information gathered through the process of
monitoring is analysed and synthesised for its relevance to the Integrated
Development Planning (IDP). Therefore, the information is assessed to
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understand its relevance and implications to the priority issues, objectives,
indicators and targets.
? Review. During this phase the knowledge gathered through the evaluation
proofs is taken into account by assessing the content of the existing Integrated
Development Planning (IDP) and affecting appropriate changes. The review of
the IDP includes a refined understanding of the situation around priority issues;
additional objectives, revised new strategies and revised new projects. The
review activities also include the revision of projects, sector programmes and
integrated programmes such as Local Economic Development (LED) and the
Spatial Development Framework, financial plans and programmes.
? Council Adoption of Revised Integrated Development Planning (IDP). The
revised Integrated Development Planning (IDP) has to be adopted by the
Municipal Council.
? Prepare and Adopt an Annual Budget. This means that the next annual
Municipal Budget should reflect the objectives, strategies, projects and
programmes contained in the revised IDP (IDP Guide Pack VI, 2000:119).
The DPLG, IDP Guide Pack VI, (2000:119) further holds that the Integrated
Development Planning (IDP) is reviewed annually to reflect the impact of the
Municipality?s success as well as corrective measures to address its challenges. The
annual review process also takes into consideration changing internal and external
circumstances that impact on the set priorities, objectives, strategies, projects and
programmes of the municipal Integrated Development Planning (IDP).
Both the annual Integrated Development Planning (IDP) Review process and the
performance management system can be seen as mechanisms to assist the
municipality to assessing the implementation of its IDP to improve its capacity to deliver
effective services to its community.
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2.16 CONCLUSION
This chapter outlines the evolution as well as the origin, statutory and regulatory
framework of Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS). It further highlights the Implementation of IDPs and
LGTAS. It concludes by explaining how Integrated Development Planning (IDPs) and
the Local Government Turnaround Strategy (LGTAS) are operationalized within the
municipalities and indicates how external resources, organisational culture and
leadership culture supports their implementation in South Africa.
From the discussion in the chapter, it may be inferred that Integrated Development
Planning (IDP) and the Local Government Turnaround Strategy (LGTAS) are important
strategic interventions to address development challenges and their implementation is
crucial to achieve the developmental priorities and objectives of municipalities.
It was emphasised that the Local Government Turnaround Strategy (LGTAS) was
introduced to ensure that all municipalities and their communities embark on a
concentrated effort to address the root causes of the problems undermining the
country?s municipalities.
From the discussion in the chapter, it may be inferred that a “one size fits all” approach
to the Local Government Turnaround strategy is not realistic when it comes to ensuring
that all municipalities fulfill their developmental role and promote satisfactory service
delivery for all. Therefore, each municipality has to develop and incorporate its own
tailor-made Municipal Turnaround Strategy into their municipal Integrated Development
Plan, as well as in the budgeting, monitoring, evaluation and reporting process.
In the light of all the above expositions, it can be concluded that both the IDP and LED
are essential municipal developmental tools, without which none of the goals of the
South African development agenda will be achieved. The link between the two will
enhance the likelihood of achieving the goals and objectives of development. Now that
the place and role of the local government sphere in South Africa is clear, and that the
necessary legislation and executive structures are in place, effective governance that
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leads to development can be achieved. By taking it step by step and tackling every
unsatisfactory service delivery challenge individually in an effective manner, a positive
difference can be facilitated to enable all citizens to live a better life, as one of the main
objectives of the government is to ensure and sustain a livelihood for all the citizens.
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CHAPTER 3
PUBLIC PARTICIPATION, INTEGRATED DEVELOPMENT PLANNING AND GOOD
GOVERNANCE: A CONCEPTUAL AND PRACTICAL INTERFACE
3.1 INTRODUCTION
The previous chapter provided an overview of Integrated Development Planning (IDP).
The importance and objectives of the Local Government Turnaround Strategy were also
discussed. The purpose of this chapter is to explore the interface between Integrated
Development Planning (IDP), public participation and good governance. In this chapter
the key public participation concepts are outlined, followed by a discussion about the
legislative and policy framework for participatory governance, an overview of the
different approaches, building blocks and modes of public participation in local
government, public participation strategies, and public participation in local
government?s Integrated Development Planning (IDP) process and will conclude with a
brief outline of community participation in the case of the Mangaung Metropolitan
Municipality.
Since 1996 the Constitution of the Republic of South Africa, 1996 has laid the
foundation for the grass-roots democratisation, good governance and developmental
local government. The White Paper on Local Government, (1998:37) states that
developmental local government means that local government is committed to working
with its citizens and groups within the community to find sustainable ways to meet their
social, economic and material needs in order to improve the quality of life for all citizens.
These needs are addressed in a municipality?s Integrated Development Plan (IDP). An
Integrated Development Plan (IDP) is a five year strategic plan, aimed at the integrated
development and management of a municipal area to assist municipalities to fulfill their
developmental mandate. One of the strengths of an Integrated Development Plan (IDP)
is that it recognises the linkages between development, delivery and democracy.
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The White Paper on Local Government, (1998:53) provides that one of the central roles
of a municipality is to build local democracy and to develop strategies and mechanisms
that include participative planning to continuously engage with citizens, businesses and
community groups. In addition the Local Government Municipal Systems Act, 2000 (Act
32 of 2000) provided that a municipality must develop a culture of municipal governance
that complements formal representative government with a system of participatory
governance that encourages and creates conditions for the local community to
participate in the affairs of the municipality such as the preparation, implementation and
review of its Integrated Development Planning (IDP). Furthermore, public participation
should also promote good governance at local sphere in that public participation
legitimizes a municipality?s decisions and actions.
In order to promote effective public participation, the International Association of Public
Participation (IAP2) as cited in Theron etal, (2007:8) offers seven core values that
practitioners and change agents should expect of the participation process to make the
public more effective partners in the participation process, namely:
? The public should have input in decisions about actions that affect their lives
? Public participation includes the promise that the citizens? contribution will
influence the decisions made by practitioners and politicians
? By means of the public participation process the interest and needs of all
participants should be communicated
? It seeks and facilitates the involvement of the people to be affected by or
have an interest in a decision
? The public participation process requires the input from participants in
designing how they participate
? It must also be communicated to participants how their inputs affect the
decisions made
? It provides participants with the necessary information that is needed for them
to participate in a meaningful way (Theron et al, 2007:8).
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Theron, (2007:8) is further of the opinion that the above international core values of
public participation might assist practitioners and change agents to promote effective
public participation in the South African local government.
Although public participation has received increasing attention in South Africa since
1994, the reality is that local government faces many challenges to effectively
implement participatory development through public participation effectively. Over the
last few years it was acknowledged from a wide range of government institutions that
insufficient consideration has been paid to public participation, and that existing policy
frameworks, institutional mechanisms and programme interventions are failing to
comply with government?s constitutional and statutory obligations. As a result of this and
other cases of lack of effective participation in municipalities, the former Department of
Provincial and Local Government (DPLG), developed the Draft National Policy
Document on Public Participation in 2005 and implemented it in 2007 to promote
effective public participation in the affairs of local municipalities. Thus, each
municipality developed its own Community Participation Framework that must be
reflected in its Integrated Development Plan (IDP) to promote effective public
participation in the affairs of the municipality such as the preparation, implementation
and review of its Integrated Development Plan (IDP). The key public participation
concepts are outlined in the next discussion.
3.2 DEFINING AND CONCEPTUALISING KEY PUBLIC PARTICIPATION CONCEPTS
Before discussing, the legislative and policy guidelines of public participation, some key
related definitions are reviewed. The purpose is to gain a better understanding of the
concept of public participation, community participation and civic participation in local
government affairs.
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3.2.1 The term „participation?
According to Fokane, (2008:41) there are numerous definitions of participation and it
means different things to different people upon the context and background in which it is
applied. In addition Theron et al (2008:5) is of the opinion that definitions of
participation should not be seen as blueprints, but should be dealt with as part of all
social learning processes to those that relate to grassroots interaction. Whereas
Theron, Ceasar and Davids (2007:4) maintain that confusion in the South African
context exist concerning participation in because it is so ill defined that everyone may
interpret it as they wish. De Beer and Swanepoel, (in Theron et al 2008:15) hold that
participation means that the most important role players in the development process
should be its beneficiaries. Whereas Bucher (in Van Der Waldt et al 2007:27) maintains
that participation entails more than just involving beneficiaries but that it should focus on
wide-ranging forms of engagement by citizens in policy formulation and decision-making
in key areas that affect their lives.
Understanding these concepts is crucial in the context of Integrated Development
Planning, in that it seeks to address developmental needs in a holistic manner. The
seven typologies of participation of Perry as cited in Theron, (2008:106-107) can be
used to clarify the concept and strategy of participation, namely:
? Passive participation. It means that citizens are being told what is going to
happen or what has already happened. This is a top-down approach;
? Participation in information giving. Citizens participate by means of surveys
or telephone interviews. In this case the citizens do not have the opportunity to
influence proceedings as the findings are not shared or evaluated for accuracy;
? Participation by consultation. People participate during community meetings
in that they are consulted while change agents listen to their viewpoints, but do
not include any share in the decision-making process by the participants, and
change agents are not committed to consider the public?s view. It is still a top-
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down approach because communication flows from the top to the bottom in that
the participants are passive recipients in the process of being informed;
? Participation for material incentives. This type of participation normally takes
place in rural environments where citizens participate by providing resources,
such as their labour in return for food or cash;
? Functional participation. This type of participation usually takes place after all
the important decisions have already been made in that citizens participate in a
group to meet predetermined objectives related to a project;
? Interactive participation. In this case participation is being seen as a right, not
just a means of achieving the goals of a programme in that citizens participate in
joint analysis, and the development of action plans and capacity building; and
? Self mobilisation. In this type of bottom-up participation citizens participate by
taking the initiative, independent of external institutions to change systems.
The above typologies are useful to demonstrate the different conceptions concerning
participation.
In addition to explaining these typologies, Theron, (2008:108) demonstrates the process
of public participation through which a community moves away from a less desirable
situation to a more desirable one that covers four modes that overlap with the above
typologies, namely:
? Anti-participatory model. Public participation entails a voluntary contribution in
a programme or project with no expectation from the community in shaping the
content and outcome of the development initiative;
? Manipulation model. In this model the community participates in the decision-
making, implementation and evaluation processes and benefits from the
development programme or project;
? Incremental model. In this model participation is concerned to increase the
control over resources in given social situations for communities who were
previously excluded from such control; and
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? Authentic public participation. It refers to an active process by which the
community influences the direction and execution of a development programme
or project to improve their well-being.
According to Kalk (in Van der Waldt et al. 2007:30) the various levels of participation
should be taken into account to describe participation. Information giving can be seen
as the lowest level of participation. On this level the council of a municipality makes a
policy and just informs the community about the policy without any proper and prior
consultation. Kalk (in Van der Waldt et al. 2007:30) holds that the next level of
participation refers to consultation. At this level the council sets the agenda policy
making, but although not committed to the outcomes of debates the council still invites
the community to participate in debates concerning the policy. The third level of
participation deals with advice at this level of participation. The citizens and politicians
jointly set the policy agenda and citizens participate during policy-making debates. The
fourth level refers to co-producing that can be regarded as an interactive process in that
politicians, municipal officials and interest groups jointly identify policy issues. At this
level of participation the council is committed to the outcome of the joint policy
decisions. The fifth level of participation refers to co-agenda setting where all role
players and stakeholders jointly set the policy agenda. This is the type of participation
that the municipality should promote, joint responsibility and participative decision-
making. The sixth level refers to co-responsibility for policy decisions, in that the
community will assist in ensuring that the policy outcomes and decisions of a
municipality are put into practice. Kalk?s last level as cited in Van der Waldt, et al,
(2007:30) is participative decision-making. The above levels demonstrate the different
conceptions with regard to participation.
In light of the above Davids, Theron and Maphunye, (2009:126) identified four levels
wherein municipalities should require active participation with communities, which
includes firstly, participation with the voters to ensure maximum democratic
accountability of the elected political leadership for the policies they are authorised to
promote. Secondly, it includes participation with forums established from within or
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outside local government. Thirdly, it includes participation with organised groups to
initiate policies and influence policy formulation and fourthly it requires active
participation of the community to participate in the monitoring and evaluation activities of
a municipality. In the next section the terms community participation, public
participation and citizen participation will be clarified.
3.2.2 The terms community participation, public participation and citizen
participation
The terms community, citizen and/or public participation are often used interchangeably.
The White Paper on Local Government (1998:53) refers to citizen participation, whereas
the Local Government Municipal Systems Act, 2000 refers to community participation,
while the DPLG, IDP Guide Pack, Guide 0, An Overview (2000:9-10) refers to public
participation. A useful starting point is to define the concept community in the context
of local government. There are considerable differences of opinion as to what
community participation entails. Van der Waldt et al (2007:26) maintain that community
refers to all the citizens living within the areas of a jurisdiction of a municipality.
Community participation refers to an active process by which beneficiaries should be
able to influence the direction and execution of a development activity to improve their
lives (Paul in Fokane, 2008:41). Whereas Fox and Meyer (1995:20) refer to community
participation as the involvement of citizens in a wide range of administrative policy-
making activities that include the determination of priorities, levels of service,
acceptability of physical construction projects in order to orientate government
programmes towards community need, to build public support and to encourage a
sense of cohesiveness within a society. This definition emphasises the involvement of
the community in processes that affect their lives. In addition the National Policy
Framework for Public Participation, (2007:4) defines community participation as: “an
open, accountable process through which individuals and groups within selected
communities can exchange views and influence decision- making.”
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In light of the above Oakley (in Tshabalala, 2006:44) defines of community participation
as a means to empower citizens by facilitating the development of their skills and
abilities, by enabling them to negotiate with the development system and by equipping
them to make their own decisions in terms of their development, needs and reality.
Midgley (in Tshabalala, 2006:44) emphasises the notion of institutional building in the
promotion of community participation and cited that community participation should
denote the creation of procedures for democratic decision-making at local sphere that
involve the people in these procedures to the extent that they regard them as a normal
way of conducting community affairs.
In addition, the DPLG, IDP Guide Pack VI, (2001:15) holds that an integrated
development planning representative body must be established to promote the
participation of communities in a municipality?s Integrated Development Planning (IDP)
process. Thus, community participation in the Integrated Development Planning (IDP)
process requires effective communication between the community and the municipality
to address the needs of the community and to ensure that assumptions and unrealistic
expectations can be dispelled. Midgley (in Tshabalala, 2006:44) emphasises the notion
of institutional building in the promotion of community participation and cited that
community participation should denote the creation of procedures for democratic
decision-making at local sphere that involves the people in these to the extent that they
regard them as a normal way of conducting community affairs.
In the light of the above Tshabalala (2006:44) made a distinction between community
participation and public participation in that public participation involves the broader
public that is not bound by a specific geographic area. Brynard (in Tshabalala 2006:45)
holds that public participation provides a mechanism for democratising the planning
process and as a result of this, the public manages the process to the extent that public
participation in the local sphere can be seen as a democratic right. Integrated
Development Planning provides the communities the opportunity to exercise their
democratic right in local development issues. For the purpose of this study, the
researcher will refer to the participation in the Integrated Development Planning process
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as public participation in that public participation in the local sphere is related to a
democratic right. In the next session the legislative and policy framework for
participatory governance will be discussed.
3.3 THE LEGISLATIVE AND POLICY FRAMEWORK FOR PARTICIPATORY
GOVERNANCE
Since 1994 the government has put in place many policy and legislative frameworks
which require some form of public participation in local government. Four of the key
legislative frameworks include the Constitution of the Republic of South Africa, 1996,
the White Paper on Local Government, 1998, the Municipal Structures Act, 1998 and
the Municipal Systems Act, 2000. A good starting point is to introduce the legislative
requirements concerning the above key legislative frameworks. Some of the other
legislative and policy frameworks which require some form of public participation will
also be discussed in this section.
3.3.1 Constitution of the Republic of South Africa, 1996 (Act 108 of 1996)
The Constitution, 1996 as the supreme law of the country not only makes provision in
Chapter 2 for the Bill of Rights that includes the rights of all citizens to equality, human
dignity, freedoms, environment and the right to housing, health care, food, water and
social security. The notion of public participation is also embedded in Section 151 (1).
In particular, the Section 151(1) of the Constitution, 1996 places an obligation on local
government to do the following: to provide democratic and accountable government for
all local communities; to ensure the provision of services to communities in a
sustainable manner; to promote social and economic development; to promote a safe
and healthy environment; and to encourage the involvement of communities and
community organizations in the matters of local government. In terms of Section 153 of
the Constitution, 1996 a municipality must structure and manage its administration, and
budgeting and planning processes to give priority to the basic needs of the community,
and to promote the social and economic development of the community; a municipality
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must also participate in national and provincial development programmes. While
Section 195 (1) of the Constitution, 1996 provides the basic values and principles
governing public administration that require that the people?s needs must be responded
to and public must be encouraged to participate in policy-making matters. This builds
on the commitment of government to promote effective public participation with the
promulgation of numerous policy frameworks concerning the matters of local
government that will be outlined below.
3.3.2 White Paper on Local Government, 1998
According to the Ward Committee Resource Book (2005:13) the White Paper on Local
Government (1998) often referred to as the „?mini- constitution?? for local sphere of
government, set out the vision and policies for ensuring that local government fulfills its
developmental role. The objects of community participation are embedded in the
following four principles as set out in the White Paper on Local Government, (1998: 53):
? to ensure political leaders remain accountable and work within their mandate;
? to allow citizens (as individuals or interest groups) to have continuous input into
local politics;
? to allow service consumers to have input on the way services are delivered; and
? to afford organised civil society the opportunity to enter into partnerships and
contracts with local government in order to mobilise additional resources.
In addition the White Paper, (1998:53-54) also provides that municipalities should
develop mechanisms to ensure participation and good governance in policy initiation
and formulation, as well as to promote the monitoring and evaluation (M&E) of decision-
making and implementation. Davids, et al (2012:60-61) maintain that the White Paper
on Local Government, 1998 symbolises a fundamental renewal of local government in
South Africa and it gave meaning to the paradigm shift in terms of how municipalities
should integrate their Integrated Development Plans (IDP) with community based goals.
The White Paper on Local Government, (1998:16) further emphasizes the constitutional
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concepts of human dignity, human rights and democracy as important elements of
developmental local government by including references to the redistribution of income
and opportunities in favour of the poor. Section D of the White Paper on Local
Government (1998:77) constitutes that the most important role of the municipality is to
promote local democracy. The White Paper on Local Government (1998:5) further
refers to the importance of local sphere of government as a space where citizens can
participate to shape their own living environments and extend their democratic rights.
Not only does the local sphere of government provide space for the public, but it is also
critical to cultivating participatory governance and democracy in that the public is more
likely to exert some influence over policy decision in a smaller local institution closer to
home.
3.3.3 The Local Municipal Structures Act, 1998 (As amended in 2000 and 2003)
Puntu (2006:16) contends that the Local Government Municipal Structures Act, 1998
(Act 117 of 1998) requires the municipality to strive towards achieving the goals set out
in Section 152 of the Constitution, 1996. Chapter 4 of the Municipal Structures Act,
1998 holds that the municipality must establish ward committees as a structured system
which encourages the participation of communities. The Act sets out the powers and
functions of a ward committee. In this regard, the Local Government Municipal
Structures Act (1998:52) requires that a Category A municipality with a sub-council or a
ward participatory system, or a Category B municipality with a ward participatory and
executive committees or mayors must report on an annual basis on the participation of
communities and community organisations concerning the local matters of the
municipality. Upon the establishment of ward committees, which promote public
participation, Section 73 of the Municipal Structures Act, 1998 stipulates that if a
metropolitan municipality or a local council decides to have ward committees, it must
establish a ward committee for each in the municipalities that consisting of a ward
councilor representing that ward on the council and who must also be the chairperson of
the committee and not more than ten other persons of the ward. The Act further holds
that a metropolitan municipality or local council must make rules regulating the ward
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committee that includes the procedure to elect the ten other members of the ward
committees by taking into account the need for women to be equitably represented on a
ward committee. Provision should also be made for the circumstances under which
those members must vacate office and the frequency of meetings of ward committees.
The Act also provides that a metropolitan municipality or local council may take
administrative arrangements to enable ward committees to perform their functions and
practice their powers effectively. The Ward Committee Resource Book (2005:14)
outlines that Section 5(1) of the Municipal Structures Act (1998) set out the rights and
duties of the members of local community. In terms of the Act the community has the
right to contribute to the decision-making process of the municipality as well as to be
able to submit written or oral recommendations, representations and complaints to the
municipal council
3.3.4 The Local Government Municipal Systems Act, 2000 (Act 32 of 2000)
According to Puntu (2006:18) the Municipal Systems Act, 2000 (Act 32 of 2000), states
in Chapter 4 Section 17(2) that a municipality must establish appropriate mechanisms
processes and procedures to enable the local community to participate in the affairs of
the municipality. Similarly the Ward Committee Resource Book (2005:14) also confirms
that the Municipal Systems Act (2000) requires municipalities to develop a culture of
government within a system of participatory governance and public participation.
Section 4 of the Municipal Systems Act, 2000 requires that municipalities must
determine strategies to consult the community about the level of quality, range and
impact of municipal services provided by the municipality, either directly or through
another service provider.
Section 5 of the Act states that members of the community have the right to contribute
to the decision-making processes of the municipality and submit written or oral
recommendations, representations and complaints to the municipal council.
Furthermore, the Act requires that the community should be informed about decisions of
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the municipal council as well as to get regular disclosure of the affairs of the municipality
including the financial affairs of the municipality. Section 16 of the Municipal Systems,
Act, 2000 makes provision for the following requirements concerning public
participation:
? A municipality must develop a culture of municipal governance that supports
formal representative government through a system of participatory governance;
and
? A municipality must encourage and create conditions for the community to
participate in the affairs of the municipality, including participation in a
municipality Integrated Development Planning, performance management
system, monitoring and review of performance, the preparation of its budget, and
strategic decisions about the provision of municipal services.
Regarding the mechanisms, processes and procedures for public participation, Section
17 of the Municipal Systems Act, 2000 requires amongst other issues that public
participation by the local community in the affairs of the municipality must take place
through the political structures for participation as set out in the Municipal Structures
Act, 1998 (as amended in 2000 and 2003). Furthermore in terms of Section 17 of the
Municipal Systems Act, 2000 municipalities must create conditions that will allow
members of the community, such as disabled people, other disadvantaged groups and
people who are illiterate, to participate in the affairs of the municipality.
In terms of Section 18 (1) of the Municipal Systems Act, 2000 the municipality must
communicate to its community information about public participation and must
communicate what are the available mechanisms, processes and procedures are in
order to encourage and facilitate participation. Section 19 of the Act requires that the
municipal manager must give notice to the community as determined by the council,
about the date, time and venue of every meeting and urgent meeting of the council and
every special or urgent meeting of the council, unless time constraints make it
impossible. Furthermore, Section 20 provides that meetings of the council and its
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committees are open to the public, including the media and neither the council nor its
committees may exclude the public and media. In addition the council has the right to
take the necessary steps to regulate public access and public conduct during its
meetings.
Section 26 of the Act sets out the core components of the Integrated Development Plan
(IDP) that all municipalities (Metropolitan, district and local municipalities) should
undertake to produce its own Integrated Development Plan (IDP).
Whereas, Section 42 of the Municipal Systems Act, 2000 provides that a municipality
must involve the local community through appropriate mechanisms, processes and
procedures in the development, implementation and review of the municipalities
performance management system and must allow the community to participate in the
setting of appropriate key performance indicators and performance targets of the
municipality.
3.3.5 Municipal Finance Management Act, 2003 (Act 56 of 2003)
According to the Ward Committee Resource Book (2005:17) the purpose of the
Municipal Finance Management Act, 2003 includes the following:
? to bring about transparent and effective financial management in municipalities
and municipal entities;
? to set up a municipal financial recovery service which allows the National
Treasury to intervene where a municipality faces a financial emergency; and
? to show the difference between short-term borrowing and long-term capital
investment.
The objective of the Municipal Finance Management Act, 2003 is to modernise budget
and financial management processes and practices of local government to maximize
their capacity as well as to promote effective service delivery. The Municipal Finance
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Management Act, 2003 requires municipalities to engage communities in the following
activities of the budget process.
? The preparation, tabling and approval of the annual budget; and
? The annual review of the IDP and other budget related policies;
In terms of Section 53 (6) of the Municipal Finance Management Act, 2003 the Mayor of
a municipality must ensure that the annual budget of a municipality should indicate how
it will implement the objectives set out in its Integrated Development Plan (IDP) over the
next three years. In addition the municipality should also indicate how its integrated
development plan will be revised by taking into consideration the budget and spending
commitments.
3.3.6 Local Government Municipal Property Rates Act, 2004 (Act 6 of 2004)
(Amended in 2009)
The Local Government Municipal Property Rates Act, 2004 further provides that the
municipal manager of a municipality must clearly display the draft rates policy for a
period of at least 30 days at the municipality?s head and satellite offices, at libraries and
on an official website of the municipality to ensure that the public has access to the
information. The municipality must advertise in the media notices by stating that a draft
rates policy has been prepared for submission to the council and that a draft rates policy
is available in the municipality?s head office and on its websites for inspection during
office hours. Furthermore, the municipality has to invite the local community to submit
comments and representation to the municipality within a period specified in the notice
which may not be less than 30 days. The Act also provides that a municipal council
must take all comments and representations made to it or received by it into account
when it considers the draft rates policy. The Municipal Property Rates Act, 2004 also
requires that public participation in amendments to a rates policy must be reflected
through the municipality?s annual budget process.
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3.3.7 The National Policy Framework for Public Participation, 2007
The National Policy Framework for Public Participation, 2007 provides a policy
framework for public participation in all municipalities (Metropolitan, district and local).
Firstly, the Framework identifies certain minimum requirements which municipalities
must meet for its constitutional obligation of participatory governance. The requirements
entail inter alia that all municipalities must implement a community complaints
management system. It requires that all municipalities must take steps to publicize the
municipality?s public participation principles that in general set the norms and values of
participatory governance within the municipality. Therefore, a municipality must publish
and distribute its Citizen Participation Framework that spells out the various local
structures to contact as well as the public participation mechanisms that exist within a
municipality in order to maximise public participation. The National Policy Framework for
Public Participation, 2007 encourages municipalities to conduct citizen satisfaction
surveys as a means of becoming aware of its community satisfaction concerning
service delivery within its area.
Secondly, the National Policy Framework for Public Participation, 2007 requires that
municipalities empower and support ward committees to promote participatory
governance. As such, ward committees must be involved in key municipal processes of
development planning, the budget, the performance management system, performance
assessment and service delivery agreement as required by the Municipal Systems Act,
2000. The Framework further requires that municipalities must incorporate
representatives from their ward committees to serve on audit committees as well as on
the personal performance evaluation panel. In order to promote effective public
participation the election and operation of ward committees must be adopted in policies
and by-laws. The Framework further requires that municipalities should empower and
support its Integrated Development Plan representative forums, also known as the IDP
forums, to promote participatory governance. The National Policy Framework for
Public Participation, 2007 also requires that municipalities must keep a comprehensive
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local stakeholders register, to ensure the full inclusion of as many community members
as possible.
Thirdly, the National Policy Framework for Public Participation, 2007 recommended that
municipalities use local stakeholders that include representatives from applicable ward
committees and local stakeholder groups to assist the municipality in its monitoring and
evaluation of the implementation of projects as set out in its Integrated Development
Plan (IDP). The National Policy Framework for Public Participation, 2007 further
recommended that the responsibility for coordinating public participation should be
fulfilled by a Public Participation Unit that is overseen by the Speaker. The Framework
also recommended that the Public Participation Unit will be responsible to draw up an
annual public participation plan which specifies the responsibilities of all role players
responsible for participatory governance within the municipality. Lastly the Framework
recommended that public participation key performance areas, indicators and targets
should be included in contracts of officials to secure a basic threshold of participatory
governance.
3.3.8 The Local Government Turnaround Strategy, 2009 and Public Participation
The Local Government Turnaround Strategy was introduced during 2009 as a strategic
intervention to address the challenges as identified in an assessment of the state of
local government. These challenges in municipalities include aspects such as poor
governance and accountability, weak financial management and high vacancy rates in
critical senior management positions. The findings further found that some
municipalities do not have the capacity to deliver on the core set of critical municipal
services. Therefore, the Local Government Turnaround Strategy aims to restore the
confidence of South Africans in local government as the primary delivery organ of the
developmental state as well as to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government. Furthermore, the Local Government Turnaround Strategy strives to
intervene in communities increasing dissatisfaction with poor service delivery, as well as
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to improve the administrative and financial performance of all municipalities
(metropolitan, district and local municipalities). The Local Government Turnaround
Strategy aims to achieve five strategic objectives, namely: to ensure that municipalities
meet the basic service needs of their communities; to build a clean, effective, efficient,
responsive and accountable system of local government; to improve performance and
professionalism within municipalities; to improve national and provincial policy, oversight
and support; and to strengthen partnerships between communities, civil society and
local government (The Department of Cooperative Governance and Traditional Affairs
(CoGTA), LGTAS, 2009:19). The Local Government Turnaround Strategy identified its
immediate priorities prior to the 2011 elections, as well as its medium-term and post-
election priorities until 2014. The immediate priorities prior to the 2011 elections were a
pilot project in which selected municipalities per province had to develop their own
Municipal Turnaround Strategies. During the Medium -term that have commenced after
the 2011 elections until 2014 requires that all municipalities have to develop and
incorporate their own Municipal Turnaround Strategy in their Integrated Development
Plan (IDP) as well as to monitor and evaluate the municipality?s performance. During
this phase the municipalities have to ensure that communities take part in the process.
The Local Government Turnaround Strategy further requires that all municipalities must
produce quarterly in-year financial reports to promote transparency. The result is that
the National Treasury releases the In-Year Management, Monitoring and Reporting
System for Local Government that enables national and provincial government to
exercise their oversight role over municipalities as well as to identify possible challenges
in implementing municipal budgets and conditional grants.
3.3.9 The South African National Development Plan, 2030
The South African National Development Plan, 2030 aims to eradicate poverty and to
reduce inequality by 2030. The National Development Plan identified six interlinked
priorities:
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? To utilise all South Africans around a common programme to achieve prosperity
and equity;
? To promote active citizenry to strengthen development, democracy and
accountability;
? To bring about faster economic growth, higher investment and greater labour
absorption;
? To focus on key capabilities of people and the state;
? To build on a capable and developmental state; and
? To encourage strong leadership from government, business, labour and
throughout society to address South Africans current challenges effectively (The
National Development Plan 2030, Executive Summary, 2012:16).
The National Development Plan, 2030, Executive Summary (2012:44-45) further
emphasised that more needs be done to remedy the uneven and often poor
performance of government including local government. Not only should accountability
be reinforced by clarifying lines of accountability and to strengthen coordination through
the intergovernmental system, but more needs to be done to strengthen the public-
interest as well as to promote transparency.The National Development Plan 2030,
Executive Summary (2012:44-45) further provides that municipalities should avoid
undermining democratic accountability for service delivery. Thus, more needs to be
done to make it easier for citizens to raise their concerns concerning service delivery.
The rising number of service delivery protests indicate that the state also needs to
promote effective public participation to promote active citizenry as well as to strengthen
participatory governance and accountability. An overview of the different approaches,
building blocks and dimensions of public participation in local government will be
provided in the following section.
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3.4 AN OVERVIEW OF THE DIFFERENT APPROACHES, BUILDING BLOCKS AND
MODES OF PUBLIC PARTICIPATION IN LOCAL GOVERNMENT
According to Olivier (2005: 22) participation within the context of local governments has
three sources. Firstly, participation was used in the 1950?s by social activists and project
field workers as part of development projects. Olivier (2005:22) further maintains that
the World Bank, as well as the Development Bank of Southern Africa have taken the
notion of participation as a prerequisite for successful project implementation at local
government sphere.
Secondly, participation within the context of good governance emerged in the 1980?s
and 1990?s as a result of democratic disengagement and unresponsive and inefficient
local government in Western democracies. Olivier (2005:22) also indicated that South
Africa experienced the same trends after the 1994 elections. It prompted a range of
initiatives to re-establish the legitimacy of local councilors, to address social exclusion
and to improve participation and good governance in representative democracy. It leads
to new forms of democratic participation to improve representative democracy such as
the increase of residential community associations and community development
corporations.
Thirdly, the empowerment approach to community participation is located within the
radical paradigm of alternative development that manifests itself in the mobilisation of
popular political power. An example of this approach was the dialogical forums at local
government sphere prior to the 1994 elections in South Africa, where stakeholder
groups with a political empowerment agenda engaged the local state in participating on
a wide range of development initiatives. After 1994 these dialogical forums still form the
dominant mode of participation in the preparation of Municipal Integrated Development
Plans. Olivier (2005:22) further holds that municipalities often intermingles participation
on a project-based engagement in a similar manner as consultation in the municipalities
integrated development planning process that falls more within the good governance
realm. At other times communities with which municipalities engage often resemble
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empowerment by using participation as political engagement. Thus, there is no one
approach or model of participation. Participation should therefore be understood in the
context within which communities are engaged by local government to ensure that the
most appropriate participative mechanisms and processes are used to promote
effective participation of communities in their own development.
In the light of the above Abbot (in Olivier 2000:22-23) acknowledges that different
approaches to community participation exist, namely community development,
empowerment and negotiated development. Abbot (in Olivier 2000:22-23) further
mentioned that each of the participation approaches or models display specific
characteristics of participation as shown in Table 3.2 below.
Table 3.1 The different participation approaches or models
Participation
approach or model
Participation
approach or model
Participation
approach or model
Characteristics Community
development
Empowerment Negotiated
development
Role of
government
Open Close Open
Nature of decision-
making
Small development
programmes and
projects with clearly
defined outputs,
often a single output
Political and or
economic targeted
development
programmes with
clearly defined
agendas and
outputs
Complies multi
variable and
multifaceted
development
programmes.
Community Focuses through Focuses through
strength of needs or
Diffuse,
heterogeneous and
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Participation
approach or model
Participation
approach or model
Participation
approach or model
dynamics project selection development
initiatives or issues
required level of
moderation
Primary purpose
of the participation
process
Limited Participation Participation
centered around a
dispute between
community and
government
An integrated
system approach
with a wide range of
interaction
(Source: Abbot in Olivier 2000:22-23).
Thus, different approaches to participation exist and are appropriate for different
contexts. Practitioners in the South African local government need to use a variety of
participation approaches or modes, as the context within which the participation takes
place, will determine the most appropriate form of participation that needs to be applied.
3.4.1 Public participation and the building blocks of development
Max-Neef (in Davids, et al, 2009:122) points out that public participation is one of the
needs of humans that should be satisfied through the development process. Public
participation is thus an integral part of the human development approach and it is as
complex as human nature itself. According to Meyer and Theron (in Davids et al
2009:122-123) the building blocks of development consist of the following processes in
a logical sequence:
? Public participation. Public participation can be seen as the first building block
of development that is also a component of human growth. Davids et al,
(2009:122-123) mentioned that public participation is one of the essential
conditions for development, in that it is a basic human need and this means that
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the most important role player in development initiatives must be the public.
Through public participation, the public as the beneficiaries of development
initiatives should not only be able to share in the programmes but should also be
able to influence and direct the process. It implies that ward councilors, as
change agents when facilitating the process of public participation, should
always take the inputs of the public as the beneficiaries as of utmost importance
? Social Learning approach. The second building block of development entails
the social learning approach that needs to be introduced once public
participation has been set in place (Meyer & Theron (in Davids, et al 2009:132).
In addition Kotze and Kellerman in Davids, et al (2009:133) indicate that the
social learning process has its origin in Senge?s idea of the learning organisation
that supports the principle of bottom-up planning and public participation. It
entails that ward councilors should adopt learning in a partnership approach with
the beneficiaries of development initiatives. The integrated development plan of
a municipality can be seen as an example of a bottom-up planning, where ward
committees and ward councilors can be engaged in public participation. Theron
(in Davids et al 2009;123) maintains that through the social learning process
approach, the public contributes to integrated development planning through
their indigenous knowledge systems (IKS) and experience
? Empowerment. According to Davids, et al (2009:124-125) the third building
block of a development approach is empowerment. Public participation and
empowerment are essential issues to the planning process and to sustainable
development. It also requires that the public is equipped with the power to decide
and to take action concerning their own development. As such public
participation as empowerment and social learning process, leads to collective
action at grassroots level, making the public self-aware and self-reliant (Theron
and Oakley as cited in Fokane, 2008:51)
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? Sustainability. Theron (in Fokane, 2008:51) states that together with the other
blocks of development public participation and sustainability are devolutions of
power wherein the public should have access to decentralised institution that will
address the public needs and priorities in development initiatives. Furthermore,
public participation and sustainability are the devolution of power. Sustainability
also entails that the public should have access to local government institutions
that should honour their priorities, and it means that these institutions through
the focus on developmental local government, are represented by the IDP at
local government level.
The above building blocks of development are important to move form a less desirable
to a more desirable approach in development of which public participation is an integral
part to promote a reciprocal relationship and a partnership in development.
In light of the above Section 16 of the Municipal Systems Act, 2000 provided that
municipalities must develop a culture of municipal governance that complements formal
representative government with a system of cooperative and participatory governance.
The Act further states that municipalities must encourage and create conditions for the
local community to participate in the affairs of the municipality that include participation
during the preparation, implementation and review of a municipalities? Integrated
Development Plan (IDP). Thus, the success or failure of a municipality?s cooperative
and participatory governance depends on how effective the reciprocal relationship
between the municipality and its community is managed throughout the preparation,
implementation and review process of its Integrated Development Planning (IDP)
process. The distinction of public participation as a means and end will be emphasised
below.
3.4.2 Distinction of public participation as a means and/or an end
Oakley (in Davids et al, 2009:118) argues that public participation can be distinguished
as a means and/or an end. Public participation as a means relates to passive
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participation while public participation as an end relates to active participation. When
public participation is viewed as an end, it becomes a long-term process, to develop in
that it strengthens the capabilities of the public to participate directly in development
issues. The distinction is presented below in Table 3.1 as cited by Davids et al,
(2009:118):
Table 3.2: Distinction between public participation as a means and/or an end
Participation as a means Participation as an end
? Implies the use of participation to
achieve some predetermined
objective.
? Attempts to use resources in order
to achieve the objectives of a
development programme or project.
? It is common in government
development programmes, to
mobilise and involve the community
to improve the efficiency of delivery
systems.
? It is generally a short-term process.
? It appears to be a passive form of
participation.
? It attempts to empower people to
take part in their own
developments.
? It attempts to increase the role of
the community in development
issues.
? It focuses on improving the ability of
the community to participate rather
than just achieving the objectives of
a development programme or
project.
? It is favoured by non-governmental
organisations but less favoured by
government agencies.
? It becomes a long-term process in
that it is more active and dynamic
than participation as a means.
(Davids et al, 2009:118).
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From the above table it can be deduced that by considering public participation as a
means to an end entails that it is a social learning process, which is necessary for the
success of any development programme or project.
3.4.3 Distinction between public participation as involvement and public
participation as empowerment
Another distinction that often contributes to the confusion in conceptualizing public
participation is the kind of public participation needed. This distinction as cited by De
Beer (in Davids et al, 2009:119) refers to the distinction between public participation as
involvement and public participation as empowerment. On the other hand public
participation and involvement entails “weak”public participation that refers to a top-down
decision-making process that can be seen as a manipulative form of participation. On
the other hand public participation as empowerment entails “strong” participation that
can be seen as a social learning process, or a capacity building process that includes a
bottom-up decision-making process. Public participation as empowerment requires the
decentralization of decision-making. The different modes of public participation will be
discussed below.
3.4.4 Modes of public participation
According to Booysen in (in Anon, 2007:22-25) the following six modes of participation
are distinguished:
? Proactive or conventional participation. In this mode of participation members of
civil society could actively engage in the phases of agenda setting or in policy
formulation. It may emanate from community and or non-governmental
organisations (NGO?s) initiatives.
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? Representation or representational participation. In this top-down mode of
participation citizens might be satisfied with having their interest represented by
their elected members of government.
? Centre driven initiatives. Another top-down mode of participation is where
political and public service officials are responsible for a range of participatory
initiatives.
? Community engagement participation. This mode of participation is identified as
participation that relates to a range of different phases of the policy process and
governance and has a bearing on engagement with members of political and
bureaucratic spheres of government. This mode of participation brings
executives, legislatives, bureaucrats and citizens together to discuss
development issues.
? Alternative or unconventional participation. It refers to a situation where civil
society members regard protest and mobilisation as the required form of policy
participation.
? Information related modes of engagement with government. This mode of
participation takes place when citizens use policy-related information that they
have received from government or from government media, or from mass
electronic and print media on government to become more active participants in
public affairs.
In addition, Oakley and Marsden (in Theron, 2008:108) holds that the process of
participation can be presented on a continuum that covers four modes through which a
community moves away from a less desirable to a more desirable situation. The four
modes as explained by Oakley and Marsden (in Theron et al 2008:108) consist of the
following:
? Anti-participatory mode. In this mode participation can be considered as a
voluntary contribution by the community but the beneficiaries are not expected to
take part in shaping a development programme or project?s content and
outcomes.
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? Manipulation mode. In this mode participation includes the involvement of the
beneficiaries in decision-making processes and the implementation of
development programmes or projects as well as in the sharing of the benefits
sharing in the benefits, and involvement in the evaluation of the project or
programme.
? Incremental mode. In this mode participation is concerned with efforts to
increase control over resources and to ensure that groups or movements are
excluded from such control over resources of a development programme or
project.
? Authentic participation. In this mode of participation, participation can be seen as
an active process by which the communities or beneficiaries influence the
direction and execution of a development programme or project with a view to
enhance their wellbeing in terms of income, personal growth, self-reliance or
other values that they seek (Oakley and Marsden in Theron et al 2008:108).
In light of the above modes of participation Arnstein and Pretty (in Davids, et al
2012:116-117) developed seven typologies to demonstrate the different conceptions
concerning public participation. The seven typologies of participation consist of the
following:
? Passive participation. In this type of participation community members remain
clueless and powerless in that the community participates by being told what is
going to happen or what has already happened concerning a development
project or programme.
? Participation in information giving. In this type of participation community
members participate by taking part in surveys or interviews or other participation
strategies but they do not have the opportunity to influence or direct
proceedings. The findings are also not shared with community members.
? Participation by consultation. In this type of participation community members
are being consulted by professionals. However the professionals are under no
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obligation to consider the public view and the community members have no
share in decision-making concerning the development initiative.
? Participation for material incentives. In this type of participation, the community
participates in the development initiative in return for food or monetary
incentives.
? Functional participation. In this type of participation community members
participate in a group context at the early stages of a development programme
or project to meet predetermined objectives related to a the programme or
project.
? Interactive participation. In this case participation is being seen as a right not just
a means to achieve a project goal.
? Self-mobilisation. In this type of participation community members retain control
over how resources are used in a development programme or project.
Thus, considering the modes or typologies of participation one could argue that
participation varies from passive participation where the community is being told what to
do to self-mobilisation where the community members control the development process.
3.4.5 The benefits of public participation
According to the National Policy Framework for Public Participation, (DPLG, 2007:17-
20) the benefits of public participation include, but are not limited to the following:
? Public participation assists municipalities to increase levels of information to
communities
? Public participation contributes to the improvement of service delivery and assists
in better identification of the needs of communities
? Public participation helps the public to develop a clear sense of direction
concerning development initiatives
? Public participation contributes to achievement of greater accountability in that it
contributes to restore municipal credibility with the public
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? Public participation also assist the stakeholders to identify alternatives to be
considered when addressing development priorities and issues
? Public participation also creates a better understanding of a development
initiative and its objectives amongst the public.
The above benefits emphasised the importance of effective public participation of the
community in the affairs of a municipality to promote cooperative and participatory
governance.
3.5 PUBLIC PARTICIPATION STRATEGIES
Public participation strategies should not be seen as blueprints for development. Each
development initiative requires a specific, relevant combination of strategies depending
on the expectations of the local sphere and the beneficiaries of the development
programme or project (Theron, 2008:111-112). In addition Theron et al (2008:111-112)
refers to a spectrum of participation that includes informing the public, consulting the
public, involving the public to collaborating and empowering of the public through a
process of public participation. Firstly public participation strategies should be aimed at
informing the public. These strategies are merely intended to inform the public to
become aware of a development programme or project (Theron et al 2008:113-114;
Davids et al, 2009;128-130). Options utilized under this strategy include the following:
? Legal notices
? Advertisements
? News articles
? Background information material
? Exhibits and displays
? Technical reports
? Websites
? Field trips
? Press conferences
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? Radio and television talk shows
? Expert panels
(Theron, 2008:113-114 and Davids et al, 2009;128-130)
Secondly public participation strategies, through consultation require that relevant
stakeholders are contacted and assembled at a specific point to be consulted about a
development initiative. However, public participation is considered a voluntary
contribution by the public and they are not necessarily expected to take part in shaping
the development programme or projects content or outcome. Options of this strategy
involved include the following:
? Public or community meetings
? Public hearings
? Open days
? Briefings
? Central information contact
? Field offices of information centres
? Comments and response sheets
? Surveys and polls
? Interviews
? Telephone hotlines
? Electronic democracy
(Theron, 2008:113-114; Davids et al, 2009:128-130).
Thirdly, public participation strategies aimed at involving the public to collaborate as well
as to empower the public, provide a reciprocal learning relationship between the
beneficiaries and the development agencies such as local government. Options of this
strategy include the following:
? Focus groups key stakeholder meetings and workshops
? Advisory committees and panels
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? Task force
? Citizen juries
? Consensus conference
? Imbizo
? Indaba
? Participatory rural appraisal, participatory learning action
(Theron et al2008:128-130).
Thus, municipalities should use a combination of strategies to promote effective
participatory governance.
According to Olivier (2005:16-17) the most common options in South African
municipalities relating to participation are:
? Formal advertising in the press to ensure that municipalities adhere to the
minimum legal requirements for considering the views of the community about
their own development
? Dialogue forums such as IDP forums, sectoral forums are other applicable ward-
based forums
? Ad-hoc meetings around specific issues that occur occasionally;
? Market research and opinion polls
? Ward participatory structures that exist in many municipalities are set up through
formal provincial notices and requiring by-laws
? E-Government provided by larger municipalities and metropolitan municipalities
makes provision for online voting to gain a measure of public opinion on
development issues
? Communication capacity through corporate communication services, such as
occasional newsletters, to reach communities. Other examples include the use of
community radio stations, newspapers and media, and even television to reach
community members concerning development issues
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? Customer relations and Citizen Charters driven by the need to manage the public
expectations concerning development. Examples of these options include one-
stop shops where a range of services are combined in one area, self service
facilities and electronic services, and even the internet. Other options that
municipalities use include help desks where all inquiries can be lodged through a
single portal.
In the light of the above Theron (2008:112) warns that a one-size-fits-all strategic
approach is not recommended. The challenge is to present local government with a
mixture of approaches and strategies to promote effective public participation within a
particular municipal context.
3.6 PUBLIC PARTICIPATION IN LOCAL GOVERNMENT?S INTEGRATED
DEVELOPMENT PLANNING
As shown in previous sections of this chapter the White Paper on Local Government,
1998, the Municipal Structures Act, 1998, the Municipal Systems Act, 2000 and the
Local Government Finance Management Act, 2003 provides the involvement of the
public in local matters. The White Paper on Local Government, (1998:53) is explicit on
the importance of public participation by communities at the local sphere of government.
It obliges municipalities to develop mechanisms to ensure citizen participation in policy
initiation, formulation and implementation, and an evaluation of its programmes takes
place. The White Paper on Local Government, (1998:53) further required that
municipalities should develop strategies and mechanisms to continuously promote
participation with the public and the community groups.
In terms of Section 16 of the Local Government Municipal Systems Act, 2000, a
municipality must strive to develop a culture of municipal governance that complements
formal representative government with a system of participatory governance. It further
requires that municipalities should encourage and create conditions for the local
community to participate in the affairs of the municipality such as in the strategic
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decision-making relating to municipal services. It further requires the community to
participate in the preparation, implementation and review of its integrated development
plan and annual budget. It also requires that the community should be involved in the
establishment, implementation and review of its performance management system.
Whereas Section 17 of the Local Government Municipal Systems Act, 2000 provides
that participation by local community in the affairs of the municipality must take place
through political structures that is laid out in terms of the Municipal Structure Act, 1998.
In addition the National Policy Framework for Public Participation of 2007 provides a
formal framework for public participation.
The former Department of Provincial and Local Government developed the Integrated
Development Planning (IDP) Guide Packs in 2000 to assist municipalities with
guidelines in the preparation, review and implementation of their IDP?s. The DPLG, IDP,
Guide Pack, VI, (2000:120-123) proposes that an Integrated Development Planning
Forum (IDP Forum) needs to be established to promote effective participation of
community members during each phase of the Integrated Development Planning (IDP)
process. Van der Waldt, et al (2007:105) cited that the purpose of this forum is to
provide a structure for discussions, negotiations, joint decision-making and participation
in the planning and implementation process of local government issues such as
integrated development planning. Van der Waldt et al (2007:105) stipulated that the
Integrated Development Planning Forum (IDP Forum) should include the following
members:
? Members of the Integrated Development Planning Committee
? Councilors, including various districts
? Traditional leaders
? Ward committee representatives
? Senior officials and heads of municipalities
? Representatives from organised groups
? Other suitable community representatives.
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The above mentioned members participate in the Integrated Development Planning
Forum to inform stakeholders and the communities about relevant planning activities.
The forum also determined the Integrated Development Planning priorities and it strives
to reach consensus concerning these priorities. Van der Waldt, et al (2007:105) state
that members of the forum should participate in the design and evaluation of project
proposals and are also responsible for monitoring the implementation performance of
the municipalities. Govender, Khan and Moodley, (2007:72) cited that most
municipalities have chosen to establish ward committees to comply with the aspect of
public participation concerning the Integrated Development Planning process. However,
some municipalities choose to refer to these to participatory structures or development
forums that have the same purpose as the ward committees.
As noted in previous sections in this chapter the Municipal Systems Act, 2000 commits
in Section 16 of Chapter 4 that the local community must take part in the preparation,
implementation and review of the municipalities Integrated Development Plans (IDP?s).
This means that all municipalities must create a platform for the public participation
concerning the Integrated Development Planning process. The DPLG, IDP Guide Pack
O, An Overview, (2000:15-19) prescribes that the process of developing an Integrated
Development Plan (IDP) should consist of five phases that should be carried out in
consultation with the community. Public participation during these phases will be
discussed in the next session.
3.6.1 Phase 1. The Situation Analysis phase
As shown in Chapter 2 of this study during the situation analysis phase the municipality
has to analyse the challenges faced by the community in the municipal area such as
poor service delivery, crime, unemployment and a lack of basic service delivery
amongst others. Public participation during this phase is an imperative in that the
community who are affected by the challenges should be involved in determining the
nature and extent of these challenges. During this phase the municipality must also
identify the needs and priorities of the community through an interactive process
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between the municipality and the community. This needs assessment process provides
an opportunity to the community to inform the IDP process of which needs should be
responded to by the municipality. Van der Waldt, et al (2007:105) states that the
following public participation activities should be encouraged during this phase namely;
community meetings such as the ward meetings arranged by ward councilors,
stakeholder meetings and surveys and opinion polls to gain the views of the public
about the communities challenges and development needs.
It is also important to consult with different community organizations such as women
groups, youth groups and civic organizations should take part in the needs assessment
process of the community. The municipality should ensure that the needs assessment
process does not merely become a „?wish-list? generating process”. Therefore, it is
important that public officials of the municipality must validate information; this also
leads to increased accountability. After the needs assessment has been completed both
the municipality and the stakeholders of the community have to reach an agreement on
the priorities for the community. This constitutes phase 2 of the Integrated Development
Planning process (IDP Guide Pack 0, An Overview, 2000:17; Van der Waldt, et al
2007:103-104).
3.6.2 Phase 2: Strategies to define local vision and the objectives phase
Once a municipality has a clear understanding of its challenges and priority issues it
must then formulate the solutions to address these challenges. The IDP Guide Pack, 0,
An Overview, (2000:17) states that public participation during this phase should take the
form of a public debate on the appropriate ways to solve the challenges that were
identified during the first phase. The strategy phase includes the following outputs: the
municipality?s vision, its development objectives, development strategies and the
project. The municipality?s vision provides a clear picture of the goals of the
municipality. Tshabalala (2006:62) cited that it is important that the community supports
the municipality?s vision and that it is not imposed upon them by the municipality.
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Van der Waldt et al, (2007:104) maintains that objectives indicate what the municipality
would like to achieve in the medium term in order to address the challenges of the
community and it should also contribute to the realisation of the municipality?s vision.
Thus, though a continuous communication process, both the community and the
municipality have to reach an agreement about the vision statement and its objectives.
Once the objectives have been identified the municipality should formulate strategies to
reach its objectives. During this phase the municipality should consult with the public
through public debate on the appropriate strategies in accordance with the
municipality?s development mandate. Other forms of public participation during this
phase should include meetings with the Integrated Development Planning
representative forum such as the ward committee as well as meetings with affected
communities and stakeholders (Van der Waldt, et al 2007:105). Once the strategies are
formulated and the municipality has to identify its development projects.
3.6.3 Phase 3: The project phase
During the project phase the municipality has to design projects and deal with its
specifications. The municipality has to ensure that the identified projects have direct
linkage to the priorities and objectives that were identified in the previous phases.
Community participation in the project design is as important as participation in
decision-making as it ensures that the Integrated Development Plan will become a
reality. Van der Waldt, et al (2007:105) mentioned that participatory meetings should be
arranged with representatives of stakeholders on project sub-committees. Performance
targets and indicators should also be formulated in order to measure the performance
and impact of the projects (Van der Waldt, et al 2007:104 and Hoff in Tshabalala,
2006:63).
3.6.4 Phase 4: The integration phase
During the integration phase the municipality has to ensure that the projects are in line
with the municipality?s objectives, strategies and resource frameworks and that it
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complies with legal requirements. Furthermore, the municipality has to consolidate its
operation strategy with its Integrated Sector Programmes such as its Integrated Local
Economic Development Programme (LED), Poverty alleviation, Integrated HIV/AIDS
programme, and an Integrated environmental program, its integrated institutional plan,
its 5-year financial plan, 5-year capital investment programme, the municipality?s
Integrated Spatial Development Framework and its consolidated monitoring and
performance management system. The Integrated Development Planning
representative forum should also be consulted during this phase to promote effective
public participation. The municipality has to involve all relevant departments through
consultation to reflect a multi-sectoral approach in order to ensure the integration and
coordination with the programmes of other spheres of government (Van der Waldt, et al
2007:105 and Tshabalala, 2006:64).
3.6.5 Phase 5: Approval of the municipality?s Integrated Development Plan (IDP)
During this phase the municipality has to submit its IDP to the Municipal Council for
consideration and approval. Section 25 of the Municipal Systems Act, 2000 provided
that the public must be given an opportunity to comment on the draft IDP within 14 days
of the adoption of the municipality?s Integrated Development Plan (ID). Once the
municipality amends its IDP in accordance with the input from the public, the council,
considers the IDP for approval (IDP Guide Pack, An Overview, 2000:19). Thus, public
participation in the Integrated Development Planning process is not only a legislative
requirement but without it the municipality?s Integrated Development Plan (IDP) would
become just another strategic plan that fails to respond to the expectations and needs
of the public within a specific municipal area.
In terms of Section 34 of the Municipal Systems Act, 2000 the municipal council must
review its Integrated Development Plan (IDP) annually in accordance with an
assessment of its performance measurements to the extent that changing
circumstances so demand. It further provides that the municipality may amend its
Integrated Development Plan (IDP) in accordance with a prescribed process. The
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Municipal Systems Act, 2000 further provides that the aims of the review is to ensure
that the municipality?s Integrated Development Plan (IDP) remains relevant and to make
the necessary changes to the plan. During the review process the budget must be
informed by the IDP because the budget must reflect the objectives, programmes and
projects contained in the revised IDP. In terms of the Municipal Systems Act, 2000 the
review process must include the following stages. Firstly, officials of the municipality
are responsible for the institutional arrangements and the preparation includes the
design of action programme, to assign roles and responsibilities and finalise the
procedure and mechanisms for public participation during the review process.
Secondly, the Municipal Systems Act, 2000 states that monitoring entails the gathering
of relevant information that relates to the implementation of projects and programmes
and the achievement of objectives, while evaluation of the information gathered entails
that the necessary adjustments need to be made to improve delivery. Review calls for
an assessment of the contents of a municipality?s current Integrated Development Plan
to identify the appropriate changes that need to take taken into account and that need to
be incorporated in the municipality?s other plans. Thirdly, the adoption by Municipal
Council of the revised Integrated Development Plan (IDP) should take place in
accordance with the Municipal Planning and Performance Regulations, 2001. Lastly,
the Municipal Systems Act, 2000 further provides that the preparation of the municipal
annual budget requires that the budget must be informed by its revised Integrated
Development Plan (IDP).
3.7 CURRENT CHALLENGES OF PUBLIC PARTICIPATION IN THE SOUTH
AFRICAN LOCAL GOVERNMENT
Although constitutional mandates require participatory governance, the National Policy
Framework for Public Participation, (DPLG, 2007:7) warns that most municipalities
struggle to encourage communities and community organisations to become involved in
the affairs of their municipality. One whole chapter namely, Chapter 4 of the Municipal
Systems Act, 2000 emphasises the importance of public participation in the affairs of all
municipalities. The National Policy Framework for Public Participation, (DPLG, 2007:7),
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further holds that although the Municipal Systems Act, 2000 is fairly prescriptive on what
is required by municipalities concerning public participation the Act does not provide
clear detailed guidelines on how municipalities should achieve more effective public
participation but rather leaves it to the discretion of municipalities. As a result the
absence of a well-planned, well-resourced and structured active participation
programme in most municipalities resulted in the development of the Draft National
Policy Framework for Public Participation, that was announced in 2005 and
implemented in 2007 to serve as a guideline for all municipalities with the
implementation of their own Public Participation Framework Plan to overcome the public
participation challenges in local government.
In addition Theron et al (in Davids, et al 2009:131) identifies the following challenges
concerning public participation:
? The confusion surrounding the concept of participation needs to be clarified
? The stakeholders such as clients, concerned individuals and interested and
affected parties need to be identified
? Deciding which government spheres are responsible for the public participation
engagement and intervention
? The role and responsibility of the municipal Integrated Development Planning
office concerning public participation need to be clarified
? Identifying an interdisciplinary public participation team that should include the
Integrated Development Planning (IDP) office of the municipality and change
agents of the community such as ward councilors and other stakeholders of the
community who possess indigenous knowledge and the necessary people skills
to collaboratively plan for public participation
? The public needs to be re-orientated to take part in decisions which will affect
their lives
? Public officials at local spheres should be trained and re-oriented to not only
become change agents, but also to engage with stakeholders and beneficiaries
and to involve the public in development issues in promoting public participation.
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Theron, Caesar and Davids, (2007: 6-7) further argue that most of the municipal officials
and the ward community members do not have the capacity to manage and implement
effective public participation concerning the municipalities Integrated Development Plan
(IDP). By addressing the above challenges, municipalities have to ensure that a shift
from a top-down planning to a bottom-up planning approach at local sphere, about
public participation take place.
Fokane, (2008:54) identifies obstacles such as those that can be attributed to the poor
participation. These external obstacles include biases emanating from the role of
development professionals, governments orientation toward promoting participation, the
application of selective participation and other issues such as technical, as well as
financial biases of development agencies (Fokane, 2008:54). Except for these external
obstacles Botes (in Fokane, (2008:54-55) further identifies the following internal
obstacles that contribute to poor participation, namely:
? Assumptions that the majority of development programmes or projects are
initiated by government or development agencies and rarely come from the
community
? Lack of communities? interest in participating, especially when their expectations
were not fulfilled
? Conflicting interests within the public as the beneficiaries of public participation
could arise as a result of competition among community based institutions for
access to resources (Botes in Fokane, 2008:54-55).
In a study conducted by Tshabalala during 2005 and 2006 about the role of community
participation in the Integrated Development Plan of Govan Mbeki Municipality
Tshabalala (2006:65-68) identified the following obstacles to community participation in
the Integrated Development Planning (IDP) process:
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? A lack of active involvement of communities can have a negative impact on the
Integrated Development Planning process on agreement on the communities
development needs and priorities;
? Diversity amongst people in a community creates different interests which might
give rise to difficulty in reaching an agreement on a common vision or plan such
as the municipality?s Integrated Development Plan (IDP). This situation raises
concerns about the status of the municipality?s Integrated Development Plan, in
particular whether it is a truly representative process or whether it is dominated
by certain people of the community that could lead to poor participation;
? Lack of accountability in that community members cannot be held liable for
wrong decisions that they take during the public participation process; and
? A lack of proper guidance by most of the municipalities to provide enough
information to communities to ensure that their participation in decision-making is
effective.
From the above as well as the statement made by the National Policy Framework for
Public Participation, (DPLG, 2007:7) that most municipalities struggle to encourage
communities and community organizations to become involved in the affairs of their
municipality. Therefore, one could argue that all municipalities must promote community
participation in their Integrated Development Planning (IDP) process. Thus,
municipalities should embark on a well-planned, well-resourced and structured public
participation process that should be incorporated into its Integrated Development
Planning (IDP) process to promote effective cooperation and participatory governance.
3.8 COMMUNITY PARTICIPATION IN THE CASE OF THE MANGAUNG
METROPOLITAN MUNICIPALITY
As discussed in Section 3.3 the South African government has put in place many
statutory policy and legislative frameworks which require some form of public
participation in local government. Section 153 of the Constitution, 1996 states that all
municipalities must structure and manage its administration, budgeting and planning
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processes, in such a manner that it gives priority to the basic needs of the community.
In addition Section 151(1) of the Constitution, 1996 places an obligation on local
government to encourage the involvement of communities and community
organiSations in the matters of local government. The Municipal Systems Act, 2000
(Act 32 of 2000), states in Chapter 4 Section 17(2) that a municipality must establish
appropriate mechanisms processes and procedures to enable the local community to
participate in the affairs of the municipality. The National Policy Framework for Public
Participation, 2007 also requires that municipalities must keep a comprehensive local
Stakeholder Register, to ensure the full inclusion of as many community members as
possible in its engagements with stakeholders. Furthermore, all municipalities in the
provinces have to ensure that their reviewed Integrated Development Plans (IDPs) are
aligned with the Free State Provincial Growth and Development Strategy (PGDS),
Vision 2030. In addition, all municipalities within the province Integrated Development
Plans (IDPs) must be aligned with and complement the Integrated Development Plans
(IDPs) and strategies of other affected municipalities and other organs of state to give
effect to the principle of cooperative and participatory governance. According to the
Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
(2012:21) the Free State Provincial Department of Cooperative Governance and
Traditional Affairs, (CoGTA) held in April 2012 an Integrated Development Planning
(IDP) Alignment and Assessment Workshop wherein the National Development Plan,
2030, the Free State Provincial Growth and Development Strategy (PGDS), Vision 2030
as well as the draft reviewed Integrated Development Plans (IDPs) of all municipalities
in the provinces were thoroughly reviewed and assessed. The workshop was attended
by Integrated Development Planning (IDP) officials from the Mangaung Metropolitan
Municipality and other municipalities within the region, and representatives of other
sector departments from national and provincial government.
As a result community participation in the affairs of the Mangaung Metropolitan
Municipality, including in its Integrated Development Planning (IDP) and review process
are being seen as a very urgent and important matter. For this reason the Mangaung
Metropolitan Municipality organised - as indicated in the (Mangaung Metropolitan
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Municipality Integrated Development Plan, Review 2013/2014, 2012:21-22) - a number
of meetings, consultations and public hearings with all interested stakeholders such as
national, provincial departments, organised businesses, traditional leadership councilors
and members of the community, as well as ward committees in the short and medium
term. As cited in the Mangaung Metropolitan Municipality Integrated Development
Plan, review 2013/2014 (2012:21-22), a total of 19 engagements with communities were
made by the Mangaung Metropolitan Municipality during 2012 and 2013 that involved
interactions with communities at ward levels, interactions with rural communities, and
business and youth representatives which represented various regions of the
Mangaung Metropolitan Municipality. The Mangaung Metropolitan Municipality
Integrated Development Plan, Review 2013/2014, (2012:21-22) clearly lists the place
where the engagements took place, the ward community who took part in the
engagements as well as the dates of the engagements. However what is missing in
the Mangaung Metropolitan Municipality Integrated Development Plan, Review of
2013/2014 is that the total number of ward committee members who attended the
community engagements was not listed. This type of information could assist the
researcher in establishing whether the community engagements were attended by a
representative audience from each ward.
As a result of the above engagements a number of development challenges were raised
during these interactions with various community ward representatives and have been
in turn been aligned with key development thrusts as indicated in the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014, (2012:22-
24). According to the Mangaung Metropolitan Municipality Integrated Development
Plan, Review 2013/2014, (2012:24-39) some of the issues that were raised during the
interactions with various community ward representatives that are affecting communities
include poor maintenance of existing infrastructure, particularly roads and drainage as
well as sewage systems, matters of safety and well-being of the residents received
considerable attention. In addition residents complained about low maintenance or
lack of street or high mast lights that affect personal safety, the erection of speed humps
to reduce accidents. The key development thrusts of the Mangaung Metropolitan
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Municipality include the following; “poverty eradication, rural and economic
development and job creation; financial sustainability including revenue enhancement
and clean audits; spatial development and the build environment; eradication of bucket
systems in Botshabelo, Mangaung and Thaba Nchu regions; other issues include
building solar farming, power plant feasibility study, safety and security; human
settlements, public transport, environmental management and climate change and
social and community services”.
As a result of the above engagements the Mangaung Metropolitan Municipality
identified six community needs priorities that will be addressed in the short, medium and
long term by the Metropolitan, including:
? Upgrading of tarring and gravel roads, fixing potholes and building speed humps
in all wards
? Controlling and maintaining of storm water channels in all wards
? Attending to water cuts and regular disruptions of water supply due to poor
maintenance in all wards
? Providing, connecting and maintaining of waterborne sewerage systems in the
place of bucket systems in some of the wards
? High electricity bills need to be addressed in all wards
? Addressing theft of electrical cables, electricity failure at all times in all wards and
? Social and recreation facilities, libraries youth centres and community halls in all
wards need attention (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, 2012:39-40).
One could argue that the above priorities are the result of a well planned and well
structured community engagement strategy to promote effective public participation in
the Mangaung Metropolitan Municipality region.
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3.9 GOOD GOVERNANCE
The Constitution, 1996, Section 195 provides the constitutional guidelines for effective
public administration that need to be implemented in all spheres of government to
promote good governance. As explained in Chapter 1, Section 1.1, a useful starting
point towards defining good governance is provided by the King?s report on Cooperating
Governance as mentioned by the Anon, Parliament Research Unit, (2008:2-3) which
sets out seven primary characteristics of good governance namely: discipline and
commitment by the senior management to promote sound ethical behavior,
transparency, avoidance of conflict of interest, accountability, responsibility, fairness
and social responsibility. In the light of the above good governance in this article refers
to the following as cited by Anon, Local Democracy in Action, (2008:12) namely:
? Accountability is the key requirement of good governance that requires that
public institutions must be accountable for their actions to the public.
? Responsiveness entails that public institutions and processes must be
responsive to the needs of the public.
? Effectiveness and efficiency entail that public institutions have to produce results
that meet the needs of the society while making the best use of available
resources.
? Transparency requires that information must be freely available and directly
accessible to those who will be affected by the decisions and the enforcement
thereof.
? Public participation as a key cornerstone of good governance requires
participation of the public in government affairs that will affect them.
In light of the above, Edwards (2009:48-49) believes that good governance is not only
about social responsibility and effective and efficient delivery of services, but that it
should also be reflected in councilors? and municipal manager?s leadership abilities to
inspire and influence people to contribute toward change for the benefit of the
community as a whole. Kroukamp (in Van Niekerk, (2010:49-50) agrees with the
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above statement by indicating that good governance is not only reflected in terms of
value driven perspectives that include aspects such as effective, legitimate democratic
governance but that good governance is also reflected in the ability of the leadership
cadre in local government to promote effective service delivery to all citizens to improve
the general welfare of all citizens.
In light of the above, Van Niekerk, (2012:59-60) asserts that the Local Government
Turnaround Strategy (LGTAS) provided a strategy to restore the confidence in
government at local sphere and to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government. Van Niekerk, (2012: 59-60) further maintains that the Local Government
Turnaround Strategy (LGTAS) strives to promote good governance in all municipalities
in that the strategy strives to ensure the following in the short to medium term: to ensure
that local government sphere meets the basic needs of communities; to build a clean,
responsive and accountable local government; to improve functionality, performance
and professionalism in municipalities; to improve national and provincial policy, support
and oversight to local government and to strengthen partnerships between local
government, communities and society.
In the case of the Mangaung Metropolitan Municipality good governance is critical to
ensure the effective and efficient utilisation of all resources to meet the needs of the
communities within the region. According to the Mangaung Metropolitan Municipality?s
Integrated Development Plan, Review 2013/2014, (2013:174) states that the council of
the Mangaung Metropolitan Municipality places a strong emphasis on good governance
by ensuring effective leadership, accountability and effective management of all
resources but in particularly financial resources. The Mangaung Metropolitan
Municipality reflected in its reviewed Integrated Development Plan, 2013 clear
strategies, objectives and critical performance indicators to promote good governance
for the next five years. The strategies to promote good governance as constituted in the
Mangaung Metropolitan Municipality Integrated Development Plan, Review 2013/2014,
(2013:175-191) include the following:
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? Providing strategic leadership and planning with well defined targets aligned to
the budget
? Improving performance management and accountability
? Implementing of the Institutional Performance Management System (IPMS)
? Ensuring effective functioning of the Audit, Oversight and Public Account
Committees
? Establishing of effective, functioning Audit, Oversights and Public Account
Committees as well as to ensuring that the committees consist of knowledgeable
persons
? Fully capacitated Intern Audit Activities consisting of competent and
knowledgeable staff
? Developing and monitoring of an Information Technology governance model, and
strategies to promote effectiveness
? Proper record keeping of all information communication technology and related
equipment, systems and software
? Redeveloping of the Mangaung Metropolitan Municipalities Intranet system and
upgrading of current information communication technology systems
? Analysing of all current information systems used by the Mangaung Metropolitan
Municipality
? Maintaining a 2-hour turnaround time on support calls
? Effective proactive risk management governance framework and processes
? Enhancing public participation in the affairs of the municipality
? Fostering good relationships with organized labour and conclude all outstanding
labour disputes
? Promoting the retention of skilled employees
? Maintaining effective work place skills plan
? Institutional transformation and re-design
? Tracking of decisions made by council
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? Developing guidance on good practices with the aim of establishing and
consistent standards of records
? Establishing common and consistent standards of records
? Establishing and linking operational modules throughout the Mangaung
Metropolitan Municipality (Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, 2013:176-191).
From the above it is clear that the Mangaung Metropolitan Municipality has well- defined
strategies to promote good governance.The effective implementation remains a
challenge in that the former Mangaung Local Municipality received a disclaimer audit
report in the 2010 an 2011 financial year. Although the Mangaung Municipality received
a qualified with opinion audit report during its first year as a Metropolitan for the financial
year 2011/2012 more needs to be done to promote good governance and effective
financial management in the Metropolitan. Furthermore, the Mangaung Metropolitan
Municipality has to ensure that it receives a clean audit report by 2014 as required by
the Local Government Turnaround Strategy. In addition, the Auditor General Report on
the Audit Outcomes of Local Government in the Free State, 2011/2012, (2012:40)
states that it is a concern that the Mangaung Metropolitan Municipality had findings on
both usefulness and reliability of reported information because it is expected from the
Mangaung Metropolitan Municipality to set the example in the Free State Province. All
municipalities including the Mangaung Metropolitan Municipality had findings on non-
compliance with laws and regulations and it has become a norm as no municipality in
the Free State province addressed its findings of the previous year. Non-compliance in
all municipalities as stated in the above report relates to material misstatements in
submitted financial statements; the prevention and addressing of unauthorized irregular
as well as fruitless and waste full expenditure need urgent attention; matters relating to
annual reports such as the annual performance reports that were not prepared based
on the Integrated Development Plans (IDPs), and other areas of non-compliance
included procurement and contract management, budgets, internal audit units and audit
committees (The Auditor General Report on the Audit Outcomes of Local Government
in the Free State, 2011/2012, (2012:14). Other concerns regarding the Mangaung
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Metropolitan Municipality as stated in the Auditor General Report on the Audit
Outcomes of Local Government in the Free State, 2011/2012, (2012:140) include the
following:
? “The current liabilities of the Mangaung Metropolitan Municipality exceeds its
current assets;
? The Mangaung Metropolitan Municipality did not always settle debts within 30
days, as required by national legislation;
? The Mangaung Metropolitan Municipality was experiencing serious difficulties
with regard to debt collection;
? The Mangaung Metropolitan Municipality has not set any funds aside to settle
significant defined benefit obligations; and
? The Mangaung Metropolitan Municipality may therefore be unable to realize its
assets and discharge its liabilities in the normal course of business”.
Thus, one could argue that although the Mangaung Metropolitan Municipality has clear
strategies, to promote good governance the leadership should ensure that the
strategies are effectively implemented to promote good governance, effective financial
management and effective service delivery in the region.
3.10 CONCLUSION
The key concepts of public participation were clarified in this chapter. The chapter
further outlined the legislative and policy framework of public participation. From this
discussion it is clear that the key legislative frameworks include the Constitution of the
Republic of South Africa, 1996, (Act 108 of 1996) the White Paper on Local
Government, 1998, the Municipal Structure Act, 1998 (Act 117 of 1998) and the
Municipal Systems Act, 2000 (Act 32 of 2000).
The Municipal Systems Act, 2000 not only emphasises the importance of public
participation in the matters of all municipalities, but also stipulates that members of the
local community have the right to contribute to the decision-making process of the
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municipality as well as to submit written or oral recommendations and complaints to the
municipal council. Furthermore, the discussion holds that although the Municipal
Systems Act, 2000 provides in Chapter 4 specific guidelines on what is required by
municipalities about public participation Act 4, the Act leaves the way in which
municipalities should achieve more effective public participation to the discretion of
municipalities. The discussion further showed that due to a lack of well planned, well-
resourced and structured active public participation in most municipalities, the National
Policy Framework for Public Participation, 2007 was introduced by national government
to assist all municipalities with the implementation of a more structured participatory
governance approach. As explained in the discussion the Local Government
Turnaround Strategy was introduced due to the poor performance of most municipalities
as stated in the Department of Local Government, State of Local Government Report of
2009. One of the strategic objectives of the Local Government Turnaround Strategy is
to strengthen partnerships between communities, civil society and local government.
The strategy further aims to ensure that all municipalities developed and incorporated
their own Municipal Turnaround Strategy in their Integrated Development Plan (IDP), as
well as to monitor and evaluate the municipality?s performance and to promote effective
public participation.
The discussion also showed that although the Municipal Systems Act, 2000, provides
that a municipality must encourage and create conditions for the community to
participate in the affairs of the municipality including the Integrated Development
Planning process, it does not provide clear and detailed guidelines concerning the
process and structure for identifying appropriate means of achieving more effective
public participation in the municipalities integrated development planning. It was argued
that the Municipal Systems Act, 2000 promotes a descriptive and even a top-down
approach to participation in the Integrated Development Planning process of a
municipality that could further contribute to poor public participation. Another concern
that was raised is that most of the municipal officials and the ward community members
do not have the capacity to manage and implement effective public participation during
the municipality?s Integrated Development Planning process. As explained in the
discussion a lack of active involvement of communities can have a negative impact on
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integrated development planning process on agreement on the communities?
development needs and priorities.
The rising number of service delivery protest indicates that the government needs to
promote effective service delivery as well as to strengthen participatory governance and
accountability. Many challenges concerning the promotion of effective public
participation remain. Even the South African National Development Plan, 2030 states
that municipalities should avoid undermining democratic accountability for service
delivery. It is clear that more needs be done to strengthen the public interest as well as
to promote transparency in local government. Although national government
announced the National Policy Framework for Public Participation in 2007 and the Local
Government Turnaround Strategy in 2009 to promote effective participation in particular
in the Integrated Development Planning (IDP) process, more needs to be done to
ensure that all municipalities embark on a well-planned, well-resourced and structured
public participation process to promote effective participatory governance. The next
chapter explores the research methodology used during the empirical study.
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CHAPTER 4
RESEARCH METHODOLOGY, PRESENTATIONS AND
INTERPRETATION OF EMPIRICAL FINDINGS
4.1 INTRODUCTION
While in the previous chapters details were given about the current state of Integrated
Development Planning (IDP), the Local Government Turnaround Strategy (LGTAS), as
well as the role of public participation, Integrated Development Planning and good
governance with specific reference to the Mangaung Metropolitan Municipality, this
chapter will explore the research methodology, the presentations and interpretations of
the empirical findings.
The research methodology as cited by Brynard and Hanekom, (2006:35) refers to the
collection and processing of data within the framework of the research process. This
chapter is also linked to the research objective, namely to determine through structured
interviews the impact of the Local Government Turnaround Strategy on public
participation and good governance of the Integrated Development Plans in the
Mangaung Metropolitan Municipality. A literature review was used for qualitative data
and a structured questionnaire was used to collect data, which was statistically
analysed.
As discussed in Chapter 1, the aim of the study was to explore the impact of the Local
Government Turnaround Strategy (LGTAS) with respect to public participation and good
governance as part of the Integrated Development Planning (IDP) process in the newly
established Mangaung Metropolitan Municipality. The research problem of this study
revolved around the impact of the Local Government Turnaround Strategy (LGTAS) on
the Integrated Development Planning (IDP) process, public participation and good
governance on local government with specific reference to the Integrated Development
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Planning (IDP) process of the Mangaung Metropolitan Municipality. The following
research questions were asked:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
? What are the key requirements, purposes, objectives, and components of
public participation and good governance of Integrated Development
Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within Mangaung Metropolitan Municipality?
The research objective of the study were the following:
? To investigate through extensive literature and policies the requirements,
purpose, objectives, components and linkages of public participation and good
governance of the Integrated Development Planning (IDP) process
? To explore policies, systems, structures, approaches and operations on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
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respect to public participation and good governance of the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality
? To determine through an evaluation of the latest annual review reports, as well
as through structured interviews the impact of the Local Government Turnaround
Strategy (LGTAS) on public participation and good governance
? To make recommendations based on research findings in order to improve public
participation and good governance of the Integrated Development Plan (IDP) in
the Mangaung Metropolitan Municipality.
The above research objectives gave effect to the layout and organization of the
chapters in this study. This chapter therefore considered the research design and data
collection techniques and sampling procedures, as well as a statistical analysis of the
results. It also clarified the rationale behind the methodology applied, how the
questionnaire was pre-tested, the ethical consideration and what measures were taken
to ensure the validity and reliability of this study.
4.2 STUDY DESIGN AND DATA COLLECTION TECHNIQUES
The research design is a general plan of how the researcher goes about answering the
research question (Saunders, Lewis and Thornhill, 2009:136). According to Cooper and
Schindler (2003:149), a research design is regarded as the blueprint for collecting,
measuring and analyzing data. As explained in Chapter 1, Section 1.5 a two-pronged
approach, namely a literature study and a questionnaire used during structured
interviews was used in this study. The literature study was based on a qualitative study,
which includes literature, legislation, policy documents, journal articles, books,
conference papers, published and unpublished documents, the internet, government
reports, Integrated Development Plans and annual review reports and performance
management reports concerning the Mangaung Metropolitan Municipality. The study
was conducted using a single case study method that is the Mangaung Metropolitan
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Municipality which implied that the researcher focused on one setting and its processes
without comparing it to other case studies or settings. Welman, Kruger and Mitchell,
(2007:25 and 193) explain that the term case study pertains to the fact that a limited
number of units of analysis are studied intensively. In this approach research is directed
at understanding the uniqueness and idiosyncrasy of a particular case study in all its
complexity. The aim of using a case study is to investigate the dynamics of some single
bounded system, such as a group, community, participants in a project, institution and
practice.
According to Maree et al, (2009:257) qualitative research refers to an approach through
which data is collected from people immersed in the setting of everyday life in which the
study is framed. Welman, et al (2007: 188) as well as Brynard et al (2006:39) agrees
with this statement and indicates that a qualitative study does not provide the
researcher with a step-by step plan to follow, but is determined by the researcher?s
choices and actions. In a quantitative approach, the researchers? designs are more
fixed and more specified in advance of execution and defined by technical
considerations.
4.2.1 Literature review
According to Lues and Lategan (2006:20) a literature review investigates the
information and data that have been published on a topic and considers their
contribution and weakness. The literature review in this study was based on a number
of both published and unpublished relevant primary and secondary sources such as
literature, legislation, policy documents, journal articles, books, conference papers,
published and unpublished documents, the internet, government reports, Integrated
Development Plans and annual review reports, and performance management reports
to provide relevant information that led to a better understanding of the strategies
adopted in this study.
154
4.2.2 Structured Interviews
In this study structured interviews were conducted in order to gather information. Bless
and Higson-Smith, (2000:107) explain that structured interviews refer to the most
structured way of getting information directly from respondents is by means of a
scheduled structured interview. Bless and Higson-Smith, (2000:107) further explain that
this method is based on an established questionnaire that consists out of a set of
predetermined questions. An advantage of a structured questionnaire is that it is
presented to each respondent in exactly the same way to minimize the role of
influences of the interviewer. It also provides a more objective comparison of the
results. In this study a structured interview were conducted with the respondents by
using a structured questionnaire to elicit information.
4.2.3 Questionnaire
According to Babbie and Mouton (2001:205) the construction of a questionnaire
requires considerable time and thoroughness as the measuring instrument has the
greatest influence on the reliability of data collected. In this study a structured
questionnaire was used during the structured interviews conducted with the
respondents to ensure a high response rate and to avoid the challenges of a low
response rate as in the case of mailed questionnaires. A well designed structured
questionnaire with clear and concise instructions was developed. Items in the structured
questionnaire were arranged and grouped into logically coherent sections to increase
cooperation. The questionnaire consisted of closed as well as open-ended questions
method to collect information from respondents during structured interviews. According
to Welman, et al, (2007: 174-175) close questioning offers the respondent a range of
answers to choose from, while open-ended questioning is one of which the interviewer
asks a question without any prompting with regards to the range of answers expected.
In this study a line or space was left for the respondent to write his or her own answer
and there was no prior list of answers with the open-ended questioning.
155
Section A of the structured questionnaire consisted out of 6 questions to elicited
biological information, while Section B of the structured questionnaire consisted of three
categories to elicit information concerning the Local Government Turnaround Strategy
(LGTAS), good governance and the Integrated Development Planning (IDP) process
(See Annexure B- research questionnaire). The result was that Category 1 of Section B
of the structured questionnaire focused on questions about the Local Government
Turnaround Strategy (LGTAS) and consisted of 8 questions to collect information.
Whereas, Category 2 of Section B focused on the Integrated Development Planning
(IDP) process and consisted out of 10 questions. Lastly, Category 3 of the structured
questionnaire focused on good governance and consisted of 5 questions.
4.3 STUDY POPULATION AND SAMPLING PROCEDURES
A sample is a representative part of a population. Therefore, sampling means that the
research sample should be selected in a manner that ensures that each and every
member of a defined population has an equal chance of being included in the sample
(Maree et al, 2009:172). For the purpose of this study the population and sampling
procedures are described below.
4.3.1 Population and sample size
The population of this study consisted of the following with whom structured interviews
were conducted namely:
? The Community Participation and IDP Manager of Mangaung Metropolitan
Municipality
? Fifteen (15) Ward Committee members of the Mangaung Metropolitan
Municipality.
The probability random sampling method was used to select fifteen of the forty-five ward
committee members that took part in the structured interviews. Leedy, (1989:154) is of
156
the opinion that randomization means selecting a sample from the whole population in
such a way that the characteristics of each of the units of the sample approximates the
characteristics of the total population. The reason why the above sampling method was
used was to gather more accurate information that what might have been obtained if
one had studied the entire population (Brynard and Hanekom, 2006:43).
Probability sampling is described as a method in which each person or other sampling
unit in the population has the same chance of being chosen and the researcher can
specify in advance that each segment of the population will be represented in the
sample (Leedy, 1989:154).
4.4 ENSURING VALIDITY AND RELIABILITY
According to Brynard and Hanekom, (2006:47) validity refers to the potential of an
instrument to achieve or measure what it intends to measure. A valid measuring
instrument is doing what it is intended to do, as measuring what it is supposed to
measure, and as yielding scores whose differences reflect the true differences of the
variable being measured rather than random or constant errors (De Vos, Strydom,
Fouche and Delport, 2005:166). In this regard, the following validity criterion has been
developed:
? Content Validity- Usually refers to the correctness and appropriateness of
the questions included in a test or questionnaire.
? Construct Validity- A measurement technique has high construct validity if it
uncovers the information which it was designed to uncover.
? Face Validity- Face validity is concerned with the way the instrument
appears to the participants. For example, do they view it as so simple,
childish, and boring that they experience it as an insult to their intellect, or
does it appear so difficult that the participants give up even before starting?
Face validity is therefore based on the subjective judgement of the researcher
and the respondents for whom a specific instrument is intended and it is
157
important because without it, resistance on the part of respondents may be
encountered which may in turn adversely affect the results obtained.
? External Validity- Depending on the representativeness of the sample, and
the study being a simulation of the real world and real-life situations, the
conclusions reached with the research should be applicable to similar
problems (Struwig and Stead, 2010:143).
On the other hand Brynard and Hanekom, (2006:48) defined reliability as the accuracy
and consistency of measures. It means that same instrument must be able to produce
the same results at a later stage under similar conditions.
Therefore in this study efforts were made to ensure both validity and reliability of the
questionnaire. Literature related to the research topic was consulted and a thorough
planning was done before constructing a questionnaire. In the case of this study a
statistician provided inputs and recommendations about the instrument and mistakes
were corrected before the interviews were conducted to ensure that the instrument
measure what it intended to measure. A pilot study was conducted with the Acting
Director of Integrated Development Plan (IDP) of the Department of Cooperation and
Traditional Affairs of the Free State Provincial Government as an expert in Integrated
Development Planning (IDP) to ensure that the instrument measured what it intended to
measure, as well as to ensure the accuracy and consistency of measuring by repeating
two of the questions in the pilot study instrument.
4.5 ETHICAL CONSIDERATIONS
The following principles of ethical conduct were considered and adhered to in this study:
? Letters of consent. A letter was submitted to the Senior Director Corporate
Services of the Mangaung Metropolitan Municipality to make the municipality
aware of the research purpose and to get the consent to conduct the interviews
158
with the Ward Committee members by means of a structured questionnaire (See
Annexure A).
? Voluntary participation of respondents to the questionnaire.
? Informed consent. Participants were made aware of the research purpose and
were asked to give their consent to participate in the research.
? Privacy. The confidentiality of information and anonymity of participants were
protected at all times.
4.6 STATISTICAL TECHNIQUES
Statistics is a summary measure that is computed to describe characteristics from only
a sample of the population. It encompasses the collection, presentation and
characterisation of information to assist in both data analysis and the decision-making
process. Descriptive statistics were used to summarise the results where categorical
variables were summarised by frequencies and percentages. In this study the collected
data was analysed by a statistician using the SAS Version 9.2 programme.
4.7 DATA ANALYSIS AND THE PRESENTATION OF DATA
Data analysis in a qualitative research begins with data collection. According to
Mouton, (2005:108) data analysis means the “breaking up” of the data into manageable
themes, patterns, trends and relationships. The data collected is then analysed for the
purpose of drawing certain conclusions that reflect on the issues that initiated the
enquiry. In this study the data was classified into categories on the structured
questionnaire that was used during the structured interviews with fifteen (15) ward
committee members (See Annexure B - research questionnaire).
The presentation of data collected from face-to-face structured interviews took place
with fifteen (15) Ward Committee members of the Mangaung Metropolitan Municipality.
The structured questionnaire consists of two sections. Section A focused on the
biographical information, whereas Section B consisted of three categories. Category
159
one (1) focused on the Municipal Turnaround Strategy and eight specific questions were
asked to assess the strategy. Category Two (2) focused on the IDP process and
development projects and ten questions with specific sub-questions were asked.
Category three (3) concentrated on good governance that addressed five specific
statements assessed.
4.8 FINDINGS AND RESULTS FROM SECTION A OF THE QUESTIONNAIRE:
BIOGRAPHICAL INFORMATION OF WARD COMMITTEE MEMBERS OF THE
MANGAUNG METROPOLITAN MUNICIPALITY
Section A of the questionnaire focused on the biographical details of the respondents.
Question 1 of this section in the structured questionnaire was about the respondents?
gender. From Figure 4.1 below it can be depicted that 40% of the respondents were
males and 60% were female respondents. The aim of this question was to draw the
attention to the gender differences of the respondents.
Figure 4.1. Gender of the respondents
160
Question 2, of Section A of the structured questionnaire was asked to determine the
age of the ward committee members as showed in the figure below (Figure 4.2).
Figure 4.2 Ages of research participants
The figure above demonstrated that 40% of the participants were between the ages of
29 and 36 and 60% were between the ages of 37 and 60. The main aim of this
question was asked was to draw the attention to the age group and category of the
respondents.
In question 3 of Section A of the structured questionnaire the designation of the
respondents were asked. The results were as follows:
60%
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Figure 4.3 Official designation
OFFICIAL DESIGNATION OF RESPONDENTS
OTHER MUNICIPALITIES -
0%
MANGAUNG
METROPOLITAN
MUNICIPALITY - 100%
100%
From the above graphical information, 100% of the respondents are ward committee
members from the Mangaung Metropolitan Municipality. The respondents were asked in
in Question 4 of Section A, to indicate which ward they are representing. The results
are shown in the table below (Table 4.1).
Table 4.1 Wards represented by the respondents
Question 4 (Section A) Wards represented in the Mangaung Metropolitan Municipality
Ward represented Frequency Percentage
Cumulative
Frequency
Cumulative
Percent
Ward 11 1 6.67 1 6.67
Ward 15 1 6.67 2 13.33
Ward 16 1 6.67 3 20.00
Ward 18 1 6.67 4 26.67
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Question 4 (Section A) Wards represented in the Mangaung Metropolitan Municipality
Ward represented Frequency Percentage
Cumulative
Frequency
Cumulative
Percent
Ward 2 1 6.67 5 33.33
Ward 22 1 6.67 6 40.00
Ward 23 1 6.67 7 46.67
Ward 24 1 6.67 8 53.33
Ward 27 1 6.67 9 60.00
Ward 3 1 6.67 10 66.67
Ward 4 1 6.67 11 73.33
Ward 46 1 6.67 12 80.00
Ward 47 1 6.67 13 86.67
Ward 5 1 6.67 14 93.33
Ward 8 1 6.67 15 100.00
From Table 4.1 it can be deduced that at least 30% of the forty five ward committee
members in the Mangaung Metropolitan Municipality was presented and the ward
committee members were interviewed. In question 5 of Section A of the structured
questionnaire the focus was on the highest level of education of the ward committee
members. The results were as follows:
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Figure 4.4 Highest level of Education
HIGHEST LEVEL OF EDUCATION OF RESPONDENTS
Tertiary qualifacations
33%
Secondary education
67%
33%
67%
Figure 4.4 shows that 67% of the respondents have completed secondary education
and only 33% of the respondents have tertiary qualifications. In Section A, Question 6
the question was asked: “How long have you lived in the Mangaung Metropolitan
Municipality Area?” The results were as follows:
Table 4.2 Total years lived in the Mangaung Metropolitan Municipality
Question 6 (Section A) Total years lived in Mangaung Metropolitan Municipality
Total years Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Over 10 years 15 100.00 15 100.00
Table 5.2 demonstrated that 100% of the respondents have been living in the
Mangaung Metropolitan Municipality?s area for over ten years and more.
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4.9 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 1. LOCAL
GOVERNMENT TURNAROUND STRATEGY
This part of the structured questionnaire consists of questions that seek to collect
information about the Local Government Turnaround Strategy. The results of question
1.1 of Section B, Category 1 of the structured questionnaire were as follows:
Figure 4.5 What is your understanding of the Local Government Turnaround
Strategy?
The above graph depicts that 80% of the respondents? understanding of the Local
Government Turnaround Strategy is that it was introduced to bridge the gaps in the
Integrated Development Planning (IDP) process with a view of improving the
municipality?s performance levels, whereas 20% of the respondents are of the opinion
that the Municipal Turnaround Strategy was introduced to bring about change in the
overall economic growth levels in the municipality. This shows that the majority of the
ward committee members were of the opinion that the Local Government Turnaround
Strategy (LGTAS) was introduced to bridge the gaps in Integrated Development
Planning (IDP).
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In Question 1.2 of Section B, Category 1 of the structured questionnaire the
respondents were asked: “What is the main aim of the Local Government Turnaround
Strategy?” The results were as follows:
Table 4.3 What is the main aim of the Local Government Turnaround Strategy
(LGTAS)?
Question 1.2 (Section B)
What is the main aim of the LGTAS? Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Bridge a gap between service delivery
imbalances
1 6.67 1 6.67
Bring about change in the economy 1 6.67 2 13.33
Increase economic growth and create job
opportunities
2 13.33 4 26.67
Promote economic growth through LGTAS 1 6.67 5 33.33
Strengthen municipalities in performing 1 6.67 6 40.00
Strengthen the IDP process 8 53.33 14 93.33
Strengthen the ties between LGTAS and IDP 1 6.67 15 100.00
Table 4.3 shows that 93% of the respondents believe that the LGTAS was introduced
solely with an aim of strengthening the IDP process and bridging gaps and loopholes in
service delivery processes, while 26% of the respondents view the LGTAS as a
mechanism of increasing economic growth and job creation opportunities. A total of
40% of the respondents were of the opinion that the main aim of the Local Government
Turnaround Strategy is to strengthen the municipality?s performance. A total of 100% of
the respondents mentioned that the main aim is to strengthen the ties between the
Local Government Turnaround Strategy and Integrated Development Planning. In
addition 6% of the respondents were of the opinion that the main aim is to bridge a gap
166
between service delivery imbalances. Chapter 2, Section 2.1 of the study states that
the main aim of the Local Government Turnaround Strategy is to turnaround the
municipality?s performance and to rebuild and improve the basic requirements for a
functional, responsive, accountable, effective and efficient developmental local
government (COGTA, 2009:3-40). The conclusion that may be drawn is that if the
ward council members are not familiar with such a crucial governmental intervention
such as the aim of the Local Government Turnaround Strategy, that aims solely to
turnaround the municipality?s performance and to rebuild and improve the basic
requirements for a functional, responsive, accountable, effective and efficient
developmental of local government. It is therefore unlikely that the ward committee
councilors will communicate the correct aim to the community who needs to be
consulted on the affairs of the Mangaung Metropolitan Municipality. The scenario
above suggests that the MunicipaI Manager of the Mangaung Metropolitan Municipality
needs to clarify the purpose and main aim of the Local Government Turnaround
Strategy within the Mangaung Metropolitan Municipality with all stakeholders including
the ward committee members to obtain a clear understanding of the role of the Local
Government Turnaround Strategy.
In Question 1.3, Section B, Category 1 of the structured questionnaire the respondents
were asked whether they had taken part during the implementation of the Local
Government Turnaround Strategy of the former Mangaung Local Municipality in 2010.
167
Figure 4.6 Section B, Question 1.3: “Have you taken part in the implementation
of the LGTAS in the Mangaung Metropolitan Municipality?”
0%
20%
40%
60%
80%
100%
120%
Yes - No
HAVE YOU TAKEN PART IN THE IMPLEMENTATION
OF THE LGTAS
From the above figure one can see that 100% of the respondents have answered “yes”
to the question of whether they have taken part in the implementation of the LGTAS in
the former Mangaung Local Municipality. In Chapter 2, Section 2.4 the literature
showed that the Local Government Turnaround Strategy has different focus areas:
Firstly the focus was on the immediate priorities prior to the 2011 elections. Secondly,
the focus from March 2011 until 2014 will be on medium-term or post-election priorities.
The immediate priorities prior to the 2011 elections consisted of four phases that
commenced at the end of January 2010 and concluded in March 2011. The first phases
can be seen as a pilot project in which selected municipalities per province developed
their respective own Local Government Turnaround Strategies referred to as the
municipalities? own Municipal Turnaround Strategy, followed by the second phase in
which all municipalities followed the same process before incorporating their Municipal
Turnaround Strategy in their Integrated Development Plan (IDP). The third phase
includes the budgeting and approval of each municipality?s IDP, while the fourth phase
involves implementation, monitoring and evaluation. The conclusion may be drawn that
168
the majority of the respondents took part in the development of the former Mangaung
Local Government?s own Municipal Turnaround Strategy during 2010 as well as with the
incorporation of the different phases of the Local Government Turnaround strategy in
the Integrated Development Plan of the municipality that received metro status during
2011.
In Question 1.4, Section B, Category 1 of the structured questionnaire the focus was on
the respondents' personal involvement in the Mangaung Metropolitan Municipality?s own
Municipal Turnaround Strategy Process. The results were as follows (Figure 4.7):
Figure 4.7 Personal Involvement in the Local Government Turnaround Process
93%
7%
PERSONAL INVOLVEMENT IN THE
LGTAS
From the above figure it can be detected that 93% of the respondents were personally
involved in the Mangaung Metropolitan Municipality?s own Local Government
Turnaround Strategic (LGTAS) process by serving as representatives of communities in
the decision-making process of the municipality. Only 7% of the respondents said they
were never involved in the implementation of the Local Government Turnaround
Strategy process as proper training was not given. The conclusion that may be drawn
is that if all ward committee members are not familiar with such a crucial strategy that
was develop solely to turnaround municipalities? performance and to rebuild and
improve the basic requirements for a functional, responsive, accountable, effective and
efficient developmental local government - as stated in Chapter 2, Section 2.4 of the
169
study – it unlikely that the main aim as well as the implementation processes of the
Local Government Strategy were clearly communicated during 2010 to all ward
committee members.
Question 1. 5, Section B of the structured questionnaire focused on whether the ward
committee members were informed of the implementation of the Local Government
Turnaround Strategy. The results were as follows (Figure 4.8):
Figure 4.8 “Were the ward committee members informed of the implementation
of the LGTAS in the former Mangaung Metropolitan Municipality?”
0
20
40
60
80
100
Yes No
Yes
No
A total of 100% of the respondents have responded that they were informed during
Council and General members meetings of the implementation of the Local Government
Turnaround Strategy (LGTAS) though they were never trained and inducted as to what
will be expected of them, why and how? In Chapter 3, Section 3.6 the Local
Government Municipal Structures Act, 1998, Section 74 provides that one of the
functions of ward committee members is to make recommendations on any matter
affecting its ward. The implementation of the Local Government Turnaround Strategy
within the Mangaung Metropolitan Municipality should have implications for all the
wards within its area and as such ward councillors should be informed by Council or any
relevant sub-council of any matters affecting its ward with the implementation of the
170
Local Government Turnaround Strategy (LGTAS) and the incorporation into the
Integrated Development Plan (IDP) as seen in Chapter 2, Section 2.4.
In Question 1.6 of Section B of the structured questionnaire the respondents were
asked whether there were any improvements in the Mangaung Metropolitan Municipality
since the introduction of the Local Government Turnaround Strategy as indicated in
Figure 4.9 below.
Figure 4.9 Section B, Question 1.6: “Was there any improvement in the
Mangaung Metropolitan Municipality since the introduction of LGTAS?”
0
20
40
60
80
100
Yes No
Yes
No
Figure 4.9 shows that 93% of the respondents said yes that they have seen
improvements in the Mangaung Metropolitan Municipality since the introduction of the
Local Government Turnaround Strategy, while 7% of the respondents said that they
have seen no changes in the Mangaung Metropolitan Municipality since the introduction
of the Local Government Turnaround Strategy. In Chapter 2, Section 2.4. it was seen in
the literature that the intention of the Local Government Turnaround Strategy is to turn
around the poor service delivery and performance of local government in general. It is
171
the responsibility of the municipal manager of each municipality to ensure that the
objectives of the Local Government Turnaround Strategy as stressed in Chapter 2,
Section 2.4 are effectively implemented and incorporated in the Mangaung Metropolitan
Muncipality?s Integrated Development Plan (IDP).
In Section B question 1.6.1,respondents who said yes to the above question were
asked to provide at least three improvements made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround Strategy. The
results were as follows:
Table 4.4 The following improvements were made in the Mangaung Metropolitan
Municipality since the introduction of the Local Government Turnaround Strategy
Section B Question 1.6.1 Improvements made in the Mangaung Metropolitan Municipality
since the introduction of the
Local Government Turnaround Strategy
Improvements identified by the
respondents
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Better basic services for everyone 1 7.14 1 7.14
Increase in job creation projects and basic
services
1 7.14 2 14.29
Overall service delivery such as water,
electricity and sanitation
12 85.71 14 100.00
Table 4.4 shows that 100% of the respondents mentioned that overall service delivery
such as water, electricity and sanitation was improved since the Local Government
Turnaround Strategy was introduced, while 14% of the respondents were of the opinion
172
that the introduction of the Local Government Turnaround Strategy leads to the increase
in job creation projects and basic services. A total of 7% of the respondents mentioned
that since the introduction of the Local Government Turnaround Strategy, better basic
services for everyone were made in the Manguang Metropolitan Municipality. It may be
concluded that none of the respondents indicated that the overall performance of the
Mangaung Metropolitan Municipality has improved since the Local Government
Turnaround Strategy was introduced. It is the responsibility of the municipal manager to
ensure that the aim of the Local Government Turnaround Strategy, namely to
turnaround the Mangaung Metropolitan Municipalities performance and to rebuild and
improve the basic requirements for a functional, responsive, accountable, effective and
efficient developmental local government as shown in Chapter 2 Section 2.4 of this
study is acheived.
In question 1.7, Section B, Category 1 of the structured questionnaire, the respondents
were asked whether there were any improvements in the Mangaung Metropolitan
Municipality?s performance to obtain a clean audit report since the introduction of the
Local Government Turnaround Strategy. The results were as follows (Figure 4.10):
Figure 4.10. “Were there any improvements in the Mangaung Metropolitan
Municipality in obtaining clean audit reports”
0
10
20
30
40
50
60
70
80
90
Yes No
Yes
No
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In Figure 4.10 a total 87% of the respondents said that the Mangaung Metropolitan
Municipality has obtained clean audit reports, as they are aware of the efforts of the
municipality to introduce strict measures of doing away with corrupt activities more
especially in the management of finances. In addition only 7% said that the municipality
have not received any clean audit reports as there is still corruption in the management
of finances and that there are no effective mechanisms to reduce corruption. As seen
in Chapter 2, Section, 2.9 the Municipal Financial Management Act, 2003 was
promulgated to secure the sound and sustainable management of the financial affairs of
municipalities and other institutions in the local sphere of government. The literature
review presented in Chapter 2, Section 2.4 and again in Section 2.6.11 stated that one
of the objectives of the Local Government Strategy is to promote a clean, effective,
efficient, responsive and accountable system of local government.
In Question 1.7.1 the respondents were asked to provide reasons for their answer. The
results were shown below in Table 4.5:
Table 4.5: Provide reasons why you indicated that there were not any
improvements in the Mangaung Metropolitan Municipality in obtaining clean audit
reports
Section B, Category 1, Question 7.1.1 Provide reasons why you indicated that there were not
any improvements in the Mangaung Metropolitan Municipality in obtaining clean audit reports
Reasons Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Corruption in the municipality still continue 1 50.00 1 50.00
No mechanisms to reduce corruption in the
municipality
1 50.00 2 100.00
A total of 50% of the respondents indicated that the reasons why there were not any
improvements in the Mangaung Metropolitan Municipality in obtaining clean audit
174
reports, were that corruption in the municipality still continues. In addition 50% of the
respondents mentioned that the reason was due to the fact that no mechanisms were in
place to reduce corruption in the Mangaung Metropolitan Municipality. As discussed in
Chapter 2, Section 6 it is the municipal manager?s responsibility to ensure that all
applicable legislation is implemented in the Mangaung Metropolitan Municipality. As
seen in Chapter 2, Section 2.4 and Section 6.11 one of the main aims of the Local
Government Turnaround Strategy is to promote effective and efficient governance in
local government. It is crucial that the Council of the Mangaung Metropolitan
Municipality should ensure as part of their oversight role that legislation such as the
Municipal Financial Management Act, 2003 be effectively implemented.
Question 1.8, Section B, Category 1 of the structured questionnaire asked “In your
opinion has the Mangaung Metropolitan Municipality successfully achieved a responsive
and accountable system of local government?” The results were as follows (Figure
4.11):
Figure 4.11 “Has the Mangaung Metropolitan Municipality achieved a responsive
and accountable system of local government?”
0
10
20
30
40
50
60
70
80
90
100
Yes No
Yes
No
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From the above graph 93% of the respondents said that the municipality has achieved a
responsive and accountable system, while only 7% of the respondents said that the
municipality is not achieved a responsive and accountable system, because the
municipality is not transparent in terms of the management of financial resources and
other resources as well. In Chapter 2, Section 2.6.9 it was stated that the Municipal
Financial Management Act, 2003 was promulgated to secure the sound and sustainable
management of the financial affairs of municipalities and other institutions in the local
sphere of government. It has the objectives of modernising budget and financial
management practices in municipalities in order to maximise their capacity for service
delivery. It is crucial that the Council should ensure that the municipal manager be held
accountable for the financial affairs of the Mangaung Metropolitan Municipality.
In Question 1.8.1, Section B, Category 1 of the structured questionnaire on the reasons
why the respondents were of the opinion that the Mangaung Metropolitan Municipality
successfully achieved a responsive and accountable system of local government, the
results were as follows (Table 4.6):
Table 4.6. Reasons why the respondents were of the opinion that the Mangaung
Metropolitan Municipality successfully achieved a responsive and accountable
system of local government
Section B, Category 1. Question 1.8.1
Reasons why the respondents were of the
opinion that the Mangaung Metropolitan
Municipality successfully achieved a
responsive and accountable system of local
government
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Implementation of some projects EPWP 1 7.14 1 7.14
At least there is an increase in learnerships
and internships for the unemployed
1 7.14 2 14.29
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Section B, Category 1. Question 1.8.1
Reasons why the respondents were of the
opinion that the Mangaung Metropolitan
Municipality successfully achieved a
responsive and accountable system of local
government
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Communities needs must be prioritized 3 21.43 5 35.71
Corruption was exposed totally 1 7.14 6 42.86
Improved financial management and
economic growth
2 14.29 8 57.14
Limited resources to satisfy unlimited wants 1 7.14 9 64.29
Overall improvement on service delivery 1 7.14 10 71.43
Service delivery challenges can be responded
to promptly
1 7.14 11 78.57
Standard of living of the poor has increased 1 7.14 12 85.71
There is an increase in economic growth and
development
2 14.29 14 95.00
A total of 86% of the respondents were of the opinion that the Mangaung Metropolitan
Municipality successfully achieved a responsive and accountable system of local
government. Fourteen respondents (95%) indicated that there is an increase in
economic growth and development. Only 1 (7%) of the respondents mentioned that
some of the EPWP projects were implemented, while 2 (14%) of the respondents
indicated that there is an increase in learnership and internships for the unemployed. A
total of 6 respondents (43%) held that corruption was exposed totally, whereas, 8
respondents (57%) maintained that there is improved financial management and
economic growth. A total of 12 respondents (86%) mentioned that the standard of living
of the poor has increased and a total of 10 respondents (71%) were of the opinion that
there was an overall improvement on service delivery. Only 5 respondents (36%) were
of the opinion that communities need must be prioritized. It is crucial that the Municipal
177
Manager as head of administration ensures that all stakeholders are aware of progress
being made within the Mangaung Metropolitan Municipality since the implementation of
the Local Government Turnaround Strategy and the incorporation in the Integrated
Development Plan (IDP).
4.10 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 2 INTEGRATED
DEVELOPMENT PROCESSES AND DEVELOPMENT PROJECTS
This part of the structured questionnaire consists of questions that seek to collect
information about the Integrated Development Processes (IDP) and development
projects including public participation.
In Question 2.1, Section B, Category 2 of the structured questionnaire the respondents
were asked the following: “In your opinion does communities benefit from participating
in the IDP process?”. The results were as follows (Figure: 4.12):
Figure 4.12 Does the community benefit from participating in the IDP process
0
20
40
60
80
100
120
Yes No
Yes
N0
All 15 respondents (100% of the respondents) to this question responded with a “yes”.
178
In Question 2.1.1, as shown in Table 4.7 below, all 14 respondents (100%) mentioned
that the reason why communities benefit from participating in the Integrating
Development Planning (IDP) process of the Mangaung Metropolitan Municipality is that
the services they receive are of good quality as they expect. Only 14% of the
respondents (93%) mentioned that the interest and opinions of communities are taken
into consideration. Only 2 of the respondents (13%) maintained that the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality added
value to the decision-making within the municipality. A total of 8 respondents (53%) said
that consultation is vital in improving service delivery, 6 of the respondents (40%) holds
that consultation before service delivery is equally important, while only 3 of the
respondents (20%) said that communities air their views easily enough. Only 4 of the
respondents (27%) maintain that communities are satisfied with the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality.
Chapter 3, Section 3.1 of the study states that the White Paper on Local Government-
1998 provides that one of the central roles of a municipality is to build local democracy
and to develop strategies and mechanisms that include participative planning to
continuously engage with citizens, businesses and community groups. In addition the
Local Government Municipal Systems Act, 2000 (Act 32 of 2000) provided that a
municipality must develop a culture of municipal governance that complements formal
representative government with a system of participatory governance that encourages
and creates conditions for the local community to participate in the affairs of the
municipality such as the preparation, implementation and review of its Integrated
Development Plan (IDP). It may be concluded that the Municipal Manager of the
Mangaung Metropolitan Municipality has to create conditions for the local community to
participate in the affairs of the municipality such as the preparation, implementation and
review of its Integrated Development Plan (IDP).
179
Table 4.7 Reasons why the respondents were of the opinion that communities
benefit from participating in the Integrating Development Planning (IDP) process
Section B, Category 2, Question 2.1.1: Reasons why the respondents were of the opinion that
communities benefit from participating in the Integrating Development Planning (IDP) process.
Reasons why the respondents were of the opinion
that communities benefit from participating in the
Integrating Development Planning (IDP) process
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
The municipality knows what to deliver when and
how
1 6.67 1 6.67
Added value to the decision making within the
municipality
1 6.67 2 13.33
Communities air their views easily enough 1 6.67 3 20.00
Communities are satisfied 1 6.67 4 26.67
Consultation before service delivery is equally
important
2 13.33 6 40.00
Consultation with communities is of utmost
importance
1 6.67 7 46.67
Consultation is vital in improving service delivery 1 6.67 8 53.33
Improved overall service delivery 3 20.00 11 73.33
Interests and opinions are taken into consideration 3 20.00 14 93.33
Services they receive are of good quality as they
expect
1 6.67 15 100.00
From the above table one can determine that 20% of the respondents are of the opinion
that the reason why communities benefit from participating in the Integrated
Development Planning (IDP) process is that their interest and opinions are taken into
consideration. A total of 20% of the respondents holds that another reason was that
public participation in the Integrated Development Planning (IDP) process would
improve the overall service delivery of the Mangaung Metropolitan Municipality, while
180
7% of the respondents hold that consultation with communities concerning the
Integrated Development Plan (IDP) is of utmost importance. Another 7% of the
respondents indicated that communities have to participate in order to ensure that the
services that they receive are of good quality. The literature review presented in
Chapter 3, Section 3.1, Chapter 2 stated that the Local Government Municipal Systems
Act, 2000 requires that the community should be involved in the establishment,
implementation and review of its performance management system. This means that
the Mangaung Metropolitan Municipality has to ensure that mechanisms are in place to
promote effective participation of the communities in the Integrated Development
Planning (IDP) process.
In Question 2.2, Section B, Category 2, the respondents were asked to indicate what
meetings have they attended, while in Question 2.3 the respondents were asked how
often they attended the meetings. The combined results are indicated in Figure 4.13
below:
Figure 4.13 Attendance of ward councillors, the IDP Steering committee and
community ward meetings
181
From the above graph 60% of the respondents responded that they have attended all of
the meetings once in a while when necessary to attend and 40% has attended all the
meetings every time, regardless of whether it is necessary for them to attend or not. In
Chapter 3, Section 3.7 of the study, it was stated that the IDP, Guide Pack, 2001
proposes that an Integrated Development Planning (IDP) forum be created such as
stakeholders and community members in the IDP process. The purpose of this forum of
which ward committee members should be included is to provide a structure for
discussions, negotiations, joint decision-making and participation in the planning and
implementation process of local government issues such as Integrated Development
Planning (IDP).
Chapter 3, Section 6.2 of the study found that the Municipal Structures Act (1998)
makes provision for the establishment of ward committees as a possible way of
encouraging public participation. It was also seen in the literature in Chapter 3, Section
6.2 that a Metropolitan or Local Council may take administrative arrangements to
enable ward committees to perform their functions and practice their powers effectively.
In Question 2.4 of Section B, Category 2 the focus was on the mechanisms used by the
Mangaung Metropolitan Municipality to engage with the communities on the Integrated
Development Planning process. The outcome was as follows (Figure 4.14):
182
Figure 4.14 Mechanisms used by the Mangaung Metropolitan Municipality to
engage with the community about the IDP process.
MECHANISMS USED BY THE MANGAUNG METROPOLITAN
MUNICIPALITY TO ENGAGE WITH THE COMMUNITY ABOUT
THE IDP PROCESS
All of the mechanisms but
once in a while
All of the mechanisms but
not at the same time
9%
91%
From the above it can be depicted that a total of 91% of the respondents indicated that
the Mangaung Metropolitan Municipality makes use of all the mechanisms once in a
while, such as ward committee meetings, road shows, work group discussions and
public invitations to access the IDP at a central place (for example as a community
centre or a public library) to engage with the community. A total of 9% of the
respondents indicated that the Mangaung Metropolitan Municipality makes use of all the
mechanisms to engage with the community, but not at the same time. None of the
respondents indicated that the Mangaung Metropolitan Municipality makes use of other
mechanisms as listed above to engage with the community about the IDP processes.
The literature review presented in Chapter 3, Section 3.5.1 indicated the various public
participation mechanisms or strategies that aim to inform the communities to participate
and to become aware of Integrated Development Planning (IDP) process, development
programmes or projects of the Mangaung Metropolitan Municipality.
183
In Question 2.5 of Section B, Category 2 of the structured questionnaire the
respondents were asked to describe the extent of public participation of ward
community members over the last five years concerning the Integrated Development
Planning (IDP) process. The outcome was as follows (Figure 4.15)
Figure 4.15 The extent of public participation of ward community members over
the last five years
0
10
20
30
40
50
60
70
80
Yes No
Yes
No
From the graph above one can determine that 73% of the respondents regarded the
extent of public participation of ward community members over the past five years as
very good because most community members know how and when to practise their
rights and are more empowered and enriched than before. Only 27% of the
respondents have responded that the public participation of ward community members
is average. The latter could be contributed to the fact that not all ward committee
members attended the engagement opportunities, such as ward committee meetings on
a regular basis. The literature review in Chapter 3, Section 3.6.2 of the study states that
the Municipal Structures Act (1998) provides that the Council of a metropolitan or local
municipality may take administrative arrangements to enable ward committees to
184
perform their functions and practise their powers as well as the frequency of meetings of
ward committees effectively.
In Question 2.6 of Section B, Category 2 of the structured questionnaire the
respondents were asked to indicate whether they were aware of the projected projects
listed in the Mangaung Metropolitan Municipality? The results were as follows (Figure
4.16):
Figure 4.16 “Were the ward committee members aware of the projected projects
of the municipality?”
A total of 87% of the respondents have responded with a yes that they were aware of
the projected projects listed in the Mangaung Metropolitan Municipality and only 13% of
the respondents responded with a no that they were not aware of the projected projects
listed in the Mangaung Metropolitan Municipality. It may be concluded that not all of the
ward committee members are aware of the projected projects listed in the Mangaung
Metropolitan Municipality Integrated Development Plan (IDP). Chapter 3, Section 3.7.3
of the study states that a municipality has to design projects and deal with its
specifications during the project phase of the Integrated Development Plan (IDP). The
87%
13%
185
literature further states that each municipality has to ensure, through public participation
that the identified projects have direct linkage to the priorities and objectives that were
identified in the previous phases. The conclusion may be drawn that the Mangaung
Metropolitan Municipality should ensure that it promotes community participation in the
project design phase to ensure that the identified projects listed in the Integrated
Development Plan (IDP) will become a reality.
In Question 2.7 of Section B, Category 2 of the structured questionnaire the
respondents were asked whether they had received any feedback from the engagement
of the Mangaung Metropolitan Municipality with the community. The results are showed
below in (Figure 4.17):
Figure 4.17 Have you ever received feedback from the engagement of the
municipality with the community?
0
20
40
60
80
100
Feedback
Received
Feedback
No Feedback
All of the respondents (100%) as community ward committee members have responded
with a yes that they do receive feedback from community members after engaging with
the municipality. For example, when the Mangaung Metropolitan Municipality identified
and analysed the needs of communities, the community members had to provide
feedback to the Mangaung Metropolitan Municipality about the priorities and needs from
186
the various wards. Another example listed by respondents was that communities
provided feedback especially if they are not satisfied with the level and standard of
services received from the Mangaung Metropolitan Municipality.
In Question 2.8.1, of Section B, Category 2 of the structured questionnaire focused on
whether the ward community committees are very effective in articulating the interest of
the community. The results were as follows (Figure 4.18):
Figure 4.18 The ward community committees are very effective in articulating
the interest of the community
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree or
Disagree
Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
A total of 73% of the respondents strongly agreed that ward committees are effective in
articulating the needs and interests of the communities, while a total of 27% agreed.
None of the respondents disagreed, strongly disagreed, or neither agreed nor disagreed
with the statement.
In Question 2.8.2, of Section B, Category 2 the focus was on whether the community
members received feedback on how their inputs affected decisions made by the
Mangaung Metropolitan Municipality. The outcome was as follows (Figure 4.19):
187
Figure 4.19 The community members received feedback on how their inputs
affected decisions made by the Mangaung Metropolitan Municipality
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree or
Disagree
Strongly Agree
Agree
Netiher Agree
Disagree
Strongly Disagree
The above graph shows that a total of 73% of the respondents strongly agreed while
27% agreed that community members received feedback on how their inputs affected
decisions made by the Mangaung Metropolitan Municipality. Chapter 3, Section 3.3.6 of
the study stressed that the Local Government Municipal Systems Act, 2000 requires
that municipalities should encourage and create conditions for the local community to
participate not only in the preparation and implementation of the Integrated
Development Plan (IDP), but also during the review of its Integrated Development Plan
(IDP) and annual budget. It is crucial that the Municipal Manager of the Mangaung
Metropolitan Municipality as head of administration ensures that effective participation
of the local community is promoted not only during the preparation, and implementation
of its IDP but that the community is also involved in the review proves of its IDP to
ensure that the community receives feedback concerning the progress of its Integrated
Development Plan (IDP).
188
In Question 2.83 of Section B, Category 2 it was stated that only a few selected
members of the community participated in the IDP process. The results were as follows
(Figure 4.20):
Figure 4.20 Only a few selected members of the community participated in the
IDP process
0
10
20
30
40
50
60
70
80
Strongly
Agree
Neither
Agree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
The above graph indicates that a total of 80% of the respondents strongly agreed that
selected members of the community participate in the IDP process, while a total of 13%
of the respondents agreed with the above statement. Whereas, 7% of the respondents
neither agreed, nor disagreed with the above statement, none of the respondents
disagreed or strongly disagreed with the above statement. The literature review
presented in Chapter 3, Section 3.6.3 of this study stated that municipalities are also
required in terms of Chapter 3 of the Municipal Systems Act (2000), to create conditions
that will allow for the most members of the community, such as disabled people,
disadvantaged groups and people who are illiterate, to participate in the affairs of the
municipality, whereas, Chapter 3, section 3.3.5 states that public participation strategies
aimed at empowering the public provide a reciprocal learning relationship between the
beneficiaries and the municipality by using specific strategies to reach as many
189
members of the community as possible. These strategies include various dialogue
forums such as IDP forums and the Ward Committee system that have clear criteria for
membership to town-hall meetings that occur occasionally.
In Question 8.4 of Section B, Category 2 on whether public participation in the
Integrated Development Planning (IDP) process is meaningful, the results were as
follows (Figure 4.21):
Figure 4.21 Public participation in the IDP process is meaningful
0
10
20
30
40
50
60
70
80
Strongly
Agree
Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
From the above graph one can determine that 80% of the respondents strongly agreed
with the statement that public participation in the IDP process is meaningful. A total of
20% of the respondents agreed that public participation in the IDP process is
meaningful.
Question 2.8.5, Section B, Category 2 of the structured questionnaire aimed to
determine whether the IDP aims to respond to local communities? needs. The outcome
was as follows:
190
Figure 4.22 The IDP aims to respond to local communities needs
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Neither
Agree or
Disagree
Strongly
Disagree
East
Strongly Agree
Agree
Neither Agree or
Disagree
Strongly Disagree
A total of 93% of the respondents strongly agreed that the Integrated Development
Planning (IDP) aims to respond to local communities? needs. Another 7% indicated that
they agreed with the statement. Chapter 3, Section 3.1 of the study states that the
White Paper on Local Government, (1998:37) states that developmental local
government means that local government is committed to working with its citizens and
groups within the community to find sustainable ways to meet their social, economic
and material needs to improve the quality of life for all citizens.
In Question 8.6 of Section B, Category 2 of the structured questionnaire the
respondents were asked to whether the community is given a chance to identify and
prioritise the projects which should be implemented. The outcome was as follows
(Figure 4.23):
191
Figure 4.23 The community is given a chance to identify and prioritise the
projects which should be implemented
0
5
10
15
20
25
30
35
40
45
50
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or Disagree
Disagree
Strongly Disagree
The above graph shows that 40% of the respondents strongly agreed that the
community is given a chance to identify and prioritise the projects which should be
implemented. In contradiction a total of 47% of the respondents strongly disagreed with
this statement, while 7% agreed and 7% of the respondents neither agreed nor
disagreed with the statement that the community is given a chance to identify and
prioritise the projects which should be implemented. As seen in Chapter 3, Section 3.7
of the study the IDP Guide Pack, 2001 maintains that the Integrated Development
Planning (IDP) forum should be determined by the Integrated Development Planning
(IDP) priorities and it strives to reach consensus concerning these priorities. This forum
also promotes public participation in that the members of the forum include ward
committee representatives as well as representatives from organized groups and other
suitable community representatives. As stressed in Chapter 3 it is crucial that the
members of the above members participate in the Integrated Development Planning
(IDP) forum to inform stakeholders and the communities about relevant planning
activities.
192
In Question 2.8.7 the focus was on whether the IDP is instrumental in implementing the
projects that were prioritized by the community through public participation. The results
were indicated in Figure 4.24 below:
Figure 4.24 The IDP is instrumental in implementing the projects that were
prioritized by the community through public participation
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or Disagree
From the above graph one can determine that 87% of the respondents strongly agreed,
while 13% of the respondents agreed that the IDP is instrumental in implementing the
projects that were prioritized by the community through public participation.
In Question 2. 8.8, Section B, Category 2 of the structured questionnaire on whether the
involvement of the community in the IDP process should take place during the
implementation process, the outcome was as follows (Figure 4.25):
193
Figure 4.25 The involvement of the community in the IDP process should take
place during the implementation process
The chart above shows that 53% of the respondents strongly agreed and 13% agreed
with the statement that the involvement of the community in the IDP process should
take place during the implementation process. In contradiction, 33% of the respondents
strongly disagreed with the statement.
In Question 2.8.9, Section B, Category 2 of the structured questionnaire on whether
effective public participation can boost rural development in the Mangaung Metropolitan
Municipality Area, the outcome was as follows (Figure 4.26):
194
Figure 4.26 Effective public participation can boost rural development in the
Mangaung Metropolitan Municipality area
0
10
20
30
40
50
60
70
80
90
100
Strongly
Agree
Agree Neither
Agree or
Disagree
Disagree Strongly
Disagree
Strongly Agree
Agree
Neither Agree or
Disagree
Disagree
Strongly Disagree
A total of 86% of the respondents strongly agreed, and 14% agreed with the statement
that effective public participation can boost rural development in the Mangaung
Metropolitan Municipality Area.
In Question 2.9, Section B, Category 2 on whether there were any systems in place in
the Mangaung Metropolitan Municipality to measure the performance of public
participation, the results were as follows:
195
Figure 4.27 “Are there any systems in place in the Mangaung Metropolitan
Municipality to measure the performance of public participation?”
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Yes No No Sure
Yes
No
Not sure
From the above graph it shows that 87% of the respondents have responded yes to the
fact that there are systems in place to measure the performance of public participation
and only 7% of the respondents have said that they do not know of any systems in
place and 7% of the respondents responded that they were not sure whether there are
any systems in place in the Mangaung Metropolitan Municipality to measure the
performance of public participation. As stressed in the literature review presented in
Chapter 3, Section 3.3.6 it is crucial that the Mangaung Metropolitan Municipality
ensures that local communities also participate in the establishment, implementation
and review of the municipal performance management system.
In Question 2.10, Section B, Category 2 on what are the main challenges that prevent
public participation of community members in the Integrated Development Planning
(IDP) process and developmental projects, the results are as follows:
196
Table 4.8 “What are the main challenges that prevent the public participation of
community members in the Integrated Development Planning (IDP) process and
developmental projects?”
Question 2.10, Section B, Category 2
What are the main challenges that prevent the
public participation of community members in the
Integrated Development Planning (IDP) process
and developmental projects
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Corruption of Municipal managers 1 6.67 1 6.67
Greediness and non-transparent leaders 1 6.67 2 13.33
High unemployment rate increases corruption 2 13.33 4 26.67
Lack of transparency 2 13.33 6 40.00
Limited financial resources to satisfy unlimited
wants
1 6.67 7 46.67
Maladministration of financial resources 1 6.67 8 53.33
Mismanagement of resources 1 6.67 12 80.00
Non adherence to local government rules and
regulations
1 6.67 13 86.67
Selfish and selfless leaders who are corrupt 1 6.67 14 93.33
Unemployment, Corruption 1 6.67 15 100.00
From the above table in can be depicted that most of the respondents have responded
that the maladministration of financial resources are the main challenges that prevent
public participation of community members in the Integrated Development Planning
(IDP) process and developmental projects? A total of 27% of the respondents holds
that the lack of transparency in the Mangaung Metropolitan Municipality is the main
challenge. As stressed in Chapter 3, Section 3.6.4 of the study states that the purpose
of the Municipal Finance Management Act, 2003 is to bring about transparent and
effective financial management in municipalities and municipal entities. It is crucial that
197
the Municipal Manager of the Mangaung Metropolitan Municipality ensures that it
promotes about transparent and effective financial management.
In Question 2.11, Section B, Category 2 on what should be done to improve public
participation in the Integrated Development Planning (IDP) process, the outcome was
as follows:
Table 4.9 “What should be done to improve public participation in the
integrated development planning process (IDP)?”
Question 2.11, Section B, Category 2
What should be done to improve public
participation in the Integrated Development
Planning (IDP) process?
Frequency Percent
Cumulative
Frequency
Cumulative
Percent
Communities needs must be put first 4 26.67 4 26.67
Communities views must be taken into account
from the formulation stage
1 6.67 5 33.33
Consultation is of utmost importance 1 6.67 6 40.00
Encourage the communities to take part in the
decision-making process
1 6.67 7 46.67
Limited financial resources must be managed
effectively
1 6.67 8 53.33
Municipalities must meet the desires and needs of
communities
1 6.67 9 60.00
Municipalities must show appreciation of
communities views and opinions
1 6.67 10 66.67
Needs of communities must be prioritised 3 20.00 13 86.67
The municipality must become more transparent 1 6.67 14 93.33
Transparency plays a vital role in this instance 1 6.67 15 100.00
198
From the above table concerning what should be done to improve public participation in
the Integrated Development Planning (IDP) process one can determine that the majority
of the respondents (27%) indicated that the communities? needs should be placed first.
In addition 20% of the respondents mentioned that the needs of the communities must
be prioritised. A total of 14% of the respondents held that the municipality must become
more transparent, while 7% of the respondents also mentioned that limited financial
resources must be managed effectively. A total of 7% of the respondents held that
communities? views must be taken into account from the formulation stage in the
Integrated Development Planning (IDP) process. Another 7% of the population
maintains that consultation is of utmost importance to improve public participation in the
Integrated Development Planning (IDP) process. Another 7% of the respondents
maintain that communities must be involved in the decision making process from the
process of policy formulation to implementation.
The literature review presented in Chapter 3, Section 3.6.2 stated that the Municipal
Structures Act (1998) sets out the rights and duties of the members of local community
and the public to contribute to the decision-making process of the municipality. The
literature review further states in Chapter 3, Section 3.1 that the White Paper on Local
Government, (1998:37) requires from local government to work with its citizens and
groups within the community to find sustainable ways to meet their social, economic
and material needs in order to improve the quality of life for all citizens.
4.11 FINDINGS AND RESULTS FROM SECTION B, CATEGORY 3 GOOD
GOVERNANCE
This part of the structured questionnaire consists of questions that seek to collect
information about good governance. On Question 3.1.1, Section B, Category 3 of the
structured questionnaire the outcome was as follows (Table 4.10):
199
Table 4.10 The degree of agreement or disagreement with the level of good
governance
Statement number
Statement
Outcome
Statement 3.1.1
The Municipal Turnaround
Strategy has contributed to a
responsive municipality
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.2
The Municipal Turnaround
Strategy has contributed to
accountable municipality
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.3
Public participation in the IDP
process in the Mangaung
Metropolitan Municipality
promotes transparency
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.4
Public participation increases
public awareness of the
Municipal Turnaround Strategy
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
Statement 3.1.5 Public participation in the IDP
process ensures that the
Mangaung Metropolitan
Municipality uses scarce
resources efficiently and
effectively
87% of the respondents strongly
agreed with this statement while 13%
agreed with the statement
From the above table one can determine that in all five statements 87% of the
respondents strongly agreed with all five statements while 13% of the respondents
agreed with all five statements. Chapter 2, Section 2.5 of the study states that Section
152 of the Constitution, 1996 indicates that the objectives of local government are to
provide democratic and accountable government to all communities in a specific
municipal area, to provide municipal services in a sustainable manner, and for
municipalities to be responsible and to social and economic development. They are
200
responsible to promote a safe and healthy environment and municipalities must
encourage the involvement of communities and community organizations in the matters
of local government. It is crucial that the Mangaung Metropolitan Municipality promotes
the above requirements of good governance.
4.12 SUMMARY
Chapter 5 provides the findings of the empirical research of the study. The findings are
presented and interpreted in this chapter. From these research findings it is evident that
the effective, efficient and sustainable implementation and incorporation of the Local
Government Turnaround strategy would not be possible if the ward councilors - as the
chairpersons of the ward committees of the Metropolitan Municipality - are not familiar
with the main aims and objectives of such a crucial governmental intervention. The
conclusion that may be drawn is that if the ward council members are not familiar with
such a crucial governmental intervention such as the aim of the Local Government
Turnaround Strategy that aims solely to turn around the municipalities performance and
to rebuild and improve the basic requirements for a functional, responsive, accountable,
effective and efficient developmental local government. It is therefore unlikely that the
ward committee councilors will communicate the correct aim to the community who
needs to be consulted on the affairs of the Mangaung Metropolitan Municipality. One
could argue that the Municipal Manager of the Mangaung Metropolitan Municipality
needs to clarify the purpose, main aim and objectives of the Local Government
Turnaround Strategy with all stakeholders, including the ward committee members so
that all stakeholders obtain a clear understanding of the purpose, aims, objectives of the
Local Government Turnaround Strategy that needs to be incorporated in the Mangaung
Metropolitan Municipalities Integrated Development Plan (IDP).
The results obtained from the interviews also revealed that a total of 27% of the
respondents responded that the local community is satisfied with the Integrated
Development Planning (IDP) process in the Mangaung Metropolitan Municipality. One
could argue that the Municipal Manager of the Mangaung Metropolitan Municipality has
to create conditions for the local community to participate in the affairs of the
201
municipality such as the preparation, implementation and review of its Integrated
Development Plan (IDP).
Another concern is that the majority of the respondents strongly agreed that only
selected members of the local community participate in the Integrated Development
Planning (IDP) process. Therefore, it is crucial that the Municipal Manager of the
Mangaung Metropolitan Municipality as head of administration ensures that effective
participation of the local community is promoted by using various strategies to reach the
majority of the local community. The municipality has to ensure that the local
community participates not only during the preparation and implementation of its
Integrated Development Plan (IDP) but that the community is also involved in the review
process of its Integrated Development Plan (IDP) to ensure that the community received
feedback concerning the progress of its Integrated Development Plan (IDP). Another
concern is that the majority of the respondents responded that the municipality must
become more transparent and should use financial resources more effectively.
In Chapter 5 a summary is made and a conclusion drawn from Chapters 2, 3 and 4 and
recommendations are made to rectify the situation relating to challenges in the
Mangaung Metropolitan Municipality to implement and incorporate the Local
Government Strategy into its Integrated Development Plan (IDP) as well as to promote
effective participation of the local community in the Integrated Development Planning
(IDP) process.
202
CHAPTER 5
THE IMPACT OF THE LOCAL GOVERNMENT TURNAROUND
STRATEGY ON PUBLIC PARTICIPATION AND GOOD GOVERNANCE
WITH RESPECT TO INTEGRATED DEVELOPMENT PLANNING WITHIN
THE MANGAUNG METROPOLITAN MUNICIPALITY: AN OVERVIEW OF
CHAPTERS RECOMMENDATIONS AND CONCLUDING REMARKS
5.1 INTRODUCTION
This chapter firstly starts by focusing on the summary of Chapters 1,2,3 and 4. It
furthermore analyses the research objectives and gives an overview on how these
objectives have been met. This chapter will reiterate the main theoretical statement
proposed in Chapter 1 and finally will conclude by making recommendations and
suggesting ways on how the outstanding medium to long-term strategies of the Local
Government Turnaround Strategy as incorporated in and by Mangaung Metropolitan
Municipality?s Integrated Development Plan (IDP) would be achieved to promote good
governance and effective public participation in the affairs or the Metropolitan.
5.2 SUMMARY OF CHAPTERS
The main aim of this study was to investigate the impact of the Local Government
Turnaround Strategy (LGTAS) on public participation and good governance with respect
to the Integrated Development Planning (IDP) process in the Mangaung Metropolitan
Municipality.
Chapter 1: Introduction: This chapter outlines the problem statement, research,
questions, research objectives, methodology as well as provisional chapters of the
study. Chapter 1 also provides a profile of the Mangaung Metropolitan Municipality.
Chapter 2: Theoretical Overview of integrated Development Planning, the Local
Government Turnaround Strategy and their implementation in the South African Local
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Government Sphere. This chapter outlines the origin, statutory and regulatory
framework as well as the implementation of the Local Government Turnaround Strategy
(LGTAS) and Integrated Development Planning (IDP) in the context of South African
Municipalities, with specific references to the Integrated Development Planning (IDP)
process as well as the implementation of the Local Government Turnaround Strategy
(LGTAS) in the case of Mangaung Metropolitan Municipality. The information obtained
during the development of this chapter established a basis for exploring the conceptual
link between the Local Government Turnaround Strategy (LGTAS) the Integrated
Development Planning (IDP) process, and public participation and good governance
that will be discussed in the next chapter.
Chapter 3: Public Participation, Integrated Development Planning (IDP) and Good
Governance: A conceptual practical interface. Firstly the chapter provides the legislative
and policy frameworks and directives of the national government of South Africa and
literature exploration with regards to public participation and good governance in the
Integrated Development Planning (IDP) process, with specific reference to the case of
Mangaung Metropolitan Municipality.
Chapter 4: Research Methodology. This chapter explained the research methodology,
data gathering and sampling techniques used in the study. The chapter also presented
the empirical findings of the Local Government Turnaround Strategy (LGTAS) on Public
Participation and Good Governance in the Integrated Development Planning (IDP)
process in the case of the Mangaung Metropolitan Municipality. The chapter presented
the empirical findings by presenting the data which was gathered as well as an analysis
of the findings.
Chapter 5: Research Summary, Recommendations and Concluding Remarks. A
conclusion is drawn and proposals are made on the impact of the Local Government
Turnaround Strategy (LGTAS) on the Integrated Development Planning (IDP) process
within the Mangaung Metropolitan Municipality, public participation and good
governance based on the facts analysed from the research findings.
204
5.3 RESEARCH OBJECTIVES
The research questions were proposed in Chapter 1 of the study:
? What are the theories, principles and legislative requirements associated
with Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS)?
? What are the key requirements, purposes, objectives, and components of
public participation and good governance of Integrated Development
Planning (IDP)?
? What are existing policies, systems, structures, approaches and
operations with respect to public participation and good governance of the
Integrated Development Planning (IDP) and the Local Government
Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality?
? How effective are the policies, systems, structures, approaches and
operations of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance of the Integrated
Development Plan (IDP) in the Mangaung Metropolitan Municipality?
? What recommendations may be made to ensure the effective and efficient
implementation of public participation and good governance as part of the
Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?
In order to answer the research questions and corresponding research objectives, the
requirements of different legislative frameworks as well as the different views of different
authors in Chapter 2 and Chapter 3 of the literature review should be considered.
Chapter 2 provides the theoretical overview and outlines the origin of Integrated
Development Planning (IDP) and the Local Government Turnaround Strategy (LGTAS),
as well as the statutory and regulatory framework of Integrated Development Planning
(IDP) and the Local Government Turnaround Strategy (LGTAS). The nature and extent
205
of typical municipal services and the key performance areas of Integrated Development
Planning (IDP) as well as the composition of the Integrated Development Planning (IDP)
phases were also discussed. The Local Government Turnaround Strategy (LGTAS) in
context was also discussed to solicit the five strategic objectives and immediate medium
term priorities of this strategy followed by a discussion about the implementation of
Integrated Development Planning (IDP) and Local Government Turnaround Strategy
(LGTAS) in the case of Mangaung Metropolitan Municipality.
Chapter 3 explores the interface between Integrated Development Planning (IDPs),
public participation and good governance. The chapter outlines the key public
participation concepts, followed by a discussion about the legislative and policy
framework for participatory governance, an overview of the different approaches,
building blocks and modes of public participation in local government, public
participation strategies, and public participation in local government?s Integrated
Development Planning (IDP) process and concludes with a brief outline of good
governance and community participation in the case of the Mangaung Metropolitan
Municipality. The following were the research objectives of this study as proposed in
Chapter 1, Section 3.1:
5.3.1 Objective 1. To investigate through the extensive literature and policies, the
requirements, purpose, principles, objectives, and components of the Integrated
Development Plan (IDP) and the Local Government Turnaround Strategy (LGTAS).
A question was asked in Chapter 1, Section 1.3 of this study as to what are the theories,
principles and legislative requirements associated with Integrated Development
Planning (IDP) and the Local Government Turnaround Strategy (LGTAS) are? Chapter
2 and 3 of this study must be considered to respond to the research questions and the
views of authors applied must also be taken into consideration. A question was posed
in Chapter 1 on the extent of existing policies, systems, structures and approaches
within the Mangaung Metropolitan Municipality to implement the LGTAS. This is outlined
in Chapter 2
206
5.3.2 Objective 2. To investigate through the extensive literature and policies the
requirements, components and linkages of public participation and good
governance in the Integrated Development Planning (IDP) process.
A question was a question posed in Chapter 1 on what the key requirements, purposes,
objectives, and components of public participation and good governance of Integrated
Development Planning (IDP) are. Chapter 3 explores the extent of existing policies,
components and linkages of the public participation good governance and the
Integrated Development Planning (IDP) process. Chapter 3 also explores the efforts of
Mangaung Metropolitan Municipality to promote good governance and public
participation through the Integrated Development Planning (IDP) process.
5.3.3 Objective 3. To explore policies, systems, structures and approaches on the
implementation of the Local Government Turnaround Strategy (LGTAS) with
respect to public participation and good governance in the Integrated
Development Planning (IDP) process within the Mangaung Metropolitan
Municipality.
A question was asked in Chapter 1, Section 1.3 of this study as to what the existing
policies, systems, structures, approaches and operations with respect to public
participation and good governance of the Integrated Development Planning (IDP) and
the Local Government Turnaround Strategy (LGTAS) within the Mangaung Metropolitan
Municipality are? Chapter 3 explores the efforts of the Mangaung Metropolitan
Municipality to incorporate the Local Government Turnaround Strategy (LGTAS) as well
as to promotes good governance and public participation through the Integrated
Development Planning (IDP) process.
207
5.3.4 Objective 4. To determine through an evaluation of the LATEST annual
review reports as well as through structured interviews the impact of the Local
Government Turnaround Strategy (LGTAS) on public participation and good
governance in the Integrated Development Planning (IDP) process.
A question was posed in Chapter 1 of this study on the effectiveness of the policies,
systems, structures, approaches and operations of the Local Government Turnaround
Strategy (LGTAS) with respect to public participation and good governance of the
Integrated Development Plan (IDP) in the Mangaung Metropolitan Municipality. As
indicated above Chapter 3 explores the efforts of the Mangaung Metropolitan
Municipality to incorporate the Local Government Turnaround Strategy (LGTAS) to
promotes good governance and public participation through the Integrated Development
Planning (IDP) process. While chapter 4, indicates how an empirical study was
undertaken in this regard and a summary of the findings is presented in Section 5.5
below.
5.3.5 Objective 5. Making recommendations based on the research findings in
order to improve public participation and good governance of the IDP in the
Mangaung Metropolitan Municipality.
A question was posed in Chapter 1: “What recommendations may be made to ensure
the effective and efficient implementation of public participation and good governance
as part of the Local Government Turnaround Strategy (LGTAS) and Integrated
Development Plan (IDP) within the Mangaung Metropolitan Municipality?” This chapter
concludes by offering the recommendations.
5.4 CENTRAL THEORETICAL STATEMENTS
Chapter 1, Section 1.8 emphasised that although the Local Government Turnaround
Strategy was incorporated in the Mangaung Metropolitan Municipality?s own tailor-made
208
Municipal Turnaround Strategy (MTAS), one of the most significant challenges in the
Mangaung Metropolitan Municipality is to become a financially viable and well-managed
Metropolitan Municipality. As discussed in Chapter 1, Section 1.8 the Mangaung
Metropolitan Municipality Integrated Development Plan, Review 2013/2014 states that
the ageing service delivery infrastructure including electricity and water line loses and
utilities remains a serious challenge as well as the ineffective revenue collection due to
the reliance on Intergovernmental Relations transfers such as conditional grants
remains a challenge. Section 1.8 further emphasised that the Mangaung Metropolitan
Municipality still need to achieve the following medium to long term priorities of the
Local Governments Turnaround Strategy (LGTAS) as incorporated in the Metropole?s
Integrated Development Plan (IDP), namely:
? To achieve clean audits by 2014;
? Facilitate the development of the N8 corridor development;
? To deal with the fiscal gap by dealing with critical issues such as billing
completeness and accuracy, collections efficiency, debtors minimization and
management, tax and tariff increases for existing revenue sources and
expenditure efficiencies;
? To ensure the effective implementation of the bulk contribution policy such as the
7000 properties that are not metered for varied services;
? To ensure water service supply and sustainability;
? To mainstream poverty reduction as incorporated in the IDP;
? To develop Botshabelo and Thaba-Nchu to reduce transportation cost on the
poor;
? To accelerate of Level 2 Housing Accreditation; and
? To leverage resources for a number of flagship projects namely land
development, Inner city redevelopment, and township rehabilitation (including
greening, open spaces and cemeteries.
Chapter 2.2 highlights the statutory and regulatory frameworks of Integrated
Development Planning (IDP) and states that Section 154 of the Constitution, 1996
provided that national and provincial governments must support and strengthen the
209
capacity of local authorities by legislative and other measures to manage their affairs, to
exercise their power and to perform their functions, thereby given these authorities a
distinctive role in promoting social development and democracy on local sphere. The
Constitution, 1996 also mandated municipalities with major developmental
responsibilities to ensure that the quality of life of its citizens is improved. The role for
local government includes the provision of basic services, creation of jobs and
eradication of poverty. Section 153 of the Constitution, 1996 implies that a municipality
must structure and manage its administration and budgeting and planning processes to
give priority to the basic needs of the community and to promote the social and
economic development of the community. Section 2.1 states the main aim of the Local
Government Turnaround Strategy (LGTAS) namely, to turn around the municipalities?
performance and to rebuild and improve the basic requirements for a functional,
responsive, accountable, effective and efficient developmental local government
Chapter 2 further highlights in Section, 2.6.16 that the Mangaung Metropolitan
Municipality effectively incorporates the Local Government Turnaround Strategy
(LGTAS) and aligns the Free State Provincial Government?s Growth and Development
Strategy as well as the National Development Plan and the National Strategic
Framework (NSF) priorities in its Integrated Development Plan Review 2013/2014.
Chapter 3 Section 3.3 emphasised that the South African government has put in place
many statutory policy and legislative frameworks which require some form of public
participation in local government. It was explained in Chapter 3 that Section 153 of the
Constitution, 1996 states that all municipalities must structure and manage its
administration, budgeting and planning processes, in such a manner that it gives priority
to the basic needs of the community. In addition Section 151(1) of the Constitution,
1996 places an obligation on local government to encourage the involvement of
communities and community organizations in the matters of local government.
Whereas, the Municipal Systems Act, 2000 (Act 32 of 2000), states in Section 17(2) that
a municipality must establish appropriate mechanisms processes and procedures to
enable the local community to participate in the affairs of the municipality.
210
Chapter 3, Section 3.8 of this study clearly indicated that the Mangaung Metropolitan
Municipality has a well planned and well structured community engagement strategy
that is included in its Integrated Development Plan Review of 2013/2014 to promote
effective public participation in the region. In Chapter 3, Section 3.8 it was explained
that the Mangaung Metropolitan Municipality identified six community needs priorities
that will be addressed in the short, medium and long term, including:
? Upgrading tarring and gravel roads, fixing potholes and build speed humps in all
wards;
? Controlling and maintaining of storm water channels in all wards;
? Attending to water cuts and regular disruption of water supply due to poor
maintenance in all wards;
? Providing, connecting and maintaining of waterborne sewerage systems in the
place of bucket systems in some of the wards;
? Addressing high electricity bills need to be addressed in all wards;
? Addressing the theft of electrical cables, electricity failure at all times in all wards;
and
? Attending to social and recreation facilities, libraries youth centres and
community halls in all wards.
Chapter 3, Section 3.8 further discussed that the Mangaung Metropolitan Municipality
organized as indicated in the its Integrated Development Plan (IDP), Review of
2013/2014, that a number of meetings, consultations and public hearings with all
interested stakeholders such as national and provincial departments, organised
business, traditional leadership councilors and members of the community, and ward
committees in the short and medium term. A total of 19 engagement with communities
were made by the Mangaung Metropolitan Municipality during 2012 and 2013 that
involve interactions with communities at ward levels and with rural communities,
business and youth representatives which represented various regions of the
Mangaung Metropolitan Municipality. Section 3.8 also indicated that the Mangaung
Metropolitan Municipality states in its Integrated Development Plan (IDP), Review
211
2013/2014, that the Free State Provincial Department of Cooperative Governance and
Traditional Affairs, (CoGTA) held an Integrated Development Planning (IDP) Alignment
and Assessment Workshop in April 2012 during which the National Development Plan,
2030, the Free State Provincial Growth and Development Strategy (PGDS), Vision 2030
as well as the draft reviewed Integrated Development Plans (IDPs) of all municipalities
in the provinces were thoroughly reviewed and assessed. The workshop was attended
by Integrated Development Planning (IDP) officials from the Mangaung Metropolitan
Municipality and other municipalities within the region, and representatives of other
sector departments from national and provincial government.
Section 3.8 and Section 3.9 listed some of the issues that were raised during the
interactions with various community ward representatives that are affecting the various
communities that are listed in the Mangaung Metropolitan Municipality Integrated
Development Plan, Review 2013/2014, and that are receiving considerable attention.
These include issues such as poor maintenance of existing infrastructure, particularly
roads and drainage as well as sewage systems, and matters of safety and well- being of
the residents. Section 3.8 in Chapter 3 further emphasised in the Mangaung
Metropolitan Municipality Integrated Development Plan (IDP), Review of 2013/2014,
the key development thrusts of the Mangaung Metropolitan Municipality that still needs
to be achieved includes; “poverty eradication, rural and economic development and job
creation; financial sustainability including revenue enhancement and clean audits;
spatial development and the build environment; the eradication of bucket systems in
Botshabelo, Mangaung and Thaba Nchu regions; and other issues including building
solar farming, a power plant feasibility study, safety and security; human settlements,
public transport, environmental management and climate change and social and
community services”.
In Chapter 3, Section 3.9 concerning good governance. It was explained that the
Mangaung Metropolitan Municipality Integrated Development Plan (IDP), Review
2013/2014 states that the council of the Mangaung Metropolitan Municipality places a
strong emphasis on good governance by ensuring effective leadership, accountability
212
and effective management of all resources particularly financial resources. Section 3.9
further explained that the Mangaung Metropolitan Municipality reflected in its reviewed
Integrated Development Plan, 2013 clear strategies, objectives and critical performance
indicators to promote good governance for the next five years. The strategies to
promote good governance as constituted in the Mangaung Metropolitan Municipality
Integrated Development Plan, Review (IDP) 2013/2014, include the following:
? Providing strategic leadership and planning with well- defined targets aligned to
the budget;
? Improving performance management and accountability;
? Implementing of the Institutional Performance Management System (IPMS);
? Ensuring the effective functioning of the Audit, Oversight and Public Account
Committees;
? Establishing effective, functioning Audit, Oversights and Public Account
Committees as well as ensuring that the committees consist of knowledgeable
persons;
? Fully capacitated Intern Audit Activities consisting of competent and
knowledgeable staff;
? Developing and monitoring of an Information Technology governance model, and
strategies to promote effectiveness;
? Proper record keeping of all information communication technology and related
equipment, systems and software;
? Redevelopment of the Mangaung Metropolitan Municipality?s Intranet system and
upgrading current information communication technology systems;
? Analysis all current information systems used by the Mangaung Metropolitan
Municipality;
? Maintaining a two-hour turn- around time on support calls;
? Effective proactive risk management governance framework and processes;
? Enhancing public participation in the affairs of the municipality;
? Fostering good relationships with organised labour and concluding all
outstanding labour disputes;
213
? Promoting the retention of skilled employees;
? Maintaining effective work place skills plan;
? Institutional transformation and re-design;
? Tracking of decisions made by council;
? Developing guidance on good practices with the aim of establishing and
consistent standards of records;
? Establishing common and consistent standards of records; and
? Establishing and link operational modules throughout the Mangaung Metropolitan
Municipality.
It was further emphasised in Chapter 3, Section 3.9 that although the Mangaung
Metropolitan Municipality places a strong emphasis on good governance as reflected in
its Integrated Development Review (IDP) of 2013/2014 the Auditors Auditor General
Report on the Audit Outcomes of Local Government in the Free State, 2011/2012,
clearly indicated that more needs to be done to promote good governance in the
Mangaung Metropolitan Municipality. In this regard the Auditors Auditor General Report
on the Audit Outcomes of Local Government in the Free State, 2011/2012 states that it
is a concern that the Mangaung Metropolitan Municipality had findings on both the
usefulness and reliability of reported information because it is expected from the
Mangaung Metropolitan Municipality to set the example in the Free State Province. It
was further emphasised in Chapter 3, Section 3.9 that the Auditors Auditor General
Report on the Audit Outcomes of Local Government in the Free State, 2011/2012 holds
that all municipalities including the Mangaung Metropolitan Municipality findings on non-
compliance with laws and regulations; this has become a norm as no municipality in the
Free State province addressed its findings of the previous year. The Auditors Auditor
General Report on the Audit Outcomes of Local Government in the Free State,
2011/2012 further states that non-compliance in all municipalities relate to material
misstatements in submitted financial statements; the prevention and addressing of
unauthorised irregular as well as fruitless and wasteful expenditures need urgent
attention, such as matters relating to annual reports such as the annual performance
reports that were not prepared based on the Integrated Development Plans (IDPs), and
214
other areas of non-compliance, including procurement and contract management,
budgets, internal audit units and audit committees. Other concerns of the Auditors
Auditor General in its Report on the Audit Outcomes of Local Government in the Free
State, 2011/2012 regarding the Mangaung Metropolitan Municipality as stated Chapter
3, Section 3.9 include the following:
? “The current liabilities of the Mangaung Metropolitan Municipality exceeds its
current assets;
? Mangaung Metropolitan Municipality did not always settle debts within 30 days,
as required by national legislation;
? The Mangaung Metropolitan Municipality was experiencing serious difficulties
with regard to debt collection;
? Mangaung Metropolitan Municipality has not set any funds aside to settle
significant defined benefit obligations; and
? The Mangaung Metropolitan Municipality may therefore be unable to realize its
assets and discharge its liabilities in the normal course of business”.
5.5 SUMMARY OF THE EMPIRICAL FINDINGS
It was summarised in Chapter 4 Section 4.12 that it was evident from the research
findings that the effective, efficient and sustainable implementation and incorporation of
the Local Government Turnaround Strategy would not be possible if ward councilors as
the chairperson of the Ward Committees of the Metropolitan Municipality are not familiar
with the main aims and objectives of such a crucial governmental intervention. It is
therefore unlikely that the ward committee councilors will communicate the correct aim
to the community who needs to be consulted on the affairs of the Mangaung
Metropolitan Municipality. Although the Mangaung Metropolitan Municipality clearly
incorporated the Local Government Turnaround Strategy in its reviewed Integrated
Development Plan of 2013 as indicated in Chapter 1 Section 1.8 it is still important to
ensure that it is clearly communicated to the Ward Committee members.
215
The following is a summary of the findings of Chapter 5 of this study.
? Ward committee members within the Mangaung Metropolitan Municipality do
have an idea of the purpose and aims of the Municipal Turnaround Strategy.
However the Manager of the Mangaung Metropolitan Municipality needs to clarify
the purpose, main aim and objectives of the Local Government Turnaround
Strategy with all stakeholders, including the Ward Committee members to ensure
that all stakeholders obtain a clear understanding of the purpose, aims and
objectives the Local Government Turnaround Strategy that needs to be
incorporated in the Metropolitan?s Integrated Development Plan (IDP).
? There is a lack of proper guidelines and processes in place to give direction
towards the successful implementation of the Mangaung Metropolitan
Municipality?s Integrated Development Plan (IDP) and other plans;
? The Mangaung Metropolitan Municipality has to ensure that community
participation do not only takes place during the preparation and implementation
processes of by also during the review or its Integrated Development Plan (IDP).
In this manner it will ensure that the community received feedback concerning
the progress of its Integrated Development Plan (IDP).
? The Municipal Manager of the Mangaung Metropolitan Municipality as the head
of administration has to ensure that various public participation strategies are
used to reach the majority of the local community.
? Another concern was raised that the majority of the respondents responded that
the municipality must become more transparent and should use financial
resources more effectively.
? There is a lack of ward committee members? involvement and representation in
the top decision making structures within the municipality.
? Vague and ambiguous responsibilities given to ward committee members.
? There is a lack of clear reporting mechanisms, as ward committee members
deem feedback and consultation key in successfully implementing the short,
medium and long-term priorities of the Local government Turnaround Strategy
(LGTAS) and the Integrated Development Plan (IDP).
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5.6 RECOMMENDATIONS
The main purpose of this study was to determine the Impact of the Local Government
Turnaround Strategy on public participation and good governance in the IDP process
within the Mangaung Metropolitan Municipality. It was found during the literature review
that although the Local Government Turnaround Strategy (LGTAS) was successfully
incorporated in the Mangaung Metropolitan Municipality Integrated Development Plan
as showed in the Integrated Development Plan as showed in the Review of 2013/2014,
more needs to be done to ensure that the Review of 2013/2014, more needs to be done
to ensure that the medium-term and long-term priorities are effectively implemented to
promote good governance, and effective service delivery within Mangaung Metropolitan
Municipality. Based on the theoretical and empirical research undertaken, the following
serve as recommendations to promote the effective implementation of the medium and
long term priorities of the Local Government Turnaround Strategy as incorporated in the
Integrated Development Plan (IDP) as well as to promote effective public participation
and good governance in the Mangaung Metropolitan Municipality:
? Although the study showed that Mangaung Metropolitan Municipality has a set of
well planned and well structured strategies to ensure that the medium and long-
term priorities of the Local Government Strategy (LGTAS) as incorporated in its
Integrated Development Plan Review of 2013/2014 it is clear that more needs to
be done to ensure the effective implementation of these strategies.
? Although the study showed that Mangaung Metropolitan Municipality has a well
planned and well structured community engagement strategy that is
incorporated in its Integrated Development Plan Review of 2013/2014 these
strategies need to be effectively implemented to promote effective public
participation in the region.
? Although the Mangaung Metropolitan Municipality places a strong emphasis on
good governance as reflected in its Integrated Development Review (IDP) of
2013/2014, a concern is that the Auditors Auditor General Report on the Audit
217
Outcomes of Local Government in the Free State, 2011/2012, clearly indicated
that more needs to be done to promote good governance in the Mangaung
Metropolitan Municipality.
? A holistic and more extensive training programme must be developed and
undertaken by Ward Committee Councillors and Ward Committee members and
other relevant municipal officials involved in the implementation of the Integrated
Development Plan (IDP);
? The municipality must draw up clear and understandable guiding documents and
processes to enable the Ward Committee representatives to clearly understand
their responsibilities as well as the procedures and channels to follow to
strengthen public participation within the Mangaung Metropolitan Municipality.
? Although the Local Government Turnaround Strategy (LGTAS) was successfully
incorporated in the Mangaung Metropolitan Municipality?s Integrated
Development Plan (IDP) Review of 2013/2014, more needs to be done to ensure
that the medium and long- term priorities will still be implemented effectively to
promote good governance, and effective service delivery in the Metropolitan.
? Although the Mangaung Metropolitan Muncipality has strategies in place as
indicated in its Integrated Development Plan (IDP) Review of 2013/2014 more
needs to be done to ensure the effective implementation of these strategies to
ensure that the Metropolitan becomes a financially viable and well-managed
Metropolitan Municipality.
? Although the Mangaung Metropolitan Municipality has clear public participation
strategies and numerous engagement activities with communities during the
different phases of the Integrated Development Planning and Review process,
more needs to be done to ensure that the communities are effectively
represented during these public participation consultation activities to ensure that
the needs of the communities are addressed.
? The Mangaung Metropolitan Municipality should include the amount of
community members who were present during the public participation
consultation sessions and not only indicates the type of participation, the date
and the venue. In this manner the Mangaung Metropolitan Municipality will
218
ensure that the communities are effectively represented and consulted during the
different phases of the Integrated Development Planning (IDP) and Review
processes.
? Ward Committee Councillors must be engaged in the top decision-making
structures, of the Mangaung Metropolitan Municipality and not only during the
implementation phases.
? Feedback should play a vital role in improving service delivery and the standard
of living of communities as the municipality will learn from their mistakes and
redress the imbalances and the gaps.
5.7 CONCLUSION
This chapter focuses on the summary of the entire study and summarised the
findings made in the earlier chapters based on the research questions and
objectives. Based on the findings, conclusions were drawn, and recommendations
were made.
The study attempted to determine the impact of the Local Government Strategy
(LGTAS) on public participation and good governance with respect to the Integrated
Development Planning (IDP) process within and by the Mangaung Metropolitan
Municipality.
The dissertation was completed in the hope that the findings recorded here and the
recommendations will be useful to the Mangaung Metropolitan Municipality.
219
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ANNEXURE A - LETTER OF CONSENT
23 July 2012
To: Dr Henk Boshoff
Director Corporate Services, Mangaung Metropolitan Municipality
From: Ms Patricia Mathane
M Tech Public Management student
Research Study : The impact of the Local Government Turnaround Strategy on public
participation and good governance with regard to the Integrated Development Planning process:
The case of Mangaung Metropolitan Municipality
The telephonically discussion with Dr Henk Boshoff who granted permission telephonically to conduct the
research interviews with respondents from the Mangaung Metropolitan Municipality refers to. I Ms LP
Mathane M Tech Public Management student with student number 205059392, confirm hereby that I will
make every effort to safeguard the confidentiality of the following respondents with who I will conduct
interview:
? The Community Participation and IDP manager of Mangaung Metropolitan Municipality.
? The manager Rural Development and LED of Mangaung Metropolitan Municipality.
? Ten ward committee members.
Kind Regards
Ms LP Mathane
Central University of Technology, Free State (CUT)
232
ANNEXURE B - RESEARCH QUESTIONNAIRE
Respondent number
QUESTIONNAIRE STRUCTURED INTERVIEWS
EXPERIENCES AND PERCEPTIONS OF WARD COUNCILLOR?S AND OFFICIALS OF THE
MANGAUNG METROPOLITAN MUNICIPALITY ABOUT THE IMPACT OF THE LOCAL
GOVERNMENT TURNAROUND STRATEGY ON PUBLIC PARTICIPATION AND GOOD
GOVERNANCE WITH RESPECT TO INTEGRATED DEVELOPMENT PLANNING (IDP) :
Purpose of the survey:
The purpose of the survey is to determine the impact of the Local Government Turnaround Strategy on
public participation and good governance with respect to the Integrated Development Planning (IDP)
process in Mangaung Metropolitan Municipality.
Note to the respondent
? I would appreciate your willingness to assist in this research project; please take note that you are
not compelled to partake in this survey.
? Your contributions to the interview will remain private and confidential and no one will be able to
trace your responses back to you as an individual.
? Your permission to use these responses is required for the purpose of this master study.
How the survey should be completed:
? The researcher is only interested in your opinion regarding community participation.
? Read each question carefully.
? Please use a pen to mark your responses by placing a cross, in the appropriate box is write your
comments in the appropriate lines.
? If you are unable (illiterate) to complete the questionnaire the researcher will assist you by placing
a cross in an appropriate column on your behalf.
Thank you for your participation.
233
SECTION A
Biological Information
Please mark with an X
1. What is your Gender?
Female Male
2. How old are you?
3. What is your official designation?
Official
Ward Committee Member Other
4. Which ward are you representing?
……………………………
5. What is your highest level of education?
Illiterate
Primary
Secondary
Tertiary
6. How long have you lived in Mangaung Metropolitan Municipality Area?
1-10 years
Over 10 years
234
SECTION B
Local Government Turnaround Strategy
Good Governance
Integrated Development Planning
This section consist of question that seek to collect information about the impact of Local Government
turnaround strategy on public participation, good governance and the Integrated development Planning.
Category 1. The Municipal Turnaround Strategy
1.1. What is your understanding of the Municipal Turnaround Strategy that was introduced at the end of
2009?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………………………………………………….
1.2 What is the main aim of the Municipal Turnaround Strategy?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
1.3 Have you taken part in the implementation process of the Municipal Turn Around strategy process in
the former Mangaung Local Municipality?
Yes
No
1.4 What was your personal involvement in the Municipal Turnaround Strategy process in former
Mangaung Local Municipality?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………
235
1.5 One of the strategic objectives of the Municipal Turnaround strategy is to strengthen the partnership
between communities, civil society and the local government. Were the different ward community
members informed about the Municipal Turnaround Strategy of the former Mangaung Local Municipality?
Yes
No
1.5.1 If YES in 1.5 above, HOW were they informed?
Face to face
By a messenger
Telephone conversation
SMS or text message
Other
If OTHER, please specify:…………………………………………………………………………………
1.6 Was there any improvement in the Mangaung Metropolitan Municipalities performance since the
introduction of the Municipal Turnaround Strategy to meet the basic service delivery needs of their
communities?
1.6.1 If Yes please provide at least three important improvements made.
1.7 Were there any improvements in the Manguang Metropolitan Municipality performance to obtain a
clean audit report since the introduction of the Municipal Turnaround Strategy?
Yes
No
Yes
No
236
1.7.1 If Yes or No please provide reasons for your answer.
.……………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………
1.8 In your opinion has the Mangaung Metropolitan Municipality successfully achieved a responsive and
accountable system of local government?
1.8.1 If Yes or No please provide reasons for your answer.
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………………………………………………………………………………………………
………………………………
Category 2: IDP process and development projects
2.1 In your opinion does communities benefit from participating in the IDP process?
2.1.1 If Yes or No please provide reasons for your answer.
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………
2.2 Indicate which of the following you have attended and state how often you have attended.
Type of meetings Every time Once in a while Never
Ward Councilor Meetings
Ward Committee Meetings
Branch Manager Meetings
Municipal Manager Meetings
Mayor Meetings
IDP Steering Committee
IDP Forum Meetings
Community ward meetings
Other
Yes
No
Yes
No
237
…………………………………………………………………………………………………………………………
……………………………………………………………………………………………………………………….
2.4 Which of the following mechanisms does the Mangaung Metropolitan Municipality use to engage the
community in the IDP process: (Mark each by means of an X)
Mechanisms Monthly Sometimes used Never used
Ward committee meetings
Road Shows
Work group discussions
Public invitations to access the IDP at a central place
such as a community centre or a public library
Other mechanisms
2.5 How would you describe the extent of public participation of ward community members over the last
five years concerning the IDP process? Please mark with an X.
Very good
Average
Poor
2.5.1 Please provide a reason for your answer in 2.5 above?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
2.6 Are you aware of the projected projects listed in the Mangaung Metropolitan Municipality?
Yes
No
Not sure
2.7 Have you ever received any feedback after the Mangaung Metropolitan Municipality engage with the
community
Yes
No
Not sure
2.7.1 If YES, please provide an example:
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
238
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………………………………………
2.8 Please indicate the degree of agreement or disagreement with the following statements concerning
how public participation may be practices during the IDP process.
Nr Statements
Strongly
Agree
Agree
Neither
Agree
Nor
Disagree
Disagree
Strongly
Disagree
2.8.1 The ward community committees are
very effective in articulating the interest
of the community
2.8.2 The community members received
feedback on how their inputs affected
decisions made by the Mangaung
Metropolitan Municipality
2.8.3 Only a few selected members of the
community participate in the process
2.8.4 Public participation in the IDP process is
meaningful
2.8.5 The IDP aims to respond to local
communities needs
2.8.6 The community is given a change to
identify and prioritise the projects which
should be implemented
2.8.7 The IDP is instrumental in implementing
the projects that were prioritized by the
community through public participation.
2.8.8 The involvement of the community in the
IDP process should take place during
the implementation process
2.8.9 Effective public participation can boost
rural development in the Manguang
Metropolitan Municipality Area
2.9 Are there systems in place in the Mangaung Metropolitan Municipality to measure public
participation?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
239
2.10. What are the main challenges that prevent public participation of community members into the IDP
process and developmental projects?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
……………………………………
2.11 What should be done to improve public participation in the IDP process?
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
…………………………………………………………………………………………………………………………
………………………………………………………………………………
Category 3: Good Governance
3.1 Please indicate the degree of agreement or disagreement with the following statements
concerning how public participation and good governance in the Mangaung Metropolitan municipality.
Nr Statements
1
Strongly
agree
2 Agree
3 neither
agree nor
disagree
4Disagree
5
Strongly
disagree
3.1.1 The Municipal Turnaround Strategy
contributed to a
responsive local government through
public participation
3.1.2 The Municipal Turnaround Strategy
contributed to accountable local
government through public
participation
3.1.3 Public participation in the IDP process
in the Mangaung Metropolitan
Municipality promotes transparency
3.1.4 Public participation increases public
awareness of the Municipal Turn
Around strategy and the IDP process
3.1.5 Public participation in the IDP process
ensures that the Mangaung
Metropolitan Municipality uses scares
resources efficiently and effectively
Thank you very much for taking part in this survey.
doc_750937931.pdf