Ten Steps to Designing, Building and Sustaining a PerformanceBased Monitoring and Evaluations System

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

• Roll Out Plan
• A. Consultation
• Staff
• MEC
• SALGA
• Municipalities
• Cabinet Committee
• Portfolio Committee
•  
• B. Data base
• (Partners and Support Providers)
•  
• C. Launching
• Municipal Support
• Intervention
• Framework
•  
• D. Launching

Setting up of Support Providers Forum
Data base of Support Providers Partners
Deployment Strategy
Types of Support Intervention
Municipal Support Plan
Launching - Data base - Forum - Framework
Department - MS Unit - MRE Unit
District level Municipal Support Units

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

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Presentation overview

• This report comprises four main sections
• The first presents a context of municipalities in
  the Eastern Cape and presents types of municipal
  support and intervention.
• The second presents a framework for strengthening
  municipal support and intervention functions.
• The third applies the framework to DLGTA at a
  broad level.
• The fourth outlines a road map for
  institutionalising the function.

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Types of municipalities in the Eastern Cape

• Categorising municipalities
• Based on monitoring, municipalities can be
  categorised into those that require different
  types of support.
• In the interim, a desktop categorising method can
  be used
• A Metros (1)
• B1 Secondary cities (1)
• B2 Local municipalities with a large town as
  core (3).
• B3 Local municipalities with small towns, with
  relatively small population and significant
  proportion of urban population but with no large
  town as core (18).
• B4 Local municipalities which are mainly rural
  with communal tenure and with, at most, one or
  two small towns in their area (16).
• C1 District municipalities which are not water
  services authorities (1).
• C2 District municipalities which are water
  services authorities (5).

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Categorisation of municipalities

• A Nelson Mandela Metropolitan Municipality
• B1 Buffalo City Local Municipality
• B2 Makana Local Municipality
• B2 Lukhanji Local Municipality
• B2 King Sabata Dalindyebo Local Municipality
• B3 Camdeboo Local Municipality
• B3 Blue Crane Route Local Municipality
• B3 Ikwezi Local Municipality
• B3 Ndlambe Local Municipality
• B3 Sunday's River Valley Local Municipality
• B3 Baviaans Local Municipality
• B3 Kouga Local Municipality
• B3 Kou-Kamma Local Municipality
• B3 Great Kei Local Municipality
• B3 Amahlati Local Municipality
• B3 Nkonkobe Local Municipality

• B4 Umzimkhulu Local Municipality
• B4 Umzimvubu Local Municipality
• B4 Mbhashe Local Municipality
• B4 Mnquma Local Municipality
• B4 Ngqushwa Local Municipality
• B4 Intsika Yethu Local Municipality
• B4 Emalahleni Local Municipality
• B4 Engcobo Local Municipality
• B4 Elundini Local Municipality
• B4 Senqu Local Municipality
• B4 Mbizana Local Municipality
• B4 Ntabankulu Local Municipality
• B4 Qaukeni Local Municipality
• B4 Port St Johns Local Municipality
• B4 Nyandeni Local Municipality
• B4 Mhlontlo Local Municipality
• C1 Cacadu District Municipality

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Types ctd
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Type of municipal support
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Light support

• Light support
• This refers to support offered to municipalities
  in improving performance and implementing new
  policies and legislation. This type of support is
  relevant to municipalities that are generally
  functioning well (sustainability phase) and can
  implement new policies and legislation through
  appointing the required skills with the support
  of grants and some technical assistance from
  provincial and national government. Generally,
  such municipalities can appoint and manage
  consultants to undertake tasks in which they do
  not have the required capacity.

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Medium support

• Medium support
• This is applicable to municipalities that are
  gradually establishing themselves and are
  steadily improving their performance, but
  nonetheless require support to reach and complete
  the consolidation phase. This is typically
  related to a specific problem. Here there are two
  sub-sets
• Short term organisational building focussing on
  specific problems that occur within the
  institution and can be resolved through short
  term technical support.
• Medium term gap filling involving support to
  institutions in delivering services. It is
  relevant both to institutions that are
  established and functioning and those that are
  still being established, but cant upscale their
  delivery without additional support through the
  placement of technical assistance teams
  (programme management units), often with skills
  from the private sector.

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Intense support

• Intense support
• This is a component of hands on support and is
  focussed on those municipalities which are still
  effectively in the establishment phase and
  grappling with quite severe problems.
  Municipalities may also be in sustainability or
  consolidation phases but are facing severe
  problems.
• There are two sub-types
• Long term organisational building which is likely
  to include political, strategic and operational
  components. This acknowledges that there are no
  structural or environmental constraints to this
  capacity being built over the medium to longer
  term.
• Long term gap filling is relevant to those
  institutions which are not able to ever attract
  the required skills (in the medium to long term)
  due to broader structural and environmental
  (geographical location and population densities)
  constraints. This limits them from recruiting
  skills on a full-time basis. It is acknowledged
  that it is better in these environments to
  appoint a qualified engineer, for example, for
  one day a week rather than an unqualified person
  to try and fulfil this function. This requires
  capacity from another institution to be deployed
  on an ongoing basis to fill the gaps that exist.
  An example of this is a shared service centre.

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Municipal Intervention

• Intervention as a legal instrument is the
  unilateral interference by one sphere into the
  affairs of another sphere in order to remedy an
  unacceptable situation.
• Last resort, only after all other options for
  resolving the issue have been exhausted.
• Legal base for intervention into local government
  by provinces is S139 of the Constitution and
  sections of the MFMA
• Principles of Integration
• Mainstreaming Promotion of Integration
• Long term approach to optimise effectiveness
• Seek out the most vulnerable build resilience

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Types of intervention

• Four types of intervention
• Regular interventions in response to a crisis
  that is not strictly financial in nature (failure
  to fulfill an executive obligation). Managed by
  MEC for LG
• Intervention in response to a municipality having
  serious financial problems (financial recovery
  plan). Managed by MEC for LG
• Intervention in response to a municipality
  failing to adopt a budget or revenue-raising
  measures. Managed by MEC for LG
• Intervention in response to a municipality
  experiencing a crisis in financial affairs.
  Managed by MEC Finance.
• Distinction between substantive and procedural
  aspects re the above.

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Pre-requisites to support and intervene

• Concept of authority and providers
• Norms and standards
• Framework and targets
• Support intervention
• Co-ordination and mobilisation
• Monitoring evaluation
• These are regarded as AUTHORITY FUNCTIONS and are
  performed by government.
• PROVIDER FUNCTIONS are performed by service
  providers
• On the following slide support methodology is
  given

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Concept
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Components

• Targets
• Two main informants to targets
• National targets from national policies and
  programmes.
• Provincial targets.
• Performance assessment
• Assessment, based on KPIs (that will include the
  targets listed above), will define where the
  municipality is located in terms of
  establishment, consolidation and sustainability.
• Dplg currently busy with work on ME, core set of
  indicators have been defined which can form the
  basis of departmental indicators for monitoring.
• DM LM support programmes
• Having conducted the assessment, it is then
  possible to define broad municipal support
  programmes for district and local municipalities.
  
• Diagnose
• Relevant mostly to municipalities in the
  establishment and consolidation phases.
• Deeper assessment of performance and the reasons
  behind such performance.
• Encompasses a number of steps.

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Components ctd

• Co-ordination and mobilisation
• Once municipalities have been identified for
  different types of support, support role-players
  can be mobilised and co-ordinated.
• Deployment strategy
• Required in order to create consistency amongst
  the various role-players who have been mobilised
  to provide support.
• Needs to include some orientation and training.
• Detailed planning and implementation
• Once on site, detailed planning and
  implementation is undertaken.
• Monitoring and evaluation
• Ongoing monitoring on achievement of outputs.
• Evaluation of effectiveness of support provided.
• Norms and standards
• Norms and standards for the way in which support
  and intervention is implemented bring uniformity
  when there are different providers.
• Tools and guidelines
• Tools and guidelines have/need to
  developed/rationalised to assist with
  implementation of support and intervention.
• Knowledge sharing
• Sharing of experiences and knowledge across the
  system is required.

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Prioritising Municipal Support
Municipality back
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Municipal Support Programmes
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Municipal Support Programmes per KPA
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Working with districts

• Two types of districts in terms of support
• Type 1 refers to those districts that already
  have an institutional response to supporting
  local municipalities (Amathole and Cacadu). These
  districts can be used as the implementing
  agents for DLGTA in support to local
  municipalities.
• Type 2 refers to those districts that do not yet
  have an institutional response to supporting
  local municipalities (OR Tambo, Alfred Nzo, Chris
  Hani and Ukhahlamba). Here, DLGTA will need to
  support these districts to develop support
  programmes to local municipalities. This may well
  require intense hands-on support in certain
  cases.
• Establishment or strengthening of District IGR
  Forums capacity building

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Logic Model Pyramid
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APPLYING LOGIC MODEL TO DLGTA
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Logic
Model - NarrativeMake Logic Model more readable
and clearThe branch, Developmental Local
Government, together with partners, will deliver
a number of activities and outputs under the
headings of policy and research, regulations,
support and resources that collectively comprise
a district and local municipal support programme.
This will result in DMs and LMs being able to
adequately prepare and implement their IDPs which
will ensure that delivery is improved within the
five KPAs which collectively contribute to a
better life for all.  When applying the LOGIC
model to the APP, it became clear that there were
some gaps around- How the department would
institutionalise its support, intervention
monitoring function.- Measurable objectives
tended to focus on outputs at the municipal
level, - How the department will implement
support measures to achieve these outputs.-
Integration of Municipal Departmental Plans
with Provincial National Plans
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Applying framework to DLGTA Authority functions

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

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Authority functions ctd

• Intention to provide strong monitoring,
  co-ordination and support functions
• Functions within different directorates
  sub-directorates issues of co-ordination,
  duplication inefficiencies?
• Elevate these functions
• Norms standards?
• Framework targets?
• Intervention
• Intervention function very weak sub-division
  (good governance) of municipal administration
  directorate called municipal interventions.
• However, staff can be deployed to assist with
  interventions.
• Further work required on analysing previous
  interventions undertaken by province.

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Provider functions

• Wide range of existing institutions providing
  support
• Absence of authority functions is limiting their
  impact
• Refer to Slides 16 17 above

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Institutionalising the Framework

• In order to institutionalize the framework, a
  number of steps are required related to
  establishment activities. Once established and
  institutionalized, the framework will then become
  part of the Departments ongoing planning
  processes. On the following slide, these steps
  are illustrated in the form of a roadmap.

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Roadmap
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Municipal Support Plan

• Building authority capacity
• Design a Provincial Municipal Support Plan.
• Framework targets
• Norms standards (for the way in which support
  is provided).
• Monitoring and evaluation. Specific ongoing.
• Contract management. Ongoing.
• Co-ordination mobilisation. Ongoing.
• Establish Strategic Support Unit within office of
  DDG
• Programme Manager, Project Manager, Project
  Administrator, short
• term or part-time contractors.
• Provide direction parameters for support
  providers
• Coordinate Capacitation of District Local
  Municipalities
• Coordinate all Support Programmes hands on
  support
• Focus on the development of Framework Targets
• Focus on the development of Norms Standards
• Establish MRE Unit within office of DDG

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END!!!