A Learning Experience Support to Municipal Development Northern Cape Province, South Africa 1998–2004
Sharing the practical experience from a long-term project to give inspiration and ideas for similar local government support support to municipal development, northern cape province, south africa 1998–2004
PROJECT BACKGROUND
The Northern Cape Province
The New South Africa
The Northern Cape, in the north-west corner of the country, is by far the largest of the nine provinces, being almost the size of Sweden, but is the most sparsely populated, with about 900 000 inhabitants. It is characterised by enormous, semi-arid plains, agriculture and mining of rich minerals. It has a dry inland climate with hot summers and cold winters. The provincial »capital« is Kimberley, the »diamond city« in the far-eastern corner of the province, with about 200 000 inhabitants. With a few exceptions, the other 25 municipalities (105 before the amalgamation in 2001) have vast territories but only small urban settlements. The provincial administration consists of the Premier’s Office and a number of line departments. The Department of Housing and Local Government (DHLG) has a supporting and monitoring role vis-à-vis the municipalities, and is the agent for most of the national funding to the local level. During the first years, most provincial staff had little experience of provincial and municipal government and admi nistration, and the capacity building and training needs were great.
After the first democratic election in 1994, South Africa embarked on the difficult road to rectify decades of apartheid injustices and skewed development in the country. Radical changes were desperately needed in all sectors of society, and people’s expectations for immediate improvements were very high. Many international donors and aid organisations moved in to support the democratic transformation. Sida (Swedish International Deve lopment Cooperation Agency) was asked, among many other undertakings, to support the establishment of the provincial government in the new province of the Northern Cape. After a few years Sida added support to the municipalities in the province, which is the focus of this presentation.
Local Government In 1994 a complex process started whereby the previous form of local government, based on the apartheid system, was replaced in 1996, on the basis of new local government legislation. The first local elections in 1995 resulted in a new generation of councillors, while many experienced municipal officials gradually left the public service. The majority of councillors and municipal staff needed re-orientation and extensive training on how to run a democratic local government. The community at large had high expectations of rapid service delivery. Substantial promises had been made during the elections, such as providing a million homes and basic services such as roads, water and sanitation, schools and clinics. At the same time most municipalities were not financially viable, and were funded largely by government grants channelled through provincial departments, and particularly DHLG. They also had minimal administrative experience and capacity, and very limited infrastructure.
Zimbabwe
Botswana
Mozambique pretoria
johannesburg
Swaziland
Namibia
kimberley
Lesotho
Northern Cape Province
durban
SOUTH AFRICA cape town
port elizabeth
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1000 km
support to municipal development, northern cape province, south africa 1998–2004
Sida MUNICIPAL SUPPORT Initial Stage Due to these local government conditions, and as a logical follow-up of the provincial support, Sida decided in 1997 to assist the Department of Housing and Local Government in the Northern Cape to support municipalities by funding a »Local Government Development Support Programme« (lgdsp) for three years (1998–2000), with a possible extension. Support was also to be provided to the provincial association for the municipalities, nocloga (Northern Cape Local Government Association), for the same period. The decision was based on a dhlg proposal to Sida, outlining the framework for the support programme, drafted in consultation with municipalities in the province. After a tender process the Swedish consultants sala (Swedish Association of Local Authorities) and sipu International were appointed to manage the programme. Overview of the Sida Support Programmes 1998–2000 1998
Local Government Development Support Programme LGDSP 2000
NOC LOGA Development Programme NDP
CONSIDERATIONS BEFORE STARTING A PROJECT LIKE THIS
The overall aim was to support DHLG in assisting municipalities to improve their service delivery capacity. Municipalities were to find practical ways of local policy development and decision making, and enhance their use of limited resources. The roles of different spheres of government should be clarified, as well as the roles and responsibilities of councillors and officials. Networks should be built across the province, and communication and co-operation improved on all levels. Some critical factors for the success of the support programme were: • dhlg had to be proactive and take on a developmental, supportive role • All stakeholders were to budget for their own costs • All plans, skills development programmes, learning materials and research had to be developed in co-operation with municipalities and dhlg • Top management had to give visible and concrete support to the programme • The various ongoing development programmes within the municipal sector had to co-operate, co-ordinated by dhlg.
support to municipal development, northern cape province, south africa 1998–2004
• Working in political environments like municipalities and provincial governments requires a flexible attitude, as well as methods allowing for flexibility in planning and implementation. • Project ownership is a key component and there will be various degrees of ownership in different parts of involved organisations. There can also be groups or individuals »competing« for positions, influence or attractive subject areas. Municipalities, organisations or individuals that have not become part of the project may be passive or resistant. • Select the key participants carefully and be prepared for immediate change if necessary. • The project must try to fit into the ordinary municipal activities and be given the necessary priority. It has to »compete« with the regular, dayto-day tasks and responsibilities of officials and councillors, and can be felt as an extra burden if there are no immediate benefits or incentives for participants. • Poor municipal economy and staff capacity, lack of management skills and poor infrastructure in the region can be some of the hindrances. Provincial and particularly local government elections will have an impact on the implementation of the project – before the elections when councillors are fully engaged in political campaigns and after the elections, when the new political formations are groomed. • The turn-over of participants is often a serious concern for a project, whether they leave for personal, political or work related reasons. • The project might be caught in the tension between the local democracy and national and provincial priorities. Organisations and individuals may have hidden agendas that only become apparent later in the process.
The LGDSP Project 1998–2000
INITIAL CONSIDERATIONS TO ENSURE SUCCESS
• Thorough fact finding and networking by the funding agency and their consultants • Strategic support promotes sustainability – i.e. strengthen the existing supporting structures in the region • Ensure buy-in on all levels before launching the project • Buy-in also by related stakeholders on political and administrative levels • Use a bottom-up approach – a project »by the people for the people« • Active participation of clients in drafting basic terms of reference • Clear roles, responsibilities and tasks for clients, the funding agency and consultants • Concrete goals and benefits, defined and approved by the client • Viable and sustainable solutions
Nine cross-border Municipal Task Teams were established, covering all five districts in the Province.
The LGDSP organisation was set up with a Steering Committee and Reference Group, both consisting of councillors and officials from across the province, and chaired by dhlg. The Reference Group became a sounding board for policy discussions and testing ideas and propo sals. The Project Management Team consisted of a Swedish long-term consultant as Project Manager, and two local Project Assistants. Nine cross-border Municipal Task Teams were established, covering all five districts in the Province. Each team was composed of councillors, officials and community leaders, both men and women, with 10–15 members representing the local participating municipalities. These teams were to conduct practical field research in specific subject areas, and develop »shining examples of best practices« that could inspire other municipalities to do likewise.
Training materials, based on the action learning approach and the outcomes of the fieldwork, would then be developed, primarily for councillors, officials and community leaders. Each team adopted one of the following subject areas, which were considered top priorities by the municipalities and dhlg: • Water & Sanitation • Integrated Development Planning • Human Resources Development • Poverty Alleviation, Job Creation & Mobile One-Stop Service Centres • Children’s Issues • Financial Management • Gender Mainstreaming • Community Radio Stations • Municipal Information. Issues related to Gender, Poverty and Children were integrated in the programme. A set of Core Values
Integrated Development Planning
Water & Sanitation
Community Radio Station
Gender Mainstreaming
Human Resource Development Poverty Alleviation, Job Creation and Mobile OneStop Service Centre
Financial Management
Municipal Information
Children’s Issues
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support to municipal development, northern cape province, south africa 1998–2004
was also developed, to guide the role players throughout the programme.
CORE VALUES FOR THE PROJECT
1. Community Orientation 2. Community Leadership 3. Participation by everyone 4. Process Orientation 5. Learning from others and from each other 6. Management by Measurements and Facts 7. Mainstreaming Gender and Poverty Issues 8. Caring for the Environment and the Municipality
During the two years of fieldwork, a number of workshops, seminars, special trainings, local study tours and benchmarking activities took place, both task team based and collectively. Some noticeable achievements and outcomes were: • Radio Riverside in Upington – the second community radio station in the Northern Cape. The staff consists mainly of volunteers, and they broadcast in seven different languages 15 hours a day. • Integrated Development Plans for Postmasburg and Danielskuil – the first in the Province
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After a thorough introduction to the project, task teams drafted their individual Plans of Operation, with aims, objectives, activities, costs and timeframes. Instalments were paid out in advance to each task team, after the Steering Committee had approved their Plan of Operation. This was quite a liberal approach compared to Sida’s normal routine, but it was argued that this would promote development and responsibility in the teams. This procedure was approved, on condition of strict financial guidelines and controls. A financial controller, normally the town treasurer, was appointed for each task team, and the accounting procedures were clear and simple. It must be emphasised that on the whole the task teams were very cost conscious and managed their budgets well. This was one of the many positive experiences of the programme.
When supporting the task teams, consultants, department officials and other resource persons were instructed to work in a facilitating and coaching way, enabling the teams to grow and take ownership of the process. This proved to be very successful, and training on Project Management and Leadership was particularly valuable.
The Radio Riverside studio in Upington visited by all the team leaders
7 A task team leader introduces the team product »Aqua Namaqua« to the Provincial Minister for Local Government
3 The Mobile One-Stop bus providing municipal services in remote areas of Namaqualand
support to municipal development, northern cape province, south africa 1998–2004
CONSIDERATIONS REGARDING THE TASK TEAM APPROACH
• A clear organisational set-up with committed political and technical champions • The need for full-time project management with financial and administrative powers at executive level, and accountable to a Steering Committee • Strict and clear financial and reporting guidelines • Task teams with broad, diversified representation and full municipal support • Agreements/contracts with participants and superiors regarding commitment, time and resources available • Active task team processes to establish their own Plan of Operation, with aims, objectives, activities, time frames and costs • Steering Committee to approve task team Plans of Operation • Delegated budget responsibility at task team level • Terms of Reference also for other project components, including international and local consultants • Action learning approach which includes information gathering, fieldwork, study tours, benchmar king activities, tests and implementation, assessment and revision • Project activities to be mainstreamed and directly useful in municipalities • Early training in project management, including on finances • Permission and opportunities to test and implement project ideas and outcomes in municipalities • Failure and mistakes to be seen as opportunities for learning • Careful documentation and progress reports • Regular joint meetings/workshops between task teams and across the project organisation to report on progress, share ideas and experiences, and confirm the way forward • Regular contacts, follow-ups and reviews by an accessible project management team
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• Water Services Development Plan – used by Department of Water Affairs as a shining example. • Mobile One-Stop Service Centre in the Namaqualand South area – a pilot in the country. A bus with officials from different departments such as Labour, Health and Home Affairs provided services to remote villages on a regular basis. Even library services were provided. • A Standing Gender Committee in Kimberley Municipality – possibly a first in the country • A Socio-economic Databank co-ordinating 23 stakeholders in Namaqualand South • Successful LED projects by the Poverty Alleviation Task Team, e.g. re-use of granite waste for cobblestones, tombstones etc., bottling and manufacturing of pure drinking water, hiking trails etc. • Children’s Issues: Plan of Action based on an extensive study of children’s conditions in the Hantam region, targeting nearly 5000 people from pre-school children, students and parents to teachers, social workers, church leaders and the police
• The INDABA, a project newsletter with information from dhlg, nocloga and the task teams, produced quarterly and targeting all municipalities, departments and other stakeholders • A Study Tour to Sweden in 1999, with ambitious task team preparations and follow-ups
• Internal and external project information on a regular basis • Incentives for municipalities and for individual participants • Continuity in the organisational setup and among participants
support to municipal development, northern cape province, south africa 1998–2004
• The Municipal Demarcation Study, initiated by dhlg, funded by Sida and carried out by Swedish experts, made an important contribution when the 112 municipalities in the province were amalgamated into 31 • The Swedish-South African Partnership Week in 1999 included lgdsp exposure and task team presentations for provincial, national and international audiences. Based on the task team Final Reports, training materials in the nine subject areas were developed, together with the teams. The material consisted of easy-to-understand texts with many illustrations, practical examples, handouts, transparencies, guidelines for fieldwork assignments and evaluation forms. The aim was for the material to be simple, practical and user-friendly for municipalities. They were printed in both English and Afrikaans. The next step was Training of Trainers, and 45 suitable task team members, local consultants and others were selected to become trainers. They were trained to use a special »Trainer’s Toolbox«, and to design and run their own training sessions and workshops. An extensive Test Training was then carried out during half a year across the province. About 300 councillors, officials and community leaders from 36 municipalities participated and gave valuable feedback on the quality and
quantity of the materials, the metho dology, time allocations etc., after which revisions were made. Due to various factors delaying the extensive and complex programme, Sida agreed to an extension for eight months (May–December 2000), and to additional funding. By the end of 2000 the lgdsp objectives were met. Sida funding for the lgdsp 1998– 2000 amounted to nearly 21 million sek, and the Demarcation Study required an additional 1,4 million sek. In 2001, after the local government elections and the amalgamation process, a training and development resource of 45 trainers and nine training modules was ready to be used in the Northern Cape on a large scale, for the benefit of the new municipalities. However, succesful implementation and use of this resource base would depend on further Sida support.
support to municipal development, northern cape province, south africa 1998–2004
CONSIDERATIONS REGARDING SUSTAINABILITY
• The project must ensure that the experience, findings and concrete outcomes are recorded and made available in an easy-to-understand and accessible way through information and training materials • Experienced participants should be trained to transfer the knowledge to colleagues and others • If successfully implemented, project outcomes should be integrated into municipalities, and be developed further by them • Spin-off activities and projects should be developed, either incorporated into the main project or free-standing, to enhance the overall result, but without losing sight of the main aim • The relevant provincial departments should guarantee the support of participating municipalities in maintaining and developing the outcomes of the project, and ensure that the knowledge and experience is shared by other municipalities • A municipal training and development organisation should be established in the region or, if in existence, be supported to manage and develop the training, the trainers and the materials developed by the project
CONSIDERATIONS
• It is difficult, particularly on a parttime basis, to manage a project where the client is weak, malfunctioning and lacking support from its members • Strict terms of reference and followups are necessary, especially during periods when the project management is not present • Strict administrative and financial instructions and control mechanisms are crucial from the very beginning • Strong and competent local leadership is essential, as was demonstrated in the rebirth of the association in 2001 • If there is no real buy-in and commitment from the client, the project will have serious problems during implementation, and will not be sustainable afterwards
NOCLOGA 1998–2000
The other part of the Sida support aimed to strengthen the Northern Cape Local Government Association, making it viable, efficient and able to support the municipalities in the province. nocloga represen tatives were to be trained as councillor trainers, and training materials for councillors were to be produced. In 1998 there were 106 mainly small and poor local authorities in the vast province, which made coordination and interaction complicated and expensive. The nocloga leadership and administration was not functioning well, and support from member municipalities was weak, including the payment of membership fees. The situation worsened dramatically in 1999 when the newly recruited manager was discharged due to false credentials, and extensive fraud and corruption amongst key staff members was discovered. On top of this came the provincial and local government elections, which almost paralysed the association, due to councillors being absorbed in election activities. Despite these difficulties, the development support carried on. An extensive programme for councillor training was developed, focusing on five sectors: 1. Local Government Enabling Legislation 2. Local Government Legislation and Human Resources
3. Integrated Development Plans and Land Development Objectives 4. Local Government Finances 5. Gender in Local Government The trainers were divided into five working groups for the above topics, and were to gather all relevant information and present it to the others. The process was facilitated by the Swedish consultants sala, and included training on democratic values and transparent decision making. Parallel to this, local experts compiled a needs analysis relevant to the role of nocloga. This analysis was later used as a basis for the nocloga Strategy and Plan of Action, developed in 2000 by the working groups, and adopted by the nocloga Executive Committee. The environment for development support was not conducive during this project period, and the progress and achievements of the association were very limited. However, the fraud case was a wakeup call for nocloga. New strict administrative and financial rules, the Strategy and Plan of Action, the working groups, the 15 councillor trainers and new staff formed the foundation for a new start in 2001. Sida funding for the NOCLOGA Development Programme totalled 7,5 million SEK. As with the lgdsp, successful implementation would depend on further Sida support to NOCLOGA.
support to municipal development, northern cape province, south africa 1998–2004
Extension Proposal & Feasibility Study During 2000 it was realised by all stakeholders that the extensive support programme needed more time and resources to make the improvements sustainable. The local government elections and the municipal demarcation and amalgamation process also required extra support, particularly to dhlg. The main stakeholders, being dhlg, nocloga and Kimberley Municipality, therefore proposed an extension of the project for another three years, 2001–2003. The assessment of the project 1998–2000 by an evaluator appointed by Sida was very positive, and the feasibility study for an extension 2001–2003 supported the proposed design and ideas. The evaluator found that there had been substantial achievements during the existing
lgdsp, particularly the highly innovative Task Team concept, and it was important that these achievements be consolidated and developed further. The extension proposal had three main components: Establishment of a Municipal Development Unit (mdu) at the dhlg, establishment of a Municipal Training Institute (mti), and extended support to nocloga(from 2001 renamed salga Northern Cape). It was designed as a phase-out period, aimed at creating a sustainable platform based on local competence, capacity and funding. Sida approved the proposal, but the extension had to go out on tender, which caused discontinuity in the municipal support for some months. However, sala and sipu International were once again appointed to continue the work.
Overview of the Sida Support Programmes 1998–2004 1998
1999
Local Government Development Support Programme LGDSP
NOCLOGA Development Programme NDP
CONSIDERATIONS REGARDING EXTENSIONS
• An objective analysis and assessment of the project is necessary. Stakeholders and participants may paint a rosy picture, to convince the donor to extend support. • A neutral external evaluator plays a very important role, acquiring a balanced picture through fact finding, interviews on a broad basis, site visits etc. • If the evaluator has relevant competence and experience in the field and a constructive attitude, the assessment and feasibility study can add considerable value to the project • The participants and stakeholders should contribute by being analytical, critical and constructive. The project is not helped in the longterm by sweeping sensitive matters under the carpet. • A determined, persistent and patient attitude from the donor’s side is crucial when dealing with municipal development. Changing the public sector is a laborious, long-term process, where nume rous set-backs and disappointments are to be expected. • Sida, unlike many other donors in the province, showed consistency and determination, understanding the many difficulties affecting a complex project like this. Without Sida’s perseverance, the sustainable elements of the project would not have materialised.
2000
2001
2002
Municipal Development Programme MDP 2001–2004 Municipal Development Unit MDU 2001–2003
Municipal Training Institute MTI 2001–2003
2003
2004
Head of Sida Pretoria, Sida Director General and the Provincial Minister for Local Government at an awards ceremony
SALGA Northern Cape SALGA NC 2001–
Municipal Training & Development Institute MTI 2004–
2005
support to municipal development, northern cape province, south africa 1998–2004
CONSIDERATIONS
• The task team approach is demanding and difficult to implement in municipalities with weak or un stable leadership • The task team leader is a key person, and should have high municipal standing • Task team activities should be an integrated part of the regular municipal planning and budgeting • Quick short-term interventions, demanded by municipalities, are often necessary in addition to more long-term task team activities • Local resources such as department officials, consultants, trainers etc. should be prioritised and developed further to enhance sustainability • These external resource persons must be trained to work in a facilitating, coaching way, to build in-house capacity in task teams and municipalities • The hosting and co-ordinating department should seriously commit itself to the project and integrate the work of supporting units like MDU into its regular activities
Municipal Development Unit 2001–2003 The Municipal Development Unit (mdu) was established at the Department of Housing and Local Government as a strategic, flexible resource. It would analyse and support municipal development and training needs, advise the department on municipal issues, and support and monitor the lgdsp task teams. mdu had a small local staff (manager and secretary), and was mentored and supported by the Swedish consultants sala/sipu on a short-term basis. The mdu was established during a difficult period in the amalgamation process, with new and inexperienced councillors and often new top management in the merged municipalities. Many of the lgdsp task teams from 1998–2000 were dissolved by the new municipalities, or relocated to other municipalities.
Three new task teams were established. The running of task teams proved more problematic now than during the lgdsp period, due to severe political turbulence and lack of support and commitment from councils and management, who were often bogged down by organisational, financial and managerial problems. However, a new, constructive and much appreciated initiative was the District Development Conferences. All municipalities per districts were invited on a regular basis to share experiences and ideas. mdu, mti and salga nc facilitated the conferences and relayed information between the districts. Action plans and “Activity Agreements” were drawn up with each municipality to meet urgent and practical training and development needs. Followup meetings with progress reports were held in each district after 2–3 months. The Department’s newsletter indaba was co-ordinated by mdu, and was entirely produced by local staff after training and mentoring by sala/sipu.
Enviro-Loo sanitation in Barkly West inspected by Sida
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support to municipal development, northern cape province, south africa 1998–2004
Municipal Training Institute 2001–2003 The Municipal Training Institute (mti), the first of its kind in South Africa, was established to meet the urgent need for municipal training in the province. The lgdsp and nocloga trainers and training materials were used to get a flying start. For practical reasons, mti was located in the offices of Kimberley (now Sol Plaatje) Municipality. The mti Board consisted of the main stakeholders salga nc and dhlg, together with a training expert and a sala/sipu representative. The staff consisted of only a manager and a secretary, supported by the Swedish consultants sala/ sipu on a short-term basis. Terms of Reference for mti, management systems, meeting procedures, a code of conduct and policy on the costing of courses were put in place. There were three main challenges for mti. The first was to get commitment from the new, amalgamated municipalities in the province to support mti by requesting training and being willing to pay the actual costs of this service. For decades the state had subsidised or provided free training to municipalities and now they had to start paying, which meant a serious mind shift for the poor municipalities. The second challenge was to become an accredited training provider according to the new, complicated and bureaucratic national standards and accreditation system. Without accredi-
tation mti would not be sustained in the long-term. The third challenge was to find a suitable »home« for the Institute, e.g. by being part of salga nc, part of the Institute for Higher Education or forming a Trust or Section 21 company. Regardless of the choice, it was important for mti to maintain its identity as a demand driven training provider for practical, hands-on training, directly useful in the municipalities. With lgdsp and nocloga trainers and training materials ready, and salga nc and dhlg on the Board, mti managed to get a r6,3 million contract with the national training authority to roll out training in the Northern Cape 2002–2005. At the District Develop ment Conferences mentioned above, the municipalities’ training and development needs were identified. A number of courses were offered and new courses were developed, based on these needs. In total more than 2000 councillors, officials and others participated in mtI training during two and half years. New trainers were recruited and trained, while the »old« trainers received assessor training, in line with the accreditation requirements. A number of presentations were made at provincial and national le vel to market the new institute. mti also administered the support to the Rwanda Development Programme (See Special Projects) by providing training in Rwanda and organising study tours.
support to municipal development, northern cape province, south africa 1998–2004
CONSIDERATIONS WHEN ESTABLISHING A MUNICIPAL TRAINING INSTITUTE
• A solid foundation must be built in close consultation with the clients, applying a demand driven approach, with training materials, trainers and administration geared towards the actual training needs • This initial construction phase will not generate income but has to be funded, in this case through Sida and DHLG. Municipal and provincial buy-in is crucial at this stage • The aim is to become viable and sustainable as soon as possible, which requires that clients are willing to pay the actual costs for training, as well as local funders willing to give long-term support • Accreditation of MTI as a training provider may be a requirement. A great amount of work may be needed to align the institute to national standards. • It is important to establish an enduring legal basis for the institute, e.g. by forming an non-profit organisation or Trust, or by merging with an established training organisation, but without losing the practical, hands-on training approach, based on action learning • Build linkages with other support structures to provide complementary training, and also become an »agent« for other accredited training programmes • Active marketing and close contact with the clients to identify future training needs • Sufficient human and financial capacity to quickly develop new accredited courses and trainers
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CONSIDERATIONS
• To build an organisation from scratch or, as in this case, rebuild it from a negative position, is not an easy task. It requires a clear vision, very committed and hardworking leadership, full stakeholder support, and strict administrative and financial guidelines. • It is important to break the negative spiral of poor services to members leading to decreased membership payments leading to less capacity to render services, and turn this into a positive spiral • A thorough analysis by external experts can assist when compiling a Plan of Action, and often there are many small improvements that can contribute to a big change • There must be clear roles and responsibilities for the association and members, as well as clear incentives and benefits for members • Members’ expectations of the association must be adjusted to its actual mandate and resources, by informing and interacting with them; and what members are expected to contribute must be clarified. Members will not get a better organisation than they deserve and make possible!
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SALGA Northern Cape 2001– salga Northern Cape, established in 2001 on the fragile foundation of nocloga, is the official voice of local government in the province, representing and promoting the interests of municipalities. The big initial challenges were linked to the new system of local government in the country, the restructuring of the organisation after the nocloga fraud case, regaining the confidence and support of members, and providing support to municipalities to deal with transformation. salga nc had no profile with government and other stakeholders in the province, and in effect no working groups. Staff and councillors had to undergo intensive training, and administrative and financial systems had to be put in place. There were no office premises, and very little communication with members. In spite of the difficult start, salga nc managed to have most constitutional meetings, put policies in place, restructure the administration, raise revenue, pay off all debts and stabilise the finances. A number of programmes benefiting municipalities were run, and the credibility of the organisation has been restored with members and other spheres of government. The association has signed a memorandum of agreement to be part of the broader restructuring process of the national salga. This has implications in terms of staffing, programmes, membership fees and
funding, but the overall impression is that salga nc stands to benefit. At the start in 2001 the association had almost no money of its own and a number of inherited debts. Sida support amounted to more than 3 million sek over the funding period. Further support was received from salga National and dhlg. Additional income has been derived from increased membership fees and maintaining a high rate of payment from members. There have been many challenges and lessons learnt on the way. The transformation process of local go vernment has been extremely intense and very challenging for salga and municipalities in the province, often rendering the organisation unable to give adequate support to its members. Expectations of salga often exceed its actual mandate, so there is a constant need for interaction with municipalities and other spheres of government. Capacity building for councillors and officials is a critical building block. salga nc is constantly challenged to increase its services to members, as a pre-condition for continued buy-in. Lasting capacity must also be built in municipalities to deal with issues relating to labour relations, good governance and sound administration. Another challenge is to ensure that the value added through huge investments made by donors and other stakeholders is retained beyond the next local government elections.
support to municipal development, northern cape province, south africa 1998–2004
Final Sida Extension 2004 In 2003 the provincial government submitted a request to Sida for an additional extension of the support programme. The aim was to secure sustainability of the resources, experience, competence and other qualities gained by salga nc, mti and mdu during the six years of Sida support. mti and mdu would merge into a »Municipal Training and Development Institute« (see overview page 9), with the same combined aims and objectives as before, in order to enhance overall capacity and efficiency. Sida agreed to an extension of the Municipal Development Programme for one more year, i.e. for 2004.
Municipal Training and Development Institute 2004– At the beginning of 2004, mti and mdu merged into the Municipal Training and Development Institute (for continuity still abbreviated as mti). Apart from training, the reshaped Institute would take on a developmental role, manage the existing task teams and initiate new teams and activities to meet urgent deve lopment needs in the municipal field. The staff of six persons – the four from mti and mdu, plus two new recruits – managed Research and Development, Marketing and Sales, Training co-ordination and general administration. Sida funded three posts only for 2004, so that other mti income had to increase as the Sida funding gradually decreased.
The workload of the new mti was heavy. The staff had to be trained, the complex accreditation process had to be completed, existing training materials had to be revised and aligned, and new materials produced. The Rwandan cooperation had to be managed and mti training marketed, sold and provided. Added to this, the two existing task teams had to be supported, and a new hiv/aids task team was established with additional funding from Sida. The teams were managed according to the lgdsp methodology with Plans of Operation, reporting and instalments, and strict financial guidelines. The newsletter indaba was also to be produced by mti. It was essential for mti to decide on its long-term institutional status, and to calculate realistic costs for courses and other services, in order to become financially sound and sustainable. A strategic workshop for all stakeholders was held in mid 2004 to analyse the situation and advise on the way forward. Based on the workshop, mti embarked on becoming a Trust, with salga nc and dhlg as Trustees. The provincial government confirmed its support for mti as the first choice training provider for municipalities in the province. The r6,3 million contract with the national training authority to roll out municipal training in a number of subject areas provided the bulk of mti income during 2004, apart
support to municipal development, northern cape province, south africa 1998–2004
CONSIDERATIONS REGARDING THE PHASING OUT OF EXTERNAL SUPPORT
Phasing out or gradually handing over of the project management by, in this case, the international long-term consultants to a local organisation or unit, is not an easy process. 1. There should be a competent organisation in place, which has the necessary political support and the potential to drive the project according to plans. If not, such a body must be established before the gradual take-over can commence. 2. When selecting the local project managers, their commitment, integrity, competence and knowledge of the project are of utmost importance 3. The international consultants, now becoming short-term, and the local managers have to prepare the takeover jointly, adjusting to the local competence and capacity at hand 4. Terms of reference should be drawn up for each person in the management team, where responsibilities and the scope of work are identified and gradually handed over during the agreed period 5. Sufficient time and resources must be allocated for training and mentoring of staff, and to monitor, review and amend the process 6. It can be assumed that the international consultants and the local managers know each other well from the first phase of the project, and therefore will have a frank and constructive relationship 7. If there are two or more international consultants taking turns in the project management team, it is important for the local managers that the consultants co-ordinate their work and »speak with one voice« 8. Initially the international presence can be substantial, maybe up to 60–70%, but will decrease at a pace determined by the local ability to take over responsibilities and tasks
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CONSIDERATIONS REGARDING THE PHASING OUT OF EXTERNAL SUPPORT
9. Parallel to the project management support there are often short-term inputs by international as well as local experts in various parts of the project. The local managers have to define terms of reference for these inputs and monitor the work, in the same way as was done during Phase 1. 10.The local managers will also progressively take increased responsibility for the financial management, initially dominated by international funding, but gradually phased over to local funding
from the Sida funding. By the end of 2004, about 1500 persons had undergone mti training in line with the contract, and the pace was picking up. mti also organised special conferences to assess the training and development needs in the municipalities. The Task Teams progressed and achieved their objectives for the year. However, the hiv/aids task team timeframe was extended for an additional four months, until
April 2005, in order to complete the planned activities. The project aims proved too ambitious for the original time table, and due to their lack of financial and project management skills the team required extra support and advice. Some infighting also delayed their progress. The Sida funding for mti during 2004 amounted to 3 million sek, including special funding for the hiv/aids task team of 0,9 million sek. Job creation in Namaqualand South, here the polishing tombstones and tabletops using wasted granite from the mines
The phasing out of international support, both expertise and funding, is not a linear process, but must allow for a flexible reduction, where mistakes or wrong assumptions are compensated for, and where a solid, sustainable foundation for the local project management is built. This is an action learning process similar to that of the task teams, mentored and monitored by the international experts. In the final phase the project management is entirely handed over to the local managers, and all funding is local. If managed successfully, the project should now be sustainable and able to meet new challenges and demands, guided and supported by the local stakeholders.
Role player involvement, principle graph
International project management
Local project management
Input
International shortterm inputs Phase 1 full-time external support
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Phase 2 flexible phase-out
Northern Cape representatives visit the Rwanda Development Programme
Phase 3
support to municipal development, northern cape province, south africa 1998–2004
SPIN-OFFS AND SPECIAL PROJECTS A number of activities and projects have emanated from the Municipal Development Programme of the Northern Cape, and some have been integrated into the programme. Others have developed in a more independent way, leading to the establishment of new, free-standing projects with their own funding, but using some of the experience, networks and resource persons from the original project. Here are some examples:
Tripartite co-operation between Rwanda, South Africa and Sweden In 2000 the Rwandan Government proposed a development co-operation programme between Sweden and Rwanda. Based on the positive experience of the LGDSP in the Northern Cape, a similar project was established in two Rwandan provin ces, with municipal task teams and management structures. A Rwandan Association of Local Authorities was also established and supported. Since 2002, the institutions and people involved in the LGDSP in the Northern Cape, including the Swedish consul tants SALA IDA and SIPU International, have been providing support to their Rwandan counterparts in a tripartite co-operation, funded by Sida. There have been study tours and exchange visits between the provinces, and training materials and training are now being developed, based on the outcomes of the task team achievements. The tripartite co-operation has been quite successful, and is expected to continue in the next phase of the Rwanda Development Programme.
– Co-operation partners: DHLG, Department of Water Affairs and Forestry, Sida, Francis Baard District Municipality, the Development Bank of Southern Africa and Northern Cape municipalities.
The Indaba Newsletter The Operation & Maintenance Project This project is separate from the Municipal Development Programme but emanated partly from the MDP. It is coordinated by the Department of Housing and Local Government, has its own budget and is co-funded by a number of stakeholders, including Sida. The training and capacity building in the project will involve the Municipal Training Institute. Here are some main features of the O&M project: – Water supply and sanitation servi ces were identified as a priority area in the LGDSP – The Water & Sanitation Task Team started the process. They identified major problems as poor operation and maintenance leading to service breakdowns, and the lack of municipal capacity and support for capacity development in this area. – Five municipal handbooks with overviews, comprehensive information and hands-on guidance: O&M of Water Supply Services, O&M of Sanitation Services, O&M of Roads and Storm Water, Management of Services, Legal and Environment. – Workshops to gain support and commitment from mayors and municipal managers – Testing of materials developed with appropriate municipal staff – Co-operation across municipal borders by district based O&M Support Units
support to municipal development, northern cape province, south africa 1998–2004
The newsletter started as an Action Learning activity of the Municipal Information & Communication Task Team in the LGDSP, presen ting other task teams’ work and bringing out news and information from the Department of Housing and Local Government. It is now a combined municipal newsletter for DHLG, MTI and SALGA NC, with four editions per year. Training has been provided by international consultants on editorial work, production planning, graphic design, PageMaker software etc., and the newsletter is now produced entirely by local staff. The challenge will be for the stakeholders to sustain their commitment, provide the local longterm funding and keep up the regular production of the newsletter.
LED Case Studies – Inspiration across municipal borders The aim of this project was to provide a useful resource book for Local Economic Development, and share best practice examples of LED projects in the Northern Cape. The booklet contains interesting project case studies, plus concise guidelines for successful
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LED projects and integrated LED work at municipal level. The eight projects show-cased range from culture and tourism to housing and food production. The booklet has been distributed to all municipalities in the province, and will be used by MTI in LED training.
Councillor’s Toolkit & Study Cabinet The Councillor’s Toolkit is a SALGA Northern Cape project aimed at supporting local councillors with information and guidelines for their work. The Toolkit is a handy folder that can fit into a briefcase or handbag, ready for use by the councillor. It contains 14 chapters of updated information for councillors’ work with communities, and relevant skills for their overall role as community leaders in their wards. The chapters include: Municipal infrastructure and services, Social services, Health services, Housing, Education, Safety and security, and Developing your ward. Each chapter has relevant contact details including addresses, telephone numbers and Internet addresses in government and civil society. It has a diary for the year and a directory for contacts. There are also sheets on which councillors can write referral letters, to help community members to access municipal and other officials, and request their assistance. This Toolkit was developed in close consultation with councillors, and is the first of its kind in South Africa. The use, content and format of the Toolkit will be assessed and revised by SALGA NC,
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and an Afrikaans translation is being considered. The SALGA »Study Cabinet« provides back-up to the Toolkit. It contains all relevant information indicated as sources in the Toolkit, with sections and boxes for all chapters in the Toolkit. The intention is to have an information and help-desk for councillors at the SALGA NC office and one Study Cabinet in at least each district municipality. However, most important is to motivate councillors to study and become well informed about the complex municipal sector.
Training of Development Councillors To promote the use of the Toolkit and the general development of councillors, one »development« councillor per municipality was trained to provide support to and organise learning activities and training for other councillors. Their training included identifying needs, organising learning sessions, presentation and facilitation skills, problem solving, time and project management, basic conflict resolution etc. The programme consisted of four 3-day modules during one year, with practical fieldwork assignments between modules.
author
Peter Engström
contributions
Bengt Carlsson Steinar Langbakk Viera Larsson Moira Marais-Martin Michelle van Zyl
layout
Viera Larsson
printed at
Swiftprint, Kimberley
2005 © Sida, SE-105 25 Stockholm, Sweden ISBN 91-586-8330-5
Voices from the project
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The Municipal Development Programme was instrumental in the establishment of organised local government in the province. The fact that Sida did not withdraw its support after the NOCLOGA fraud incident has been much appreciated. Continued support, monitoring and capacity building has assisted us to restructure and develop SALGA Northern Cape. The Association has also been capacitated to launch a number of initiatives in support of municipalities, and has regained much credibility with its members.«
Moira Marais-Martin, Chairperson SALGA Northern Cape
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The Sida support programme was quite an eye-opener in terms of municipal development and co-ordination. By participating in the Swedish project, many individuals became really empowered and able to take on leading roles in municipalities and organisations. The tripartite co-operation with Rwanda is realising the African Renaissance and NEPAD.« Sechaba Kies, Task Team Leader, later Manager MDU and now Chief Director for Local Government at the Provincial Department
»
The support programme was a wonderful opportunity for councillors and officials in the province to identify and solve problems by themselves and to build networks. However, the programme did not always coincide with what municipalities prioritised at the time, and sensitivity to the local workload is important. If a support programme is ahead of national legislation, time and resources may later be needed to align its outcomes, e.g. training materials and methodology, with new requirements.«
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Michelle Van Zyl, Manager MTI
I believe the Sida support programme is one of the best investments ever made in our province. It taught us how to improve service delivery and make use of our limited resources. The longterm programme was different from other investments and once-off projects without follow ups. It gave our own people the opportunity to learn how to help ourselves.«
Wouter Jordaan, Task Team Leader, later LED Manager and now an entrepreneur in the private sector
support to municipal development, northern cape province, south africa 1998–2004