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COMMUNITY PERCEPTIONS ON THE INTEGRATED DEVELOPMENT PLAN
AS AN EFFECTIVE DELIVERY TOOL IN PHOKW ANE MUNICIPALITY,
NORTHERN CAPE
UNIVERSITY OF THE
FREE STATE ({\/}) UFS
UNIVERSITEIT VAN DIE
VRYSTAAT
YUNIVESITHI YA
FREISTATA ~UV
Ralukake Aluwani
June 2013
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Community Perceptions on the Integrated Development Plan as an effective
delivery tool in Phokwane Municipality, Northern Cape
by
Aluwani Ralukake
Dissertation submitted in accordance with the requirements for the Master in Urban
and Regional Planning degree in the faculty of Natural and Agricultural Sciences,
Department of Urban and Regional Planning at the University of Free State
June 2013
Supervisor: ProfV. Nel
DECLARATION
I declare that the dissertation hereby handed in for the degree Magister in Urban and
Regional Planning at the University of the Free State is my own independent work
and I have not previously submitted the same work for qualification at/ in other
university / faculty. I furthermore cede copyright of the dissertation/ thesis in favour
of the University of the Free State.
Ralukake Aluwani
Bloemfontein
June 2013
ABSTRACT
According to Gueli, Liebenberg and van Huyssteen (2007: 89) the South Africa
transition during the 1990swas marked by unrivalled levels of political and social
reconciliation. During this critical time, government institutions were quickly
transformed to promote development and democracy. The South African
Constitution of 1996 is internationally known for the provision of unusually
extensive guarantees of economic and social rights and the delivery of public
services. (The Constitution also provides a framework for the functioning of the
public service and the responsibilities of the executive in relation to management of
the public finances that is critical for public service delivery. (AfriMAP and Open
SocietyFoundation for South Africa 2007:5, 6).)
Local government authorities are challenged to develop programmes and provide
services to address the needs of people with different experiences and status. The
general assumption is that the local government sphere is the best place to address
the needs of local communities. (Mathye 2002:01)The Integrated Development Plan
(IDP) was introduced in order to enhance and encourage the good working
relationship of different stakeholders and promote integrated planning amongst the
stakeholders and service providers.
This study investigates the perceptions of the community on the Integrated
Development Plan (IDP)as an effective delivery tool. Phokwane LocalMunicipality,
one of the four municipalities that fall within Frances Baard District Municipality,
was selected as the study area for this research. The study of community
perceptions was conducted through questionnaires and interviews of relevant
stakeholders. The study found that the Municipality only communicates with the
community during the IDPmeetings. It also discovered that majority of respondents
(i.e the community) do not know and understand the purpose of or even the IDP
processes. This might be due to the low literacy level.
Key words: Integrated development plan, community, municipality, participation,
service delivery, community perceptions, Phokwane, Developmental Local
Government.
SAMEV ATTING:
Volgens Gueli, Liebenberg en van Huyssteen (2007: 89) was die Suid-Afrikaanse
oorgangstydperk gedurende die 1990's gekenmerk deur ongeëwenaarde vlakke van
politieke en sosiale versoening. Gedurende hierdie kritieke tydperk het
regeringsinstansies vinnig getransformeer om ontwikkeling en demokrasie te
bevorder. Die Suid-Afrikaanse Grondwet van 1996 was wêreldwyd bekend vir die
ongewone en omvattende waarborge ten opsigte van ekonomiese en sosiale regte,
asook vir die lewering van openbare dienste. (Die Grondwet het ook voorsiening
gemaak vir 'n raamwerk waarin die funksionering van die openbare sektor en die
verantwoordelikhede van die uitvoerende gesag met betrekking tot openbare finansies
vervat is, wat krities belangrik is vir openbare dienslewering. (AfriMAP and Open
Society Foundation for South Africa 2007: 5,6)
Plaaslike owerhede het gevolglik voor die uitdaging te staan gekom om programme te
voorsien om aan die behoeftes van gemeenskappe te voldoen wat verskil het van
ervaring, status en ontwikkeling. Die algemene opvatting was dat plaaslike owerhede
die beste platform is om die behoeftes van gemeenskappe aan te spreek. (Mathye 2002:
01) Vervolgens is die Geïntegreerde Ontwikkelingsplan (GOP) bekendgestelom
gesonde werksverhoudinge tussen die onderskeie rolspelers aan te moedig en om
geïntegreerde beplanning tussen rolspelers en diensverskaffers te bewerkstellig.
Hierdie studie ondersoek die beskouïngs van gemeenskappe rakende die Geïtegreerde
Ontwikkelingsplan (GOP) as 'n doeltreffende dienslewerings hulpmiddel. Die
Phokwane Plaaslike Munisipaliteit, een van die vier plaaslike munisipalitieite in die
Frances Baard Distriksmunisipaliteit, is gekies as studie model vir hierdie ondersoek.
Die ondersoek na gemeenskapsbeskouïngs is deur middel van vraelyste en
gesprekvoering gedoen onder al die betrokke rolspelers in die gebied. Die ondersoek
het aan die lig gebring dat die plaaslike munisipaliteit met die gemeenskappe
kommunikeer, slegs tydens GOP vergaderings. Dit het ook verder aan die lig gekom
dat die groot meerderheid van die respondante (gemeenskapslede) nie die doelof
prosesse van geïntegreerde beplanning verstaan nie. Dit kan egter ook toegeskryf
word aan die lae vlakke van geletterdheid onder 'n groot deel van die gemeenskap.
Sleutelwoorde: Geïntegreerde Ontwikkelingsplan (GOP); gemeenskap; munisipaliteit;
deelname; dienslewering; gemeenskapbeskouïngsj persepsies; Phokwane,
Ontwikkelingsgerigte Plaaslik regering.
ACKNOWLEDGMENTS
I would like to acknowledge the following people for the support they offered through
my studies:
./ The Almighty God for giving me the strength to finish my research
./ My Supervisor Prof V Nel for her patience and guidance throughout my research
./ My Husband Michael and my child Gundo, for support and understanding for
not getting all the attention that was due to them
./ My Colleague Solomon Selogilwe and his family for helping throughout the
preparation of the research
./ All my friends and family members for their love and support throughout my
research
TABLE OF CONTENTS
List of figures i
List of Graphs ii
List of Tables iii
List of Abbreviations iv
CHAPTER 1: INTRODUCTION 1
1.1 Introduction 1
1.2 Background of the study 2
1.3 Problem Statement. 4
1.4 Research Questions 5
1.5 Research design 6
1.6 Limitation of the study 10
1.7 Overview of the research Report 10
1.8 Definitions of Terms 11
CHAPTER 2: LITERATURE REVIEW 14
2.1 Introduction 14
2.2 Integrated Development Planning 15
2.2.1What is IDP 15
2.2.2 Evolution of IDP 16
2.2.2.1 Life span of IDP 18
2.2.3 Criticism of IDP Process and performance 19
2.2.40bjectives of IDP 19
2.2.5 South African Local Government and the IDP 20
2.3 Developmental Local Government 22
2.3.1. History of local government 24
2.3.2 Emerging 'developmental local government': the context 30
2.4 Municipal Governance 32
2.4.1 Challenges facing South African municipalities 33
2.5 Public participation 35
2.5.1 Participatory Governance 38
2.5.2 Participation and Partnerships 39
2.6Municipal Service and service delivery .40
2.6Municipal Service and service delivery .40
2.6.1Municipal Service 40
2.6.1.1Who is responsible for providing services .41
2.6.1.1Who is responsible for providing services .41
2.6.1.2Municipal Service delivery in an unequal society .41
2.6.2Factor to be considered before deciding on service delivery options .42
2.6.3Principles of Service delivery .43
2.6.3Principles of Service delivery .43
2.6.4Limited infrastructure capacity 43
CHAPTER 3 LEGISLATIVE AND POLICY FRAMEWORK .45
3.2 Capital Budget and the IDP .47
3.2.1 Sources of municipal income 47
3.2.2Main sources of operational budget financing .48
3.3 Characteristics of Development Local Government .49
3.4 Legislative framework 50
3.4.1Policy framework for community participation in local government 50
3.4.2The Constitution of South Africa 1996 51
3.4.3The White Paper on Local Government 1998 52
3.4.4The Municipal Structures Act 1998 52
3.4.5The Municipal Systems Act 2000 53
3.4.6The Municipal Planning and Performance Management Regulation 2001 53
3.4.7The Municipal Finance Management Act 2003 53
3.5 Planning alignment with the three spheres of Government 54
3.5.1National Policy framework 54
3.5.1.1Intergovernmental Relations Framework Act, 2005 (IGRF) 54
3.5.1.2The National Spatial Development Perspective (NSDP) 2006 55
3.5.1.3Medium Term Strategic Framework 57
3.5.1.4Delivery agreement: Outcome 58
3.5.2Provincial Policy framework 59
3.5.2.1The Northern Cape Provincial Growth and Development Strategy
(NClPGDS) 59
3.5.3District/Local 60
3.5.3.1The Frances Baard District Growth and Development Strategy (FBDMGDS
..........................................................................................................................................6..0......
3.5.3.2LGTAS 60
CHAPTER 4: CASE STUDY: l'HOKWANlE lOCAL 63
4.1 Historical Background 63
4.2 Study Area 63
4.2.1Demography of lPhokwane Municipality 66
4.3 Institutional Overview 66
4.3 Institutional Overview 66
4.3.1 Political Office 67
4.3.1.1SUB Committees of Council 67
4.3.2Administrative structure 68
4.4 Community Participation Processes 68
4.4.1Mechanisms of Community Participation in Phokwane Municipality 69
4.4.1.1Council Meetings 69
4.4.1.2Ward Community Meetings 70
4.4.1.3Budget Participation Meetings 71
4.4.2 Integrated Development Planning Structures 71
4.4.2.1IDP Steering Committee 72
4.4.2.2KDPRepresentatives Forum 73
4.5 lPhokwane SWOT Analyses 73
4.6 Socio-Economic Overview 75
4.6.1Education 75
4.6.2Economic Sector 77
4.6.3Road and Transport 78
4.6.4Water and Sanitation 81
4.6.5Electricity 83
4.6.7Waste management and Recycling 84
4.7lPriority Issues and lProjects for 2006-2011 85
CHAPTER 5: FINDINGS 87
5.1 Introduction 87
5.2. Findings from the Councillors (Political Perspectives) 89
5.2.1. Knowledge towards IDP 90
5.2.2. Involvement of Different political organisation when preparing IDP 90
5.2.3 Community understanding toward IDP 90
5.2.4 Municipal communication towards the Community 91
5.2.5. Needs and Priories 92
5.2.6. Level of Service Delivery 93
5.3 Findings from the Community organisation representatives 93
5.3.1 Understanding of IDP 94
5.3.2 Communication 94
5.3.3 IDP as a service delivery too1.. 95
5.3.4 Community understanding of IDP Processes 95
5.3.5 Capacity and proper skills 96
5.3.6 Community needs and priorities 96
5.3.7 Report Back 97
5.4 Findings from the old and new informal settlement 97
5.4.1.1 Utlwanang informal settlement 98
5.4.1.2 Masakeng informal Settlement 98
5.5. Findings from officials (District and Local Municipality 100
5.5.1. Understanding of the Integrated Development Planning by the Municipal
Officials 100
5.5.2 Relationship between the municipality and provincial government (Sector
Departments) 100
5.5.3 Improvement of IDP Process 101
5.5.4 Understanding of IDP by Community 101
5.5.5 Main challenges the municipality is facing with regards to funding IDP
Projects 102
5.6 Summary of findings 102
5.6.1 Municipal communication towards community 104
5.6.2 Security concerns by municipal officials 104
5.6.3 Consultation 104 I
I
5.6.4 Working relationship between municipality and sector departments 104
5.6.5 Conclusion 105
CHAPTER 6: RECOMMENDATIONS AND CONCLUSION 106
6. 1. Educate the community about IDP 106
6.2. Communication 107
6.3 Constant Feedback 108
6.4. Public participation 108
6.5 Enabling Environment 109
6.6. Roles and Responsibility 109
6.7. Take into cognizance priorities as identified by all stake holders 109
6.8. Work towards changing people's attitude towards IDP 109
6.9. Hold regular meetings (consultations) 110
6.10 A need for further research 110
References 113
Annexures 124
LIST OF FIGURES
Figure 1: Locality plan of Phokwane 65
Figure 2: Frances Baard District Municipality Map 79
LIST OF GRAPHS
Graph1: Councillors involvement in the Municipal Meetings 90
Graph 2: Communication 91
Graph 3:Needs and priorities 92
Graph 4: Level of Services satisfaction 93
Graph 5: Community organisation respondents 94
Graph 6:Municipal communication 95
Graph 7:Needs and priorities 97
Graph 8: IDP Knowledge 99
11
LIST OF TABLES
Table 1: Demographic Make-up of Phokwane Local Municipality 66
Table 2: Swot analysis 74
Table 3: Adult Education Levels, 2010 76
Table 4: Economic Production in Frances Baard (constant 2000prices), 2009 76
Table 5: Transport mode 80
Table 6: Percentage distribution of households by type of water source 82
Table 7: Percentage distribution of households-energy/ fuel used for cooking 83
Table 8: Percentage distribution of households by type of refuse disposal 84
111
IJST OF ABBREViATIONS
ANC AFRICAN NATIONAL CONGRESS
DPlG DEPARTMENT OF PROVINCiAL AND LOCAL
GOVERNMENT
FBDM PRANCES BAARD DISTRICT MUNICIPALITY
DGDS DiSTRICT MUNiCIPAliTY GROWTH AND
DEVELOPMENT STRATEGY
DM DISTRICT MUNICIPALITY
EMF ENVIRONMENTAL MANAGEMENT FRAMEWORK
GEAR GROWTH, EMPLOYMENT AND REDISTRIBUTION
POLICY
IDP INTEGRATED DEVELOPMENT PLAN
LGTAS LOCAL GOVERNMENT TURN AROUND STRATEGY
LM LOCAL MUNICIPALITY
MSA MUNICIPAL SYSTEMS ACT, 32 OF 2000
NCPGDS NORTHERN CAPE PROVINCiAL GROWTH AND
DEVELOPMENT STRATEGY
NSDP NATIONAL SPATIAL DEVELOPMENT PERSPECTIVE
PLM PHOKWANE lOCAL MUNICH' AlITY
RDP RECONSTRUCTiON AND DEVELOPMENT
PROGRAMME
SDF SPATiAL DEVELOPMENT FRAMEWORK
IV
I
SDI SPATIAL DEVELOPMENT INITIATIVES
WWTW WASTE WATER TREATMENT WORKS
v
CHAPTlER 1: INTRODUCTION
1.1 Introduction
The main focus in the new democratic South Africa is to increase the rate of service
delivery, challenge the dualistic nature of its economy, and generate sustainable
economic growth. To achieve these goals, the planning process has addressed the
following key issues:
• Restructuring the Apartheid spatial form
o Transforming local government structures
• Establishing democratic, legitimate and transparent planning processes; and
• Fostering a culture of cooperative governance and developing multi-sector
development plans (Oranje 2002 cited in Gueli, Liebenberg & van Huyssteen
2007:101).
Among the many urgent priorities on the agenda of the African National Congress
(ANC) government in 1994 was the extension of public services to the whole
population including the ones that were taken for granted. (AfriMAP and Open
Society Foundation for South Africa 2007: vii) South Africa's approach to
development is centred on integrated governance and has played an important role
in accelerating service delivery in previously disadvantaged and conflicting
communities. (Gueli, Liebenberg & van Huyssteen 2007: 90)
In post-apartheid South Africa, access to effective public services is no longer seen as
priviledge, but as legitimate right of all residents, mainly those who were previously
disadvantaged. This position emphasizes service to the people as a factor for local
government transformation. One of the most important indicators in assessing the
transformation of local government is the experiences and perceptions people have
on service delivery in their day-to-day lives, more specifically on the way they
perceive improvement in the services delivered. The implication of this is for local
1
government to transform words into activities, and to prioritize and satisfy the needs
of the communities they service (Pretorius & Schurink 2007:3).
Policy linked with basic infrastructure investment water and sanitation systems;
new electricity lines, roads, storm water drainage, and other services provided at
municipal level has been one of the most worrying aspects of the government.
Challenges were posed by the infrastructural backlog and ecological inheritance.
(Bond,Dor & Ruiters 1999:25)
This study concentrates on the perception of the community on the Integrated
Development Plan (IDP) as an effective delivery tool in Phokwane municipality that
falls within Frances Baard District Municipality in Northern Cape Province. The
study investigates community perception towards Integrated Development plans in
the Municipality.
1.2 Background of the study
The transformation of local government was intended to ensure inclusion of citizens,
and particularly communities and groups in society that were previously excluded
in policy and decision-making processes of the country (RSA1998).The Integrated
Development Plan (IDP), which is the statutory planning tool of local government
(RSA 2000 cited in Njenga 2009: ii) was seen as one of the ways to ensure this
inclusion. Integrated development planning (IDP) was first introduced in 1996 and
the concept developed further in 1998(Pillay,Tomlinson & du Toit 2006:192).
The Department of Provincial and Local Government (DPLG) (2001(b):4)states that
the IDP is a principal strategic planning instrument which guides and informs all
planning, budgeting and decision making in a municipality. The IDP is based on
community involvement in identifying and giving local government community
2
development priorities. This should give communities no reason to complain about
poor service delivery as they are involved in identifying priority needs.
However, despite the fact that government has various mechanisms and systems
designed to speed up service delivery such as the IDP, in many local municipalities
in South Africa today, people are disgruntled by perceived poor service delivery by
the government. In the face of growing country wide service delivery protests, one
has to question if the IDP as a service delivery tool is indeed achieving its goal. It is
on this premise that the effectiveness of IDP has to be investigated.
This study therefore aims to explore the reasons why communities are disgruntled
irrespective of sound systems developed by the government to enhance service
delivery.
According to Chapter V of the Municipal Systems Act (32 of 2000)all municipalities
are required to prepare an Integrated Development Plan as a strategic tool to
manage the affairs of the municipality. As the Integrated Development Plan is a
legislative requirement, it has a legal status and it supersedes all other plans that
guide development at local government level. (DPLG200la:4)
The Municipal Systems Act 32 of 2000 section 35(1)(a) , defines the IDP as "the
principal strategic planning instrument, which guides and informs all planning, and
development, and all decisions with regard to planning, management and
development in the municipality". According to Training for Socioeconomic
Transformation (TSET)(2007:85 cited in Njenga, 2009:2),the IDP presents a way in
which government can attend to the needs of communities.
The new role of local government, called developmental local government, makes
local government central to development in South Africa (RSA1998acited in Njenga
2009: 3). The Local Government White Paper (RSA 1998a) defines developmental
local government as "local government committed to working with citizens and
3
groups within the community to find sustainable ways to meet their social, economic
and material needs and improve the quality of their lives".
The local government programme to deliver basic infrastructure services such as
water, sanitation, electricity, housing, roads is communicated through the Integrated
Development Planning process which involves all government sector departments
as well as the communities. The IDP is reviewed annually in order to assess the
status of basic infrastructure delivery and plan for the new financial year
development priorities.
One of the most important indicators in assessing the transformation of local
government is the experiences and perceptions people have of service delivery in
their day-to-day lives, more specifically whether they perceive an improvement in
the services delivered to them. The implication of this is for local government to
transform words into deeds, and thus to prioritize and satisfy the needs of the
communities they service. (Pretorious & Schurink, 2007:19)
In an attempt to provide a framework for people-centred public service delivery, the
South African government introduced Batho Pele. This initiative strives towards
moving public servants to become service orientated, to pursue excellence in service
delivery and to commit them to continuously improve service delivery. It also sets
the principles for transforming service delivery with regard to consultation, service
standards, access, courtesy, information, openness and transparency, redress and
value for money. These principles are required, since it is argued that a transformed
local government needs to be measured against its commitment to continuous
service delivery improvement. (Pretorious & Schurink 2007:19)
1.3Problem Statement
From local newspapers as well as news bulletins appearing on national television it
is clear that demands made by South African communities for service delivery from
4
municipalities have escalated. Local government has been in the news, sometimes
for days on end, particularly in areas where communities have made forceful
requests for improved services. Complaints and demands have not only been made
for services such as water and electricity, but residents have also claimed houses
from local government. More recently, residents have embarked on mass action to
underline their demands. (Pretorius & Schurink 2007:19)
It appears that the process of prioritizing IDP issues is still a sticky point; the practice
seems to be that it is the council that has the final decision on what goes into the final
integrated development plan document. This necessitates a revisit to the concept of
Public Participation in the IDP process. (IDPRegional Learning event 2007:1)
Lack of communication between various role-players in the community and the
municipality and time constraints for adequate participation might lead to the
council to take decision for the community. Community members lack information
and do not have clear understanding about the IDP and about how local
Government works. Competence of officials in communicating the IDP process to
the communities is a problem and also communication between the community and
the council is not adequate. (IDPRegional Learning event 2007:1)
1.4 Research Questions
Aligned with the above background and problem statement, the questions that
guided the research in this dissertation are as follows:
..I What is the community perception of the IDP?
..I What it is the level of community involvement in integrated development
planning?
..I What are the recommendations to ensure that the IDP continues to be a reliable
instrument that drives provision of basic infrastructure services in Phokwane
Municipality?
5
1.5 Research design
According to Zikmund (2003:741cited in Olives 2007:10),the research design can be
defined as the master plan that specifies the methods and procedures for collecting
and analysing the required data.
The study seeks to investigate community perceptions of Integrated Development
Plan in Phokwane Local Municipality. Through questionnaires and interviews the
researcher managed to establish the community perceptions regarding the IDP and
service delivery.
The study used two types of methods of data collection i.e primary and secondary
sources.
Primary sources
Different municipal documents were extensively drawn on to get the insight of the
study area. In addition, surveys were conducted with councillors, community
organisations in formal areas, residents in informal areas and officials in the local
and district municipality. Other than the survey conducted among the residents of
the informal settlements, purposive sampling was adopted.
A sample from different groups of respondents was selected throughout Phokwane
in order to ensure adequate representation. These groups include representatives
from old (undergoing formalisation) and new informal settlements, councillors
(proportional and ward), officials (PLM and FBDM)and Community Organisation
Representatives. Questionnaires were administered to the groups.
6
Old and new informal settlement
The municipality has four settlements that were previously informal. These areas are
currently undergoing formalisation and some of them are not fully serviced and
there are still shacks around. There are currently six newly emerged informal
settlements. These settlements are located adjacent to environmentally hazardous
areas such as dumping sites.
The researcher undertook surveys among the old and newly emerging informal
settlement in order to add validity to the research and to get representation in the
case that they might not be covered by other groups. One settlement was chosen
from each group. Questionnaires were administered to forty respondents (20 per
settlement). The names of the settlements chosen are Masakeng (1000project) and
Utlwanang. The response to questionnaires was successful. Only 2 respondents did
not fully cooperate.
During the field survey it was ascertained that there were approximately 1000
households at Masakeng, while there were only 129 in Utlwanang. Questionnaires
were randomly distributed amongst the communities.
Councillors
The Council comprises 18councillors representing various political parties, of which
nine are proportional and nine are ward councillors. Questionnaires and telephonic
interviews were conducted among previous (pre-2011 elections) and current
proportional and ward councillors (five previous Councillors and five new
Councillors) representing these different political organisations (ANC, DA, ID COPE
AND AZAPO). The rationale for engaging the councillors emanated from the fact
that they are supposed to drive the IDP as they represent the interest of the
communities. The current group of councillors is relatively new, so in order to add
7
credibility to the research, previous councillors were also engaged. They have more
experience of IDP processes and might have more in-depth knowledge.
Previous Councillors
Prior to the 2011elections, of the 18Councillors, 13 councillors represented the ANC,
2 the DA, 2 the ID and 1-AZAPO. (Seeannexure 1)
New Councillors
In the current Council five proportional councillors are ANC, two are DA, and one
represent COPE and AZAPO respectively while all but one Ward Councillor belongs
to the ANC. One councillor belongs to the DA). (SeeAnnexure 2)
As the majority of the councillors are representatives of the ANC, the researcher
engaged four councillors (two from the previous council and two from the current
council) from ANC and two (one from previous council and one from the current
council) from each of the remaining political organisations mentioned above. The
reason for the above is that the representative from same organisation have the same
mandate and vision, hence it is reasonable to engage not all councillors from the
same organisation. Thus the researcher only engaged only ten of the thirty six
councillors (28%).
Five councillors were engaged through the distribution and administration of
questionnaires, while five were engaged through telephonic interviews(See
Annexure 3).
Community organisations representatives
The municipality has three towns (i.e. Jan Kempdorp. Hartswater and Pampierstad)
and one settlement (Ganspan). Ten community organisations per area were selected
based on the different group they represent i.e forty (40) organisations were
engaged. Twenty eight (28)questionnaires were distributed and administered across
8
the three towns and telephonic interviews were conducted with twelve respondents.
(See annexure 4 for the community organisation representatives interviewed
telephonically.) The groups contacted and engaged in the research represent the
interests of: women, youth, education, safety, arts and culture, disabled, hawkers
and sports ete. The response to questionnaires was good. Only four (4) respondents
did not fully cooperate.
Municipal officials
The officials interviewed include the officials from the district municipality and the
local municipality. The rationale for involving the district is because it provides
support and shared services to its local municipalities. Six officials (Town Planner
and Senior Town Planner, Housing Specialist, Infrastructure Manager, IDPjPMS
Manager and Finance Assistant Director) who deal with the IDP, community and
service delivery were selected from the district and in the local municipality four
officials were selected (IDPjPMS Officer, Town Planner, Director Cooperative
Planning and Development and the Infrastructure Officer). In total ten
questionnaires were distributed. The response to questionnaires was good as only
two respondents did not fully cooperate.
The type of information gathered included but was not limited to:
./ Community level of involvement in IDP processes
./ Community understanding of the purpose of IDP
./ Community impression of service delivery in their area
Overall 93% percent of people who were identified in the sample were responsive
whereas seven percent were not fully cooperative.
9
Secondary Sources
Relevant literature (books, journals, papers and municipal strategic document such
as the IDP, EMF and SDF (etc.)was consulted in order to review work that has been
undertaken related to the topic. These formed a foundation for the research.
1.6Limitation of the study
The study was limited by the availability of the money and reliable information from
the local municipality as it demanded a lot of travelling due to the location of
settlements.
It was not possible to interview and get all the questionnaires back from all the
groups identified during the period allocated for the research. This was due to time
constraints, unavailability of interviewees or their unwillingness to participate. This
will, however not have a major impact and affect the reliability of the findings, as the
majority have been engaged during this research.
1.7Overview of the research Report
Chapter 1: Introduction
This chapter deals with the introduction, background of the study and the statement
of the problem.
Chapter 2: Literature Review
This chapter starts with a brief introductory paragraph concerning the researcher's
exploration of related literature and studies on the research problem. It further
examines the literature that deals with the Integrated Development Planning and
Developmental Local Government
10
Chapter 3:Legislative and Policy framework
Chapter three focuses on the legislation and policies that provide the mandate to
LocalGovernment and support the preparation of IDP.
Chapter 4: Case Study
This chapter analyses Phokwane Municipality with specific reference to its socio
economic status. This is important for the study as it will provide the list of services
needed by the community in terms of priorities and achievements of the
Municipality in terms of projects.
Chapter 5:Research Findings
This chapter provides detailed data analysis and findings of the study. The findings
presented here seek to answer the research questions. As much of the data is
qualitative in nature it will be analysed as such.
Chapter 6:Conclusions and recommendations
This chapter contains both conclusions that are brief, generalized statements
answering the general and each of the specific sub-problems and workable, flexible,
and adaptable recommendations based on the findings of the study.
1.8Definitions of Terms
1.8.1 Integrated Development Planning - It is a process through which
municipalities prepare a strategic development plan, for a five year period. The
Integrated Development Plan (IDP) is a product of the integrated development
planning process. It is the principal strategic planning instrument which guides and
informs all planning, budgeting, management and decision-making in a
municipality. (DPLG2001a: 4)
11
1.8.2. Basic Infrastructure Services - Are those services that households and
businesses tend to use every day. The primary components are roads and
transportation services, water supply and distribution, and sanitation (wastewater
collection and removal) and solid waste collection and removal.
1.8.3 Developmental Local Government: A local government that works with the
community members to find sustainable ways to meet the community basic needs
and to improve their quality of life. It should target particularly members and
groups within communities that are most often marginalised or excluded, such as
women, disabled people and very poor people. (White paper on local government
1998:17-18)
1.8.4Public Participation: An open, accountable process through which individuals
and groups within selected communities can exchange views and influence decision-
making. It is a democratic process of engaging people in thinking, deciding,
planning and playing active part in the development and operation of services that
affect their lives. (KwaZulu Natal Provincial government online)
Conclusion
Access to public services is a community right. Provision of services is therefore
essential for citizen satisfaction and an improved quality of life. If this is not met,
local government that is tasked with planning and providing services could face
fierce criticism and a spate of protests as it is currently happening. Citizen
participation is part and parcel of planning and failure to involve citizens in IDP
processes renders planning inefficient. It is on this premise that the study seeks to
determine community perception and involvement in IDP and provide
recommendations thereof.
12
The research design assisted in responding appropriately to the research questions. l
While it was a tedious process, the survey adequately assisted in providing a
meaningful insight into community perception of IDP.
13
CHAPTER 2: LITERATURE REVIEW
2.1 Introduction
According to Chapter V section 35 of the Municipal Systems Act (32 of 2000) all
municipalities are required to prepare Integrated Development Plans (IDPs) as a
strategic tool to manage the affairs of the municipality. Preparing an IDP is a legal
requirement in terms of the Municipal Systems Act (MSA);however that it is not the
only reason why municipalities must prepare the plans. Under the new constitution,
municipalities have been awarded major developmental responsibilities to ensure
that the quality of life for its citizens is improved. The new role for local government
includes provision of basic services, creation of jobs, promoting democracy and
accountability and eradication of poverty. Preparing and implementing the IDP
therefore enables the municipality to be able to manage the process of fulfilling its
developmental responsibilities. (RSA1998a)
As the Integrated Development Plan is a legislative requirement, it has a legal status
and it supersedes all other plans that guide development at local government level.
The first generation of IDP was developed in 2001,whereas the second generation
was developed in 2006. (FBDMIDP Review 2010/2011 Planning 2011/2012:5)
The preparation of IDPs became a legal requirement for local government in
November 1996. This arose from the passing of the Local Government Transition
Act, Second Amendment Act (RSA, 1996a) (Binns and Nel 2002: 923). The IDP is
aimed at facilitating the integrated development and management of a municipality.
According to Pieterse (2007:6)in order to ensure that citizens have the direct say, the
integrated development planning process must rest on meaningful and multi-level
participation. Furthermore the IDP must also become an important tool to afford
opportunity to citizens and different stakeholders to monitor and assess the
performance of the municipality.
14
2.2 Integrated Development Planning
2.2.1 What is the IDP?
The IDP is a five year strategic plan of the municipality which articulates how the
municipality plans to discharge its constitutional and legislative mandate in terms of
v' Section 152 of the Constitution of the Republic of South Africa 1996
v' Section 84 of the Municipal Structures Act 1998
Integrated development planning (idp) is a process through which municipalities
prepare a strategic development plan, for a five year period. The Integrated
Development Plan (IDP) is a product of the integrated development planning
process. The IDP is a principal strategic planning instrument which guides and
informs all planning, budgeting, management and decision-making in a
municipality. (IDP Guide Pack: 4)
According to the White Paper in Local government S3 (3.1) (3.1.1), "integrated
development planning is a process through which a municipality can establish a
development plan for the short, medium and long-term". The main steps in
producing an integrated development plan are:
./ "An assessment of the current social, economic and environmental reality
./ A determination of community needs through close consultation .
./ Developing a vision for development in the area.
./ An audit of available resources, skills and capacities .
./ A prioritisation of these needs in order of urgency and long-term importance .
./ The development of integrated frameworks and goals to meet these needs .
./ The formulation of strategies to achieve the goals within specific time frames .
./ The implementation of projects and programmes to achieve key goals .
./ The use of monitoring tools to measure impact and performance."
Municipalities cannot plan everything in the first year because the IDP is intended to
build up a comprehensive integrated plan. Therefore IDPs should guide the
15
municipality in prioritisation and focusing activities and resources. Itmust be noted
that planning too comprehensively can results in plans that are unrealistic to be
implemented. (RSA1998a, S3 (3.1)(3.1.1))
Integrated development plans should be viewed as plans that bring growth and
development in a municipality. During the annual IDP review priorities need to be
formulated or changed and incorporated. Integrated development planning is
function of the municipality and should not be given to consultants to perform it.
The preparation of integrated development plans should be managed within
municipalities, and provide a way of enhancing the strategic planning capacity of
the administration, building partnerships between management and labour, and
enhancing synergy between line functions (RSA1998a ,S3 (3.1)(3.1.1)).
2.2.2 Origin of IDP
The concept of Integrated Development Planning has its roots from the United
Nation Conference on Environment and Development held in Rio de Janeiro in 1992.
The Rio-Conference adopted Agenda 21 as a blue print for sustainable development.
All member states were called upon to implement Agenda 21 by developing locally
tailored-Agenda 21 called Local Agenda 21. South Africa embraced the principles of
Agenda 21 in developing Integrated Development Plans; thus rendering IDPs -
Local Agenda 21 for South Africa. Furthermore Agenda 21 principles are embedded
in the Constitution of South Africa and in many other legislation of the land. (FBDM
IDP Review 2009/2010 Planning 2010/2011:5)
According to Human, Marais, & Botes (2008:1)local level development planning
became a widespread phenomenon in the post 1994 South Africa. Integrated
development planning resulted from section 56 (2) (a-d) of the Municipal Structures
Act, 1998.
16
IDP is product of national-level local government legislation and has been
introduced as a planning tool to help strengthen the developmental objectives of
post-apartheid local government in an integrated and holistic manner. The IDP acts
as a mechanism to ensure the integration of local government activities with other
tiers of development planning at provincial, national and international levels.
(Lipietz 2008:152)IDPs are local versions of the Reconstruction and Development
Programme (RDP) aimed in infrastructural planning and development, linkage
between basic needs and fostering more competitive economic activities (LEDNews,
2000:2 cited in Binns& Ne12002:923)
In order to facilitate development, the Local Government Transition Act Second
Amendment Act (No. 97 of 1996) required each local authority to develop an
Integrated Development (IDP). (Van Niekerk, Wallis & Morrison 1998:42) In terms
of this act, an integrated development plan is defined as: "A plan aimed at the
integrated development and management of the area of jurisdiction of the
municipality concerned in terms of its powers and duties, and which has been
compiled having regard to the general principles contained in Chapter 1 of the
Development Facilitation Act, 1995 (Act No. 67 of 1995) and, where applicable,
having regard to the subject matter of a land development objective contemplated in
Chapter 4 of that Act" (RSA1996).
While the IDP was introduced in 1996 (Local Government Transition, Second
Amendment Act) the 1998 the White Paper in local government provided clarity on
the objectives of the IDP (Pillay et al. 2006:192). Although the clarity conveyed by
the White Paper there was a great need to guide and support municipalities in the
preparation of IDP (Pillay et al 2006:197)
According to Vatala (2005:227-8)the integrated development plan is understood to
be a product of public consultation and engagement and other relevant stakeholders
who participated in its draft, review and adoption by the municipal council. The
17
Integrated Development Plan (IDP) resulted from the integrated development
planning process. (Valeta and Walton 2008:375)
The Integrated Development Plan (IDP) is thus the focus of South Africa's post-
apartheid municipal planning system. It is now regarded as an important tool in
growing structure evolving framework of intergovernmental planning and
coordination. When it was first introduced - the IDP was in direct competition with
other tools of planning, its purpose was vague, and its contents needed to be
specified. (Harrison 2006:186)
The formulation of an IDP was responding to challenges facing the post-apartheid
government in especially, the need to get a new system of local government
working. The nature and form of the IDP were strongly circumscribed by the
international discourse and practice which successes at the time of its introduction
and development. (Harrison 2006:186)
According to ParneIl et al. (2007: 88) the IDP is essential for local community
development needs and to execute agreed anti-poverty and growth strategies which
originated from common vision that spells out ways of reaching local needs.
2.2.2.1 Life span of IDP
According to the Municipal Systems Act, new councillors that come into office after
the local government elections have to prepare an IDP which will guide them for
their five year term in office. The IDP is linked to the term of office of councillors.
The new council has the option of either to adopting the IDP of its predecessor or
prepare a new IDP taking into consideration already existing planning documents.
(DPLG2001a:4)
Integrated development planning is intended to be a very interactive and
participatory process which involves different stakeholders. It takes about from six
18
to nine months to finalise an IDP and this timing is closely related to the municipal
budgeting cycle. Nevertheless during this period delivery and development does
stop, it continues as planned. The annual review of IDP is important because during
this process amendments are made. (DPLG2001a:4)
2.2.3Criticism of IDlPlProcessand performance
Despite extensive effort and apparent municipal commitment afforded to the
process, the consecutive annual reviews of IDPs continue to be mostly top-down
exercises and driven by the strategic long-term imperatives devised within the
higher echelons of the political and bureaucratic leadership. (Lipietz 2008:153)
IDP consultations, like many other participatory processes seem to favour the
voicing of the most articulate and organised concerns, hence replicating a well-
known vulnerability of participatory processes.(Lipietz 2008:153)
It seems as if development indicators have not been used effectively in the IDP
process (Human et al 2008: 2). The information used in the preparation of IDPs
varies from endless statistics to an apparent lack of any meaningful data.
Development indicators are needed to develop goals during the planning process,
for the purpose of setting targets and to measure the progress made towards
achieving these goals in relation to the targets set (Human et a12008:4). The absence
of development indicators means that the community's perceptions in relation to
service delivery are not known, and therefore cannot be addressed. (Human et al
2008:18)
2.2.41O:bjectives of IDlP
Objectives of the IDP as listed at the DPLGGuide Pack are as follows:
v' Effectiveuse of scarce resources:
19
• Focusing on identified and prioritized local needs taking into consideration
local resources; searching for more cost-effective solutions; and
• Addressing causes, rather than just allocating capital expenditure for dealing
with symptoms
./ "Speed up deliven;:
• Providing a tool which guides where investment should occur;
• Getting the buy-in of all relevant role-players for implementation;
• Providing deadlock breaking decision-mechanisms; and
• Arriving at realistic project proposals taking into consideration limited resources .
./ Attract additional funds:
• Where there is a clear municipal development plan, private investors and sector departments are
willing and confident to invest their money because the idp is an indication that the municipalibj has a
development direction .
./ Strengthen democracy and hence institutional transformation
• Decisions are made in a democratic and transparent manner, rather than by a few influential
individuals .
./ Overcome apartheid legacy at local level :
• Promotion of integration of rural and urban areas, different socio-economic groups, places where people
live and work etc.; and - facilitating redistribution of resources in a consultative process .
./ Promotion of intergovernmental coordination
• Facilitating a system of communication and coordination between local, provincial and national spheres of
government." (DPLG idp guide pack 2001:5)
2.2.5 South African Local Government and the IDP
The South African constitution provides for local government. Governance is
organised on the principle of working together between three spheres i.e, national,
provincial and local government. According to Corrigan (1998: 5) the word sphere is
intended to convey there are no hierarchical relationships between the various levels
of government. These three spheres of government are distinctive, eo-dependent and
20
organized in order to cooperate and respect the functions and operations of each
other. Constitutionally, local government is mandated to carry out two main tasks,
namely, service delivery to communities they serve and the promotion of economic
development. (Brewis,de [ongh, cited in Visser 2001:1679)
The Local Government Transitional Amendment Act (Act 97 of 1996)and the White
Paper on Local Government (RSA,1998) guided in a number of important changes
to the legislative framework administering the management of South African cities.
These documents set out objectives such as cost containment by means of a
reduction in the number of local authorities, and the increasing professionalisation
of political offices. Furthermore these two pieces of legislation introduced the
principle of financial accountability and also enhance the fundraising abilities of
local authorities. (parneIl & Pieterse, 1998cited in Visser 2001:1679)
The Local Government Transitional Act, Second Amendment Act (1996) requires
that all municipalities prepare IDPs which conform to the Provincial Land
Development Objectives. This Act defines IDP as a plan aimed at the integrated
development and management of the municipality concerned in terms of its powers
and duties. The intention is that the post-apartheid objectives achieved at the local
level. Integrated development planning brings together the core purpose of local
government and guides all aspects of revenue-raising and service-delivery,
interaction with the different stakeholders. It is the primary tool that ensures the
integration of local government activities with development planning at provincial,
national and international levels. It also serves as the basis for communication and
interaction within government structures. Therefore, IDP is the mechanism to be
used to match the national constitutional obligations with the prioritisation of locally
generated development agendas. (parneIl & Pieterse, 1998Cited in Visser 2001:1680)
The White Paper on local government sees the process of integrated development
planning as a platform where municipality can establish a development plan for the
short, medium and long-term. The IDP is seen as a tool that enable municipality to
21
assess the current situation in its area of jurisdiction, including socio economic and
environmental trends, resources availability, skills and capacities. The IDP should
enable the consideration of different needs of the community and different
stakeholders. It should further prioritise the needs of the stakeholders in order of
urgency and constitutional and legislative criticality. This programme should set up
frameworks and goals to meet these needs; devise strategies to achieve the goals
within specific time-frames; develop and implement projects and programmes to
achieve key objectives; establish targets and monitoring tools to measure impact and
performance; budget effectivelywith limited resources and meet strategic objectives;
and regularly monitor and adapt the development programme based on the
underlying development framework and development indicators. (ParneIl &
Pieterse 1998cited in Visser 2001:1680)
2.3 Developmental Local Government
According to Nel & Binns (2001:356)developmental expectation placed on local
government resulted largely from the series of interrelated contextual and policy
considerations. Stiefel and Wolfe, (1994cited in Mogale 2005:137)see the recognition
of the link between development, service delivery and public participation as the
key aspects of the present developmental local government. Ntsebeza (2004:74)sees
the IDP as an important feature of developmental local government, because it
requires municipalities to coordinate all development activities in order to improve
the standard of living and quality of lifewithin its jurisdiction.
The White Paper on Local Government seeks to set up the mechanisms that enable
the achievement of developmental local government (South Africa, 1996: 81;
Ministry for Provincial Affairs and Constitutional Development, 1998 cited in
Pycroft 2000:148).The creation of developmental local government (DLG) requires
the restructuring of municipalities' institutional approach to the management of the
local space, changes in leadership, a focus on poverty alleviation, economic growth,
22
and the management of development in an integrated and sustainable manner and
requires entrenched socioeconomic inequalities to be addressed.
According to Binns and Nel (2002:923)an integral aspect of the developmental local
government responsibility is for each of new municipalities to prepare an integrated
development plan (IDP). The negative effects of fragmented and project based
planning were recognised by the government officials in South Africa by the late
1980s.
The objectives of local government as outlined in the Constitution of SA 1996are to:
./ "Provide democratic and accountable government for local communities;
./ Ensure the provision of services to communities in a sustainable manner;
./ Promote social and economic development;
./ Promote a safe and healthy environment;
./ Encourage the involvement of communities and community organisations in the matters
of local government"
In the South African Constitution there is an obligation that local government should
promote redistribution and equity (Parnell 2004:380). Local government is one of the
spheres of government which seek to promote and improve cooperative government
(Vatala 2005: 2006). In order to fulfil this obligation, local government requires
baseline information to identify priority areas and to target the most vulnerable
(Human et al: 2008:14). According to Parnell (2004: 382) the post-apartheid
experience shows that legislative, policy and political commitments to equity are not
enough.
Local government serves generally as an arm of government that is regulated
through various statutes. It plays an important role in local and regional economic
development because is the sphere of government with the greatest interest in local
development (Eversole & Martin 2005:58). The functions of municipalities can differ
in the same constitutional arrangement and still be the same when the constitutions
differ. (Tomlinson 1994:92)
23
Much of enthusiasm for local government reform has concentrated on structural and
procedural matters. Less attention has been given to the behavioural patterns and
the roles within the structure and decision making. (Fagence 1977:168)
Local government in South Africa largely is regulated by two major pieces of
legislation, namely the Local Government Municipal Structures Act 117 of 1998,and
the Local Government Municipal Systems Act 32 of 2000 (MSA).MSA provides the
options for structuring of government in each type of municipality. These options
were set under the assumptions that municipality may have a collective system that
can be combined with sub-council participatory structure. (AfriMAP & Open
Society for South Africa 2006: 146)
According to Nyalunga (2006:1)local governments are defined as political structures
made up by law, which have substantial control over local affairs and have the
power to tax. Challenges of developmental local government have been to maintain
and service the interests of previously privileged communities and extend
infrastructure and services to those who were less privileged. (AfriMAP & Open
Society for South Africa 2006: 146).
2.3.1.History of local government
According to Frye and Kristen (2012:1)"the country has a long history of inequality
and injustice". The pre-1994 government policies disadvantaged the majority of
South Africans, excluding millions of people from the political, social and economic
aspects the society and depriving them long-term accumulation of land, assets and
sustainable livelihoods.
After 1994, there was general recognition that building a new South Africa would
entail more than the simple restructuring of apartheid law, and so completely new
development frameworks were required. Instead of reinventing fundamental policy
approaches, it was clearly more constructive and efficient to build on existing
24
development consensus as articulate in various global forums of thinking and policy
making. (parnell & Pieterse 2007:79)
Apartheid has left a dent on South Africa's human settlements and municipal
institutions. Transformation requires the acknowledgement of the historical role of
local government in establishing and enabling local separation and inequity.
Furthermore the history of resistance to apartheid at the local level, and struggles
against apartheid local government is important. (White paper on Local
Government, Section A (1):1998:(1))
The Municipal Systems Act was prepared to provide the core principles,
mechanisms and processes that give meaning to developmental local government
and to empower municipalities to move towards the social and economic upliftrnent
of communities and the provision of basic services to all people, and specifically the
poor and the disadvantaged. The act sets out duties for the municipal council,
including to provide, without favour or prejudice, democratic and accountable
government, to encourage the involvement of the local community, and consultation
of the local community about the options, level, quality, range and impact of
municipal services. It also further sets out rights and duties for members of the
community, among them the right to 'contribute to the decision-making process of
the municipality. (AfriMAP& Open Society for South Africa 2006: 146)
The transformation of the apartheid system of segregated municipal government
provided an excellent opportunity to totally redefine the goals and operational
procedures of local government in South Africa. Developmental local government
was born of this imperative. (parnell et al. 2007:79)
According to Parnell et al. (2007:85-86)Apartheid did not only focus on racial
segregation and racist laws, it also depended on different strategies of control. The
strategies include job reservation, racial residential segregation, the manipulation of
African urbanisation, the differential regulation of building codes and land
25
provision, the provision of separate and inferior services such as public transport,
and outright racist repression through removal of land rights, the denial of tenure
and the removal of the vote. (parnell et al. 2007:85-86)
Racial segregation
Apartheid was not the beginning of geographic, institutional and social segregation
at the local level as colonial segregation policy was already in an existence when
apartheid was introduced in 1948.The Group Areas Act introduced strict residential
segregation and compulsory removal of black people. The Act further restricted the
permanent existence of Africans in urban areas through the pass system, and
reserved a viable municipal revenue base for white areas by separating townships
and industrial and commercial development. Various attempts were made under
apartheid to introduce" own management" structures for black residents at the local
level. This was in part to compensate for restricted rights, and in part to bolster the
political and economic privileges of racial exclusion (RSA1998a).
../' "Limited local government was established in Bantustans and traditional leaders were given
powers over land allocation and development matters in communally owned land. Some small
rural townships were given their own administrations that lacked real powers .
../' In the 1960s, Coloured and Indian management committees were established as advisory bodies
to white municipalities .
../' The Bantu Affairs Administration Act of 1971 established and appointed Administration
Boards, which removed responsibilitu for townships from white municipalities .
../' In 1977 elected bodies of Communiiu Councils were introduced, but had no meaningful powers
and few resources .
../' Communiiu councils were replaced by black local authorities in 1982. Black Local Authorities
did not have a good revenue base and were perceived as politically illegitimate from the start.
This led to their rejection by communiiu in the mid- 1980s. (RSA 1998a)".
In South Africa, local government has been legally restructured into non-racial and
financially viable units. This process has combined the previously segregated
African, Coloured, and Indian and white neighbourhoods into new local
government administrations. (Oldfield 2002:30) In combining formerly separated
26
communities into single political units, the local state encompasses communities
with divergent socioeconomic conditions, histories, political affiliations, and cultural
and lingual identities. (Oldfield 2002:31)
Financial constraints
Most local government revenue in urban South Africa was self-generated through
rates and taxes and the delivery of services to residents and business. This was
mainly viable for white municipalities which had small populations to serve and
large concentrations of economic resources to tax. Apartheid regulations restricted
most retail and industrial developments in black areas. The restriction resulted in the
limitation of tax base and forced residents and retailers to spend most of their money
in white areas. Municipalities in black areas were therefore deprived of the means to
meet the needs of local residents.
Discrimination and segregation in rural areas were equally harsh. Water and
electricity in rural areas were only supplied to white residents at enormous cost, and
little regard was given to the needs of the rural majority. Communities started to
mobilise against the apartheid local government system. The United Democratic
Front was launched in 1983 and focussed attention on the so-called Koornhof Bills
intended to establish BlackLocalAuthorities. BlackLocalAuthorities tried to impose
rent and service charges on township residents in order to increase revenue but
these revenue sources were inadequate for meaningful delivery. As a result these
institutions were rejected in the mid-1980s along with uprisings that shook the
foundations of the apartheid order. (White paper on Local Government, Section A
(1):1998:(1))
According to Parnell et al. (2007:4)the most pressing priority from the government
perspective is to make all municipalities financially and administratively viable. The
municipalities that existed previously were considered to be numerous and
financially unstable. The financial difficulties of local government are of great
importance than the share of national revenue allocated to local government.
27
Protesting against a distorted system
According to Parnell et al (2007:44) the destruction of apartheid flowed from the
mounting contradictions of the urban regime set up in the 1960s.The most important
one was the challenge mounted by the masses organised in the townships from 1976
onwards. The widespread campaign against apartheid increasingly demanded and
demonstrated the possibility of different approaches to local government.
In 1984 uprising gathered momentum, civics and other community organisations
started to organise themselves. Their rallying purpose was to address social and
economic conditions in townships and Bantustans. The organised boycott of rents
and service charges, and consumer boycotts were used as weapons. For the first time
people began to protest systematically against the way human settlements were
spatially and economically distorted.
In the late 1980s the apartheid government attempted to support the collapsing
Black Local Authorities (BLA) and calm political tensions by redirecting funds to
disadvantaged areas. Ad-hoc intergovernmental grants were developed in order to
channel resources to collapsing townships. Furthermore Regional Services Councils
and Joint Services Boards were established also to channel funds to black areas.
These interventions were too late because many homelands by then were effectively
ungoverned and BLAwere not viable. The crisis opened up by the collapse of the
apartheid local government system created the conditions for a new deal and white
municipalities entered into negotiations with township representatives forming
formed basis for local negotiations, and the pre-interim system of local government.
(White Paper on Local Government, Section A (1):1998:(2)
According to Oranje, van Huyssteen and Meiklejohn (2009:2) in order to eradicate
the apartheid inequalities, South Africa need to ensure shared inclusive and
sustainable economic development and growth .. However, as the National Spatial
Development Perspective (NSDP) argues, to pursue this without a plan would not
28
have the desired outcome. As indicated in the NSDP, international case studies and
regional development theory clearly demonstrate that unfocused infrastructure
spending and human resource development does not improve GDP growth of
the area.
An incomplete transition
The crisis in local government was a push factor that led to the national reform
process which began in 1990.National debate about the future of local government
took place in the Local Government Negotiating Forum, alongside the national
negotiating process. The Local Government Negotiating Forum framed the
Agreement on Finance and Services writing off arrears to BLA. It also further
negotiated for the preparation of Local Government Transition Act of 1993. The
Local Government Transition Act did not provide a blueprint for a new local
government system but it sketched a process for change. The process introduced in
the Local Government Transition Act was essentially a locally-negotiated transition
and it has resulted in a wide diversity of forms of local government .
../ The LocalGovernment Transition Act mapped out three phases of transition:
../ The pre-interim phase prescribed the establishment of local forums to
negotiate the appointment of temporary Councils that governed until the first
inclusive municipal elections.
../ The interim phase started with municipal elections and lasted until a new
local government system has been designed and legislated upon. The Local
Government Transition Act has effectively de-racialised the system of local
government through the incorporation of previously racially based structures .
../ The final stage (from December 2000) was the establishment of new local
government. (White paper on Local Government, Section A (1):1998:(2)
29
2.3.2Emerging developmental local government: the context
According to Nel and Binns (2001:356) the developmental expectation placed on
local government resulted from a series of broadly interrelated contextual and policy
considerations. These include the following:
2.3.2.1 The country's unemployment crisis was aggravated by the fact that
approximately one million jobs were lost in the country in the 1990s (Akerford, 2000
cited in Nel and Binns 2001:356). This situation also necessitated an urgent
intervention for innovative employment generating strategies, including the ones at
the local government level.
2.3.2.2.Local government is legally mandated in terms of the 1996Constitution, to:
"promote social and economic development". This signifies an important departure
from the previous service orientated focus of local government. It has also led to a
series of important policy and legal developments. The constitutional principle has
been refined and outlined in depth in the chapter in the Local Government White
Paper that formally introduced the concept of developmental local government. The
White paper defines the concept as, "local government committed to working with
citizens and groups within the community to find sustainable ways to meet their
social, economic and material needs and improve the quality of their lives."
Furthermore these principles have been taken through the Municipal Structures Act
(RSA,1998b), the Municipal Systems Act (MSA) and the draft policy document on
Local Economic Development (Harrison, 2000cited in Nel & Binns 2001:356).
2.3.2.3.The principle of devolution of power to communities by implication to their
elected representatives is a key feature of ANC policy. In terms of the 1994
Reconstruction and Development Programme (RDP) development is not about the
delivery of goods to a passive population but is rather about active involvement and
empowerment. Evolving government policy reflects efforts to make principles of
devolution a reality. These principles have been well-established in the Constitution
30
(Nel & Binns 2001:356). In support of these principles, the MSA placed particular
emphasis on community involvement in local government decisions. Local
authorities are obligated to come up with mechanisms that will enable communities
to participate in the affairs of a municipality.
2.3.2.4 Political- economic agendas around the world, and spite of internal
opposition from unions and community groups, the South African government had
firmly wedded itself to a neoliberal economic agenda, the Growth, Employment and
Redistribution (GEAR) strategy where government sought to proactively set the
basis for market-driven economic expansion and growth. This strategy details the
role of government as facilitating market expansion while that of local government
being to stimulate economic development through investment in infrastructure to
attract private investment and boost short-term economic performance.
2.3.2.5The local government's status and its potential development role have been
enhanced through a commitment to the principle that local government is not
merely the lowest tier of government, occupying a subordinate position, rather it is a
distinctive 'sphere' of government, occupying a unique and important position in
society. The position is contained in the Constitution and reinforced in Local
Government White Paper. The white paper states that: "government in South Africa
is constituted as national, provincial and local spheres of government". These three
spheres are distinctive, interdependent and interrelated. Local government is a
sphere of government in its own right, and is no longer a function of national or
provincial government. It is an integral component of the democratic Government."
(Nel & Binns 2001:356)
According to ParneIl et al. (2007:3) the new local government policy framework is a
commanding, complex, forward looking and optimistic manifesto to realise a
participatory local government system. The system must be at the heart of an
intergovernmental effort to achieve democratic citizenship, integrated development
and reconciliation between the divided communities of South Africa. The business
31
of the government is to ensure effective service delivery to all citizens so that they
can fulfil their basic needs and enhance conditions for economic growth.
2.4Municipal Governance
Effectiveness of municipal governance institutions is a precondition for any country
to reap the benefits of decentralisation. Olowu and Wunsch (2004:9cited in de Visser
2009:14)remark that weak authority and defective institutional and operational rules
can make it difficult to reach decisions and can lead to policy failure and weakened
local governance.
The new generation of municipalities is ruled by a large council and it has a strong
executive authority. The council meeting is chaired by an elected speaker and the
administration is headed by a municipal manager appointed by the council. The new
legal framework requires municipalities to extend their work beyond administering
national and provincial laws. Municipalities must adopt policies and by-laws,
actively involve communities, plan strategically and partner with different
stakeholders. This requires strong political and administrative leadership. A critical
difference from the pre2000 system relates to the role of the municipal executive. The
municipal executive is expected to formulate policy, oversee the administration and
take regular executive and administrative decisions. The new legal framework led
to an improved and rational system for municipal administration. The Municipal
Systems Act 2000 and the Municipal Finance Management Act 56 of 2003 (MFMA)
has laid down a framework for the municipal administration which is based on
modern public management principles. Strategic planning, performance
measurement, modern accounting principles, transparency, and separation of
politics from administration, resonate throughout the legal framework. Community
participation in municipal affairs has been firmly placed on the municipal agenda by
the adoption of a progressive framework. Best practices on how best to implement
these directives are emerging, albeit slowly. (de Visser 2009:14-15)
32
2.4.1Challenges facing South African municipalities
The present post-apartheid democratically elected government in South Africa
inherited an amazing hotchpotch of administrative, financial, economic and political
structures emanating from the legacy of apartheid rule. Apartheid policies have
fundamentally distorted and damaged the spatial, social and economic
environments in which people lived, worked and raised families, and sought to fulfil
their aspirations.
Post-apartheid South Africa has a major challenge of ensuring that municipalities
provide optimal and professional services to different communities. (Pretorius &
Schurink 2007:19) The Constitution gives local government the powers to provide
services for its residents, including powers to increase revenue. This was in line with
South Africa's commitment, which accorded extensive responsibility for service
delivery to the local level. (AfriMAP& Open Society for South Africa 2006: 145)
According to Parnell (2007: 22) the fiscal problems experienced by many local
authorities resulted from geographical processes of uneven development at both
local and regional scales. Apartheid did not only create racially separated urban
spaces, it also created racially unequal places. The vast majority of black South
Africans experienced economic, social, political and personal hardships that were
caused by the apartheid governments attempt to maintain privilege and cultural
dominance. (Parnell et a12007:85)
Municipalities rely on Statistics South Africa's (Stats SA)Census Results (either those
of 1996 or those of 2001) as the source of information. Sectoral information
regarding issues such as agriculture, health and education is not always available in
the district offices; and in the cases where it is available, it is often not easily
accessible. It is particularly in the field of economics where information is freely
33
available on a national or provincial level, but can only be obtained for the local level
at a great cost. (Human et al: 2008:22)
According to the White Paper on Local Government municipalities over the world
face the challenge of managing viable and environmentally sustainable urban and
rural systems. Some additional challenges faced by the municipalities, including the
following:
./ "Skewed settlement patterns, which arefunctionally inefficient and costly .
./ Extreme concentrations of taxable economic resources in formerly white areas, demanding
redistribution between and within local areas.
./ Huge backlogs in service infrastructure in historically underdeveloped areas, requiring
municipal expenditure far in excess of the revenue currently available within the local
government system .
./ Creating viable municipal institutions for dense rural settlements close to the borders offormer
homeland areas, which have large populations with minimal access to services, and little or no
economic base.
./ Great spatial separations and disparities between towns and townships and urban sprawl,
which increases service provision and transport, costs enormously
./ Creating municipal institutions which recognise the linkages between urban and rural
settlements .
./ Entrenched modes of decision-making, administration and delivenj inherited from
municipalities geared for the implementation of urban and rural apartheid .
./ lnabiliis] to leverage private sector resources for development due to a breakdown in the
relationship between capital markets and municipalities, the lack of a municipal bond market
and the poor creditworthiness of many municipalities .
./ Substantial variations in capacity, with some municipalities having little or no pre-existing
institutional foundations to build on .
./ The need to rebuild relations between municipalities and the local communities they serve.
Municipalities should be particularly sensitive to the needs of groups within the community
who tend to be marginalised, and responsive and accessible to people with a disabilitu", (OPLG
1998: 10)
According to ParneIl et al. (2007:88) it is not easy to get real changes, especially in
the smaller towns where there is no expertise and no resources to implement a new
holistic development.
34
2.5Public participation
Participatory development can be described as assisting others to assist themselves.
The unwritten result to the above is that if people are enabled to help themselves
then the government will not have to continue to allocate resources toward the same
end. In participatory development individuals bring a number of capabilities and
personal resources which affect the participatory process and furthering of
cooperative community. (Levi& Litwin 1986:43)
There are claims that participation composes a new model of development.
Regardless of such claims there is little proof of the long term effectiveness on
participation in improving the conditions of the most vulnerable and as a way of
social change. (Cooke & Kothari 2002:36)
Through the government's overall transformation agenda there has been a clear
recognition of the involvement of a range of stakeholders in policy-making and
delivery. (Matthews 2008: 48) Different spheres of government, industries and
general public have varying levels of participation and power. The stakeholders who
contribute in decision making extensively impact on the ability of different initiative.
(Eversole& Martin 2005:57-58)
Cameron, Odendaal and Todes (2004:321-2) see communities as roles players that
can play a variety of roles from inputting views about needs and priorities, and
providing feedback on specific plans and projects through to making decisions about
projects and funding allocation. They further state that it is widely accepted that
community participation is a key factor in devising and delivering appropriate area-
based solutions, and achieving the longer-term sustainability of projects. They
further indicated that the strengthening of community capacity, social capital and
citizenship skills are becoming more familiar objectives for the community
participation component.
35
Citizen participation in local development and service delivery is enshrined in the
constitutionally protected integrated development planning process, which operates
alongside electoral democracy at the local level. (AfriMAP & Open Society for South
Africa 2006: 145)
South Africans have constitutional rights of access to any information that may be
needed in exercising their rights. Since 2001, special legislation has encouraged
public access to information, but many of the legislation's provisions are
recommendations rather than requirements. (AfriMAP & Open Society for South
Africa 2006: 20)
The involvement and engagement of ordinary people in the design, planning and
evaluation of development programmes, and plans at the local level should be an
important part of democratic practice in South Africa. There are however, still huge
gaps in terms of the facilitation of this process. (Buccus, Hemson, Hicks & Piper
2008:5)
Mogale (2005:137)defines participation as the organized effort needed to increase
control over resources and regulative institutions by stakeholders, especially those
excluded from such control. Public participation is the most fundamental element of
the Integrated Development Planning process. This is articulated clearly in Chapter 4
of the Municipal Systems Act (32)2000.Therefore in order to ensure participation of
all stakeholders, municipalities must identify all stakeholders and allocate
responsibilities to each one of them. (MSA32,2000 Section 16 (a) (ii))
According to Buccus et al. (2008: 14) participation is related to the rights of the
people and expected delivery on community development needs. The level of
participation is related to the capacity of the participatory system to provide the
element of redress and meet essential needs.
36
The IDP is about determining the stakeholder and community needs and priorities
which need to be addressed in order to improve the quality of life. The Constitution
and the Municipal Systems Act clearly stipulates that the municipality must mobilise
its stakeholders by establishing an effective participatory process. The municipality
should in particular ensure that previously disadvantaged groups (e.g. women, the
disabled etc.) participate in order for their voices to be heard. (DPLG IDP Guide
Pack 2001:7)
The IDP involves participation of a number of stakeholders and it is crucial for the
municipality to adopt an appropriate approach and structures to ensure effective
participation. (DPLG IDP Guide Pack 2001: 7). According to Cash & Swatuk
(2012:59),the element of public participation of the IDP is only to inform people than
to actively engaging citizens."
According to the White Paper in LocalGovernment 1998,collective and coordinated
public participation is the cornerstone in ensuring democracy and good governance.
Section 152 of the Constitution of South Africa 1996 enumerates a number of
objectives of Local Government including establishing representative and
participatory democracy, addressing poverty and inequality and promoting local
economic development and social development. Furthermore the White Paper on
Local Government 1998 and the Municipal Systems Act 2000 collectively make
provision for the participation of all interested parties in the preparation, adoption
and implementation of IDPs.
Participation is mandated in four major senses: as voters to make sure that there is
democratic accountability; as citizens who can contribute to policy processes; as
consumers and end users who can anticipate 'value for money' and affordable
services; and as organised partners involved in resource mobilization for
developmental objectives (Mogale 2005:137). Citizen participation can occur at
different stages of service delivery, from planning and budgeting until
implementation and evaluation. Citizens can raise awareness by monitoring
37
standards of performance of municipal services and placing pressure on delivery
and oversight institutions to act. (Clacherty 2011:6)
2.5.1Participatory Governance
Participatory governance has become an instrument for development adopted by
central and local governments in developed and developing countries. It has been
defined as a regulatory structure for the running public affairs that is not entrusted
to government and the public administration. It also involves working together
between government departments and community members. It has to do with an
institutional set-up that involves communities, centrally and locally, to participate in
decision-making and in implementation. (Kjeer2005:1)
Participatory governance is believed to strengthen democratic policy-making. It
strengthens community by increasing the level of organization it requires and
enhancing general trust among people. Participatory governance also assists the
implementation of policy-decisions because it is easy to implement an agreed
decision than implementing a decision taken unilaterally. Participatory governance
is expected to strengthen the efficiencyof service delivery. (Kjeer2005:1)
Participation of the governed in their government is, according to Arnstein (1969:
216) the cornerstone of democracy. Arnstein makes a distinction between the empty
ritual of participation and the real power needed to affect the outcome of the
process. She makes reference to a poster painted by French students to explain
student-worker rebellion which highlights that participation without redistribution
of power is an empty and frustrating process for the powerless. It allows the power
holders to claim that all sides were considered, but makes it possible for only some
of those sides to benefit. Itmaintains the status quo.
38
Arnstein (1969:217)identifies eight levels of participation arranged in a ladder
pattern with each rung corresponding to the extent of citizens' power in determining
the end product. The bottom rung (manipulation and therapy) describes levels of
non-participation which have been contrived by some to substitute genuine
participation. The real objective is not to enable people to participate in planning but
to enable power holders to educate the participants. Rung three and four (informing
and consultation) allow the have-nots to hear and have a voice but they lack power
to insure that their views will be heeded. At the top of the rung are levels 7 and 8
(delegated power and citizen control). It is at this level that citizens obtain the
majority of decision-making seats or full managerial power.
2.5.2Participation and Partnerships
According to Todes (2003:9)"most definitions of sustainable development include a
strong emphasis on participatory processes and the development of partnerships
between local government and civil society". The Local Agenda (LA) 21 principles
stress the establishment of participatory structures which will interface continuously
to local government. (IeLEI, 1996;Luckin, 2003cited in Todes 2003:9)IDPs are seen
as participatory processes, and substantial attention is given to the representation of
different stakeholders and marginalised groups. The emphasis is more on
consultation than on deeper structure of participation. The IDP represents a difficult
arena from the perspective of participation. (Todes 2003:9)
Most municipalities particularly districts cover a huge land area, and a substantial
diversity of interest groups and communities. For this reason, the Municipal
Planning and Performance Regulations 2001 section 15(1) (a) suggest the
establishment of forums that will enhance community participation in respect of
integrated development planning and performance management. The intention
behind the idea of the establishment of forums is that representatives will report
39
back to their communities, even though decision-making would be difficult to
achieve. (Todes 2003:9)
2.6Municipal Service and service delivery
The concept of public service delivery is associated with the discipline of political
structures and public administration component. The concept of service delivery
embraces programmes and activities related to powers and functions performed by
the three spheres of Government. (Kondlo & Maserumule 2010:78)
According to Matthews (2008:46) the suitability of a target-based system as a driver
of public services has not been automatically accepted. There has been an intensive
effort to improve and extend basic infrastructure and service delivery. However
post-1994 efforts to increase the capital budget resulted in a financial crisis and
foreshadowed a highlight on institutional reform as a predecessor to infrastructure
improvements. (parne1l2004: 384)
2.6.1Municipal Service
Municipalities must make sure that people in their municipality access to the basic services
they need. Basic needs in this instance include:
v' Sewage collection and disposal
v' Water supply
v' Refuse removal
v' Electricity and gas supply
v' Municipal health services
v' Municipal roads and storm water drainage
v' Street lighting
v' Municipal parks and recreation
40
l
The services mentioned above have a direct and immediate impact on the quality of
the lives of the community members. Basicservices needed in rural areas differ from
those needed in urban communities. Poor services can push away businesses and
this will results in less job opportunities for residents.
2.6.1.1Who is responsible for providing services
Local Government is the sphere of government that works closest with the
community. Councillors are elected to represent community members and ensure
that there is service delivery. Municipalities can provide services through their own
resources or hire service provider to deliver the service but it remains the
responsibility of the municipality to manage and monitor the project. However,
many municipalities are unable to deliver services to residents. This might due to
lack of funding and lack of capacity to provide a required service at a reasonable
price. Such municipalities should device other means to ensure that their services are
improved and reach the community.
2.6.1.2Municipal service delivery in an unequal society
According to Mogale (2005:140)service delivery represents an avenue for municipal
action in order to obtain redress in previously segregated local communities and to
address poverty reduction in South Africa. The White Paper on Local Government
states that, "Basic services enhance the quality of life of citizens, and increase their
social and economic opportunities by promoting health and safety, facilitating access
and stimulating new productive activities".
According to Mogale 2005:140provision of services is difficult to newly incorporated
communities and in areas where there is high rate of unemployment, poverty and
historical backlogs in infrastructure services and the uneven spread of economic
resources. The constitutionally guaranteed right to services is highly problematic,
especially in areas where service subsidies for the vulnerable community are
unavailable. Therefore the principle of cost recovery in municipal service provision
41
is important in order to eliminate an entitlement mind-set and to force consumers to
use what they can afford. As subsidies to lessen the plight of the indigent are
promised, the reality is that municipal policies and criteria take time to develop and
implement (Mogale 2005:140).
Rich neighbourhoods and large-scale consumers continue their inefficient
consumption patterns, no different to those enjoyed under apartheid dispensation
(parnell et al., 2002:33 cited in Mogale 2005:140).The result of this is high tariffs and
rates that are unaffordable for the poor, leading to growing alienation evidenced by
the destruction of public facilities and non-payment of services. (Cashdan, 2002:164
cited in Mogale 2005:140).
Different schools of thought have debated the efficiency of pricing municipal
services according to commercial criteria and the potential the lack of services has to
affect health, welfare, educational gains and social stability, especially for the poor.
Some argue that pricing municipal services renders socioeconomic benefits beyond
the reach of the vulnerable poor. (Friedman, 1963; Hayek, 1990 cited in Mogale
2005:140)
Municipalities should be able to recover the cost of service provision from
consumers. Where subsidies could be obtained central government could be the
source, without placing burden on wealthier sections of the populations. The
adoption of a hard line attitude to cost recovery has contributed to increasing social
exclusion of the poor while denying them essential services such as electricity and
water in South African municipalities. (Mogale 2005:141)
2.6.2Service levels and service delivery options
The most significant factor to consider in service delivery option is the level at which
the service is provided. The choice of the level of service is influenced by
affordability and community needs. When municipalities make decisions about the
42
level of services they should consider the long-term viability of providing service.
Municipalities rely heavily on income received from users and if the costs are too
high people are unable to pay. This will lead to loss of money by the municipality
and will not be able to continue to provide required service.
2.6.3Principles of Service delivery
Municipalities are in existence manly for improving the welfare of the communities
they serve. The ever increasing challenges facing municipalities with regard to
improving service delivery require innovative methods and systems that will
address the needs of communities. The White Paper on Local Government (1998
section 2.1) outlines principles for service delivery that provide a new and holistic
framework on which municipal service delivery should be based. The principles are
listed below. (HSRC2005:19-21)
./ Accessibilihj of services
./ Affordabilihj of services
./ Qualihj of products and services
./ Accouniabilitq for services
./ Integrated development and services
./ Sustainobilitv of services
./ Value-for-money
./ Ensuring and promoting competitiveness of local commerce and indusirq
./ Promoting democracy
2.6.4Limited infrastructure capacity
The most important constraint of infrastructure investments is the continual lack of
capital to finance projects. With the limited financial resources available to local
governments in developing countries, it is important to create and implement new
methods for financing infrastructure to support urban land development. Method
that is gaining universal acceptance is the one where projects pay for infrastructure
development. Urban land policies can also be implemented to increase funds for
development. (Dowell & Clark 1996:41)
43
Even though resources are available for infrastructure investment, poor coordination
may hamper land development. This may be due to insufficient coordination
between infrastructure agencies themselves. In other cases there may be general
weakness in the planning and enforcement methods available. Other reasons
include conflicting objectives between supporting agencies and different funding
sources for the infrastructure components. (DoweIl& Clark 1996:41)
Conclusion
The structure of governance in South Arica has given the municipalities
developmental responsibilities. To ensure that municipalities perform the role the
government passed municipal systems act which compels municipalities to prepare
IDPs. It is clear that municipalities cannot avoid this legislative mandate.
Since the birth of IDP a growing literature focusing on it has emerged. Common in
all literature is the recognition that the IDP is a strategic planning tool useful at a
local governance level. The participatory process has however been criticised as
favouring certain sections of the community. The IDP still has a long way to go in
addressing some challenges such as those inherited from the past as well as those
that are inherent in the IDP itself. It remains the responsibility of local government to
address the provision of services.
44
CHAPTER 3 lEGISLATIVE AND lPOlICY FRAMEWORK
Introduction
This chapter focuses on the legislative and policy framework that inform and give
mandate to Integrated Development Planning process, developmental local
government and public participation in South Africa. In order to promote
participatory government, South African government in 1994 introduced different
policies and legislative frameworks. This entails legislation for policy-making and
planning processes of government at three spheres of Government.
3.1 Contents of the IDP
The IDP articulates the municipal vision and mission for the developmental duties of
the municipality. The significance this serves to bind the council to a determined
course of developmental action during its elected term of office. Not only does this
create the consensus required but also enables the community to hold the council
accountable for the achievement of the goals and targets set in the IDP. The content
of the IDP must signify agreement reached with the community through various
community participation processes. (Valeta & Walton 2008: 376)
The IDP contains situational evaluation of the existing level of development in the
municipal area. One of the key areas for municipalities remains the provision of
services. This involves the consideration and identification of the community's
access to basic services. The evaluation is important in the development as not all
municipalities have the same challenges and conditions differ from area to area.
Municipalities with large rural components have problems which are different from
municipalities with no rural components. As a result the priority areas will inform
but the objectives to be achieved. (Valeta & Walton 2008: 376)
45
The IDP further contains a spatial development framework (SDF)that includes basic
guidelines for land use management. The design of land management strategies is a
vital part of planning for the structured and orderly development of the municipal
area. The plan must not only focus on social activities. It must also have a socio-
economic bias in terms of establishing the required environment in order to promote
economic development and employment opportunities within the municipal area. It
must also link and integrate with all proposals for the development of the
municipality. (Valeta & Walton 2008:376)
According to the MSA 2000 s 26(h) IDP should set parameters for the structuring of
budgets. The rationale behind this is to make sure that the municipal budget
supports the achievement of the objectives and strategies set in the IDP. This assists
in ensuring the achievement of the vision of the Municipality. The IDP also sets the
framework for the budgets. It contains the next financial year and two outer years.
The justification for this is to ensure that the IDP is affordable and consistent with
budgetary limitation. (Valeta & Walton 2008:378)
According to the MSA 2000 s 26(i) IDP also sets key performance indicators and
performance targets. The rationale behind the setting of performance indicators and
targets is to evaluate the success and failures of the adopted strategy and so assist
with the review of the IDP. A clear understanding of the requirements for the
successful implementation of the IDP is legal, financial, human, economic, and
technical issues. The resources to obtain this understanding can be resoureed
internally from the officials or it can be outsoureed from professional service
providers. (Valeta & Walton 2008:378)
Over-ambitious policy objectives and strategies should generally be avoided.
Resources are limited and this is one of the reasons why input from pressure groups
requires to be carefully dealt with. It is also an area where the certainty of budget
constraints must be considered. The provision of adequate budget to achieve the
objectives set in the IDP is vital. (Vatela &Watson 2008:378-379)
46
3.2Capital Budget and the IDP
According to Municipal Finance Management Act (MFMA) there should be
coordination between the annual review of the IDP and the preparation of the
annual budget. There are two types of budget, namely the operational and capital
budgets. An operational budget involves the day to day running costs of the
municipalities (Joseph & van Rensburg 2002:12)while the capital budget is for
investment in infrastructure. According to Visser 2001:1988" the capital budget is
the part of the municipal budget that addresses all capital and development
programmes and projects of a local authority and represents the financial expression
of the IDP goals". This is the budget that is set aside for different capital programme
and projects which include civic amenities, electricity transmission systems,
construction of community health service centres, housing schemes and road works
etc.
3.2.1Sources of municipal income and capital budget financing
According Joseph & van Rensburg (2002:14)Municipalities must ensure that there is
adequate money to pay their planned expenditure. Below are different sources of
income that can be used by municipalities to finance their needs and expenditure .
..,( External loans - these are an expensive form of funding the capital budget
because of the high interest rates in South Africa. External loans should only be
used to finance major capital projects such as roads, buildings, sewerage works
and water systems .
..,( Internal loans - Many municipalities have internal 'savings funds' such as
Capital Development Funds or a Consolidated Loan Fund. These funds can are
for the purchase or development of capital items, usually at a lower interest
rate than for an external loan and the municipality pays the interest back to its
own 'savings fund', which can later be used for another capital project.
47
./ Contributions from revenue - When financing a small capital project, the small
total cost can be paid for from the operating income in the year of purchase.
This financing source is known as 'contributions from revenue'. Most
municipalities use this source to pay smaller capital items, such as items of
furniture and equipment. This source of financing is considerably cheaper than
external or internal loans because no interest is payable .
./ Government grants - Municipalities may apply to national government for
infrastructure development grant. The two main funds available are:
• MIG (Municipal Infrastructure Grant) - available from the Department of
COGTA (Cooperative Governance and Traditional Affairs)
• Water Services Projects - available from the Department of Water Affairs.
• USDG (Urban Settlement Development Grant)- available from Department of
Human settlements
./ Donations and public contributions - Local and foreign donors may
sometimes contribute a funding to be used for the capital project in a
disadvantaged area. They may want promotion for their donation and the
municipality can arrange to acknowledge their sponsorship .
./ Public-Private Partnerships - Capital costs can be paid by means of
partnerships between the private sector and the municipality. In some cases the
private sector partner will be motivated by profit in the services and capital
projects that are financed. Therefore terms and conditions must be carefully
defined, to protect the community's interests. (Joseph & van Rensburg 2002:14-
16)
3.2.2Main sources of operational budget financing
Property Rates - The municipality charges rates and taxes to all property owners of
its municipal area. The rates income is used to pay for the management and
maintenance of general services like roads and storm water, etc.
48
Service Charges and Tariffs - The principle of user pays should be adopted for the
services that can be directly charged to a house or factory. In order to charge a tariff
for services such as water, electricity or development applications approval exact use
of the service can be measured by the actual use of that service.
Fines -Traffic fines, late library book fines and penalties for late payment of service
charges are also other source of revenue for the municipality.
Equitable share - The equitable share is an amount of money that all municipalities
get from national government each year. The constitution states that "all revenue
collected nationally must be divided fairly between the three spheres of
Government". The local government equitable share is intended to ensure that
municipalities provide basic service and develop their areas. The amount a
municipality obtains depends mainly on the number of indigents in the area. Rural
municipalities usually get more equitable share. Most municipalities only get a small
portion of their operating budget from this share. (Joseph & van Rensburg 2002:13)
3.3.Characteristics of Development Local Government
According to the White Paper on local government section B (1)Developmental local
government has four interconnected characteristics:
./ Social development and economic growth
./ Integrating and co-ordinating development activities
./ Democratising development by allowing communities to participate
meaningfully in development, and
./ Leadership Provision, social capital building promotion, and creation of
opportunities for learning and information-sharing.
Two pieces of municipal legislation (LocalGovernment Municipal Structures Act 117
of 1998 and the MSA) gave substance to the above characteristics by introducing
innovations like ward committees, a code of conduct for councillors, integrated
49
development planning, performance management, development partnerships, and
alternative service delivery. (Atkinson 2002:9)
3.4Legislative framework
3.4.1Policy framework for community participation in local government
South Africa has laws that encourage public participation in order to enhance
decision making processes of local government. The Constitution states that" one of
the objects of local government is to encourage the involvement of local communities
and community organisations in local government affairs". It further says that the
public must be encouraged to participate in policy-making processes. This leaves the
municipality with responsibility of devising ways to include community in decision
making. (KZNTL: On line). These constitutional requirements are made clearer in
the MSA2000chapter 4 and 5.
The MSAstates in Section 4(2) that
"a municipal council, within the municipality's financial and administrative capacitu and
having regard to practical considerations, has the dUhj to,
(c) encourage the involvement of the local community ...
(e) to consult the local communitq about":
(i) The level, quality, range and impact of municipal services provided by the municipalitq,
either directly or through another service provider; and
(ii) The available options for service delioeru",
Section 5(1) (a) states that community members have the right
"through mechanisms and in accordance with processes and procedures provided for in terms
of this Act or other applicable legislation to-
(i) contribute to the decision-making processes of the municipaiitu: and
(ii) submit written or oral recommendations, representations and complaints to the municipal
council or to another political structure or a political office bearer or the administration of the
municipality"
50
Section 16(1)states that:
"a municipality must develop a culture of municipal governance that complements formal
representative government with a system of participaicnj governance, and must for this purpose:
(a)"encourage and create conditions for, the local community to participate in the affairs of the
municipalirf, including"
o the IDP processes
o the Performance management system (PMS) establishment,
implementation and review
o the performance monitoring and review
• the Budget preparation and
., provision of municipal services
3.4.2The Constitution of South Africa 1996
The Constitution outlines the objects for local government in section 152, which all
municipalities must strive to achieve within its jurisdiction. Section 153 builds upon
these objects by outlining the developmental function of municipalities. The MSA
requires municipalities to consider their actions in order to give effect to these
Constitutional obligations. (LocalGovernment Working Paper Series No. 12003:1)
Section 152(1) of the Constitution states the objects of the Local Government as
follows:
/I (a) To provide democratic and accountable government for local communities;
(b) To ensure the provision of services to communities in a sustainable manner;
(c) To promote social and economic development;
(d) To promote a safe and healthy environment; and
(e) To encourage the involvement of communities and communibj organisations in the matters
of local government. (South Africa 1996) "
According to section 153of the constitution a municipality must:
"(a) Structure and manage its administration, and budgeting and planning processes to give
priorib] to the basic needs of the communitf, and to promote the social and economic
development of the communirf; and
51
(b) Participate in national and provincial development programmes. (South Africa 1996) "
3.4.3The White Paper on Local Government 1998
According to the White Paper on Local Government (1998:25) Section B
(3.1(3.1.1),"municipalities face immense challenges in developing sustainable
settlements which meet the needs and improve the quality of life of local
communities". In order to meet these challenges, municipalities need to understand
the various dynamics functional within their area; develop a concrete vision for the
area, and strategies for realising and financing the vision in partnership with other
stakeholders.
According to the White paper on local government sec 3.1.1 "integrated
development plans should be viewed as incremental plans". During the annual
process of review, new or changed priorities can be incorporated. Integrated
development planning is a required municipal function that is not add-ons and its
preparation should not be framed out to consultants The development of integrated
development plans should be managed internally and it should provide a way of
enhancing the strategic planning capacity of the administration, building
organisational partnerships between management and labour, and enhancing
linkage between line functions.
3.4.4The Municipal Structures Act 1998
District municipalities are required by the provisions of Section 83(3)(a-c) of the
Municipal Structures Act (1998:58) to:
"(a) ensure integrated development planning for the district as a whole:
(b) promote bulk infrastructural development and services for the district as a
whole;
(c) build the capacitu of local municipalities in its area to perform their
functions and exercise their powers where such capacitu is lacking; and
(d) promote the equitable distribution of resources between the local municipalities in its area
to ensure appropriate levels of municipal services within the area". UV .. !J_rs
~3Ll)ê~A:-ONTEtlU
52 :-,c:-}: 1~,,~T~ . LIMA"?" ,
3.4.5The Municipal Systems Act, 32 2000(MSA)
Section 26 of the Municipal Systems Act-2000 requires municipalities to prepare
IDPs for the areas under their jurisdiction and Section 34 requires municipalities to
review this Plan annually. Chapter 8 of the Municipal System Act sets the
framework for providing effect to the constitution in the service delivery
3.4.6The Municipal Planning and Performance Management Regulation 2001
According to the Municipal Planning and Performance Management Regulations
2(1) (DPLG 2001:1) A Municipality's integrated development plan must at least
identify-
"(a) the institutional framework required for,
(i) the integrated development plan implementation; and
(ii) addressing the municipality's internal transformation needs
(b)any investment and development initiatives in the municipalirf;
(d) all known projects, plans and programs to be implemented
(e) the municipal key performance indicators"
3.4.7The Municipal Finance Management Act 56 of 2003
Section 17(3) (d) of the MFMA (2003:36)states that: "when an annual budget is
tabled in terms of section 16(2) it must be accompanied by a number of documents
including any proposed amendments to the municipality's integrated development
plan following the annual review of the IDP in terms of section 34 of the Municipal
Systems Act"
Section 21(2)(a)& (b) of the MFMAstates that:
" When preparing the annual budget, the mayor of a municipalitsj must-
(a) take into account the municipalirf's integrated development plan:
53
(b) take all reasonable steps to ensure that the municipalitq revises the integrated development
plan in terms of section 33 of the Municipal Systems Act taking into account realistic revenue
and expenditure projections for future years"
3.5Planning alignment with the three spheres of Government
As a result of government's reconstruction and development agendas there is a
growing list of sectoral and issue-based plans and activities that are being required
from local government by national and provincial legislation, policy frameworks,
strategies and programmes. These include water plans, transportation plans, land
use management systems, local economic development strategies, and land reform
strategies. Translating the intentions into practice is far more difficult given
problems such as:
./ continued lack of co-ordination between national and provincial departments
and programmes;
./ varying time-frames of planning processes;
./ conflicting policy agendas; and
./ different legislative requirements for planning in different sectors. (Oranje,
Harrison & Van Hyssteen 2000:7)
3.5.1National Policy framework
3.5.1.1Intergovernmental Relations Framework Act, 13 of 2005(IGRF)
Chapter 1 s(4) of this Act states its object as providing a framework of cooperative
government between the three spheres of Government and all organs of state within
those governments and to facilitate co-ordination in the implementation of policy
and legislation, including:
"a) coherent government;
(b) effective provision of services;
(c) monitoring implementation of policy and legislation; and
(d) realisation of national priorities".
54
Intergovernmental relations are intended to promote and facilitate co-operative
decision-making and making sure that policies and activities of all spheres of
government encourage service delivery and meet the needs of citizens in an effective
way. The IGRF Act was established to guide the three spheres of government in
terms of implementing policy and legislation, establishment of intergovernmental
structures, managing the ways of Intergovernmental Relations (IGR), settling
disputes and monitoring and reporting to Parliament. Even though each sphere has
different roles and responsibilities our Constitution recognises that the spheres
cannot work in silos.
The three spheres of government are required to work together, negotiate and devise
means of agreeing on administrative, political and financial issues in mutual trust
and good faith. Breaking trust and faith may result in the declaration of an
intergovernmental dispute. The IGRF Act provides for the management of such
disputes, and key principles of IGR. Co-operative governance is based on the
principle that the three spheres of government are able to work together in order to
provide citizens with services. (Cape Town: Online)
3.5.1.2The National Spatial Development Perspective (NSDP) 2006
"The NSDP is a critical tool for bringing about coordinated government action and
alignment to meet social, economic and environmental goals. It is the basis for
maximizing the overall social and economic impact of government development
spending by interpreting the strategic direction, promoting poliC1jcoordination and
fitting government actions into a coherent spatial term of reference." (FBDMIDP
Review 2010/2011 Planning 2011/2012)
According to Oranje, et al. (2009:1)the NSDP was developed to assist politicians in
making solid investment decisions. Small towns would not be on the top
prioritisation list when choices have to be made as there are larger towns and
cities with more development potential and greater numbers of people living in
poverty. Hence the NSDP provides principles that guide all spheres of government
55
on infrastructure and development investment. The NSDP argues that spatial
inequality is not an exclusively South African phenomenon. The international
literature shows that spatial inequality is a product of growth, and the dynamic
qualities of areas developed historically and culturally over a long period of time
(Oranje et al. 2009:2).
The NSDP provides a particular analysis 0 f the South African space economy
based on the attributes of economic development potential and poverty. The
perspective does not include any specific statement on investing each set of spaces
(Oranje et al., 2009:13).
The key objectives of the NSDP are to:
./ provide a framework for discussion the future development of the national
space economy
./ act as a universal reference point for the three sphere of government
identify key areas of tension and priority in achieving positive spatial
outcomes in government infrastructure investment and development
spending
./ provide national government's strategic answer to the above for a specified
time frame. (RSA2003:6)
The NSDP provides principles that guide all spheres of government on
infrastructure development and investment. These are summarised as follows:-
1. Sustainable rapid economic growth for the achievement of other policy objectives
in which poverty alleviation is important.
2. Provision of basic services to all citizens.
3. Focus of fixed investment on localities of economic growth and potential.
4. Addressing past and current social inequalities
56
l
5. Channelling of economic development opportunities into activity corridors or
nodes in order to overcome spatial distortions of apartheid .(NSDP 2003:22)
Infrastructure and development investment within the municipality has to take
cognizance of these principles.
3.5.1.3 Medium Term Strategic Framework (MTSF) 2009-2014
"The MTSF is a statement of intent identifijing the development challenges facing
South Africa and outlining the medium-term strategy for improvements in the
conditions of the life of South Africans. It is meant to guide planning and resource
allocation across all the spheres of government". (MSTF 2009-2014)
It is on this basis that Provincial Departments were mandated to prepare their five
year strategic plans and respective budgets aligning with the provisions of the
MTSF. Similarly municipalities are required to align their integrated development
plans with the priorities of the Medium Term Strategic Framework.
MTSF 2009-2014 identifies ten strategic priorities derived from the popular mandate.
These are summarized as follows:
1. "To speed up economic grawth and transform the economy in order to create decent
work and sustainable livelihoods.
2. To build economic and social infrastructure.
3. Comprehensive rural development strateg1J linked to land and agrarian reform and
food security.
4. To strengthen skills and human resource base.
5. To improve the health profile of societu.
6. To intensifij the fight against crime and corruption.
7. To build cohesive, caring and sustainable communities.
8. To pursue regional development, African advancement and enhanced international
cooperation.
9. Sustainable resource management and use.
57
10. To build a developmental state including improvement of public services and
strengthening democratic institutions".
Those priorities that fall within the mandate of the municipality are number 1, 2, 4, 6,
9 and 10. Municipalities need to take these into consideration during the IDP
preparation process
3.5.1.4Delivery agreement: Outcome 9
Government has agreed on 12 outcomes as a key focus of work between 2010
and 2014; and as result a set of 12 outcomes were developed based on the election
manifesto and medium strategic framework. These were developed through
extensive consultation and discussion between ministerial and administration level.
(ThePresidency: online)
Each outcome has limited number of measurable outputs with targets.
Each of the 12outcomes has a delivery agreement which in most cases involve al
I spheres of government and a range of partners outside government. (The
Presidency: online)
These agreements reflect government's delivery and implementation plans for its
priorities to 2014. This delivery agreement reflects the commitment of the key p
artners involved in the delivery process to working together effectively and on
time to produce the agreed outputs which will contribute to achieving
outcome 9.
The delivery agreement provides attribute to the outputs, targets, indicators a
nd activities in order to achieve outcome 9. It also identifies required inputs and
clarifies the roles and responsibilities of the various stakeholders. It further
spells out responsibilities, time frames and resources needed. The
outcomes apply to the whole of government and will be used for a long period.
It also includes outputs and associated targets that are realisable in the next four
58
years. This delivery agreement will be review annually in order to enhance
monitoring and evaluation (M&E). Itwill be refined over time and include relevant
delivery partners. (Info:Online)
The approach to managing local government support and intervention must have a
greater and more sustainable impact. The force for change will reconstitute the
principle of municipal accountability. Combined with the concept of differentiated
support, and necessary legislative and policy adjustment it will create a binding yet
supportive force around municipalities. (COGTA2010:6)
3.5.2 Provincial Policy framework
3.5.2.1 The Northern Cape Provincial Growth and Development Strategy
(NCPGDS)
The Northern Cape second generation Provincial Growth and Development Strategy
was finalised in 2011 in order to give effect to the Development Vision and
Objectives outlined in Section A, Chapters 1 and 4 of the document respectively. It is
important to set a series of high-level development targets for economic growth and
social development in the Northern Cape. In doing so it was essential to give
consideration to development targets set by national government, the Millennium
Development Goals (MDG) and the World Summit on Sustainable Development
(WSSD) resolutions. As a result, targets that are quantifiable, measurable and
achievable were developed for the Province. These include the following:
../ "To maintain an average annual economic growth rate ofbetween 3% to 4,5%;
../ To create in excess of16000 jobs p.a. by 2014;
../ To reduce the number of households living in absolute pouertu by 5% per annum;
../ To improve the literacy rate by 50% by 2014;
../ To reduce child mortality by two-thirds by 2014;
../ To reduce maternal mortalitij by two-third by 2014;
../ To provide shelter for all by 2014;
../ To provide clean drinking water to all in the province by 2014
59
../ To eliminate sanitation backlog in the Province by 2014;
../ To reduce crime by 10% by 2014;
../ To reduce new transmission of HI V and STI's by 50% by 2014 .
../ To achieve 85% TB cure rate by 2014;
../ To redistribute 30% of productive agricultural land to PO J's by 2014;
../ To conserve and protect 6,5% of our valuable biodiuersitu by 2014;
../ To reduce the infrastructure backlog for economic growth and development by 2014; and
../ Vibrant and sustainable rural communities with access to economic infrastructure and basic
services by 2014". (NCPGOS 2011: 21)
3.5.3DistrictfLocal
3.5.3.1The Frances Baard District Growth and Development Strategy (FBDMGDS)
The Frances Baard District Growth and Development Strategy was adopted by
Council in April 2008. This was undertaken in response to the call from the
Presidency that all district and metropolitan municipalities prepare and adopt
Growth and Development strategies. A DGDS is not a comprehensive plan, but a
strategy that concentrates on a limited range of "intervention areas". The FBDGDS:
2008is based on five strategic focus areas:-
../ Getting the basics right.
../ Ensuring strong links to the national spatial economy.
../ Ensure basic welfare: avoid deep poverty traps .
../ Create preconditions for inter-generational economic mobility .
../ Thinking region: not rural or urban.
3.5.3.2Local Government Turn Around Strategy (LGTAS)
Over the past few years South Africa has experienced many service delivery protests
that were marred by violence. Communities in Mpumalanga and Gauteng
demanded a wide range of services. Although the residents had concerns, some of
the demands they made did not fall within the legislative mandate of local
60
government. In response to flaring tensions Government commissioned a national
study on the state of LocalGovernment. The assessment was concluded in the Local
Government Indaba in October 2009wherein a draft strategy was unveiled and then
approved by Cabinet in December 2009. As a result of the above municipal turn-
around strategies were developed between January and March 2010. (Regenesys:
Online)
The approved strategy discourages the approach of one-size-fits-all. It further
recognizes that the one-fits-all approach is not practical, because municipalities
require different support in order to prepare and implement their turn around
strategies successfully.
The National LocalGovernment Turn-Around Strategy is made up of two phases i.e.
pre-2011 and post-2011 priorities. The development and implementation of
municipal turn-around strategies requires everyone's commitment and active
participation. (COGTA 2009: 19)
It is important to note that municipalities have different strengths and weaknesses
and therefore individually tailored intervention measures are required for each of
them. Therefore the turn-around strategies were introduced as an intervention
measure. There is a comprehensive differentiated programme of action aimed at
ensuring that municipalities meet the basic service needs of communities. It is a
high level government-wide strategy aimed at stabilizing local government. The
strategic objectives that Municipal Turn around Strategies interventions and support
the framework are as follows:
../ "To ensure that municipalities provide the basic service to communities
../ To build clean, useful, resourceful and responsible local government
../ Improvement of performance and professionalism in municipalities
../ Improvement of national and provincial policy oversight support
../ To strengthen partnership between Municipalities and different Stakeholders". (COG TA 2009: 19)
61
Conclusion
Municipalities are legally bound to prepare and implement Integrated Development
Plans. In simple terms failure to do so must have serious legal implications. Itwould
also imply that the municipality has lost direction and has no strategies to perform
its developmental function. The fact that the municipality must adopt a clear vision
and mission is crucial to ensure a particular focus and direction.
Local government is indeed governed by legislation. Legislation alone cannot be
enough to guide preparation and implementation of Integrated Development Plan. It
only forms the basis for the preparation of policy and strategies. Various policy and
strategy therefore exist for the purpose of driving and implementing the IDP.
The Constitution of South Africa stipulates objectives of local government. These
objectives clearly emphasize the developmental role of the municipalities in terms of,
amongst other things; provision of services, economic development as well as
community participation.
One of the most important features of the democratic South Africa is emphasis on
public participation. Planning cannot be done in isolation. It is a constitutional
imperative to plan with the people for the people. Such planning ensures that
community is informed about the development goals and when and how to achieve
them.
62
CHAPTER 4 CASE STUDY: PHOKW ANE LOCAL MUNICIPALITY
4.1Historical Background
The Phokwane Municipality is named after Queen 'Phokwane', the wife of Kgosi
Galeshewe of the Barolong boo Ra-Tlhaping tribe. Kgosi Galeshewe originally
owned the land called Phokwane Town (which is now called Hartswater) with his
Tlhaping people. The Cape Colonial Government confiscated the land in 1897/8 for
his part in the popular uprising of 1896/7.
In the early 1930s,South Africa experienced a drought which drove the development
of Vaalharts Irrigation Scheme. The name Vaalharts was derived from the Vaal and
the Harts rivers which flow through the scheme. Due to the development of the
irrigation scheme in 1939,Hartswater was established as a town in 1963and it had a
population of 5000people. (FBDM2008:39)
The three original towns of Phokwane Local municipality were Hartswater, Jan
Kempdorp and Ganspan. Pampierstad was in the North-West province until 2004
when it was incorporated into the Northern Cape. (FBDM2008:41)
4.2 Study Area
Phokwane Local Municipality is one of the local municipalities within the Frances
Baard District of the Northern Cape in South Africa. The name means "lamb" in
Setswana.
The Phokwane Local Municipality (referred to as the Municipal Area) is located in
the north-eastern extreme of the Northern Cape Province, along the border of North
West Province, and close to the Free State Province. The municipality covers an area
measuring 82 077ha in extent and comprises the following nodes:
./ Jan Kempdorp and Hartswater (former Transitional Local Councils)
63
./ Pampierstad, with surrounding farms (former Transitional Rural Council),
and
./ a small settlement known as Ganspan (previously administered by the then
Department of SocialWelfare)
The municipality is bordered by two neighbouring municipalities namely Greater
Taung Municipality with a large population of about 204 000,mainly dependent on
Phokwane commercial centre for shopping and Magareng Local Municipality with a
population of about 22 000.
The Municipal Area is connected to Kimberley in the south and Vryburg to the north
by means of the N12 and N18 respectively. See figure 2.
Phokwane is dominated by the lush green delta of the Hartswater Valley and boasts
the second largest irrigation scheme in the Southern Hemisphere namely Vaalharts
Irrigation Scheme. The main economic activity is agriculture, with the well-
established Vaalharts Irrigation System. Though national government has adopted
land reform as a programme aimed at land ownership transformation little has been
achieved in the Phokwane area. Some land reform projects initiated are not effective,
while others have collapsed due to support services challenges.
The municipal area is dominated by intensive farming and there are two main urban
areas, Jan Kempdorp and Hartswater, the seat of the municipality. Other towns
within the Municipal boundaries are Ganspan, Pampierstad and Valspan (Refer to
Figure 1 of the locality map below).
64
Figure 1: Locality plan of Phokwane
r-~ Phokwane Municipality\ {
r-----#- ..~. ~1 \\_
~. \ \.
I~ Legend
r ;~ o m1jortown, 'Z -;,_"_-,..r~=--~~~~
-__ ..-..._ o _n
'\ ,/ __ main road~.;-~-.:-.=-~-=---~-=". ---+- railway.
~ -
r~Nt<SDRlf BON""PARKo /~-'-,~ -
_,// -_"-_'__-HH-._____M,._.,'__~_ ,.""''''/ __..._. ....,__
_-_..._...._,.....-_... -
~ .... _d __ "_
/. - w-+,, o %5 5
_/'./ tIJomEIc'S
//r-.:/
,~- c_.._....,._O...•_•I•ft ' .... _ 0"__.l ~
="!.-;~-=~ ~...;~
~
Magareng ~,.. -::_.'-.'..-.~ ":.:00..~... .-.._· ..
65
4.2.1Population of Phokwane Municipality
According to the IDP Review 2010/2011 Planning 2011/2012 the population
estimate of the area is around 62671 people, with Jan Kempdorp having a highest
population followed by Pampierstad. Refer to table 1 below
Table 1: Population of Phokwane Local Municipality
Area Population Households
Jan Kempdorp 22497 4999
Hartswater 5098 1132
Pampierstad 18600 4133
Farming Areas 16476 3661
Source: Phokwane IDP Review 2010/2011Planning 2011/2012
4.3. Institutional Overview
According MSA the council of a municipality has the duty to encourage the public
participation and must ensure that service provision is done in a financially and
environmentally sustainable manner. The Act also states that "the council of the
municipality has the duty to consult the community about the level, quality, range
and impact of municipal services and the available options for service delivery".
The Act section 6(2)further states that the municipality's administration must:
(a) "be responsive to the needs of the local community;
(b) facilitate a culture of public service and accountability amongst staff
(c) take measures to prevent corruption;
66
(d) establish clear relationships, and facilitate co-operation and communication between it anti
the local communirf;
(e) give members of the local communiiq full and accurate information about the level and
standard of municipal services they are entitled to receive; and
(j) inform the local communiiq how the municipalitu is managed, of the costs involved and the
persons in charge".
It is against this background that the institutional overview of the municipality is of
importance in the study. The institutional overview is going to be discussed in order
to assess whether is aligned with the legislative framework.
4.3.1Political Office
In Phokwane Local Municipality there are two full time political office bearers i.e the
Mayor and the Speaker. Their function is to ensure effective council functioning as
well as effective committee system. There are nine (9) proportionally elected
councillors and nine (9)ward councillors.
4.3.1.1Sub- Committees of Council
Phokwane Local Municipality has established sub committees for purpose of
efficiency and effectiveness. The committees have delegated powers of deliberating
on matters related to the function of that committee and to make proper decision or
recommendations to either the Executive Committee (EXCO) or Council. The
Municipality falls within Section 9 of the Municipal Structures Act hence it has an
EXCO. The council committees are as follows:
../ Social and Community Sub-Committee - Deals with social and community
issues.
../ Technical Sub-Committee - Deals with infrastructure projects, operation and
maintenance of council properties, etc.
../ Finance Sub-Committee - Deals with financial matters.
67
../ Corporate Services and Development Planning - Deals with local economic
development issues, IDP, assists in policy formulation related to
administration and other human resource matters.
Various community individuals or group may be referred to these committees for
presentations as they assist Council to make proper decisions. (Phokwane IDP
Review 2010/2011 Planning 2011/2012)
4.3.2.Administrative structure
The municipal administration is governed by the democratic values and principles
embodied in section 195(1) of the Constitution. The administrative centre for
Phokwane Municipality is based in Hartswater with service points at Pampierstad,
Jan Kempdorp and Ganspan. There are presently four departments and two
operational units, with the Office of the Municipal Manager as the Administrative
Head.
4.4.Community Participation Processes
As part of the compliance with the provision of the constitution chapter 7, section
152(1) (e) which states "local government must encourage the involvement of
communities and community organizations in the matter of local government" the
municipality is employing a range of mechanisms to communicate and involve its
residents, with varying levels of success.
The Phokwane Local Municipality is committed to development and the upliftment
of all the residents within its demarcated area of jurisdiction through
implementation of the Integrated Development Planning process locally. Public
input and participation during the process is vital to ensure that development efforts
68
address real needs and is supported and implemented by local community.
Integrated Development Plan Review 2010/11 and Planning 2011/12: 46).
Though some structures for community participation are open to all members of the
community for the purpose of better- structured coordination it is important to
ensure formal representation of the community. (Phokwane IDP 2016/17: 17)
According to the IDP 2010/11 and planning 2011/12:46, the description below is the
mechanisms the municipality has established and currently using.
4.4.1.Mechanisms of Community Participation in Phokwane Municipality
The Municipal System Act, 32 of 2000,chapter 4, Section 17 (3)(2)states that "when
establishing mechanisms, processes and procedures the municipality must take into
account the special needs of the people who cannot read and write, people with
disability, women and other disadvantaged." In order to encourage good
relationship between the municipality and communities in its area of jurisdiction,
the municipality has created mechanisms to allow community engagement. Such
methods were created in order to ensure that there is on-going communication,
debates, engagements and participation between the municipality and its
community.
4.4.1.1.Council Meetings
Council meetings are held quarterly and all members of the community are welcome
to observe the proceedings of the meetings. The municipality makes community
members aware that they are welcome in meetings by widely publishing their
meetings. However, the municipal council exclude the community or media when
deemed necessary given the nature of business being deliberated or discussed. But
there are certain matters that members of the public are not excluded as per
Municipal System Act, Chapter 4, and Section 20 (2) read in conjunction with Section
31 of Municipal Structures Act of 1998.The latter matters are as follows:
69
./ A draft by-law is tabled in the council
./ the budget tabled in council
./ Municipal draft integrated development plan, or any amendment of the plan is
tabled in council
./ The municipality draft performance management system or amendments
The decision to enter into a service delivery agreement Furthermore a municipal
council may establish one or more committees to ensure effectiveness and efficiency
in performing its function. These committee functions and its delegated powers
must be clearly determined. Council may authorise a committee to eo-opt advisory
members who are not members of the council within limits determined by council
(Municipal Structure Act 117,of 1998,Section 79)
The Municipal Structures Act Section 72 (2) states the object of a ward committee as
to enhance participatory democracy in local government. According to the IDP
2010/11 and planning 2011/12:47, ward committees are expected to be in the
forefront, therefore ward committee meetings should be held regularly and it should
be ensured that relevant issues are discussed in these meetings. The minutes, agenda
and attendance register of all the meetings held are submitted to Office of the
Speaker for filing purposes and submission to council.
4.4.1.2. Ward Committee Meetings
The ward committee coordinator (who was not part of the initial group of
respondents) indicated during the telephonic interview that the Municipality has 89
Ward Committee Members. The members meet on 15th of every month to compile a
report of each the ward. The councillor for the ward and the secretary submit the
report, minutes of the meeting and attendance register to the speaker by the 20th of
every month. The summary of the report and indicators for each ward are sent to
70
the Provincial Cooperative Governance, Human Settlement and Traditional Affairs
Department (COGHSTA).
Community meetings
Community meetings accommodate all members of community in that particular
ward allowing every voice to be heard. Such meetings are held only when there are
particular matters that need to be discussed. This gives more people in particular
women, youth and physically challenged people a chance to participate. (phokwane
IDP Review 2010/11 and Planning 2012/12: 47)
4.4.1.3Budget Participation Meetings
Budget participation meetings are used to present municipal programmes such as
IDP and Budget. This meeting is conducted annually according to budget process
plan. The purpose of having these meetings is to engage the community in the
budget and IDP and to enable alignment of IDP and Budget.
Through this programme in the third quarter the public is afforded an opportunity
to verbally comment on the draft IDP and budget. After the adoption of these
documents the public is informed of the municipal programmes for the year. Beyond
this, the public is also offered an opportunity to comment and raise issues on service
delivery in general. (phokwane IDP Review 2010/2011 and Planning 2011/2012)
4.4.2Integrated Development Planning Structures
There are two Integrated Development Planning Structures that are functional in the
Municipality, namely the IDP Steering committee and the IDP Representative Forum
(this includes Ward representatives' forums)
71
4.4.2.1IDP Steering Committee
The Steering Committee is a technical working team consisting of Departmental
Heads within the municipality. These individuals are involved in preparing
technical reports and formulation of recommendations and to prepare certain
documents.
This committee is chaired by the Mayor, and in his absence, the Municipal Manager.
The following officials serve in the steering committee: Municipal Manager, Director
Corporate Service and Development Planning, Director Finance, Director Technical
Services, Manager Jan Kempdorp/Ganspan Unit and Manager
Hartswater/Pampierstad Unit.
The steering committee also includes the Mayor, Speaker and the Chairpersons of
Sub-Committees
Responsibilities of IDP Steering Committee
The responsibilities of the IDP steering committee in the municipality are as follows:
./ Assess the implementation of the IDP
./ Report to Council on the implementation on a quarterly basis
./ Follow-up on departments commitments
./ Solicit funding from government departments and agencies
./ Conduct bilateral with sector department on current and future needs
./ Meet by- monthly to assess IDP
./ Consolidate stakeholders inputs
72
4.4.2.2IDP Representatives Forum meetings
To give way to formal representation of the community in the process of compiling
and reviewing the Integrated Development Plan, an IDP Representative Forum has
been established and is functional. These meetings are taking place quarterly with
varying levels of attendance. The forum comprises different participants
(stakeholders) and assigned municipal officials. Representation on the Forum is
attained by respective structures by means of nomination on an annual basis. (IDP
Review 2010/2011 Planning 2011/2012:46-68)
4.5.Phokwane SWOT Analyses
A SWOT Analysis is a useful technique for understanding an organisation's
Strengths and Weaknesses, and for identifying both the Opportunities open to it and
the Threats it faces. (Mindtools: Online)
Phokwane area, in particular Hartswater is a focal point of business activity for
neighbouring towns. It has high order commercial functions on which adjacent
Taung and Magareng depend. The commercial centre is therefore growing
continually. Vaalharts area has a well-established agricultural centre. This is
strengthened by well-functioning Vaal Harts irrigation scheme. Phokwane
municipality is experiencing high level of unemployment which is associated with
poor revenue base. Despite having a successful agricultural sector, over reliance on it
could constitute a threat. The municipality must therefore diversify its economy. It
must take advantage of the threshold population from adjacent towns. The
community satisfaction level is low because of lack of services. This presents a
serious threat of possible protest actions. SeeTable 2 below.
73
Table 2: Swot analysis
Strengths Weakness
yl' Vaal harts Irrigation Scheme yl' Low revenue base
yl' Established Commercial Centre yl' High unemployment rate
yl' Stable political environment yl' Lack of resources to support LED
Infrastructure Development yl' Lack of integrated initiatives by
government
yl' Lack of organized structure by local
government
yl' Billing system i.e. late account, details
of account holder
Opportunities Threats
yl' Growagri-tourism yl' Reliance on agricultural sector
yl' Implementation of Property yl' Likelihood by farmers not to comply
Rates Acts with Property Rates Acts
yl' Diversify local economy yl' Bulk infrastructure capacity for growth
yl' Integrated actions by yl' Proper maintenance of current
government can yield maximum infrastructure
impact yl' Lack of basic services versus
yl' Further development of Community satisfaction level
commercial centre yl' Non-payment of services by those who
can afford to pay
yl' Unstable land reform projects
impacting on food security
Source: IDP Review 2010/2011 and Planning 2011/2012
74
4.6. Socio-Economic Overview
This section covers the educational level, economic sectors, transport, water and
sanitation, electricity, health facilities and waste management of the municipality.
The socio-economic status of the community cannot be isolated from the IDP. Access
to minimum supplies of safe water and basic sanitation is a legal entitlement. Access
to water and sanitation as a right gives a mandate to government officials to promote
access to water and sanitation for all.
The community's level of education has a direct bearing on the perception of the IDP
as well as the quality of public participation. It is also important to look at the level
of economic growth. Economic growth is related to the creation of job opportunities.
There is a positive relationship between an employed population and generation of
revenue. An employed community is able to pay for services and the municipality is
then enabled to improve on service delivery.
Transport is an important component of the economy impacting on the development
and welfare of people. The accessibility of Phokwane enhances its status as an
agricultural hub. The road and transport links provide economic and social
opportunities. It creates better accessibility to markets, employment as well as
investment.
4. 6.1.Education
Education is often a means to expand the range of career options a person may
choose from and has a direct influence on a person's income and ability to meet basic
needs. It is thus an important indicator of human development.
75
Table 3 - Adult Education Levels, 2010
Level of Education Phokwane Local Municipality
No Schooling 17.7%
Some Primary 31.0%
Grade 7/ Complete Primary 7.1%
Some Secondary 27.6%
Grade 12/ Complete Secondary 9.9%
Higher 6.7%
Source: Quantec Research, Standardised Regional Data, 2011
As shown in the Table 3 above about 31,0% of the adults have primary education in
Phokwane LM. Only 16.6% of adults in Phokwane have completed Grade 12 while
6.7% have obtained a tertiary qualification.
Table 4 - Economic Production in Frances Baard DM (constant 2000 prices), 2009
Area Percentage of DM Total
Sol Plaatje LM 77.8%
Dikgatlong LM 9.5%
Magareng LM 3.7%
Phokwane LM 8.4%
Diamond Fields 0.6%
Frances Baard DM 100.0%
Source: Quantec Research, Standardised Regional Data, 2011
As shown in table 4 above Sol Plaatje was the largest local economy within Frances
Baard DM; contributing 77.8% to the District's total Gross Domestic Production
(GDPR)in 2009
76
Figure 2: Economic Growth-Comparing Phokwane municipality with other Local
Municipalities in the District
8.0% ~----------------------------------------------------
7.0% +-----~~--------------------------------------------
6.0% +-----~~~------------------------------------------
5.0% +- -f"""l:-=~~----------------------------------------=<>=Sol Plaatjie
4.0% l==~~=~S~;:~~~~;~~~~~~~~~[==~Dikgatlong
3.0%
2.0% -==tr=Magareng
1.0% =X= Phokwane
0.0% +-----------_.-------------r----~~~--~----------_.
-1.0% +-__---'........_. ~ ....'._.._. ~FBDM""'"""'IoLL_ ___'''''''''''=_' ..............-----
-2.0% ...1...- __
Source: IHS Global Insight Regional eXplorer version 474
In Dikgatlong there has been a moderate slow in the municipal economies while the
economic growth rate for Phokwane has also been somewhat erratic. A slowdown
in the economy may result in high unemployment rate.
4.6.2Economic Sectors
The municipality's main economic sector is agriculture, supporting mostly seasonal
employment, which results in impoverished communities. There is a high rate of
unemployment. The average monthly income per family is estimated at R2 950 per
month. 77% of the population lives under the minimum living level (MLL)while
17% of the population is permanently unemployed. Seasonal unemployment is
estimated as high as 43,7% certain periods of the year.
The economic profile of an area is calculated as a function of the Gross Value Added
(GVA)- it is the value of an industry's production, calculated as the gross output of
goods and services produced, less the value of intermediate inputs required to
produce them. It differs from gross domestic product because it is measured before
net taxes on products that are added to the value industry gross output. Gross value
77
added enables comparisons between industries free of the effects of production taxes
and subsidies on the price of industry outputs. (phokwane SDF2008:11)
4.6.3 Road and Transport
In terms of the mobility of goods and people, the area is accessible from the N18 and
R708. Therefore the area is linked with medium sized centres like Vryburg,
Klerksdorp and Kimberley. See the district map below. Local movement is possible
along the Hartswater-Pampierstad road and Jan Kempdorp-Ganspan roads.
The area is serviced by buses operating on national routes, linking Phokwane with
the rest of the Northern Cape and North West Provinces. Phumatra Bus Service and
the local taxi organization serve the communities of Phokwane municipality. The
Hartswater and Pampierstad Taxi Ranks operate on a regional basis. The SDF for
PLM indicates that new and upgraded taxi ranks are planned within this local
municipality (LM).These planned taxi ranks will also be upgraded to include clean
and safe ablution and telecommunication services.
Phokwane to a large extent is characterized as an agricultural hub. Due to forced
removals and natural migration, farm workers no longer reside on farms, which
results in a major commute between the residential areas in Ganspan, Valspan and
Pampierstad to the agricultural zone along the Vaal River on a daily basis. People
either walk to work or farmers collect workers at strategic locations. (phokwane SDF
2008:13)
The major north/ south corridor, the R49passes through Jan Kempdorp and Taung,
to reach Vryburg, further north. The R370touches the local municipality in the south
where it connects to Jan Kempdorp from the west. The R708runs in the south of this
local municipality connecting Jan Kempdorp and Christiana. (phokwane SDF 2008:
13)
78
Figure 2: Frances Baard District Municipality Map
~ .: \"'"-;''. -.
•••"•a•~n...c.-e S,, B aa,,: d);'," <.., ~'~..=:~I, .~
~~), 'J' ., r-
',,~-~ ".-J--o~-~_~ ~~ "R,,. - ..:.4_,.'.h_:)';~. '~'"", ';. I .-" ~'~~tl)-,. .-' -\._ ~,-I
" ',,- / ~
----- ~''\I / 1~""
Pix ley
Frances Baard District t.1unicipality N
Legend
Roads
ID Towns c:::::::I National Á
ID _~=:m -ArterialDistrict Municipalities o 5 10 20 30 40 50_Main
[::=J Local Municipalities ~Unk Kilometers
79
Table 5: Transport mode (Census 2001)
~. .: . I""; , " " . ~.,,--.~'-,:,-,':.--" ,',',, :-. -:: ~ ... '"\'-'.",','~"':'",\':""'~~./~,,("'t~c;.~", j, '.. • :. ~ - ~ / J' - ~':t' • .' t
On foot 31.98% 28.19% 35.80%
Bybicycle 0.79% 1.18% 0.92%
Bymotorcycle 0.15% 0.17% 0.17%
Bycar as a driver 4.30% 5.42% 3.94%
By car as a 4.19% 5.10% 3.51%
passenger
Byminibus / taxi 3.28% 5.91% 2.91%
Bybus 2.91% 2.28% 3.92%
ByTrain 0.09% 0.12% 0.14%
Transport: Other 0.80% 0.44% 0.25%
Transport: not 51.52% 51.18% 48.44%
Applicable
TOTAL 100% 100% 100%
Source: FBDMEMF 2010
Table 5 indicates that the main mode of transport used in this local municipality is
by foot (35.80%) and secondly by car (7.45%) and thirdly by bus (3.92). The above
might have a huge implication is this sparsely populated area.
97
l
It is important to note that within this local municipality the people sometimes have
limited capacity to travel long distances between destinations and therefore will the
improvement of public transport have positive impact on the people and local
economy of the region. (FBDM2010:181)
4.6.4Water and Sanitation
Water sources for the PLM are mainly taken from the Vaal or Harts Rivers.
Hartswater does direct extraction from the river bed via a canal (with the extracted
water from the Vaal) that runs from Warrenton to Hartswater for this purpose. Jan
Kempdorp is also supplied with water from the Vaal. Pampierstad is supplied from
the Harts River. Ground water usage for human consumption is very limited. Small
areas of Ganspan and Magogong use boreholes as the main source of supply.
Table 6 below indicates that 74.1% of households within this local municipality have
access to piped water within their dwellings (44.9%)or yards (29.2%).
According to the Community Survey 2007,65.5%of the households within this local
municipality have access to flush toilets which are connected to a municipal sewage
system, whereas 13.7% is still dependent on pit latrine facilities. A reason for this
high percentage being dependent on pit latrine facilities can be the low number of
urban nodes within this local municipality due to it mostly consisting of farming
communities.
81
Table 6! Percentage distribution of households by type of water source
(Community Survey 2007)
"':',.'~" " -j-<\ ' • ' ", "d'-"""_
~~~
Piped water
inside the dwelling 55.3% 44.9%
inside the yard 30.4% 29.2%
from access point outside the 10.2% 16.6%
yard
Borehole 2% 7.3%
Spring 0% 0%
Dam/pool 0.3% 0.8%
River/ stream 0.3% 0%
Water vendor 0.7% 0.2%
Rainwater tank 0.2% 0.1%
Other 0.6% 0.8%
Total 100% 100%
Source: FBDMEMF 2010
82
4.6.5Electricity
Use of electricity for lighting within this local municipality had increased by 2.5%
between 2001 and 2007, to 77.2% according to the Community Survey 2007.
However, according to the survey 22.6% of the community is still dependent on gas,
paraffin and candles for energy for cooking and lighting.
Table 7: Percentage distribution of households-energy/ fuel used for cooking
(Community Survey (CS) 2007and Census 2001)
Cooking Energy CS 2007 Census 2001
Electricity 71.1% 61.2%
gas 2.9% 2.5%
Paraffin 15.2% 20.4%
Wood 10.7% 14.3%
Coal 0% 0.3%
Animal dung 0% 0.6%
Solar 0.1% 0.4%
Other 0.1% 0.3%
Total 100% 100%
Source: FBDMEMF 2010
Table 7 above indicates the number of households by type of fuel used for cooking
increased from 61.2% (Census 2001) to 71.1% (Community Survey 2007) for
electricity users. This 9.9% increase in electricity use has resulted in a decrease of the
number of households being dependent on wood and paraffin for cooking.
According to the Community Survey 2007 there are no persons within this
municipality still reliant on coal or animal dung as fuel for cooking.(FBDM 2010:
184)
83
4.6.6Waste management and Recycling
In order to make urban environment habitable and enhance the quality of life as well
as health, managing waste is critical role that the municipality should play. The local
authority performs the role of waste management and recycling. There is an
increased effort by the municipality to remove refuse as depicted on table 8
below. There was a considerable increase of 13.3% in weekly refuse removal by the
local authority between the period 2001 and 2007. The Community Survey of 2007
indicates that 34.3%of the population still depends on private dumps.
Table 8: Percentage distribution of households by type of refuse disposal
(Community survey 2007 and Census 2001)
,
T. , , ,'" <w"":;'-;"""I<>"'Y'I(" ,,' ,c.-'.(.~'"l.~~. I~~~*::II~• ' , ,'" Ii;} I \ /. ):' ';"!tI·'t",, '"", .': ·.~I".··,-,~.'~II'":\r'-t ~' . , /) ,\JI:?ij~":~J'~:-::i
.Jf ~~~:_ . ~"'~ "i ""t~'e\:1;:~.ii~&ili ''',.,;.,\<k:!.\\i.fii~;~
Removed by local authority at 58.8% 40%
least once a week
Removed by local authority less 0.8% 6.3%
often
Communal refuse dump 2% 10.2%
Own refuse dump 34.3% 35.4%
No rubbish disposal 4.2% 8.2%
Not applicable 0% 0%
Total 100% 100%
Source: FBDMEMF2010
Table 8 above indicates that there is 13.3%increase in refuse being removed weekly
by the local authority between the period 2001 and 2007. According to the
Community Survey 2007 still 34.3% of the population depending on private refuse
dumps.
84
There are three refuse sites located at each of the main centres in the municipality;
Hartswater, Pampierstad and Jan Kempdorp. These refuse sites are merely dump
sites and do not have permit. The Hartswater landfill is not ideally situated since it
is in very close proximity to residential areas. This facility is approximately three
hectares in extent. Feasibility investigations are currently being conducted for the
location of a new landfill site for Hartswater.
The Jan Kempdorp landfill site is the largest land fill of Phokwane local municipality
and is approximately five hectares in extent. No management is being practiced on
this site and burning of waste is a frequent occurrence due to waste not being
covered. Licensed landfill sites are therefore still a shortcoming for the local
municipality and licensing should be prioritized.
Residential areas are serviced by municipal collectors. Hazardous waste is collected
only from hospitals by the Health Collector. The local municipality has waste
services equipment but in poor condition. According to the Department of
Environment and Nature Conservation (DENC), illegal dumping in the DM is
widely practiced and waste management in general is badly managed. (FBDM2010:
185)
4.7 Priority Issues and Projects for 2006-2011
For the IDP to be prepared the community members together with the municipality
have to identify and confirm priority issues and projects. According annexure 5 and
6, the financial year 2006-2007concentrates on basic services and there is a little shift
in the services. Prioritasation of LED in the financial year 2007-2008 could be
construed as the need to attract business. However; there is a focus on basic services
for the purpose of job creation. There is a major shift in prioritisation from 2009-2011
to prioritisation of maintenance of infrastructure, community participation and
education that is clear sign that the need for basic services has been met.
Infrastructure has been provided and it has to be maintained. Prioritasation of water
85
and roads from financial year 2010-2011might have been the results of new
emerging human settlements.
86
CHAPTER 5: FINDINGS
5.1 Introduction
The aim of this research was to determine community perceptions of the IDP as an
effective service delivery tool. This chapter focuses on the findings of the research.
In order to finally arrive at these findings the following processes were undertaken.
All relevant stakeholders were identified so that they could respond to the
questionnaires prepared for this purpose. These stakeholders, in their respective
capacities have a definite role to play in the preparation and implementation of the
IDP. It is on this premise that they were selected.
The questionnaires that were distributed were structured in order to address the
topic of this research. Questions sought to determine the community perceptions of
IDP and level of community development. The same questionnaires were also used
when conducting the telephonic interviews. Recommendations are made based on
the responses to the questionnaires.
The target groups are as follows:
..I Community groups
..I Councillors
..I Officials
..I Communities from old and new informal settlements
87
Table 9: Inter-Group Summary
THEMES COUNCILLORS OFFICIALS COMMUNITY COMMUNITY
ORGANISATION MEMBERS
IDP Knowledge A toolj vehicle for Know IDP, but Majority does not Platform for
service delivery they have knowlDP public
perception that participation
IDP belongs to a
certain
department
Inter-group Involved Involved Not Involved Involved, but not
involvement all of them
Inter-group 60% understand, Majority of the No understanding Most
perception whereas 40% do community do communities are
towards not not understand unfamiliar with
community the concept of the IDP
understanding of IDP
IDP
Communication Effective Effective Not healthy Effective
communication communication communication communication
Budget Process Involved Involved Not Involved Not Involved
Needs and Not fully Addressed but Not addressed Not addressed
Priorities addressed due to not all of them
budget constraints (budget
constraints)
Level of Service Not satisfactory, Satisfactory, but Poor service delivery Poor service
Delivery huge backlogs in there is still delivery
some wards room for
improvement
Capacity of Limited capacity Limited capacity Limited capacity No capacity
municipal
officials
Report Back Inadequate report No report back Poor report back
back
Source: Field Survey 2012
88
For the purpose of addressing the respondents' understanding of IDP process, they
were asked to comment on their understanding of IDP and provide reasons for their
answers. Furthermore, respondents had to explain how IDP is prepared in their
municipalities in terms of process and responsibilities.
With regard to the question of the respondents' involvement in the IDP process, it
was required of them to indicate how they are involved. For example a community
member would confirm if they attend IDP meetings and also indicate their level of
participation.
As the IDP is an instrument for service delivery, it is of crucial importance to have
different stakeholders' opinion of it. All the respondents were required to express
their opinion of IDP as a service delivery tool and how successful it is.
This chapter is divided into three sections. The first section entails finding from the
FBDMIDPwhile specific findings related to specific group will constitute the second
section. The last section of this chapter entails general findings.
5.2.Findings from the Councillors (Political Perspectives)
Ten Municipal councillors (five old and five new) where contacted for this study.
The councillors selected are the members of the following political parties: ANC,
DA, AZAPO and COPE. All councillors contacted cooperated. Five of the selected
Councillors were asked to complete questionnaires, whereas the remaining five were
involved through telephonic interviews.
89
5.2.1.Knowledge regarding the IDP
The councillors that responded to the questionnaires have a considerable knowledge
and understanding of the Integrated Development Plan. According to the councillors
the IDP is supposed to be:
../ a tool or vehicle that takes services to the community
../ a process that is community driven i.e platform where community prioritise
their main needs, and
../ a Process that promotes different stakeholders working together
5.2.2.Involvement of different political organisation when preparing IDP
Graph l:Councillors involvement in the
Municipal Meetings
El Deeply involved -4
D Not deeeply involved-6
According to the survey six respondents indicated that they attend several
municipal meetings and are given a chance to comment, but their ideas are not
considered, whereas four respondents indicated that they are deeply involved in the
municipal meeting and their ideas are taken in to consideration. See graph 1 above
5.2.3Community understanding of IDP
The politicians are of the opinion that 60%community members understand the IDP.
This perspective emanates from the interest that community has shown by attending
meetings and contributing in the proceedings. The attendance, however, varies from
90
one ward to the other. One councillor declared that in one ward there could be an
attendance of 58 and the next meeting more than 200 community members.
However there is a little concern about how the community views IDP and the value
it attaches to it. Another concern expressed was that community members use IDP
meetings to complain about service delivery instead of outlining their needs.
5.2.4Municipal communication with the Community
The Constitution, various legislation and policies are providing mandate for good
local government and community participation. As shown in graph 2 below, at least
three respondents are of the view that municipality does not effectively
communicate with the community. They cite the loud hailing method as ineffective
and severely inadequate to invite people to the meetings. These respondents also
indicate that another thing that hinders effective communication between the
Municipality and community members is the feeling of insecurity by Municipal
Representatives when they are to convene meetings in different areas. The
respondents further indicated that the insecurity might have resulted from the
community unrests and violence.
Seven respondents indicated that there is effective communication between the
municipality and the communities. They further indicated that the municipality is
doing its best to communicate, even though there is huge problem of illiteracy in
some communities. The illiteracy negatively affects other forms of communication.
The municipal communication is done through meetings, local newspaper and radio
(Valtor Radio).
Graph 2:Communication
91
Graph 2: Communication
LJ Effective Communictaion-7
o No effective communication-3
5.2.5.Needs and Priories
According to the research findings eight of respondents feel that the municipality is
doing its best with regard to addressing community needs and priorities even
though there is an issue of budget constraints. It must be noted that for the IDP
Projects to be implemented sufficient budget must be available.
In contrast two respondents indicated that the municipality is not addressing
community needs and priorities because there are some areas that do not have water
and sanitation and these are basic needs of the community. Refer to graph 3 below
9 ,----------------------------------------------
8 +---
7 +---
6 +---
5 r.!l Adressing -8
4 +--- o Not adressing-2
3 +---
2+---
1 +---
0+---
Graph 3:Needs and prioritiesy
92
5.2.6.Level of Service Delivery
Graph 4: Level of services satisfaction
o Satisfied -2
o Not Satisfied-8
As shown in graph 3 above, eight respondents indicated that they are not really
satisfied with the level of service delivery because there is still a huge backlog of
services in many wards. '"''
Only a small number (2) of respondents indicated that they are satisfied with the
level of service delivery and they believe that there is still room for improvement.
5.3.Findings from the Community organisation representatives
Forty organisations were selected and engaged (i.e ten organisation representatives
per town and one settlement). The engagement was through questionnaires and
interviews. Thirty six organisations representatives responded whereas four did not
respond. Refer to graph 5 below.
93
Graph 5: Community organisation
respondents
o Responded -36
o Not responded-4
5.3.1 Understanding of IDP
While four of the respondents were unfamiliar with the IDP, the majority (32)of the
respondents indicated that they know of the IDP and they are involved with the
Municipality during the IDP processes. Those who know of the IDP defined it as
platform where communities are given a chance to submit the priorities and needs in
order to enhance service delivery.
5.3.2 Communication
As shown in graph 6 below, twenty seven respondents confirmed that the
Municipality effectively communicates with the community. This is done through
public meetings in which councillors from different portfolio committees address the
public. Ward committees also have meetings where the public voices their concerns.
Nine respondents indicated that the municipality does not effectively communicate
with the community, because little is known about the IDP and councillors only
address community to impose their ideas and decision that will suit their own
interests. The municipal officials do not practice" Batho pele" principles and people
94
are not informed about the projects and are not involved in decision making.
Respondents feel that the municipality only communicates or reports back
challenges encountered during the implementation of the IDP when there are
protests.
Graph 6: Municipal Communication
o Effective communucatio-27
o Non effective communication- 9
5.3.3 IDP as a service delivery tool
All respondents agree with the statement that IDP is an appropriate tool to address
service delivery, but their concern is that it is not well implemented.
5.3.4Community understanding of IDP Processes
In response to the questionnaires about community understanding of IDP processes
29 of respondents indicated that most community members are unfamiliar or don't
understand the IDP, whereas seven feel that those that understand the IDP,
understand it as platform where community members, various stakeholders and
municipality address community needs and find ways to address these provided
that there is budget allocated for each need.
95
Based on the above findings, it becomes clear that the purpose of public
participation (as discussed in chapter 2 and 3 of this research) is defeated by
councillors not taking real cognisance of the public views. The level of
understanding of the IDP is consistent with the views expressed by officials and in
contrast with the view of councillors. However the worrisome issue is lack of
understanding by the majority of respondents.
5.3.5.Capacity and proper skills
The research also attempted to find out how the community views municipal
officials in terms of capacity and skills. Of all the respondents 17 feel that the
municipality does not have capacity, because some officials are not qualified for their
positions. This was seen as the major source on incompletion of projects in the
Municipality. While 4 of respondents were unsure, 15 believe that municipal officials
have sufficient skills and capacity to implement and manage the project.
5.3.6.Community needs and priorities
The results indicated that 32% (12) of respondents feel that the municipality
addresses their needs and priorities, because the meetings are held with councillors
and ward committee members where the community members raise their concerns.
The municipality should ensure that different groups participate in the IDP process
for their voices to be heard. (DPLGIDPGuide Pack 2001:7)
The majority of respondents (24)feel that councillors make the decision on behalf of
the community and community are not consulted and their needs and priorities are
not addressed. See graph 7 below
96
Graph1: Needs and priorities
o Adressed-12
o Not Adressed-24
5.3.7. Report Back
The majority of respondents (22) indicated that there is poor service delivery,
whereas 14 are satisfied with the level of service delivery, but they indicated that
more can still be done. The councillors also expressed similar dissatisfaction with
regard to service delivery.
5.4 Findings from the old and new informal settlement
In an effort to find out community perception on Integrated Development Planning,
residents from two dissimilar informal settlements were included in the survey. The
difference between these informal settlement is that one is as recent as 2010
(Utlwanang) while the other has been in existence for more than ten years
(Masakeng). Masakeng is currently undergoing formalization. Questionnaires were
distributed randomly among inhabitants of these two settlements. Questionnaires
were administered to forty respondents and only two respondents did not co-
operate.
97
5.4.1.1Utlwanang informal settlement
The number (4) of those who have knowledge of the IDP is far less compared to
those who do not. In addition to that, this group has indicated that they have never
been involved in any IDP meeting or forum. This inevitably creates an indifference
towards the IDP as the research findings indicates.
The majority (90 %) of the Utlwanang inhabitants are of the opinion that as far as
addressing community needs, the IDP fails. Moreover since they are not involved in
the IDP they do not have a final say in what goes into the document.
According to most correspondents, there is no healthy communication channel with
the municipality. This, from a researcher's point of view could presumably lead to
people being uninformed about the IDP. Therefore, lack of community participation
could be attributed to inefficientcommunication.
The above might have been borne out of the fact that this is a relatively new informal
settlement. Utlwanang people believe that the Integrated Development Plan does
not address their needs and that they do not have a final say in it. Logically this
response is expected since many do not have an idea of what an IDP is and have
never participated in the forums.
5.4.1.2Masakeng informal Settlement
According to the responses to the questionnaires, a large number (32) of the
residents have never heard of the Integrated Development Plan. Only a few (6) do
know about it and have participated in IDP meetings. Despite all this, almost all
people are of the opinion that there is a clear communication with the municipality.
If there is clear communication with the municipality community should be well
98
informed about the IDP, unless the communication is done for compliances
purposes.
There is however an inexplicable incongruity in the responses. Despite the majority
of the community members not really having a distinct notion of the IDP, they
mostly believe that it addresses their needs. Yet, the community has in their
responses indicated that they have absolutely no say in what goes into the IDP
document.
Common in both groups is the feeling that the municipality must hold regular
meetings with the community in order to improve communication. All
correspondents suggest that the municipality must try to involve the community as
much as possible during IDP preparation and that they need to have a say in the
budget. See graph 8 below
18 ~------------------------------------------
16 -!-------.
14 +------1
12 -!-------.
10 +------ o Knowledge
8 +------1 o Lack of kownledge
6 +------1
4 +------1
2 +--~
o +-___L ~ ~ ___L ~ ~ __~
Masakeng Utlwanang
Graph 8: IDPKnowledge
99
5.5.Findings from officials (District and Local Municipality)
Ten questionnaires were distributed to the district and local municipality officials.
Out of ten, only two respondents did not fully cooperate
5.5.1. Understanding of Integrated Development Planning by the Municipal
Officials
All ( 8) respondents feel that the municipal officials have the wrong perception that
IDP belongs to a certain Department, whereas the IDP unit is mainly there to
facilitate, monitor and ensure that the Municipality does not deviate from the IDP
objectives in the implementation of projects and other core functions. Also, with
regards to the review of the IDP, officials tend to mislead communities by making
them believe there is space for new projects during the review. This is the main
reason why IDPs fail the five-year cycle review at the end of every term. There is too
much tampering with the document during the review process, which results in the
Municipality losing sight of its core strategy. In terms of MSA IDP is not a single
department's document, but requires participation from different stakeholders. The
above-mentioned perception can result in poor coordination and alignment of
strategies, plans and programmes within the municipality.
5.5.2 Relationship between the municipality and provincial government (Sector
Departments)
According to Lipietz (2008:152) the IDP acts as a mechanism to ensure the
integration of local government activities with other tiers of development planning
at provincial, national and international levels.
In terms of to MSA S (31), the MEe of local government in the province may
facilitate the coordination and alignment of the IDP of different municipalities with
the plans, strategies and programmes of national and provincial organs of state.
100
Respondents indicated that there is no synergy and cohesion in every aspect,
whether it is communication, co-operative governance or planning. Provinces view
themselves as superior structures to municipalities, and this causes friction when
they try to impose themselves on municipalities. On the other hand, municipalities
are more concerned about protecting their autonomy and become very resistant and
view every form of intervention by provinces as interference.
Based on the above perception one can safely say that the relationship between
spheres of government is not aligned with legislative requirements
5.5.3Improvement of IDP Process
The respondents felt that there is a need to ensure that those who participate in the
process, specifically the community members, are empowered. For as long as public
participation is done for compliance purposes only, the IDP process will continue to
be a futile exercise. People need to be empowered to understand the content,
interrogate the document, and raise questions and concerns. For now, community
members are passive participants who contribute very little in the IDP process.
If one considers the view of Buccus et al. (2008: 5) that the involvement and
engagement of ordinary people in the design, planning and evaluation of
development programmes, and plans at the local level should be an important part
of democratic practice in South Africa, then the IDP process as experienced by the
community is deeply flawed.
5.5.4Understanding of the IDI' by Community
Respondents indicated that majority of communities do not understand the concept
of the IDP well. Community members are more concerned about their problems
being addressed, and unfortunately the IDP is a five year plan. Community
members are more concerned with their day to day needs, and a strategic document
101
like the IDP is the last thing on their minds. This is also evident during the public
meetings where these sessions are used as platforms to raise service delivery related
issues. For them it is about my area, my ward, my house, and not about everyone
getting a fair share of what is available.
5.5.5 Main challenges the municipality is facing with regards to funding IDP
Projects
The biggest challenge is that project costs usually exceed what the Municipality is
able to afford. Other challenges include, but are not limited to grant dependency, an
inability to create revenue and limited capacity to manage and implement projects.
5.6 Summary of findings
The following is a summary of findings from all the representative groups that were
surveyed. These findings will guide recommendations made in the next chapter.
Important at this stage is the realization that the responses from different groups are
almost identical. This clearly indicates that many people in the research area have
almost similar experiences of the Integrated Development Plan. The findings are
aligned with the literature, legislation and policies discussed in chapters 2 and 3 of
the research. The literature emphasises aspects such as public participation, service
delivery and challenges faced by the municipalities.
All representative groups assert that their comments are never included in the final
IDP document. This implies that all public meetings, etc. are simply regarded as
compliance matters by the municipal officials who have already determined what
the contents of IDP should be. The communities are also of the view that the
councillors impose their own ideas that suit their interests. The above perceptions
differ with what white paper and the MSA say about the stakeholders' participation
in the IDP. In addition, these perceptions could be related to rung four (consultation)
of Arnstein (1969:219).Here the citizens' opinions are invited but there is no
102
assurance that that citizen concerns and ideas will be taken into account. This
restricting of the input of citizens means that participation remains just a window-
dressing ritual.
This is not in line with the MSASection 17 (2) that states that
/I (2) A municipality must establish appropriate mechanisms, processes and procedures to
enable the local community to participate in the affairs of the municipalirf, and provide for:
(a) the receipt, processing and consideration of petitions and complaints lodged
by members of the local communiiu;
(b) notification and public comment procedures, when appropriate:
(c) public meetings and hearings by the municipal council and other political structures and
political office bearers of the municipalitq, when appropriate;
(d) consultative sessions with tocalinj recognised communitq organisations and, where
appropriate, traditional authorities; and
(e) report-back to the local communitu".
According to the White Paper on local government s (b) (3.3),"municipalities should
develop strategies and mechanisms to continuously engage with citizens, business
and community groups".
The major concern is that, if community proposals and priorities that are made
during IDP meetings are not included in the final document, then municipal officials
lack integrity. As people who are driving the process they must ensure that all the
information is captured.
While there is generally little or no understanding of IDP, this differs from one area
to the other. In some communities around Phokwane Municipality there are a
number of people who have some knowledge of IDP and have participated in it. In
other areas many people have not the slightest idea about the IDP. In addition,
attendance of IDP ward meetings differs from one area to the other. The responses
from politicians indicate their questioning why in one area few people turn up and
in others areas multitudes attend the meetings.
103
5.6.1Municipal communication towards community
Communication ensures everyone gets informed. It has emerged from this study
that the means of communication are ineffective. Various suggestions are made in
the next chapter to improve communication. Illiteracy has also been identified as one
the hindrances to effective communication as illiterate people are incapable of
reading the IDP and other municipal documents.
5.6.2Security concerns by municipal officials
In the light of increasing protests the municipal officials feel unsafe attending and
conducting community meetings. Some community members are deliberately
destructive and their constant "grievance approach" in IDP meetings has the
tendency of rattling and unsettling municipal officials. This will negatively affect
public participation.
5.6.3Consultation
Respondents have indicated that there is insufficient consultation between the
communities and the political representatives which defeats an important aspect of
public participation. Some councillors were accused of not reporting back to the
community and community members feel that they could not reach Municipal
official and ward councillors involved in preparing the IDP). Most councillors were,
however, of the view that there is sufficient consultation, whereas community does
not believe so.
5.6.4Working relationship between municipality and sector departments
There is poor interaction between the municipalities preparing the IDP and also the
sector departments within the district and local municipalities. This kept coming
over and over again during interviews with the officials. Itwas indicated that some
104
sector department representatives do not attend meetings when invited; as a result
plans for the municipality and sector departments are not aligned .This is the
problem that is not unique to Phokwane municipality.
5.6.5Conclusion
The literature on IDP is clear as to what is expected of the municipality. All related
legislation has touched on the purpose of and the process of preparing the IDP.
Phokwane local municipality IDP processes are drawn from all relevant legislation
and comply in principle as indicted in Chapter 4 that discussed the mechanisms that
are followed in the municipality during the preparation of the IDP. These
mechanisms are aligned to the legislation and ensure that all relevant stakeholders
are involved.
The research findings have, however, shown that what happens on the ground is not
exactly as policy intended. The people are not adequately informed and the level of
public participation is also not satisfactory. This raises a serious question of the
credibility of the IDP.
105
CHAPTER 6: CONCLUSION AND RECOMMENDATIONS
INTRODUCTION
The following recommendations are derived from the deductions made from the
preceding chapters. Reponses to the questionnaires were almost uniform; therefore it
rendered the task of making recommendations much easier.
During each IDP review of Phokwane Local Municipality the council must ensure
that there is enough consultation and discussions with the community about issues
such as:
./ Level, quality, range and impact of municipal services
./ Available options for service delivery
./ Equitable access to municipal services
In addition the municipality must be responsive to the needs of local community
and facilitate the culture of public service delivery and accountability among staff.
Public input and participation during IDP process is vital to ensure development
efforts address real needs and are both supported and implemented by local
community. Thus, in respect of community participation the Council must move
from tokenism to a greater degree partnership and citizen power. (Arnstein 1969:
217)
RECOMMENDATIONS
6. 1. Educate the community about IDP
The community should know how the IDP affects the quality of their lives. The
more they know about the IDP and how their involvement ensures that their needs
are met, the more they would be encouraged to participate. Educating the
community can be done through training programmes. The training programmes
106
can be used as the building blocks to facilitate interaction between municipal
officials and community members in order to improve service delivery and the lives
of poor communities. Their involvement will help them know more about their role
in IDP preparations and the link between IDP and budget.
When undertaking community capacity building, local governments will need to
focus on building the If skills, knowledge, experience, leadership and managerial
capabilities" of citizens, community groups and public officials to participate in local
governance processes (Cornwall and Gaventa 2000cited in Cuthill 2005:76)
In future, developmental local government must play a central role in representing
our communities, protecting our human rights and meeting our basic needs. Itmust
focus its efforts and resources on improving the quality of life of our communities,
especially those members and groups within communities that are most often
marginalised or excluded, such as women, disabled people and very poor people.
This is achievable through increasing involvement of these groups in ward
committees and the municipality.
6.2. Communication
The municipality must increase and consolidate communication channels. There
should be clear communication channels that target various groups within the
community. It is important for the public to be involved in participation processes
and for councillors and ward committees to engage different community members.
The municipality must develop a communication strategy that clearly identifies the
role of different stakeholders and channels of communication in order to address
issues like illiteracy.
107
6.3 Constant Feedback
According to RSA1998s (a (2.3),the lack of performance management systems and
poor internal communication results in ineffectiveness in service delivery. The
municipality must provide constant feedback to communities about the IDP
processes. During the annual IDP review meetings, report backs must be provided
about failures and successes on addressing community needs. The media can be
used to monitor the implementation of the IDP.
6.4. Public participation
Public participation in local government can play a very important role in creating
awareness, knowledge and understanding and in enhancing local knowledge
regarding local government issues. (Tsatsire 2008:180)
IDP participation mechanisms, as discussed in chapter 4 (ward committee meeting,
ward based representative forum meeting and Municipal wide IDP Representative
forum etc.), should not be coordinated and convened for compliance purposes only,
but should be used to actively engage the community in the IDP processes. This can
also be used to strengthen the relationship of the municipality and community.
Ward councillors should do preparatory work for the IDP process. Community
members need to know who makes decisions about what goes into the final IDP
document and what criteria are being used. Public participation should not be a
matter of compliance; communities should be considered equal partners in local
governance.
Community members need to be informed about both capital and operational
budgets. The tendency is that communities only monitor capital budgets intended
for projects. Informing them will enhance their understanding of developmental
government and increase their involvement. (Unpan1: online)
108
6.5Enabling Environment
An enabling environment needs to be created by the municipality for communities
to participate effectively in the IDP process without fear or favour. This kind of
environment could possibly address the growing perception that IDP consultations,
like many other participatory processes favour the voicing the most articulate and
organised concerns. Such an enabling environment can be achieved through regular
meetings where all stakeholders are encouraged to speak. The municipality must
make it clear that every contribution is valued.
6.6.Roles and Responsibility
There is need for the roles and responsibility of all stakeholders to be clearly defined.
These can be done through workshops and meetings. If all stakeholders know about
the roles and responsibility in the IDP, it will enhance quality of participation.
6.7.Take into cognizance priorities as identified by all stakeholders
There is need for the municipality to take into consideration the priorities of all
stakeholders as identified and confirmed during the IDP ward representatives
meetings and IDP Representative Forum meeting. In the event that the municipality
cannot address community priorities during the five year term of the IDP the
community must be informed of this and the reasons therefor. Communicating these
will alleviate any possible unrest caused by slow service delivery.
6.8.Work towards changing people's attitude towards IDP
The municipality and councillors should work closely with the community
members. They should also enhance Batho Pele principles, especially transparency
109
and access to information. A good working relationship will go a long way in
enhancing community perceptions and participation.
6.9.Hold regular meetings (consultations)
It is recommended that the municipality must hold regular community and ward
meetings, instead of having only the IDP meetings. This will help to strengthen the
relationship between the municipality and the community members. It will also
ensure transparency as the meetings can be used as the platform for the municipality
to report back, the community to express their grievances and the community
members to give recommendations on how amendments to the IDP can have
positive impact on their lives.
It must be noted that the Municipal Systems Act clearly states that residents
(community members) not only have the right to contribute to the municipality's
decision making but they also have the right to submit recommendations and
complaints to council and are entitled to responses on those issues without delay.
6.10A need for further research
Further studies about community perception of the IDP are necessary. It appears
that the developmental mandate stated in the constitution has not yet been
understood by all stakeholders. Therefore further and broader studies need to be
conducted in order to determine community perception of IDP and how to improve
this tool to benefit the people of South Africa.
CONCLUSION
The social unrest in various municipalities across the country points to community
dissatisfaction with the level of service delivery. The citizens are frustrated by the
poor quality of governance in these municipalities including a lack of
110
responsiveness, transparency and accountability by local government, poor
communication between local government and citizens, and absence of real
engagement by citizens in decision making at local and provincial level. (IDASA
Online) Part of the problem lies in the manner that the IDP is prepared and
implemented.
The developmental function of municipalities cannot be fully realized without a
credible and implementabie IDP document. It is a strategic document that outlines
how the municipality intends to make effective use of scarce resources, speed up
service delivery, overcome past imbalances, strengthen democracy and enhance
institutional transformation.
There are various stakeholders involved in the IDP process; preeminent among them
is the community that has a huge contribution to make in the preparation of the IDP;
hence the purpose of the research was to determine their perception of the IDP.
From this study it has transpired that there are still some sections of all the
communities in the study area whose understanding of the IDP in terms of their
roles and responsibilities is still limited. A concerted effort has to be made by the
municipality to improve understanding of IDP. An equally determined effort has to
be made by the communities to attend IDP meetings and contribute to the process.
The onus, however, is still with the municipality to ensure and expedite service
delivery which could have the effect of eliciting greater interest in the IDP from the
community.
The research also provided an answer to the question of community involvement. It
is clear that the involvement of the community in the IDP is definitely influenced by
their perception of the IDP and to some extent the levels of service delivery. A
community that feels that their contribution and participation are merely an
academic exercise would be reluctant to be part of the IDP process. The credibility of
the IDP could then be doubted.
111
From the findings of the research recommendations have been put forward that
require that the municipality take major steps in ensuring genuine public
participation. According to the (DPLGOnline) all residents have a responsibility to
be actively involved in municipal affairs. The IDP process offers residents including
organized stakeholder groups an opportunity to shape the development of the
towns and cities they live in.
The situation in local municipalities is not all doom and gloom. According to
Memela et al. (2008:10)South Africa's local government system is still in its final
stages of transition and is not yet operating at its required level of capacity, yet at the
same time it has to deal with backlogs in basic service delivery from the past.
While improving the quality and quantity of basic services should remain at the top
of the local government agenda, in reality over the next ten years most municipal
councils (especially the non-metropolitan ones) will not be able to fully eradicate the
backlog in basic services, which will continue to frustrate and disillusion citizens and
negatively affect the legitimacy of the municipality. To cope with this situation
effectively and prevent potential social unrest, it is imperative that municipalities
improve their governance and provide citizens with tools and resources to change
their own situation. (Memela et al. 2008:11).
The IDP is an important tool for any Municipality. What is required is for everyone
to improve their understanding of the IDP, and for everyone to realize that a credible
IDP is not produced by the IDP manager, but is produced by all those who
participate in the process. And if we can get the right people in the right positions,
from planning to implementation, then certainly there will be many improvements
in the way IDPs are being implemented.
112
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http://regenesys. co.za12010 I03I turnaround -strategy -implica tions- for-
municipalities I
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123
ANNEXURES
Annexure 1: Phokwane Municipality Old (Previous) Councillors
SURNAME NAME POSITIONjW ARD PARTY
Khen Vuyisile PR 1 (Mayor) ANC
Motshabi Seikgotlo Martha Ward 1 (Speaker) ANC
Modimogale Monnagaratwe Ward 2 (Chief Whip) ANC
Moeketsi Dieketseng Maria PR2 ANC
Arends Sarah PR3 ANC
Gaebee Reuben Ronnie PR4 ANC
Pitso Flora Ontsheketse Ward3 ANC
Paul Sebata Shadrack Ward4 ANC
Gill Mina Magdaleen Ward5 ANC
Mashorie Kerileng Daphney Ward6 ANC
Modiakgotla Horatius Moatlhodiemang Ward7 ANC
Adams Ellaine Lorraine Ward8 ANC
Mooketsi Stephen Ward9 ANC
Raadt Shadrack Monnapula PR AZAPO
Nel Petro Johan PR 1 DA
Visser Gert Jacobus PR2 DA
Lewis Sinah Ward 1 ID
Modise Boikanyo George Ward2 ID
124
Annexure 2: Phokwane Municipality Current Councillors
SURNAME NAME POSITION / WARD PARTY
~ - ~<
Khen Vuyisile PRl ANC
(Mayor)
Moeketsi Dieketseng PR2 ANC
(Speaker) Maria
Mona Pasna PR3 ANC
Mashorie Kerileng Daphney PR4 ANC
Moremong AOmphentse PRS ANC
Modiakgotla Horatius Moatlhodiemang Ward8 ANC
Pitso Flora Ontsheketse Ward3 ANC
Chakane Molifi Ward9 ANC
Riet Ishmael Ward 1 ANC
Meza Dibueng WardS ANC
Mojapele Mongale Freddy Ward2 ANC
Mokoena Andrew Sandy Ward4 ANC
Adams Crokette Johannes Shimane Ward7 ANC
Nel Petrojohan Ward6 DA
Meyer Dawie PR DA
Lewis Sinah PR DA
Motebe Gaopalelwe Morwa PR AZAPO
Nkomo Samuel PR COPE
125
Annexure 3: List of telephonically interviewed councillors
SURNAME NAME POSITION / WARD PARTY
Mona Pasna PR3 ANC
Nel Petro Johan Ward6 DA
Lewis Sinah PR ID/DA
Motebe Gaopalelwe Morwa PR AZAPO
Nkomo Samuel PR COPE
126
Annexure 4: Organisation representatives telephonically interviewed
Jan Kempdorp Organizations
ORGANISATION CONTACT PERSON
Anc youth league Vuyani Hemen
Sacc Patricia Tolo
Sanco Benedict Moleme
Siyadlala M.P.P Mpho Motshabi
Pampierstad Organisations
Community policing forum Kegomoditswe Serache
Safety volunteer Tsholofelo Molema
Greater pampierstad council of churches Gabriel Gaboutlwelwe
SMME
Child Welfare Oupa Africa
Hartswater Organizations
CDW Tebogo Seretse
Adolescent development programme Puleng Moleko
Ganspan Organizations
11.Nametsegang project Betty Keepile
127
12.Itekeng balimi project Fikile Gemba
128
Annexure 5: Priorities 2006-2011
2006-2007 2007-2008 2008-2009 2009-2010 2010-2011 2011-2012
Water and 1. LED 1. Water and 1. LED 1. Roads 1.Water
Sanitation Sanitation
2. Land 2. Land 2.Roads 2. 2. Skills 2. Storm water
Infrastructure Development
Maintenance Youth
3. Electricity 3. Water 3. Electricity 3. 3. Skills 3. Storm water
& Community Development
Sanitation Participation Youth
4. Roads and 4. 4. Housing 4. Education 4. Recreational 4. Rebuilding of
Storm water Housing Facilities irrigation
System
Ganspan
5. Health 5. Health 5. 5. Crime 5. Early 5. Housing
Services LEDjTourism prevention Childhood
Development
Centres -
6. Housing 6. 6. Health 6. Disaster 6. Health 6.Roads
I
Electricity Services management facilities
7. LED 7.Roads 7. Education 7. Housing 7. Land for farm 7. Multipurpose
dwellers Centre
8. Tourism 8. 8. Land 8. Electricity 8. Water and 8. Job Creation
Development Education sanitation
and Poverty
facilities
Source: Special IDP Steering Committee lFebruary: 2012
129
Annexure 6: 2006-2011Projects
Project Name Ward Status
Refurbishment of water 3&4 (Pampierstad) Complete
treatment plant
Water and sanitation Sakhile 1( Pampierstad) Water: complete
1450 Sanitation: In complete
Sewerage and water 2( Pampierstad) Complete
reticulation 219 erven
Water and sanitation 900 3&4 (Pampierstad)
phatsima
Bonita park 127water 5( Bonita Park) Complete
Construction of Bulk Sewer 1 (Pampierstad) Still in Progress
pipe line for 1450 sites in
Sakhile
Water reticulation 530 sites 8 (Ganspan) Complete
Provision of VIP Toilets 200 8 (Ganspan) Partially Done
Masakeng 840 Sites Sewer 7( Jan Kempdorp) In Progress
Reticulation
Upgrading of Water Waste Valspan In Progress
Works in Valspan
Upgrading of Bulk Water Ward Complete
Distribution
Source: Special IDP Steering Committee February: 2012
130
Housing Projects
PROJECT NAME WARD STATUS
219 Erven Housing Ward 2 (Pampierstad) Awaiting outcome of 24
Project G application from DEAT
Bonita PARK 127 Ward 5 (Bonita Park) Awaiting outcome of 24
Housing Project G application from DEAT
Valspan 600(1000) Jan Kempdorp Complete
Guldenskat 608 Ward 6 (Jankempdorp) Planning Stage
settlement planning
603 houses in Bonita park Ward 5( Bonita Park Complete
Source: Special IDP Steering Committee February: 2012
Roads Proj eet Proj ects
Proj eet Name Ward Status
Upgrading of Street and Ward 3&4(Pampierstad) Still in Progress
storm water: Phatsima
Access road for 500m Ward 5( Bonita Park) Complete
Masakeng access roads Ward 7( Jan kempdorp)
Source: Special IDP Steering Committee February: 2012
Electricity Projects
Project Name Ward Status
Electrification of 900 Ward 3&4( Pampierstad) Complete
Households
Electrification of 530 Ward 5( Ganspan) Complete
Households
Sakhile 1450Households Ward 1( pampierstad) In progress
Source: Special IDP Steering Committee February: 2012
131
Health services
Project Name Ward Status
Building of Community Ward 3 ( Pampierstad) Complete
Health Centre
Construction of a clinic Ward 5( Bonita Park) Complete
Source: Special IDP Steering Committee February: 2012
Education Project
Project Name Ward Status
Construction of new Ward 6 ( Hartswater) Complete
library
Source: Special IDP Steering Committee February: 2012
Environmental Projeet
Projeet Name Ward Status
Hartswater cemetery Ward 5 &6 (Bonita park
extension and Hartswater)
Hartswater new land fill Ward 6 (Hartswater) In progress
site
Source: Special IDP Steering Committee February: 2012
LED Projeets
Projeet Name Ward Status
Bonita park Olives Ward 6 ( Hartswater) Complete
Source: Special IDP Steering Committee February: 2012
132
Town Planning Proj eels
PROJECT NAME WARD STATUS
CBDRevitalization Ward 6 (Jankempdorp) Business plan completed
need to apply for Capital
Grant
South Eastern Ward 6 (Jankempdorp) Pending
Development
Guldenskat Township Ward 6(JanKempdorp) Awaiting Finalization of
Establishment EIA
Town Planning 539Sites Ward 8( Ganspan) Section 24G application
underway
Source: Special IDP Steering Committee February: 2012
133
Annexure 7: QUESTIONNAIRES
QUESTIONNAIRES FOR COMMUNITY ORGANISATION REPRESENTATIVE
NAME OF THE ORGANISATION:
1. How do you understand Integrate Development Planning?
2. How well are you involved by the municipality when preparing the IDP?
Not at All One, maybe two Several meetings Deeply involved
community and a chance to and our ideas
meetings comment are used
State the reason for your answer
3. How do you rank municipal accountability in the IDP Processes?
I Excellent I Good I Fair I POOI
State the reason for your answer
4. Do you think the municipality effectively communicates with the community?
I Yes INO
State the reason for your answer
5. Do you think there is a good working relationship between the Community and
the Municipality?
State the reason for your answer
6. IDP is an appropriate tool to address service delivery?
Strongly agree Agree Agree nor Disagree Strongly Disagree
disagree
State the reason for your answer
7. Do you think the concept of integrated development planning is well understood
by your community?
8. How do you think they understand Integrated Development Planning?
134
9. How do you think the IDP Process can be improved?
10. Do you think that the municipality has capacity and proper skills to implement
service delivery (IDPProjects)?
I Yes
State reason for you answer
11.Do you think the Municipal IDP address your Needs and Priorities?
State the reason for your answer
12. Does the municipality report back on the challenges they come across when they
are implementing the IDP?
13. Do you think the community has the final say on what goes in the final IDP
Document?
I Yes
State reason for your answer
14. How should the municipality keep community updated about the progress on
the IDP Projects?
1. Hold regular Meeting
2. Include progress report on the Daily
news paper
3. Send quarterly progress reports to
each residence with the rates and taxes
statement
4. Post progress report in public
building
5. Other
State reason for your answer
15.Are you satisfied with the level of service delivery?
I Yes
State reason for your answer
16.What do you think need to be improved with regard to the delivery of service?
135
17.What do you think need to be improved when preparing and reviewing the IDP?
18.What is your involvement in the Budget allocation process?
19. To what extent do you think the IDP is the appropriate vehicle to propel you
municipality in the desired future?
20. Any other comments on IDP
136
QUESTIONNAIRES TO OFFICIALS
Name of the Municipality: .
1. Name of the Respondent
2. Gender
3. Job Title of the respondent
4. Main Responsibilities of your position
5. Number of Years in the position
7. Do you think the concept of Integrated Development Planning is well understood
by the Municipal Staff? State the reason for your answer
8. How is the IDP prepared in your Municipality? i.e. The process and responsibility
9. Who do you involve in preparation and review on your municipal IDP and what
role do they play?
10. What about participation and accountability are they important aspects when
preparing and implementing IDP?
11. How do you rank municipal participation and accountability in IDP in your
respective Municipality?
I Excellent I Good I Fair I Poor
State reason for your answer
12. How would you describe the relationship between the municipality and
provincial government (Sector Department?)
I Excellent I Good I Poor
State reason for your answer
13. Do you think that the IDP is promoting or enabling service delivery?
I Yes
State reason for your answer
137
14.What measure do you make use of to ensure proper implementation of IDP?
15. Do you come across any challenges during the implementation of IDP?
I Yes
State reason for your answer
16. How do you think the IDP Process can be improved?
17. Do you think the concept of integrated development planning is well understood
by the community?
I~ I~
19.How do you think they understand Integrated Development Planning?
20. How is the IDP Projects Funded in your Municipality?
21. What are the main challenges the municipality is facing with regards to funding
IDP Projects
22. Do you think that the municipality has capacity and proper skills to implement
service delivery (IDP Projects)? State reason for you answer
23. Do you think your Municipal IDP is Credible and ImplementabIe? State reason
for you answer
24.Who do you or think should be involved during the planning of IDP Projects
25. How often to report back to the Community on the preparation and
implementation of the IDP Projects
25. Any other comments on IDP
138
QUESTIONNAIRES FOR COMMUNITY
NAME OF THE AREA YOU STAY:
1. Name of the Respondent
2. Gender
3. Age of the respondent
4. How long have you been the resident of the neighbourhood?
5.LevelofEducation
6. What is your occupation?
7. What is your Salary Income Bracket?
8. Do you know your Ward Council?
9. Have you ever had about integrated development plan?
10. How do you understand Integrate Development Planning?
11. How well are you involved by the municipality when preparing the IDP?
Not at All One, maybe two Several meetings Deeply involved
community and a chance to and our ideas
meetings comment are used
12. Do you have any concerns about the implementation of IDP projects?
13. Do you think the municipality effectively communicates with the community?
14. How should the municipality keep community updated about the progress on
the IDP projects?
1. Hold regular Meeting
2. Include progress report on the Daily
news paper
3. Send quarterly progress reports to
each residence with the rates and taxes
statement
4. Post progress report in public
building
5. Other
139
15. Do you think there is a good working relationship between the Community and
the Municipality?
16.How do you feel about the level of service delivery in your Municipality?
17. Do you think that the municipality has capacity and proper skills to implement
service delivery (IDPProjects)?
18.Do you think the Municipal IDP address your Needs and Priorities?
19. In the past five years would you say the level of service delivery has improved in
your municipality?
20. Do you think the community has the final say on what goes in the final IDP
Document?
21Are you satisfied with the level of service delivery?
22What do you think need to be improved with regard to the delivery of service?
23What do you think need to be improved when preparing and reviewing the IDP?
24What is your involvement in the Budget allocation process?
25. Any other comments on IDP
QUESTIONNAIRES TO THE COUNCILLORS
NAME OF THE POLITICAL ORGANISATION:
How many members do you have in your organisation .
1. Name of the Respondent .
2. Gender
3. Age of the respondent
4. How long have you been the resident of the neighbourhood?
5.LevelofEducation
6. How do you understand Integrate Development Planning?
7. How well are you involved by the municipality when preparing the IDP?
Not at All One, maybe two Several meetings Deeply involved
community and a chance to and our ideas
140
I meetings I comment I are used
8. How do you rank municipal accountability in the IDP Processes?
I Excellent IGood I Fair I Poor
9. Do you think the municipality effectively communicates with the community?
I Yes I No
10. Do you think there is a good working relationship between the Community and
the Municipality?
I Yes I No
11. IDP is an appropriate tool to address service delivery?
Strongly agree Agree Agree nor Disagree Strongly Disagree
disagree
12. Do you think the concept of integrated development planning is well understood
by your community?
13. How do you think they understand Integrated Development Planning?
14. How do you think the IDP Process can be improved?
15. Do you think that the municipality has capacity and proper skills to implement
service delivery (IDP Projects)?
16. Do you think the Municipal IDP address your Needs and Priorities?
17. Does the municipality report back on the challenges they come across when they
are implementing the IDP?
18. Do you think the community has the final say on what goes in the final IDP
Document?
19. How should the municipality keep community updated about the progress on
the IDP Projects?
20.Are you satisfied with the level of service delivery?
21.What do you think need to be improved with regard to the delivery of service?
22.What do you think need to be improved when preparing and reviewing the IDP?
23.What is your involvement in the Budget allocation process?
141
24. To what extent do you think the IDP is the appropriate vehicle to propel you
municipality in the desired future?
25. Any other comments on IDP
Thank you for completing the Questionnaire
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142 BI9UOTtEIt -LIBRARY i