K A N T O O R V A N D I E P R E M I E " *.*#«=•«;_if A * D
OFFICE OF THE PREMIER WESTERN CAPE I-OFISI YENKULUMBUSO. NTSHONA KOLONI
REFERENCE VERWYSING
•SlNGOINISlSO DATE DATUM UMHLA
Minister MV Moosa,
Minister of Constitutional Development Private Bag X802
PRETORIA
0001
Dear Colleague, PROVINCIAL VISIT
I refer to the letter 1/9/3 dated 15 September 1998 from your Private Secretary to my Private Secretary.
I regret that you have had to cancel your proposed visit to our Province. There are a number of matters which we had hoped to discuss with you, and I hope that you will be able to make your visit at a later date.
In the meantime, we have received a rather lengthy document from your Department, in which certain questions were posed.
Certain details in the document seem to be oudsted or otherv/ise somewhat inaccurate. The document appears to be based largely on the Ncholo Report and it is important that we piace that Report in the proper perspective. A delegation from the Department of Public Service and
Administration visited this Province to appraise itself of the state of our Administration. This delegation split into teams which then independently interviewed staff in the various provincial departments. Such individual interviews were net discussed with the Provincial Administration as sn entity, yet it formed the basis of the recommendations in the Nchclo Report. This Administration is not convinced that the team was sufficiently qulaified or exparienced to take an authoritative position on the issues that were raised. The report did not accurately reflect the state of our Administration at that time.
You may be aware that the Report and the manner in which it was compiled was criticized by all Provincial Administrations and that the original report was thereafter condensed into a general overview of the Provinces without any Province being named specifically. The Report and its recommendations were nevertheless addressed in the Western Cape presentation to the
Presidential Review Commission on 12 August 1997 and the Portfolio Committee on Public Service and Administration of the National Assembly on 17 march 1998. Copies of the presentations are forwarded herewith for easy reference.
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I would also urge your Department should avail itself of Dr Barnard's recent offer to Mr Titus to attend to matters of this kind in discussions between senior officials of your Department and my Administration.
With kind regards
^/PREMIER
* . .'
PRESENTATION
TO
12 SEPTEMBER 1997
PROVINCIAL ADMINISTRATION:
WESTERN CAPE
SUBMISSION TO PRESIDENTIAL REVIEW COMMISSION
12 SEPTEMBER 1997
Introduction
Honourable Chairperson and distinguished members of the Presidential Review Commission, it is indeed an honour and a privilege to be able to share with you the experiences and the progress that the Western Cape has made with Transformation. We believe we have achieved significant progress. We have primarily striven to ensure that effective service delivery to our people remains the paramount goal and have jealously guarded against any practices which may have compromised effective
service delivery. !
Chairperson, you would be aware that all Provinces were audited this year by the Provincial Task Team led by br Paseka Ncholo of the Department of Public Service and Administration. I t Is with a small degree jof satisfaction, that we have noted that the Western Cape has received a reasonably clean bill of health. The only adverse comment that the Province drew was with regard to its management style being perceived as being too centralised. That viewpoint, Chairperson, is debatable because the Western Cape firmly believes it is following the management style best suited to its particular needs at this stage of it's history. ; I need to emphasise one fact which will most probably be repeated many times inthe course of our presentation. The Provincial Administration:
Western Cape- receives a decreasing - budget allocation every year.
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Because we are serious in oar dealings with public funds we have had|to reprioritise and realign all Provincial activities from a financial viewpoint.
We were fortunate in that we could, with sound financial management, balance our books up to now. I t is however common knowledge that the Western Cape Legislature budgeted for a R247.1 m deficit this year.
Because of the financial constraints, we have had to be super cautiousj in our approach. I know we could have progressed so much further apd achieved so much more if more resources were available. Chairperson; I think one needs to appreciate that very different pressures are placed
on organisations which have increasing, pegged or decreasing budgets. I would contend that the latter category is the more difficult because of the challenge that we have accepted that our standard of service delivery must not decline but that ways should be found (even in our circumstances) rather to increase it. !
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Chairperson, we received your tentative agenda whichi allows for 4 time slots for presentations. We are also aware that youj have 4 particular
focus areas viz.
;• The Structures, Function, Organisation of the Administration
• Human Resource Development and Performance Management
• Financial Planning, Accountability and Management ,
• Information Technology and Systems.
With your permission Chairperson, we would like to devote a time slot to each of your focus areas. The presentations in the main will be done by my colleagues who represent the Departments of Provincial Finance and General Administrative Services because they deal witfi the issues within the broader context.
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The presentations are made at the macro level and concentrates on transversal issues.. More detailed information per specific provincial department/component can be acquired and forwarded should the Commission so require.
Thank you.'
FIRST S
STRUCTURES, FUNCTIONS, ORGANISATION
MISSION, VISION AND GOALS
The Province's Mission, Vision and Goals are contained m jits Provincial Growth and Strategy document. # 1
The Mission \s
"To improve the Human Development Index for: historically disadvantaged groups by the year 2000 (as compared with 1995 levels) in order to narrow the gap between such groups (the majority of the population) and the more priviledged sector of the population."
The Vision is described as I
"To maintain and improve the Western Cape's relative position \n the South African and global economy In order to benefit the broader interests of all the people of South Africa through balanced
development".
The listed "goals'are;
to ensure that the people of the Western Cape will have the best developed environment by managing and promoting integrated planning, affordable housing and effective local government;
Footnote # denotes documentation is being made available
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• to create a strong, dynamic and balanced economy within the Western Cape Province in order to address unemployment, poverty and social and spatial inequalities; ,
• to promote and maintain the optimal , health of all people in the Western Cape Province through the integration of health within the broad context of social reconstruction and development, and by ensuring the provision of a balanced health system and all related
services: !
• to ensure a prosperous agricultural community in the Wesfern 'Cape Province; j
• to ensure that the people of the Western Cape will be self-reliant through the establishment of an accessible, user-friendly, client- orientated, community-based (especially rural) developmental social service delivery system \n all districts \n the Province;
*> to ensure that sport and recreation \s promoted and developed in such a way that it contributes towards the process of reconciliation, nation-building, socio-economic upliftment and improvement in the - quality of life of all the people of the Western Cape
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• to further the well-being of all the people in the Western Cape by ensuring a healthy and clean environment as well as fostering a common value system towards its heritage;
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• to' afford all crtizens the right of access to a basic education which is to be provided for within the framework of government policy while striving for excellence in standards of teaching and learning in order that all learners and educators develop! in mind, body and spirit to become mature and valued members of the South African nation;
• to provide, manage and maintain transport and public works related facilities for the benefit and advancement of all stakeholders;
• to create a safe and secure environment f o r all the inhabitants of the Western Cape Province, and h
• to ensure the transformation of government into an efficient and responsive instrument of delivery and empowerment at both Provincial and local level. •
The Mission, Vision and Goals were primarily formulated during strategic planning sessions. ' >•
The Provincial goals are aligned to the national goals and are striven by the core programmes each provincial department has. The core programmes of the Department of Agriculture js subsequently discussed by way of example. # 2
The core programmes of the said Department can be divided into three categories. The f i r s t would be Technology Development and Transfer which includes agricultural research and development QS well as the transfer of that technology to farmers by means of extension services.
RDP and land reform projects form part of this programme. Eight RDP projects, are presently running throughout the Province. This programme also includes agricultural economical services with the aim to present an advisory service to policy : makefs within the Province.
Agricultural training of prospective farmers as well as practising farmers is part of this programme.
The second programme is Agricultural Engineering with the main aim of providing " agricultural engineering services ! to all clients of the Department. Resource conservation is a major subprogram with the aim of protection of and advice on the utilisation of natural agricultural resources. I
The last major programme of the Department is the providing of veterinary services with veterinary health services being the major component of this programme, supported by [a veterinary laboratory service rendering a diagnostic laboratory service with regard to animal diseases fand support service f o r animal health programmes.
All of the above programmes of the Department are project driven. The most important strategic challenge is the rendering of a service to all clients while having a diminishingibudget.
Because of this problem of financial constraint the idea was born to design an agricultural science research system to mobilise funding from private enterprise. Approval in principle has been given for the Department to investigate the possibility of establishing an agricultural development council by means of statutory enactment.
The feasibility and risk of each project within a programme Is thoroughly investigated beforehand and evaluated aga'msi set criteria to ascertain viability before a formal decision \s taken to implement or fund the project.
Another example of core programmes would be that of the Education Department. A few of these are:
Curriculum 2005: At present a pilot project is under way in 33 schools. A project team is monitoring progress and its reports are compilated to evaluate the strengths and weaknesses before the official implementation in Grade 1 in 1998. The WCED is taking part in radio and TV programmes to; explain the new curriculum and to allay fears.
Culture of Learning and Teaching: This project was officially launched by the WCED in March 1997 in the Good Hope Centre.
Circuit Managers and principals are working together to establish this culture especially in; the previously disadvantaged areas.
Redress funds are being utilised to improve school buildings and to make them more conducivejto learning and teaching. A number of projects, including the development of Learner Representative Councils are now being planned.
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ABET and ECD projects: T6e WCED Is working in close partnership with NGO's and the private sector to promote these projects.
Computer literacy classes have been started at many schools with
the help of,outside agencies. Adult literacy classes and early
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learning centres are subsidised in the spirit of the principle of Ijifelong learning.
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School Governing Bodies: The changed mindset to school governance is a mammoth task as it involved training of principals, teachers, pupils and parents in democratic and autonomous decision-making. Manuals for principals and Governing Bodies are now being compiled.
Human Resource Development: This very important aspect of management is catered for by means of structured training sessions and talks by influential people in this field. The official responsible for this task is inundated with requests - an indication that the need Is very great.
Project to combat violence in schools: The WCED \s very serious about this problem. A pilot project is presently being run in the Mitchell's Plain area which involves the community, the students, the SAP's and other forums. The WCED is currently engaged in discussions with the SANDF to assist the SAP's in combating crime in our schools.
The most strategic challenges facing the WCED is to comply with equity
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as far as teacher pupil ratio's are concerned. With no retrenchment clause and having given ± 5 000 CS-Educators the VSP, the Department is hampered by the Grove-case to redeploy ± 2 000 super numeri teachers. 'Thfs entails having to pay the salaries of + 2 000 excess teachers every month which places a heavy burden on the WCED's budget.
MACRO-INSTITUTIONAL CONTEXT OF PUBLIC SECTOR MANAGEMENT
The intermediary structures such as Min-Mec work well for as long as it served as a consultative and information sharing forum. Participants to the forums, however, sometimes overlook the fact that these
intermediary bodies have no real statutory powers and become overzealous in making decisions/recommendations. The structures work well as a forum to determine best practices.
I n the field of Human,Resource Management and Development however, there is still a glaring I vacuum in so far as intermediary structures are concerned. There \s [thus very little co-ordination, especially in the political sphere, in this important field. The structure that allows for central bargaining is also flawed as it does not allow for meaningful contributions from the provinces to the mandate formulation process.
Provinces are therefore often lumped with policies and financial commitments in respect of which it was not properly consulted.
The system to an extent promotes conflict which arises out of agreements at national level between the employer (dominated by the national departments) and the employee parties, where these agreements conflict with the policies and desired practice of the provincial department. Such examples include the withdrawal of previous agreements in favour of redeployment of educators, and removal of the right of governing bodies to conduct interviews in the appointment of teachers, etc. j
The major area of concern however, is the development of policy at national level without a clear determination of the financial implications of the implementation of such policy. The effect of this on the budget of the Province is that service delivery cannot be sustained as well as new initiatives implemented.
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The conflict is managed very superficially in that the Province'is forced to reprioritise and make reactive representations to the powers that be.
The structures that cause the conflict however remain the same. .
THE MACHINERY OF GOVERNMENT DECISION MAKINS
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There are two types of Executive Agency viz.
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• a provincial department or
• a body established by law with powers sufficient to provide an otherwise government service.
I n so far as the latter Is concerned, there has been legislation to create
• The Western Cape Gambling and Racing Board
• The Western Cape Investment and Trade Promotion Agency
• The Western Cape Tourisin Board.
Overall, however, major policy decisions are made by the MEC or Cabinet based on recommendations from top management from the Provincial departments. Each department has a large role to play in policy determination. For this reason, "Policy Determination" is one of the modules offered on the Senior Managers Course which is compulsory for Western Cape officials. The bigger individual departments have specific Policy Planning components which are responsible for continous research in this regard. The Western Cape expects all its managers to keep abreast of developments in iheir field(s) and to continuously strive for improvement. The MEC's do not have special advisors. The thought behind this is that the MEC and the Head of Department are required to work close together and build up a shared vision for their responsibility.
The only exception to this arrangement is the Minister of Police Services. An international advisor on the concept of community policy .has been seconded from the British Government at their expense.
External policy support is thus used to a limited degree only. The second category of executive agencies have the capacity to initiate and drive new initiatives through the [legislature. The Gambling Board for instance have already initiated 3 substantial amendments. A sound basis Is being developed to keep the standing committee of the legislative fully informed of legislature requirements and progress therewith. The provincial departments most certainly have the capacity to initiate and drive new legislature initiatives. The Department of General
Administrative Services has a Chief Directorate: Legal Services which serves as facilitator for all these processes. The Province already has a programme of intended legislation for 1997/98. There are few guidelines jto defining the powers and competencies of MEC viz-a-viz executive responsibilities and administrative concerns. The provincial legislature
!of unity has worked well with the political and administrative role players supporting each other in their respective roles.
MANAGEMENT SYSTEMS, CULTURE AND PRACTICES c.
The management decision making model that Is followed in the Province is vertically structured with a clear chain of command. The key weakness
i .v of the system is that decisions may take a little longer. The Provincehowever believes that the severe financial constraints that it has, forces it to be doubly cautious.
The strategic planning sessions of the Province are proving to be effective because regular follow-up sessions ore being held. Projects that are identified are being completed within the timeframes set. # 3 The regulatory framework as contained in the Public Service Regulations and Staff| Code does place restrictions on managerial autonomy. The
Province would prefer a more flexible approach to hire and to fire staffand to be able to determine its own salary packages.
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w "' The Province has a mix of centralisation and decentralisation. I t is
accepted that a decentralised model best suits service delivery but it Is
also true ;that a decentralised model more often than not Is more
expensive.! _£iyen the fact that the budget has been decreased every
year, the Province has possibly not decentralised as much as it would
have liked jto. The Province is in any event approaching decentralisation
as a process and not just as an once off event. The strategy at presentis first and foremost to ensure that trained competent staff are
available before devolving more functions. The Department of Education
for instance has a programme to implement administrative
decentralisation with effect from 1 January 1998. In line with the SA
Schools Act certain decision making powers will be delegated to the
governing Ipodies of schools. The district and regional offices will also be
accorded more powers but are generally understaffed. One of the greatest challenges is to have an effective I T network throughout the Province and to-have every employee computer literate.
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The Administration's most recent attempt at decentralisation in the Education Department was bogged down for a number of months whilst consultations were concluded with labour.
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ROLE OF DIRECTOR-GENERAL
Next, the role of the Provincial Director-General in policy making and policy co-ordinution in respect of the executive processes \s clarified.
The Management Committee Meeting at which the Director-General presides, is the forum where decisions are taken with regard to overarching policy matters and matters of a transversal nature. All Heads of Departments serve on this Committee which is a consensus seeking body. This body meets fortnightly. Heads of Departments naturally have the exclusive responsibility of policy making in their own specific line functions. I n this context, they then also have direct access to the Member of the Executive Council involved.
The anomaly in ithe system is the fact that the Director-General is the Accounting Officer whilst the Member of the Executive Council bears the ultimate responsibility for service delivery. A Head of Department can therefore be seen to be directly accountable to two persons and the question of divided loyalty may then arise. This problem is, however, not insurmountable,if a common vision is developed and maintained because then a shared vji^ion is pursued. The Provincial Government of Unity has been remarkably successful in this regard. The system of having one Accounting Officer, has one distinct advantage which outweighs the possible shortcomings of the system. As the Public Service Is striving to improve its| service delivery, it Is forced to reprioritise all its operations. A single Accounting Officer can facilitate such a reprioritising without triggering the turf wars between Provincial Departments that would occur if there were no single Accounting Officer. I
rThe recent review of Provinces which was done by the Provincial Task ijTeam of the Department of Public Service and Administration clearly highlights political interference as one of the main failings in certain I Provincial Administrations. The post of Director-General, if utilised
| correctly can be used as a buffer against such undue political
| interference. The problem would undoubtedly be exacerbated if the role
| of the Director-General was restricted.
The position of the Western Cape is that the role of the Director- - General should remain unchanged until such time that sufficient capacity i is developed and sustained across the Province whereafter a process of '•• natural evolvement should be allowed to take place.
OPERATIONAL AND SERVICE DELIVERY ISSUES
j Service delivery is being approached by the setting of standards for
; individual tasks e.g. a target date of 3 months for disciplinary proceedings has been set. A evaluation is thereafter made on whether
! the standard is being met and if not, the reasons therefore is determined.
'Where appropriate, the Administration uses agents for the delivery of services for example books and equipment to schools where governing bodies have the power to place direct orders. I n the health sector, several provincial hospitals are run by other organisations and are provincially ^ aided. Many security services, cleaning services and information technology services are contracted out. Some contracts have been agreed with local authorities, NGO's and private providers such as Lifecare and SANTA. The service provided by agents is monitored by routine inspections and observations. Complaints are followed up and rectified. I n so far as operational autonomy is concerned, it must again be emphasised that the Province sees a decentralised model as the ultimate goal and that tasks are only decentralised once a suitable capacity has been created.
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MONITORING ANE> EVALUATION
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The:process of monitoring and evaluation starts with the compilation of the; budget when Departments are required to list the outcomes they wish to achieve with the money requested. Business plans are completed forimost projects so that progress can be continuously monitored against the predicted time scale. Local and international benchmark indicators are used to measure programme effectiveness if they are realistic and appropriate. A good example of this is the hospital performance indicators. # 4
The Province is In the final phase of appointing a section of Internal Auditors whose duties will include systematic policy appraisals and performance management.
GENERAL
The organisational structure has been devolved in the measure as expounded in the organograms provided. # 5 The Provincial Departments are headed up as follows: 3 x Superintendents-General
! 4 x Deputy-Directors General
3 x Chief Directors 1 Director
The Province has for a long time deviated from the practise in other Provinces in that the structures in the Offices of the Premier and Director-General have been kept to the bare minimum. . The Province has also consulted the Chamber on the structure of formal transformation units and this has been accepted. # 6 The model allows for] existing entities within the Provincial Administration to be the drivers of Transformation e.g. 5ICA : restructuring, service delivery
\ SPO : representativeness
PTPbC: human resource development
PSC : (alternatively personnel and labour relations foriims)
- ethics and service conditions
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The system allows for the unit members to be: both nominated-and elected. The structures were passed by the Chamber about a month ago and one unit Is already up and running and other departments have started informing their staff. !
The spirit that the Province is entering into with its restructuring is clearly evident in that Workstudy who are an integral part of the restructuring process of all departments haye been tasked to restructure themselves QS well and redefine their future role in the Administration. The first discussion document on this is currently being circulated. # 7
HUMAN RESOURCE DEVELOPMENT AND PERFORMANCE MANAGEMENT
OVERARCHING POLICY
For the Province to have been able to determine and define an overarching human resource policy, it was first necessary to quantify the workforce that \s required to render the defined service. Following negotiations in the central bargaining chamber of the Public Service, an agreement was reached whereby 'ail personnel could and can-volunteer for severance packages from 1 May 1996 onwards In order to, inter alia, facilitate the process to "rightsize" the Public Service. Rightsizing requires an overall reduction in the number of public servants and includes the absorption of supernumerary officials in other programmes, departments and administrations. This initiative was part of a package of agreements which are interrelated and have the overall aim to also finance future adjustments in service benefits. I t must be stated that the Province, in the national interest, actively propagated and encouraged the Voluntary Severance Package as a tool to rightsize the Service. This meant the retirement of 12000 employees. The Voluntary Severance Package, whilst addressing and reducing the number of officials in employ, created its own problems in that everybody and anybody could (and can) apply for it and the process was therefore difficult to manage.
Planning and policy determination was thus extremely difficult. I n order to bring some order to a situation which had the potential of creating chaos, all Provincial Departments were required to reprioritise their functions and submit business plcins as to how a 12% cut in staff numbers
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could be managed. The 12% cut in staff numbers was the Province's proportionate contribution to the increased salary bill and the business plans served as a mechanism to the Heads of Departments to reprioritise their services. The reduction in staff numbers was based on the national agreement and duly consulted in the Provincial Chamber for Collective
Bargaining. ;
Even though there are presently still individual applications for the Voluntary Severance Package being received, the workforce has stabilised sufficiently enough for the Province to move from the quantitative to the qualitative aspect, i.e. the Province can define for itself what it requires from the workforce that it now has. The first instrument in this qualitative process is the Special Investigation Cabinet Assignment Team (SICA). 5ICA\has been briefed to evaluate all Provincial Departments and to make recommendations as to how Departments' designated functions can be fulfilled in the most effective and efficient manner. The methodology of this approach has been tried and tested in a pilot programme at the Department of Agriculture. I t has proved to be highly successful in that short, medium and long term goals to be more cost effective could be determined. # 8
This is a fairly lengthy exercise and the biggest departments viz.
Education and Health are presently being evaluated. Indications are that such evaluations will be a tim^ consuming exercise bearing their magnitude in mind. The Departments mentioned were selected as starting points in terms of the PARATO Principle.
There is however a def inate program for these evaluations: # 9.
The Province, however, cannot afford to place its human resource development on hold and other strategies are therefore in place to ensure that a core of efficiency is maintained in all Departments.
For this reason, a Provincial Training and Personnel Development Committee was constituted whereon all Provincial Departments are represented at managerial level.; The primary functions of the
committee are to !
(a) co-ordinate all training r (b) evaluate all training
(c) make recommendations to the DS with regard to the provincial training needs. ;.
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Bi-annual reports of the Provincial Training and Personnel Development Committee are issuedj # 10
At the operational level there are certain occupational classes which are common to all departments viz. personnel management, financial management, procurement administration and information technology.
The Province believes that these occupational classes are the core of any organisation and that it needs to be strengthened so that service delivery to the public is optimal. Conversely, it is obvious that without human resource-, financial-, procurement- or information technology skills, no effective service delivery is possible.
Experience has shown that the limited resources at the Administration's disposal are not sufficient to address human resource development on a broad front. The shotgun approach of training a small number of persons in each and every occupational class has shown no significant benefits.
The intention is therefore to zoom in on the occupational classes which are identified as being critical and concentrate on it. By narrowing the target field, the development will become more focused and the end result should be measurable. The Administration intends developing a database of skills for each individual employee of the Province so that proper career pcfthing; and manpower planning can take place.
The Province is thus moving from a direction where training has been a subjective matter which was largely influenced by supervisors with their personal preferences,; to a situation where development is based on fact and geared to meet the future needs of the Province.
The afore-going dealt with the policy in so far as specific occupational classes are concerned. The overarching policy however also embraces
specific divisions. With the Medium Term Expenditure Framework (MTEF) exercise which was started last year, the Province developed a multi year budget plan which overall had to reflect the lesser allocation of resources each year in'iterms of the FFC formula, but which at the
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same time had to reflect growth areas where functions were given a high priority. ]\ '
The divisions Human Resource Development and Management Advisory
Services were identified! as growth areas and more resources wereallocated to it, relative I to the rest of the Administration. The
identification of Human Resource Development as a critical area is self explanatory. Management Advisory Services on the other hand, was targeted as the Provinces main priority is to restructure and rationalise.
The Province intends producing professional Public Servants. To this end it Is offering a course to all senior managers in conjunction with the Western Cape Forum of Tertiary Institutions which includes the Universities of Cape Town, Stellenbosch and the Western Cape and the Cape Peninsula and Cape Town Technicons. The course \s in modular form and has been structured towards the new needs of the country. Modules for example, therefore include * Moral values and ethical conduct
: * Change Management
; * Project Management
-j * Management Information Systems
* Performance and Quality Management All managers, both old and new, are compelled to attend the course in terms of a Cabinet resolution in this regard. The course is presently
being extended so that middle management may also be included.
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This professionalism Is tojbe personified with the institution of a formal training academy. I t is envisaged that the Academy will be the future hub of human resource development for both second and third tier public servants. I t is only by treating the public servant as a professional that other areas of development such as ethics and conduct can be addressed.
The Province has thus setiitself the goal of having a professional band of
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human resource, financial, procurement and information technology functionaries.
A further development in the drive to have an overarching policy on Human Resource Development is the decision to designate a senior official as being the Provincial Human Resource Manager. This \s in line with the approach in the financial field where the Province also has a financial manager. The Human Resource Manager has the responsibility of developing policy and strategies and to monitor and co-ordinate the efforts of aH the role payers in the Human Resources sphere. This role is crucial as the Province already has 3 personnel offices and is looking at ways of further decentralization.
Human Resource Development is a multi faceted function that needs co- ordination in various areas. For this purpose the work of the Labour Relations component is synchronised with the general approach.
Workshops are regularly held with Labour to find common ground in matters of mutual interest.
An example;of this is the initiative earlier this year to enter into collective agreements around the following issues:
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Constitution of the Provincial Chamber Picketing Rules
Strike Rules
Collective Bargaining
Organisational-Rights # 11
The progress in the field of Labour Relations Is dealt with more extensively later in this submission.
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The generaj direction that this policy devolvement is taking is communicated to all staff by way of each Department's representation on the various committees/forums as well as periodical coverage in the personnel newsletter. # 12
Urgent communication is achieved by way of one page pamphlets. # 13
RECRUITMENT. SELECTION AND PLACEMENT
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In terms of the overall Human Resource Development Policy, the 4 core occupational classes have been identified and the filling of these posts therefore receive1 priority. The same priority Is given to the identified growth sectors viz Human Resource Development and Management Advisory Services. The identification of other key posts Is left to the various Heads of; Departments. The latter posts priority is of course ) relative to the specific service being delivered and the limit of the
financial resources available to the specific function.
The Province has a standing agreement with labour which was negotiated in the Chamber on how and where posts should be advertised. # 14 Other than these arrangements, the national rules/prescripts with regard to the advertisement of posts apply. In essence, all vacant posts must be advertised so as to afford everybody an equal chance. The only exception to this rule is the absorption of supernumery staff. All outside advertisements are co-ordinated by a private firm which won a r•. tender to do so. ^election of suitable candidates is done by interviewing
^ panels. The policy document of Affirmative Action Is explicit with regard to the composition of such selection panels.
The Province offers formal centralised induction courses and many components +iave*their own personalised induction programmes.
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PERFORMANCE MANAGEMENT
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The Administration has (whilst waiting for the new revised evaluation system) continued with the traditional evaluation system. A comprehensive job grading system is being negotiated at national level.
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Incentives for improved service delivery is by way of the traditional merit and departmental awards and the Provincial Employee of the Month award which comes on-stream from November 1997. In terms of the latter scheme, 3 employees per month will be designated as employees of thejmonth and be rewarded with a 14th salary cheque.
TRAINING AND DEVELOPMENT
Training and development in the Provincial Administration: Western Cape is based on the premise that training is indispensable to all employees.
Resources devoted to the development, promotion, provision and maintenance of high quality training practices and provisions, \s seen as an investment in human potential, and not QS just another expense.
Every employee, regard\ess of post level Is assured of the right to have access to continuing training and development, for as long as he or she Is employed by the Province. The Province fully ascribes to the life long learning principle.
The approved training and development policy document of the Province is not only in keeping with the White Paper on Training and Development but \s based on the guidelines as set out therein. # 15
h this in mind, all training Is based on thorough needs analyses done by trainers in partnership with line functionaries. Evaluation tools (pre- during-and-post training) have been developed to ensure that all training is timeous, adds value and enhances service delivery.
Trainees are identified by conducting needs analyses. Supervisors at all levels have an obligation to provide complete development programmes in respect of each post under his or her control corresponding to the development programmes for each occupational class. These actions are co-ordinated by the PTPDC (Provincial Training and Personnel Development Committee) on which every department in the province is represented by at least one senior staff member at managerial level. I n addition to that, statements in the policy document, and by all management, is creating a culture to sensitize each official of his/her
own training responsibility to make full use of all education training and development opportunities offered by the public service and other institutions.
Provincial departmental heads are also responsible for the effective trainingjof personnel in their departments as part of their responsibility for thejefficient management and administration of their departments.
This iS;also monitored by the PTPDC. To enable the departmental head to execute this function each provincial department has a training committee that Is representative of the functional composition of that organization. This committee must advise on departmental training policies and provisions and how training needs are to be met.
The main brief of these committees Is to ensure that:
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a There are development programmes for each occupational class with the organization,
a Training is done in accordance with these development programmes and that all employees have equal access to training.
H Training is in line with career development and promotion.
These committees must meet at least once a month and channel all training matters to the PTPDC. The PTPDC has extended an open invitation to organized labour to attend all meetings and provide inputs /-". on Hur^an Resource development matters. This principle was also I adopted by the Directorate: Human Resource Development and organized labour is invited to every monthly plenary session of the said Directorate. This has built a sound relationship based on trust and enhances the principle of co-determination and transparency.
The departmental training committees of Provincial departments are close to the rock face as far as monitoring service delivery in their departments as well as identifying training needs of groups of personnel or individuals are concerned. This can vary from identifying candidates for accelerated training to monitoring effective service delivery. The administration is currently developing an integrated program to develop staff members in the fields of Personnel, Procurement Administration, Information Technology and - Financial Administration, as well as
Management Skills. All this training will be competency based with a major focus on training outcomes.
The Province Is convinced that Competency Based Training (CBT) is the way forward for training and development. To this extent a course has been designed and presented on how to write competency profiles. The aim is for every civil servant to have a Competency Profile (CP). The CP will lay the foundation for all future CBT efforts which will include doing a skills audit of all employees, comparing it to the CP and where there are gaps (shortcomings) provide competency based training. Once the individual has completed the training he/she will be assessed before being awarded with a certificate of competence.
Assessment of competencies will be conducted by using tests (e.g.
models and role plays) or work samples (i.e. performing actual tasks under controlled conditions in a job setting). Once the National Qualification Framework (NQF) structures are fully operational all training will be accredited to ensure portability of training.
The Province fully recognizes the major changes that have recently taken place in the HRC) field as the development of human resource \s one of the key programmes of the Reconstruction and Development Programme. Training.in the Administration is seen QS part of a national effort to develop human resources as intended by the RDP. I t acknowledges the importance of strengthening the bond between training and education with the specific aim of meeting the need for specific skills inside the Administration and society at large. The training of serving and prospective provincial officials must coincide with any policy provision aimed at promoting a representative public service as foreseen in section .212. of -the Constitution and must give due recognition to fairness in respect of access to training, educational and development opportunities.
The approach to training has been changed and it has been elevated to a higher level than was previously accorded to it. To accommodate and professionalise the above approach the Administration is also establishing an Administrative Training Academy to afford all staff members the opportunity to receive accredited training in a highly
professional environment. This academy will also link with academic institutions QS well as the business sector. Although consultants were not used extensively in the past this will be an avenue to explore in future. Networking with all role players in the HRD field has always been very fruitful and the intention Is to carry on with this practice to prevent training from getting isolated and stale.
The PAWC sees the development of all officials as a very high priority and is set to meet the HRD challenge of the future with great enthusiasm and dedication.
The Province has in conjunction with the other Provincial Administrations negotiated for training in the short term to be provided at Singapore Civil College at the expense of the Singapore Government. This project is presently being finalised.
Training has traditionally suffered because of the following phenomena.
* unacceptable percentage of nominees do not present themselves at the courses and
* there has never been a normative base to determine what amount of training Is required.
The Administration is busy structuring a policy where transversal training is provided free to the line departments but non-attendance of any course \s penalised by R300-00 a day. The Is intended to discourage the fickle withdrawal from courses.
Quantifying- the amount of training that is required is extremely difficult and the possibility of earmarking a percentage of each Departments budget has been investigated. Putting a financial tag on training Is however not an easy exercise because of the fluctuations of the budgets as well as the nature of on the site person-to-person instruction. The Administration \s thus presently finalising a policy which stipulates the number of hours of training each and every employee is entitled to per annum. This requirement is to be gradually phased in with
112 hours being the number of hours per annum training being targeted for 2020 per employee.
LABOUR RELATIONS AS AN OVERALL HUMAN RESOURCE DEVELOPMENT STRATEGY
1. The Administration has endeavoured to be at the cutting edge of Labour Relations. I t reacted pro-actively in this regard by presenting information workshops during 1996 at institutions throughout the province, informing staff members within all departments of the possible implications of the new legislation and explaining the rationale and objectives thereof. This was followed by subsequent information workshops presented to identified staff members where special emphasis was placed on training staff in dispute resolution measures in terms of the new mechanisms and giving instruction on how to present cases at conciliation and arbitration hearings.
The Labour Relations Functionaries Forum has been instituted so that labour relations functionaries from all provincial departments can meet on a regular basis to assimilate and decimate information.
During this meeting, for example, report back is given on matters beingdeglt with in the Central Bargaining Chamber as well as the Provincial Bargaining Chamber. These representatives then give feedback to their Departments. Similarly all Heads of
Departments are updated on a monthly basis of the progress of the Chambers and this information is passed on further.
I t must be stated that the Provincial Bargaining Chamber is
functioning effectively and that many agreements have been
entered into since the new democratic dispensation.
Personnel in the Administration have been and are still being informed on a regular basis of the procedures, mechanisms and structures of the Labour Relations Act, 1995.
2. Both grievance and disciplinary policies exist within the Administration.
There are two grievance procedures which are utilised in the Administration. The first is for the resolution of individual grievances and the other for collective grievances.
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The mechanisms for the resolution of individual grievances Is contained in the Public Service Regulations (A.22). I t is general knowledge that the prescribed steps an aggrieved staff member must utilise to have his/her grievance resolved \s a cumbersome process which has failed to instil confidence in many of the personnel who have utilised this procedure. There is general concensus since the implementation of the new Labour Relations Act, 1995, that it is more prudent to utilise the provisions of Schedule 7 of the Act which refers to the utilisation of /"" . Conciliation Boards for individual dispute resolution. The process
^ prescribed is much speedier and therefore aggrieved persons have their grievances brought to finalisation much quicker. The
•individual grievance procedure as prescribed in the Public Service Regulations would appear to be on its way to becoming obsolete.
This Administration has a collective grievance procedure which was instituted as a result of a collective agreement being signed in the Bargaining Council of this Administration during 1997. This policy has been communicated to staff via identified labour relations liaison officers within each provincial department. Further training in this regard has also been instituted at institutional level by members of the various labour relations components recently established within provincial departments to serve the labour relations needs in each such Department.
Disciplinary procedure/policy is prescribed within the Public Service Act, 1994 (Charge of Misconduct) on a national level. No provision is made within the Public Service for disciplinary action for misconduct other than as prescribed within the said Act. This procedrue is tedious and Departments in general have a problem in keeping up to date on outstanding cases of misconduct hearings.
As a result this, the Administration introduced a system of
"negative incident reporting" where for less serious breaching of a rule by a staff member the provisions of section A.18.3 of the Public Service Regulations are applied. When a rule \s breached the audi alteram partem rule is applied and if considered necessary a negative incident report may be placed on the staff members file.
Such a report is not a warning letter and does not infringe on the rights of any staff member in this respect. This "disciplinary policy" resulted as a result of a collective agreement within the Provincial Bargaining Council and was communicated to staff via workshops where representatives of all departments were present.
The policy of this Administration is being regarded as best practise by other provinces who report that the exercising of discipline Is becoming difficult to implement.
I t is always difficult to convince staff with grievances that they will not be victimised for raising a grievance.
I n order to give the necessary assurance to staff, this subject was discussed at a meeting of representatives of all departments early in 1997. Representatives of trade unions were also present and clarity was given on the role of such representatives assisting aggrieved members during grievance proceedings.
Further assurances in this regard were given at labour relations training sessions held at institutions in the various geographical regions of the province. I t did appear that fears of victimisation were higher in rural areas where trade unions and therefore the presence of union reprentatives were less established.
The Province intends engaging Labour very soon with a proposal that alternative less time consuming misconduct proceedings be
instituted for less serious cases of misconduct.
3. Training courses and workshops are held on a regular basis whereby staff at institutions are informed of their rights in terms of the Labour Relations Act, collective agreements and other applicable legislation concerning labour relations matters.
Workshops/information sessions are held at departmental, regional and institutional level. Various levels of personnel including union representatives participate in such workshops. The Administration has also, at the request of trade unions, given training on. the rights and obligations of managers and union representatives in the workplace so as to build a common understanding on the interpretation of such rights in the workplace.
The induction courses of staff and various other courses have been adapted so that some time is spent on informing the delegates of the rights and obligations of personnel in the workplace.
4. The Administration currently has recognition agreements with four trade unions although such agreements will soon become obsolete when an Organisational Rights Agreement is signed in the Provincial Bargaining Council. Such Organisational Rights Agreement has already reached an advanced stage in negotiations and it Is hoped that it will soon become a collective agreement of the Council.
5. The spirit of the agreement is such that labour peace is ensured and a mutual obligation is placed on both the Administration and recognised trade unions to ensure this. The win-win situation Is hoped to be realised through the maintenance of equitable standards with regard to work performance and behaviour on the one hand while ensuring the reconciliation of differences through
consultation and negotiation on the other. I n other words the concerns of management, labour and the community to be serviced are taken into account in the recognition agreement to ensure a fair.
balance of interests in the workplace. ••
EMPLOYMENT EQUITY
There is an employment equity policy. A broad policy was firstly adopted by the Cabinet whereafter a more detailed policy was devolved by the Management Committee. This policy was consulted for more than 6 months with Labour and finally passed by the Provincial Chamber. # 16 There is still a dispute about whether department specific programmes has to be consulted or negotiated in Chamber. This issue will be addressed again when a department specific programme Is scheduled to be discussed later this month. # 17 Staff have been kept informed about the progress with this matter. I t needs to be appreciated that the court ruling against the Department of Justice has forced Departments along the long arduous route and that no short cuts are possible lest the programmes be contested in court.
Regular audits have been carried out by the Provincial Service Commission and this task will be taken over by the Special Programmes- Officer. Targets will be set and revised in Department specific plans which will be dealt with in the Provincial Chamber. Targets will be in such a way that the goal of employment equity Is reached whilst not infringing on the statutory rights of serving officials. Employment equity Is regarded as~orre"of the pillars of transformation. I t is expected that a representative workforce will have a greater rapport with the community and thus increase service delivery. All appointments are done on merit and a person will only be appointed to a position of he/she is capable of rendering a satisfactory service. \ The staff complement is reflected graphically. # 18 [
RI6HT5IZING AND SERVICE DELIVERY
The Province shed some 12 000 posts in the last year. Because the Voluntary Severance Package was a national initiative, the Province actively propagated it. I n terms of the rules of the scheme only critical posts which are key to service delivery were filled again. National Cabinet has not yet defined any rightsizing targets and the rightsizing that the Province has done Is exclusively by way of the voluntary severance package. The number of staff in employ is thus indirectly derived from the money allocated to the Province. There is a clear definition of service delivery in that the Province is encouraging the setting of standards of all tasks. There is however no service delivery agreement with staff and the first development in this regard would probably be to enter into such service delivery contracts with Heads of Departments. This is presently being debated at national level.
WORK ETHIC AND SERVICE DELIVERY
Work ethic can generally be improved. The underlying factor seems to be a lack of work pride and the absence of a unifying spirit. I t \s for this reason that the Province would like to professionalise the public servant so* that" work ethic becomes an integral part of the public .servant's philosophy and not just another set of rules to adhere to.
The relationship between the MEC and Director-General is sound and conducive to efficient service delivery.
The Director-General and MEC understand that they have to lead by example and that the other employees look to them for guidance.
FINANCIAL CONSTRAINTS
I t Is true that with more resources, service could be improved even more. Additional finance is however not a prerequisite fop improved service delivery. The Province subscribes to the theory that it costs nothing to smile and give more friendlier service.
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