Department of Correctional Services 2010/11 Annual Report & 2012 strategic plans

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Meeting Summary

The Department of Correctional Services (DCS) presented its 2010/11 Annual Report, as well as its Strategic Plan for 2012 to 2017 and the 2012 budget. The DCS noted that its particular achievements in 2010/11 had included the participation of more inmates in Development Programmes, partially as a result of the partnerships that it had developed stakeholders. In addition, DCS had concentrated more resources on improved compliance and governance, improved centre level service delivery, the promotion of corrections as a broad societal responsibility, and the building of internal capacity for centre-level service delivery. Challenges included constraints in human resources, inadequate staffing levels for the shift system and a loss of scarce skills. In addition, the downward trend in security breaches had not been sustained due to inadequate compliance with security policies and inadequate attention to security as a priority service. It had also received a qualified audit on movable tangible assets, while unauthorised expenditure was raised as a matter of emphasis in both the 2009 and 2010 financial years. Details were given on the spending, which was at 95.3% in 2010/11, whilst the vacancy rate was 15.28% for approved establishment, but at 3.4% for funded posts. 421 of the 771 grievances were finalised, and the increase in assaults was partially attributable to the correct figures now being captured, rather than the under-reporting of the previous years. There was an increase in the number of escapes, partially because of one mass escape, and negligence and non-adherence to security procedures. There were a number of suicides recorded. The interventions to address security shortcomings were described. Overcrowding had been reduced, as a result of Criminal Justice System cluster collaborations and a multi-pronged overcrowding strategy. 161% more offenders had participated in corrections programmes and 8 091 offenders were placed on anti-retroviral treatment. The vacancies for scarce skills of social workers, psychologists, nurses, medical practitioners and pharmacists remained high. The targets for involving offenders in production workshops were also not met, because 118 artisan posts were vacant, and they were not able to participate in agriculture activities because of shift problems. Parole figures showed less parole violations, more cases referred to parole boards, more victims making representations to parole boards. The DCS had attempted to address the findings of the Auditor-General
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Members asked whether there were particular provinces where escapes were prevalent, asked about the nature of the grievances, and wondered if under-spending could not be addressed by making more regular payments to municipalities. They wondered about the effectiveness of the Audit Committee, questioned the underspending, asked what plans were in place to reduce the costs of damage to vehicles, and the number of suicides, and noted their dissatisfaction with the Department of Public Works projects.

The DCS then presented its strategic plans, noting highlights. Under the Administration programme, it aimed to establish a planning, monitoring, evaluation and reporting system to manage performance information on predetermined objectives, and reduce audit qualifications and matters or emphasis. It hoped to improve the convictions for corrupt activities. In relation to ICT, an ICT security solution was to be implemented. On the international side, it noted agreements and training programmes with other countries, aimed at achieving greater standardisation and mainstreaming of corrections. It also had a five-year plan for technical and development cooperation in agriculture, production workshops, rehabilitation, social reintegration and human resource development. It hoped to reduce the vacancy rate to 3 and absorb of qualifying excess Defence Force personnel. Targets were set out for finalising grievances, monitoring diversity management, and creating new bed spaces. Quarterly reviews would be conducted to monitor performance. The baseline budget allocation was R17.732 billion, although there had been budget cuts of R257.1 million in respect of capital works projects, as a result of under-expenditure over the previous financial years. Additional funding was expected to upgrade IT infrastructure and employee conditions of service. The Care programme would also increase spending, because of more inmates being placed on antiretroviral treatment.

Members asked what the establishment of performance and monitoring systems entailed, what the targets were for equity plans were, what role the State Information Technology Agency would play in upgrades of ICT, whether Community Officers were employed on a full-time basis and whether the Department funded inmates who became skilled through its agricultural programmes.

Meeting report

Department of Correctional Services 2010/11 Annual Report briefing
Mr Joey Coetzee, Deputy Commissioner: Operations, Department of Correctional Services, noted that the main achievement of the Department of Correctional Services (DCS or the Department) was the increased participation of inmates in development programmes, which partially resulted from the partnerships built with stakeholders. DCS had also concentrated on improved compliance and governance, improved its centre level service delivery, the promotion of corrections as a societal responsibility, and had built internal capacity for centre-level service delivery. Overcrowding levels had reduced by 5.75% from the previous financial year.

Challenges faced by DCS included constraints in human resources, inadequate staffing levels for the shift system and a loss of scarce skills. The downward trend in security breaches had not been sustained, due to inadequate compliance with security policies and inadequate attention to security as a priority service.

He then outlined the performance against targets. In  Programme 1: Administration, there had been under-expenditure, with spending at 95.3%, a decline from the 98.9% level in 2009/10. DCS had also received audit qualifications for both the 2009/10 and 2010/11 financial years, on movable tangible assets, while unauthorised expenditure was raised as a matter of emphasis. It had taken some corrective measures, including the development of an action plan, which was monitored on a monthly basis.

In relation to Corporate Services, the approved establishment vacancy rate stood at 15.28%, and the funded establishment vacancy rate stood at 3.4%. Out of the 771 grievances, 421 had been finalised. Focus areas identified as a means of improving services here included the filling of all funded vacant posts, the finalisation of function and structure alignment, the finalisation of all outstanding grievances that were older than 30 days and a review of the shift system.

In relation to Central Services, he noted that of the litigation cases brought against the Department, 153 cases were decided in favour of the Department, and 47 against.

Various bi-lateral agreements had been signed with the Southern African Development Community (SADC) countries, to discuss areas of cooperation.

In order to improve ITC services, Mr Coetzee noted that the current Annual Performance Plan highlighted the need for a new network, consolidated servers and automated security policies.

In the security area, DCS had identified that a number of assaults had not been reported in the previous years, and had therefore taken various steps to address this, including the development of a data capturing tool, and this partially explained the increase in number of alleged assaults that was seen in the 2010/11 financial year. The increase in the number of escapes was attributed to mass escapes, and negligence and non-adherence to security procedures on the part of officials. Suicides and unnatural deaths remained a challenge. Interventions to address the issues around security included the appointment of a Chief Security Officer, the development of a gang management strategy, the development and approval of a security technology strategy, and the approval of revised security policy procedures.

In relation to the Corrections programme, he reiterated that overcrowding had been reduced, and this was largely as a result of collaboration within the Criminal Justice System (CJS) cluster, and the implementation of a multi-pronged overcrowding strategy. In this year, there had been a 161% increase in the number of offenders who participated in corrections programmes. In order to improve service delivery within the Corrections programme, it was now obligatory to draw up comprehensive profiles of all newly admitted offenders who had been sentenced to longer than 24 months, and to focus on offenders who had completed correctional programmes, rather than on their mere participation in the programmes, the approval of an offender labour policy, the promotion of bail protocol and the best utilisation of land allocated to the Department.

In the Care programme, 8 091 offenders were placed on anti-retroviral treatment. There had also been a marginal decline in the number of offenders who tested HIV positive. The vacancy rate for scarce skills was: social workers - 38.28%, psychologists - 50.86%, nurses - 26.23%, medical practitioners - 26.67% and pharmacists - 37.25%.

Under the Development programme, there had been a decrease in the number of offenders who participated in literacy programmes, though participation in Adult Basic Education and Training (ABET) and Further Education and Training (FET) programmes showed increases. The target of involving offenders in activities in production workshops was not achieved, due to the 118 vacant artisan posts. The target for involving offenders in agricultural activities was also not achieved, due mainly to the 2 x 12 hour shift system.

In relation to Social Reintegration, there had been a decrease in the number of parole violations. The number of cases referred to the Parole Review Board increased from 0.04% to 0.11%. The number of victims who made representations to parole boards had increased significantly, from 83 to 253. Although this figure was still low, it represented a vast improvement on the previous financial year.

Under the Facilities programme, no new bed spaces had been created. A number of projects were under way and were due for completion in the new financial year.
  
The Department’s responses to the Auditor-General’s findings included the development of an action plan to address issues raised, the review and refining of a Logis Model, the implementation of Quarterly Management Performance Review meetings, the refining of data capturing tools and the development and finalisation a Monitoring, Evaluation and Reporting Policy.

Discussion
Mr D Joseph (DA) asked whether there were particular provinces in which more prison escapes occurred.

Mr Tom Moyane, National Commissioner, Department of Correctional Services, answered that the escapes were not region-specific. The spike in escape figures was due to a mass escape in Harrismith, but in other areas, there had been a downward trend in escapes. The DCS conducted training and education sessions around this challenge.
 
Mr Joseph asked for an indication of the main nature of the grievances, and asked if most of the litigation was labour-related, and whether the numbers of cases cited included appeals.

Ms Pumla Mathibela, Chief Deputy Commissioner: Corporate Services, Department of Correctional Services, said that although the nature of grievances varied, they were in the main around unfair labour practices.

Ms Nontsikelelo Jolingana, Chief Deputy Commissioner: Development and Care, Department of Correctional Services, added that these litigation cases would most often be brought after internal processes had been followed, but were not in favour of the applicant.

Mr Joseph noted that the vacancy rate, particularly for artisans, was of major concern and needed to be addressed.

Ms Mathibela said the Department was in the process of filling these vacancies and had made notable progress. Its Human Resources plan and Retention Strategy would ensure that the vacancy rate was no lower than 3%. However, she noted that there were many challenges in attracting people to fill vacancies in the scarce skills area, although the Department was concentrating on filling these vacancies.

Mr Joseph asked what targets were set for spending. He wondered if the payments to municipalities not be broken up, and paid periodically, based on work completed. He felt that the Department of Public Works was failing not only this Department, but others as well, and that there was a need for discussion on the issues.

Mr Moyane agreed that the Department was looking into finding alternatives to using the Department of Public Works.

Mr Siphiwe Sokhela, Chief Financial Officer, Department of Correctional Services, said that the payments could not be broken up, as suggested, because the Department of Public Works billed the Department for work completed by service providers.

Mr L Nzimande (KwaZulu-Natal, ANC) asked whether, given the challenges it faced, the Internal Audit Committee could be said to have been effective. He asked what the spending was, in comparison to the previous years, and what the particular reasons were for under-spending in relation to Compensation of Employees.
 
Mr Sokhela answered that the Internal Audit Unit had not been very effective, and therefore a new structure for this Unit was being approved, and a new head had been appointed. There had been an improvement in spending since the 2009/10 financial year. Although the target was 100% expenditure, the norm should be no more than 3% under-expenditure. At present, the Department’s under-expenditure stood at 1.9% and there was, therefore, room for improvement.  The Department had been told by the Auditor-General’s office to estimate figures, but considered this to be too risky, since there could later have been allegations of tampering with the figures. The Department had improved in the filling of vacancies by 2.12% over the last quarter. It was also looking into filling vacancies which came about as a result of people retiring.
A Member asked what measures the Department had in place to reduce the number of suicides, and also whether there were any plans to reduce the cost of damage to vehicles.

Mr Moyane answered that the reasons for suicides varied. As the figures here were increasing, the Department was conducting investigations into the main causes.

Mr Sokhela answered, in relation to the vehicles, that there were plans in place to reduce the costs, and he said that these kinds of figures had not recurred in the current financial year.

Mr A Matila (Gauteng, ANC) said that the reports the Department presented to the Committee needed to be submitted well before the meeting, to allow Members to study them thoroughly and prepare questions. He commented that none of the Committee’s previous recommendations appeared to have been addressed, particularly those around the scarce skills vacancies. He also commented that investigations needed to be conducted into what appeared to be the racial bias of parole boards.

Mr Moyane apologised for the late submission of its presentation, and explained that the notice of this meeting had reached the DCS only a few days previously. He assured Members that some of the Committee’s recommendations had been enforced.
 
Ms Jolingana added, in regard to the parole system, that there were many challenges, some of which were inherited. There were many loopholes in the functioning of parole boards, and during the training of new parole board members, they were encouraged to looking at cases in totality. The response of individuals to rehabilitation programmes within correctional centres was also a factor to be considered. Disciplinary action was also taken against officials who were found to be manipulating the system.

The Chairperson asked whether the Department felt that its efforts would allow it to receive an unqualified audit report in 2014.

Mr Sokhela answered that this was hard to answer; the DCS had hoped that previous improvements would have resulted in unqualified audit reports.

Department of Correctional Services Strategic Plan 2012/13 – 2016/17, Annual Performance Plan 2012/13 and 2012 Estimates of National Expenditure (ENE)
Mr Joey Coetzee tabled the Strategic Plans and took Members through the highlights. Under the Administration programme, there would be establishment, under the management sub-programme, of a planning, monitoring, evaluation and reporting system, that was intended to manage performance information on predetermined objectives. This was intended to reduce the level of deficiencies on predetermined objectives that were identified in the Auditor-General’s report for 2010/11. He also noted that the targets for the implementation of an anti-corruption strategy was to achieve an 86% conviction rate on anyone suspected of corrupt activities. The DCS aimed to improve the ICT/ network infrastructure by having ICT security solutions implemented, and have servers and operating systems fully migrated.

Its target around an enhanced African agenda was to mainstream corrections and the criminal justice system in relation to the Region, SADC countries, the African Union and United Nations. It also aimed to develop a five-year plan in relation to technical and development cooperation in the field of agriculture, production workshops, rehabilitation, social reintegration and human resource development.

Under the Finance programme, DCS aimed to have an unqualified audit opinion, and to reduce the level of internal control deficiencies in financial and performance reporting.

The target, in respect of filling of vacant posts (under its Corporate Service sub-programme) was to have 97% of funded vacancies filled, by absorbing qualifying excess South African National Defence Force (SANDF) personnel.

DCS aimed, in relation to management of grievances, to have all grievances finalised within 30 days.

DCS then outlined its plans for the establishment of an organisational culture based on appropriate diversity management, and said that it would monitor and evaluate the implementation of the Diversity Management Framework.

Under the sub-programme Facilities, DCS aimed to make its facilities conducive for rehabilitation and the humane incarceration of inmates. It aimed to create another 1 045 bed spaces.

The Offender Management sub-programme target for improved provision of Correctional Sentence plans was to set a baseline for interstate transfers within the SADC region.

Mr Coetzee noted that the monitoring of the Annual Performance Plan was to be conducted through quarterly performance reports and quarterly performance meetings with Budget Programme Managers. Quarterly reports would also be submitted to the Executive Authority, the Presidency, National Treasury, the Portfolio Committee and the Auditor-General. Operational Plans would deal with day-to-day responsibilities as well as the outputs and activities.

Mr Sokhela tabled the budget, and said that the 2012/13 baseline allocation was R17.73  billion. There was a budget cut of R257.1 million on capital works projects, as a result of under-expenditure over the previous financial years. Expenditure in the Administration Programme was expected to grow to R5.6 billion over the medium term, at an average rate of 7.1%, as a result of additional funding granted for the upgrading of IT infrastructure, as well as increased municipal charges. Spending on Compensation of Employees was also expected to grow, as a result of additional allocations for improved conditions of service. Expenditure in the Incarceration Programme was expected to grow over the medium term since this provided for improved security and operational costs for upgraded facilities that were set to open in 2012/13. Finally, spending in the Care Programme was expected to grow to R1.8 billion over the medium term, due to an additional funding of R40 million for anti-retroviral treatment for inmates.
 
Discussion
Mr Nzimande asked what the establishment of performance and monitoring systems entailed.

Mr Coetzee answered that the Department was working towards a management performance system which went hand in hand with the refinement of operating systems within the Department. In order to address the Auditor-General office’s concerns around information provided not being reliable, the Department had developed a capturing tool for its annual performance plan.

Mr Nzimande asked for the targets for equity.

Ms Mathibela noted that the Department’s current employee equity plan was being implemented.

Mr Nzimande asked if State Information Technology Agency (SITA) would play a role in the proposed improvements to the ICT systems.

Mr Moyane said that there would be areas where SITA would still be needed, though this would be defined by a signed service level agreement.

Mr Nzimande asked if there were any plans in place to improve accessibility to older facilities in particular.

Mr Moyane answered that newer facilities had access for people with disabilities and that older ones being upgraded would also have easier such access.

Mr Nzimande wondered if the SADC and agriculture programmes were within the mandate of DCS.

Mr Moyane explained that the DCS would not be sending inmates to other countries for this programme. Requests came in from other countries around training and for information as to  how systems were implemented, and there was an exchange of information on methodologies of how correctional facilities were run.

Mr Nzimande asked if the Community Officers were employed on a full-time basis.

Ms Jolingana added that these Community Officers were employed as full-time employees of the Department.

A Member asked whether the Department funded inmates who became skilled through its agricultural programme.

Ms Jolingana answered that the Department did not fund former inmates, though it worked with different partners (such as the private sector) to provide learnerships to these inmates, and had noted some successes in this area. It was also in the process of implementing a plan to come up with a trading entity, which would generate funds through the sale of work produced. Part of these funds would then be provided to inmates when they left the correctional centres. However, she noted that former inmates were often placed at a disadvantage when seeking employment, particularly in government, because of the policy of doing criminal record checks. Government needed to lead by example.
 
The meeting was adjourned.

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