Western Cape Provincial Report on Affirmative Action

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Meeting report

PUBLIC SERVICE & ADMINISTRATION PORTFOLIO COMMITTEE

PUBLIC SERVICE & ADMINISTRATION PORTFOLIO COMMITTEE
17 March 1998
PROVINCIAL REPORT: WESTERN CAPE

Documents handed out

Western Cape Provincial Review Report (Appendix 1)
Administration’s comments on questions (Appendix 2)

Dr Neil Barnard, Director General of Provincial Administration: Western Cape, presented the Provincial Review Report with his two colleagues, Mr Kallie Saayman, Head of Department: General Administrative Services and Melvyn Joshua, Head of Labour and Transformation. The report included the Administration’s Comments on Questions forwarded by the Portfolio Committee.

After reading through the extensive document, further questions were put to him by committee members:
Q Why has it taken four years to achieve representivity for the Western Cape whereas other provinces took less time? Also in terms of transformation what is the exact vision of the Western Cape Department?

Dr. Barnard said that the Western Cape should be representative of the majority population. Representation is crucial for the Western Cape and is being done. As to why it took four years for representativity, he said one must look at the state it was in four years ago.

Q Is there bias from national government with regards to the cutting of the budget for the Western Cape and why?

Western Cape does not say that it is bias but rather believes that it is done in terms of equity.

Q Why were severance packages given after September when the cost to the department is doubled instead of having those individuals wait until the next financial year so as to avoid the expense?

With regard to the Voluntary Severance Packages (VSP) and the cost, the general rule is that if a person leaves within the first 6 months, that person gets 6 months of paid benefits. If a person leaves after the first 6 months, there is no payment. The VSP, compared to the old retrenchment tools, is cheaper.

Q What has been done with regards to centralization of the department? Is there any help from the national government?

With regards to centralization, the policy of the Western Cape is to decentralize as much as possible. However, this is an expensive task and because the Western Cape’s budget has been decreased, it is even more difficult.

Committee members then commented that the areas of transformation were unclear as were the requirements. In addition, members felt that the presentation shouldn’t focus only on transversal issues but rather it should go into further detail.

Dr. Barnard mentioned two examples of positions being offered to an individual from another province. However, that provincial department would not allow the them to transfer. He stated that transversals of representatives is being denied even though it is very important.

Some questions were left unanswered and it was determined that another meeting will be held to further discuss the matter.

Appendix 1: Western Cape Provincial Review Report

PROVINCIAL ADMINISTRATION: WESTERN CAPE

SUBMISSION TO THE PORTFOLIO COMMITTEE ON PUBLIC SERVICE AND ADMINISTRATION

17 MARCH 1998

Introduction

Honourable Acting Chairperson and distinguished members of the Portfolio Committee on Public Service and Administration, it is a priviledge to be able to present the Western Cape's input to this hearing. I would like to introduce the members of my staff who will share this presentation with me.

Kallie Saayman: Head of Department: General Administrative Services

Melvyn Joshua: Head of Labour and Transformation

I need to point out that this is a new component which has come about as a result of the recent Cabinet reshuffle.

Jocelyn Kane-Berman: Chief Director, Department of Health

I wish to start by recording my sincere regret at being unable to attend the first scheduled hearing. No slight was intended on this esteemed Committee. I, at that stage, had believed that the written documents that we had made available beforehand as well as the detailed documentation that had been prepared for that specific day could also be presented and explained by senior officials of the Provincial Administration. I have been in both written and telephonic communication with the Chairperson of the Committee on 18 February 1998 to reiterate my bona fides in this process and hence this hearing today. I am grateful that the Committee could find the time in its busy programme to afford the Western Cape this hearing.

The Western Cape generally received a reasonably clean bill of health from the national task team last year. The only major critique leveled at the Province 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 development.

I need to emphasise one fact at the onset which overrides practically all other considerations. The Provincial Administration: Western Cape receives a decreasing budget allocation every year. Because we are serious in our 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 balance our books up to now. It is, however, common knowledge that the Western Cape Legislature budgeted for a R247.1 m deficit for the current financial year. The management of this deficit has been our number one priority. Because of the financial constraints, we have had to be extra cautious in our approach. We could have progressed so much further and 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.

With your permission, we would like to deal with the Provincial Review Report itself.

Chairperson, the Western Cape would foremost like to echo the sentiments expressed in the foreword by the Minister for the Public Service and Administration and place on record its appreciation to the many public servants who are dedicated, loyal and hardworking.

I believe that the officials in the Western Cape have distinguished themselves as they have managed to continue to render a satisfactory level of service even though the employee force has systematically been reduced over the last couple of years. We remain one of the few Public Service institutions which have scaled down to the order of 20%. That same magnitude has not been equalled elsewhere.

The Provincial Report is accepted as an innovative approach to improve the management and running of the Public Service. The recommendations have generally been accepted and implemented or are in the process of being implemented. To give the Committee a sence of the impact that the recommendations have on the Western Cape, I would ask one of my colleagues to briefly go through the transversal issues identified in the main report.

The comments hereunder are offered on the transversal issues identified in the report and is given in the same order as they are listed in the report (pages 24-49).

4.1.1 Political interference hampers the administration of departments

There have been no reports of political interference in the Western Cape.

4.1.2 The Director-General's Office does not provide effective strategic direction, guidance and leadership

The Western Cape does not identify with this problem

4.1.3 Director-Generals become marginalised

Not applicable to Western Cape.

4.1.4 Highly centralised management control, at Provincial Service Commission, DG's Office and/or Finance causes inefficiency in line departments

There are allegations that this applies to the Western Cape and this matter is therefore addressed as a specific topic that the Committee raised.

4.1.5 Lack of communication within provincial administrations

The communication within the Administration can be further improved and for this reason additional posts have been allocated to the Communication Division during the second half of 1997. The Administration has a quarterly newsletter and uses regular flyers (pamplets) to keep staff abreast of critical developments. Communication is further improved by regular participation in talk-shows.

4.1.6 Strategic planning on provincial level is often insufficient

The Province is of the opinion that it has done an acceptable amount of strategic planning. There have been Strategic Planning Sessions which have been followed up with report backs and evaluation.

4.1.7 Strategic planning in departments is of variable quality

The Province concurs that a long term vision is the ideal rather than ad hoc fire fighting. It's strategic planning sessions has been reasonably successful.

4.1.8 Insufficient co-ordination and communication of strategic plans results in weak ownership.

The co-ordination and communication is primarily achieved through the Management Committee Meeting which meets fortnightly. It is nevertheless the intention to establish a small strategic management component to further drive this issue. This component will primarily be staffed by personnel from the former Provincial Service Commission.

4.1.9 Many departmental strategic plans are not implemented.

The majority of strategic plans are implemented.

4.1.10 Lack of service delivery targets and monitoring

The Province intends to sharpen the focus on service delivery this year by requiring all Departments to set at least three (3) measurable performance standards. The monitoring will be done by the Departmental Transformation Units on which both management and workers are represented. The Western Cape intends launching its own service delivery campaign in April this year. This will include a roadshow to rural towns and will dovetail with the Provincial rally in mid July as proposed by the Department of Public Service Administration.

4.1.11 Departments have not made sufficient progress with the transformation process

The statement that day to day crises tends to side track general transformation issues is true. For the Western Cape, the burning issue is the dwindling budget.

The continuous downsizing of personnel numbers obviously impacts on the Province's ability to recruit a more representative staff. It is also interesting that despite the fact that thousand of employees have left the service the Administration has not cut back on its services. The one obvious reason for this could be that more effective ways of doing things were found.

The Province subscribes to the school of thought that transformation is not a separate issue or responsibility. It must be part of our everyday way of thinking and be reflected in all our actions. This approach has to a large extent now also been adopted by the Inter Provincial Transformation Committee on a national level. The Province nevertheless also recognises the need that a more focused approach is needed to ensure that the processes remain on track and for this purpose a specific Labour Relations and Transformation component has been created with effect from 16 February 1998.

4.2.1 Some provinces have not created departmental structures in line with their functions and activities

Not applicable to the Western Cape.

4.2.2 The lack of clear delineation of functions creates confusion and uncertainty among staff.

No evidence in Western Cape.

4.2.3 Organisational structures have been inefficient and unstable

Organisational structures were developed by means of generally accepted workstudy principles.

4.2.4 Some components feel marginalised within major spending departments

This situation may well arise in the circumstances as sketched. The Province is presently developing a strategy to improve its Corporate Image so that all employees can easily identify with their Department(s).

4.2.5 The centralisation of the maintenance functions at Public Works slows down delivery

Noted.

4.3.1 Many departments have not completed their staffing and redeployment process

The Administration has been markedly successful in redeploying employees in the various Provincial Departments. The exception has been CS Educators who have to be redeployed to other Provinces. In the latter case, the other Provinces have not yet developed the capacity to accept the staff who are earmarked to be redeployed.

4.3.2 Lack of staff capacity leads to over-burdened staff and impacts on service delivery

This is true of the Western Cape especially as a result of the voluntary severance packages. The Western Cape has decided to concentrate its development resources in the following occupational classes over the next five years on -

Personnel

Finance

Procurement

IT

4.3.3 Personnel management functions are highly centralised, and this has had a detrimental effect on service delivery.

There are allegations that this applies to the Western Cape and this matter is therefore addressed as a specific topic that the Committee has raised.

4.3.4 There is an urgent need for redress in terms of race, gender and disability, especially in the management echelon of technically orientated departments

The Western Cape now has a Provincial Policy Document as well as a departmental programme on Affirmative Action which have been duly consulted with Labour. The Province has registered its programme with the Department of Public Service Administration as required. It has been learnt that only 29 such programmes have been registered nationally and the Western Cape is glad to be one of them.

4.3.5 The Voluntary Severance Package has not allowed the Public Service to be reduced. There is no well developed action plan

The Western Cape has reduced its staff numbers drastically by some 20 000 posts since 1994. It, however, reiterates its call for another more focused tool.

4.3.6 There is a low morale among staff members

The Western Cape is addressing this through improved communication and incentive schemes. An example of this is the Employee of the Month Award which became operative from 1 November 1997.

4.3.7 The lack of discipline and the prevalence of misconduct are major problems in many departments across all provincial administrations.

The Western Cape hopes to address this through its Corporate Image campaign whereby employees will be encouraged to take pride in their work and their employer. Copies of the Code of Conduct were distributed amongst all employees. An Employee Assistance Programme is also being set up within the next month.

4.3.8 Ineffective procedures for managing misconduct cause long delays, excessive costs and demoralisation of staff

To counter this problem, the legal services component was extended and the responsibilities of presiding officers outsourced. The Province is presently researching ways to finalise cases in the shortest possible time. One option presently under review is to have different procedures for less serious cases than for serious cases.

4.3.9 Lack of provincial and departmental policy on human resources development and training

Not applicable to the Western Cape.

4.4.1 Financial management capacity in departments and the knowledge to appreciate good financial management are clearly insufficient

The problem is acknowledged. A special project is endeavouring to enhance the skills of all finance functionaries and to concentrate on their training for the next 5 years.

4.4.2 Over-centralised financial management and insufficient service to line departments leads to misallocation and inadequate control.

There are allegations that this applies to the Western Cape and the matter is therefore addressed as a specific question that the Committee has posed.

4.4.3 Lack of prioritisation in the budgetary process and of linkage to strategic planning

The Province experiences no major problems with its budgetary process.

It is true that budget cuts have a detrimental effect on specific functions but they are unavoidable in the Western Cape context.

4.4.4 Inadequate financial control

The financial control is adequate.

4.4.5 Inadequate financial information and management systems

Although the Western Cape's systems could be regarded as being adequate, a Task Team is presently evaluating other systems to be able to cater for future needs. The Administration is confident that it will have all its systems 2000 compatible.

4.4.6 Incomplete and unco-ordinated personnel and salary information

Although the Administration's systems can be classified as satisfactory, a task team is looking at a more user friendly management system.

4.4.7 Risk of ghost workers

The Western Cape has audited its payment procedures and is satisfied there are no ghost workers. (touch wood)

4.4.8 Problems with Provincial Tender Board

In depth discussions have been held with the tender board and the processes streamlined so that an acceptable turn around time is achieved.

4.4.9 Lack of complete inventories and asset registers

It is confirmed that the Western Cape is completing it's inventory and register for buildings and other assets.

4.4.10 Control over the use and management of Provincial vehicles is very poor. There is much evidence of fraud and theft

The Fleetman System has been installed to manage the use of transport more effectively. At the suggestion of the Unions, vehicles are to be marked in such a way that instant identification of the vehicle as being Provincial Administration property (as opposed to a National department's property) is possible and abuse is easier detectable.

4.5.1 Lack of management information

The Administration is presently evaluating specific software options for better management information.

4.5.2 Lack of effective IT systems and strategy

The Province has a IT strategy.

4.5.3 Incomplete networks for / or access to administrative information systems

The lack of IT capacity in terms of personnel and skill is an international phenomena and it is hoped that the greater scope that the national prescripts will allow with effect from 1 April 1998 will offer more flexibility with the offering of more competitive salary packages. The solution appears to lie in the proper balance of institutionalised IT and outsourcing certain aspects of Information Technology.

Chairperson, the Task Team also issued a detailed report on the Western Cape and I would like to deal with that next. The main recommendations are contained at paragraph 9 (pages 13-18) and I accordingly deal with that.

9.1 General

a) More powers must be devolved nationally

This recommendation is merely noted as it is intended for the Department of Public Service Administration. The intended new Public Service Regulations which is scheduled to be operational with effect from 1 April 1998 promises much.

b) The Province should decentralise internally as much as possible

The Province subscribes to the organisational arrangement that powers and more especially that with regard to human resources and financial management must be decentralised as much as possible. For this reason the big Departments such as Education and Health have their own Directors: Personnel Management and Departmental Accountants with fully staffed components and appropriate delegated authority. Because the work force in other Departments vary in size from one score to one thousand employees, these support services are shared amongst the latter Departments. Whilst the Province believes in decentralisation, it has not built sufficient capacity to ensure effective service delivery within a fully decentralised system. The Provincial Review Report endorses this theory to wit.

- 4.1.4 (page 27)

"However, this does not militate against centralisation in certain provinces with limited skills"

- 4.4 (page 40)

"However, decentralisation not adequately supported by the provision of competent staff spells disaster"

9.2 Leadership

(a) Director-General should delegate as much as possible

Heads of Departments already have the flexibility to restructure their organisations as long as it has no additional expenditure costs for the Province. Likewise, Heads of Departments are responsible for advertising, shortlisting, interviewing and nominating persons for posts. The central personnel office (with exception of Education and Health) merely provides an administrative support for the appointments. Heads of Department are furthermore at complete liberty to structure their own budgets from the global amount awarded to them. They are naturally held accountable for their budget. Each Head of Department is furthermore responsible for the development of Departmental Policy in consultation with Members of the Executive.

b) Annual performance agreements

Performance is currently measured against the deliverables listed in Departmental budgets. Regular feedback at the Management Committee meeting ensures continuous monitoring. The first formal agreement for a Head of Department has already been drafted and will serve as a model for the other Heads of Department. This is to be formally introduced at the next Strategic Planning Session in mid April 1998.

c) Office of Director-General should be expanded

The appointment of a Head of the Office of the Director-General allows for more co-ordination. The possible expansion of the Office is currently being evaluated on accepted workstudy principles.

d) Central Departments to move from control of inputs to monitoring of outputs

Managers are already free to decide how they are to achieve their objectives and how to structure their budgets. They may restructure their Departments on condition that their budget allocations are not exceeded. The output can presently be measured against the deliverables tabled in the budget and this will be refined once the performance agreements are in place.

e) Central Departments should move to a more supportive role

This is the long term goal and commitment of the Province.

f) SICA should investigate central departments

SICA has already been programmed to investigate the central departments later this year.

g) Internal Audit Office

A recommendation is presently with the Provincial Cabinet for the establishment of an Internal Audit Office.

h) Director-General must ensure that all departments understand their objects

This will be reinforced at the fortnightly meetings as well as the next Strategic Planning Session during mid April 1998.

i) The Province should not accept functions from National it cannot afford

The recommendation is noted and the Province would furthermore plead for National moral support even if a function cannot be accepted.

j) Tele conferencing

A decision has already been made to install teleconferencing in the Wale Street complex.

9.3 Structure

a) Central Departments require rationalisation

The Department of Finance and Corporate Services has now been split and the latter has been tasked to develop a Provincial Human Resource Policy. The Province cannot agree that the office of the Premier and Director-General be amalgamated as the one is a political and the other an administrative office.

b) SICA to be investigated by DPSA to determine best practice

The recommendation is noted.

c) Outsourcing process needs to be carefully managed

Province has had success with outsourcing, more particurlary with its laundries.

d) Resources are to be aligned with policy priorities

This is already the practise. Even with the general downsizing trend, certain functions are allowed to samesize or even upsize if they have been identified as a priority.

9.4 Human Resource Management

a) Appointment procedure for staff should be accelerated

Appointment procedures are generally acceptable with shortened advertisement periods of 2 weeks. The Province has, however, had lengthly moratoriums on the filling of posts and this, coupled to a shortage of manpower to administer the applications can, lead to delays.

b) Maximum possible delegations to be given

This is the Provincial goal in the medium term.

c) Number of investigating and presiding officers need to be increased

Matter has already been attended to and the additional staff appointed.

d) Time period of absence without leave should be reviewed

Recommendation is intended for national.

e) Training should be outsourced more

The majority of computer training for 1997 was outsourced and other possiblities are to be investigated.

f) Clarification between National & Provincial Chambers

Recommendations have been made to amend the national mandating procedure.

g) Staff Code should focus on job rather than remuneration structure

Matter for National

h) DPSA should adapt redeployment database

National issue

9.5 Financial Management

a) Delegate financial management to Head of Department

Once consensus has been reached about the division of the provincial allocation, Heads of Departments have the authority to reprioritise their resources as needs dictate. The only exception to this is the allocation for personnel expenditure which may not be used for anything else and it reverts back to Treasury if unused.

b) Financial Managers

The principle of appointing Financial Managers at the Departments of Housing, Local Government and Planning, Social Services and Transport and Public Works has already been accepted.

c) Training

A programme for such training is in place

d) Parastatals should receive a debt burden with the transfer of assets

The recommendation is noted.

e) National Tender Board to approve exemptions for SMME

The Western Cape Provincial Tender Board is a legal entity and operates within its own law. It has adopted a ten point plan aimed at procurement reform.

9.6 Strategic Planning and Management

a) Staff must be made aware of vision

b) Objectives should drive budget not vice versa

c) Departmental plans should be communicated to staff

Noted and accepted. A small strategic management team is to be in place with effect from 1 April 1998 to enhance the Provincial capacity for strategic planning and management.

9.7 Information management

a) IT Support System required

b) Access systems for Persal must be accelerated

c) Designate single person to collate information

The entire IT operation has been re-evaluated and restructured with effect from 1 January 1998.

Appendix 2: Administration’s comments on questions

QUESTIONS FORWARDED BY THE PORTFOLIO COMMITTEE

PUBLIC SERVICE AND ADMINISTRATION

At this juncture, comment is offered on the specific questions that the Committee forwarded to the Administration

Organisational Structure

(i) Has the rationalisation process in the Province been completed?

The rationalisation process was completed in January 1996 with the approval by Cabinet of the establishment of a Department of Sport. This brought the total number of Provincial Departments in the Province to 10 (ten).

In line with the White Paper on Transformation of the Public Sector, the Western Cape is presently busy with the process of restructuring of provincial departments. The original date set for completion of this project is 31 July 1998 but it looks that it might have to be extended for 6 months.

Restructuring includes, inter alia, the formulation of recommendations to achieve the most efficient and effective utilisation of available funds; assets and other resources; reconsidering the core business of departments through function clearance; avoiding duplication and ensuring the optimum combination of centralisation and decentralisation of support functions / services.

(ii) What methodology was used?

Methodology used in the rationalisation process included basic Workstudy principles in order to amalgamate and/or devolve or accommodate allocated posts and functions into logical functional structures.

(iii) What new structures created?

The rationalised departmentalisation model made provision for nine line departments; one department to render a support service to the Administration and five Support Offices for the various statutory functions such as the Provincial Service Commission.

(iv) Was the creation of such structures informed by service delivery needs in the Province?

The nine line function departments was established primarily in accordance with service delivery needs in the Province. It was also based on the schedule 6 powers of authority delegated to provinces as well as the various departmental plans drawn up by the SMT's and other national plans e.g. policy shifts from Tertiary and Secondary to Primary Health Care.

Rightsizing

(i) What is the province's short and medium term rightsizing strategy?

The strategy followed by the Province was to implement business plans to enforce the approved establishments of its components. The business plans confirmed that a reduction of approved posts would answer to the rightsizing of the Province. An initial reduction of 19% of the approved establishments was envisaged which eventually lead to a reduction of 17% posts on the approved establishments of components.

(ii) Is the rightsizing process in the province lined to service delivery needs?

It is accepted that the rightsizing process should not impact negatively on service delivery. However, when the rightsizing process is mainly driven by fiscal considerations emphasising the Province's lack of sufficient funds, it becomes increasingly difficult to maintain sound service delivery. It was found that the implementation of the VSP as a tool to facilitate the process of rightsizing does not complement the process to improve service delivery.

Reprioritisation has become a vital tool to ensure service delivery and all Departments have not been downsized uniformly. Certain Departments have been upsized, others samesized and the majority downsized.

(iii) List the recipients of the voluntary severance in the province and details of the packages each recipient received, indicate in each case how DPSA guidelines were followed in granting the packages.

From the figures below it is evident that listing all recipients of VSP and specifying details of the packages each recipient received is an enormous, time consuming exercise.

The guidelines provided by DPSA with regard to granting of VSP are strictly adhered to in this Province and this also includes the benefits awarded to each recipient of the VSP.

The number of recipients of VSP in this Province since its implementation (1 May 1996) till 31 December 1997 are as follows:

Officials : 8221

CS Educators : 4881

TOTAL : 13 102

The Department of Public Service and Administration has expressed its satisfaction at the way the scheme was operated in the Western Cape.

(iv) What transpired with regard to the posts which were occupied by VSP recipients?

The posts which were occupied by recipients of VSP range from that coupled to salary level 1 (e.g. Cleaner) to that coupled to salary level 16 (viz. Director-General). Certain posts transpired to be indispensable to maintain the minimum requirements for effective service delivery. Consequently all posts occupied by VSP recipients could not be abolished. The Province has however been able to satisfy the Department of Public Service and Administration that it has abolished it's fair share of posts and contributed to the national kitty.

(iv) Are any consultants or contract workers employed as a result of a skills shortage created by the departure of recipients of the VSP? Give details.

Consultants and contract workers are employed in exceptional cases for periods not exceeding six (6) months as a transitional measure to combat the skills shortage in particular occupational classes.

CENTRALISATION WITHIN THE PROVINCE

(i) The report cites overcentralised management in the areas of human resources and financial management as problematic. What is being done in this regard?

The Province disputes the perception that it is over centralised in respect of human resources and financial management. It firmly believes that it has adopted a model which is the most efficient in the present day circumstances.

The Province in reality has a mix of centralisation and decentralisation. It 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. Given the fact that the budget has been decreased every year, the Province has possibly not decentralised as much as it would have liked to. The Province is in any event approaching decentralisation as a process and not just as an once off event. The strategy at present is first and foremost to ensure that trained competent staff are available before devolving more functions. The Department of Education for instance had a programme to implement administrative decentralisation with effect from 1 January 1998. In line with the SA Schools Act certain decision making powers was delegated to the governing bodies 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 IT network throughout the Province and to have every employee computer literate.

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.

With specific regard to Human Resource and Financial Management it must be recorded that the bigger Departments viz. Education and Health has its own Directors: Personnel Management and Departmental Accountants whose components operate autonomously within their line functions.

(ii) With regard to the role of the Director-General, what are his core functions.

The role of the Provincial Director-General in policy making and policy co-ordination in respect of the executive processes needs to be 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. In this context, they then also have direct access to the Member of the Executive Council involved.

The anomaly in the 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 vision is pursued. 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.

The review of Provinces which is being debated by this Committee clearly highlights political interference as one of the main failings in certain 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 is developed and sustained across the Province whereafter a process of natural evolvement should be allowed to take place.

(iii) How is the office of the Director-General structured.

The structure of the Office has been kept to the minimum. In contrast to other Provinces, the Office of the Director-General: Western Cape only has the following structure

1 x Director-General

1 x Chief Director

1 x Director

1 x Parliamentary Officer

1 x Assistant-Director

1 x Senior Administrative Officer

1 x State Accountant

1 x Chief Administrative Clerk

3 x Secretaries

(iv) Do any other co-ordinating bodies exist?

Yes.

* The Management Committee Meeting with all Head of Departments

* The Provincial Training and Personnel Development Committee.

* The Personnel Forum

* The Labour Relations Forum

* Provincial Transformation Committee

(v) To what extent does the Office of the Director-General exercise control over line function activities of the Provincial Department?

Provincial Departments are free to pursue their functional activities autonomously. The Office of the Director-General only becomes involved in matters of a transversal nature where co-ordination and policy formulation is concerned.

AFFIRMATIVE ACTION

OVERVIEW

The process of Affirmative Action in the Province is characterised by extensive internal and external consultation between the Province and Organised Labour in the Provincial Bargaining Chamber.

The policy for the Province as well as the action plan for Department General Administration Services was negotiated with the unions and personnel associations represented in the bargaining chamber. This process was completed on 29 October 1997. The components of General Administrative Services have begun implementing the plan with a reasonable rate of success.

The more salient points of the policy was communicated to all personnel in the Administration by means of a newsletter whilst complete copies of the document were made available to Heads of Departments should any staff wish to peruse the whole document.

THE DEMOGRAPHIC DISTRIBUTION OF THE PROVINCIAL ESTABLISHMENT ACCORDING TO RACE

RACE 1997 % WESTERN CAPE DEMOGRAPHY

White 13519 25% 24%

Coloured 34319 64% 57%

Indian 287 - 1%

African 5518 10% 17%

53643

(CS Educators excluded)

DEMOGRAPHIC DISTRIBUTION OF THE PROVINCIAL ADMINISTRATION ACCORDING TO GENDER

SEX 1997

Male 20384

Female 33259

53643

(CS Educators excluded)

DEMOGRAPHIC DISTRIBUTION IN MANAGEMENT ECHELON OF THE PROVINCIAL ADMINISTRATION ACCORDING TO GENDER

SEX 1997

Male 78

Female 9

87

Vacancies 23

DEMOGRAPHIC DISTRIBUTION IN MANAGEMENT ECHELON OF THE PROVINCIAL ADMINISTRATION ACCORDING TO RACE

RACE 1997

White 57

Coloured 26

Indian 3

African 1

87

Vacancies 23

In so far as Affirmative Action is concerned it must be pointed out that the Administration is not completed satisfied with the progress that it has made. There are however certain factors which militate against greater progress.

- Downsizing

With the Province losing tens of thousands of posts over the last few years, the capacity and opportunity for employment / appointment has been severely restricted.

- VSP

With the granting of VSP's 65% of the applications approved were in respect of Black persons. To refuse Black persons the benefits of the package would have been a discriminating practise.

- Transfers out of the Province

Fifty two percent of staff who are transferred to other Government Departments are Black. There is thus a loss of potential to other Government departments.

- Transfers to the Province

Experience has shown that other Departments are not keen to release employees who have applied to the Western Cape. For example, the appointment of a Special Programmes Officer was delayed for 8 months because the person who was shortlisted, interviewed and appointed was eventually offered a better post in Pretoria. There are other examples of this.

Browde Commission

In terms of the findings of the Browde Commission, one officer's appointment to the management echelon had to be cancelled.

The Western Cape is acutely aware of its responsibility to have a representative workforce and is confident that the newly created component of Labour Relations and Transformation will hasten it's progress. The programme is to be accelerated as all departments have been given deadlines to implement their programmes, and a programme in respect of the vacant managerial posts is being drafted for due consultation with labour shortly. If approved, this programme will ensure that the targets as defined by die White Paper on the Transformation of the Public Service will be met.

The Province has been involved at workshop level and has supplied written inputs to DSPA regarding the conceptual framework for Affirmative Action and Representivity. It concurs with the principles and conventions as proposed in the Paper.

The Province has insured that its Policy and Action Plans are developed to conform to the norms and standards as proposed in the Paper.

GENERAL

Chairperson, your Committee also invited the Western Cape to make general input / recommendations of its own and I gladly use that opportunity now.

1. VSP

The Western Cape reiterates its call that a more focused tool be made available to trim the Public Service. The problems with regard to the VSP are already well recorded. There are however two further aspects to this debate:

a) Timing

The tool must be available at the start of the financial year. If it is made available in the second half of the financial year, it affects twice as many more staff members if one wants to generate the same saving on the salary bill.

b) Pro-rata share of costs

Provinces have to pay approximately 15% more towards the Voluntary Severance Package than it did under the old retrenchment clause. The VSP is a cheaper option than the old retrenchment clause but the savings are all for the national account. A fairer dispensation would be for the savings to be more equally distributed and that Provinces not be required to pay more than it would have under the old retrenchment clause.

2. SERVICING OF CROSS-BORDER DEBT

The Province needs assistance to collect monies owed to it by other State Departments. There is a universal acknowledgement of the debt but other Departments are apparently also facing budget deficits. Thought should be given to topslicing these acknowledged debts so that the money is correctly distributed with the national allocation. This would be very similar to a debit order. The R1,5 billion which has been offered to Provinces with cash-flow problems, might just as well be used to service the cross border debt and it is so recommended.

3. MIN MEC

Despite many undertakings in the past, there is still no effective Min Mec for Human Resource issues.

Thank you.

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