First Quarter National Expenditure 2006/07 Committee Report
Budget Committee on Appropriation
06 September 2006
Meeting Summary
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Meeting report
JOINT BUDGET COMMITTEE
6 September 2006
FIRST QUARTER NATIONAL EXPENDITURE 2006/07 COMMITTEE REPORT
Co-Chairperson: Ms L Mabe (ANC)
Documents handed out:
Joint
Budget Committee Report on First Quarter National Expenditure: 2006/07
Draft Committee
Report on Workshop in Stellenbosch on 02-03 June 2006
SUMMARY
The Committee considered its report on the trends in the national expenditure
for the first quarter of the 2006/07 financial year. A report on the workshop
that had taken place in June at Stellenbosch was also considered. It was agreed
that members would adopt the reports at a later stage as the Committee lacked a
quorum.
Members expressed their concerns regarding the implications spending trends
held for the achievement of national development targets. The Committee would
concentrate on evaluating the extent to which spending patterns influenced the
quality of service delivery. Members acknowledged that departments
underestimated the level of expenditure necessary to implement their strategic
objectives. The Committee had to ensure that spending was in line with the
strategic goals of each department
The Committee will conduct a study tour of Germany to learn more about that
country’s budget monitoring system.
The Chairperson raised her concerns regarding the impact dual committee
membership had on the work of the Committee. Greater communication was needed
between itself and the portfolio and select committees to ensure that members
could fully perform their oversight duties.
MINUTES
Committee Report: First Quarter 2006/07 National Expenditure
Ms J Fubbs (ANC) noted that the Department of Social Development had
overspent on its budget within the first two months (April and May) of the
current financial year. What could account for this increased expenditure?
Ms B Dambuza (ANC) raised similar concerns regarding the expenditure trends of
the Department of Education. The department needed to provide clarity on how
these funds were utilized.
Mr L Dithebe (ANC) commented that members should focus on how this spending affected
service delivery. The labour intensive nature of the departments could account
for this over expenditure. Learners and teachers had to continually be provided
with the necessary teaching and learning support. Ms B Dambuza agreed with Mr
Dithebe’s suggestion. She said that the Committee had to assess whether
government was receiving value for its money.
The Chairperson proposed that the spending trends of the various departments be
assessed in terms of their respective projected expenditure. The Committee had
to ensure that trends in expenditure were in line with the strategic plans of
each department. Budgets should not simply be exhausted to avoid the
consequences of under spending. Moreover, departments sometimes requested
additional funding without providing sufficient reasons for this need. Members
were encouraged to utilize their copies of the Expenditure Framework as a guide
to analyzing departmental spending trends
Mr G Schneeman (ANC) contended that the First Quarter Expenditure Report merely
indicated patterns of overspending and underspending. Citing the spending
patterns of the Department of Education, he suggested that reasons should be
provided for the over or under spending of a department.
The Chairperson suggested that the Public Finance unit within the National
Treasury be invited to provide this clarification. However, members had to
identify which departments’ spending merited further probing, prior to this
briefing.
Mr Dithebe commented that the socio-economic rights report released by the
Human Rights Commission revealed that levels of national expenditure were in
line with international trends. However, service delivery had marginally
improved. He added that the Standing Committee on Public Accounts (SCOPA) was
to probe the expenditure of the departments of Health, Correctional Services,
and Provincial and Local Government. When considering the level of expenditure
of the different departments, the impact of the cost of transferring funds from
the national to provincial and local spheres of government, had to be kept in
mind.
Mr B Mkhaliphi (ANC) said that departments should have spent 25 percent of
their budgets to date. The Committee should follow its policy of focusing on
those departments that reflected an over and under expenditure on their
budgets. The Committee should also be guided by the broader policies and goals
of infrastructure development. It should therefore also arrange meetings with
those departments (such as Public Works) that should reflect higher levels of capital
expenditure.
The Chairperson reminded the Committee that this resolution was made at the
recently held workshop at Stellenbosch. Members had to identify those
departments it wished to question.
Ms Dambuza suggested that since provincial transfers accounted for a
significant proportion of expenditure by national departments, their provincial
counterparts should also be held accountable for these spending patterns.
National departments may not be able to provide detailed responses to questions
raised by members.
Mr Dithebe proposed that the Committee focus on those departments that were
under spending. South Africa currently had an expanding fiscus that could
provide improved services to its citizens. Those departments expected to lead
the targeted six percent economic growth rate, should explain the their
insufficient spending patterns. Such departments would include the Departments
of Trade and Industry, Transport, Land Affairs, and Minerals and Energy.
Mr Dithebe commented that the President, in the last State of the Nation
address, viewed under spending by departments as an impediment to advancing the
developmental objectives of Government. In this context, the Department of
Provincial and Local Government should explain why it had only spent 3% of its
budget.
Mr Schneeman (ANC) agreed with Mr Dithebe. He added that the quality of the
spending by government departments had to be investigated. The Social-Economic
Report released by the Human Rights Commission revealed that the state was
lagging behind its obligation to provide adequate housing to its citizens. He
said that some departments, such as Housing, may reflect acceptable levels of
spending, but the impact of this spending on the delivery of necessary services
had to be assessed.
The Chairperson agreed that the Committee had to probe whether funds were
utilized for infrastructure development and should identify the pitfalls in
this process. She considered the transport problems experienced by learners in
Gauteng as unnecessary as sufficient funds were available to provide an
efficient transport service.
Ms R Mashigo (ANC) spoke of the lack of coordination of spending and activities
between the three spheres of government. She illustrated this by referring to
the difficulties the mayor of Thabazimbi Municipality had experienced in providing the funds for the construction of a
school in this area. This school had not yet been constructed. She asked which
sphere of government had to be held accountable for a lack of or inadequate
spending of funds.
Mr Dithebe believed that the three spheres of government were interrelated and
that all were responsible for the successful execution of the Integrated
Development Plans (IDPs)
The Chairperson responded that, at the time departments submitted their budget
proposals, critical areas of spending had to be identified. This raised
questions about the drafting process of these proposals. She reiterated that
departments such as the Department of Home Affairs had failed to provide the
necessary motivation and documentation when applying for funds. This indicated
that departments were providing estimates that were not based on existing needs
within communities.
Ms Fubbs said that the First Quarter Expenditure Report had to be analyzed in
relation to the expenditure trends of
the previous financial years as well as SCOPA reports. This would provide an
indication to which extent expenditure had been in line with the strategic
plans of each department. If spending patterns and strategic plans did not concur,
closer attention to both these processes had to be drawn. These strategic plans
could be problematic as departments did not take into account the cost of the
implementation of such plans and costs were sometimes underestimated.
The Chairperson raised her concerns regarding the Department of Correctional
Service’s planned construction of four new prisons during the current financial
year. Although the construction of these prisons was not yet underway, the
Department had already exceeded its capital budget for the first quarter of
this year. This Department had to clarify this expenditure.
In the light of this, the Chairperson proposed that members conduct site visits
to those departments identified to be inefficient in managing their budgets.
This would ensure that specific problem areas were brought to the attention of
members. Departments often presented different information to committees such
as SCOPA and portfolio committees.
Mr Dithebe commented that the Committee should become more robust in probing
departments. The information generated would assist ministers to improve the
management of their portfolios. However, he cautioned that the Committee should
not encroach on the work of the relevant portfolio committee. The construction of new prisons had been
outlined as one of the overarching strategic objectives of Government
The Chairperson requested the committee researcher to provide clarity on the
planned construction of these prisons. She stressed that the success of such
planned projects was important for public confidence in both the state’s
ability to deliver services as well as Parliament’s ability to ensure that
government policies and plans were implemented.
The Chairperson said that a working relationship between the Committee and the
Chairperson of the Portfolio Committee of Correctional Services should exist.
This would assist the Committee in understanding the problems related to the
management of expenditure in this Department. She would write a letter to the
Chairperson of that committee requesting a closer working relationship.
Ms Fubbs said that the Committee had to focus on the relationship between the
spending of departments within specific clusters. Spending patterns of these
clustered departments had to convey a uniform commitment to the development
goals of the state. The Departments of Safety and Security and Correctional
Services - within the security cluster - conveyed conflicting messages
concerning this cluster’s levels of commitment to the improvement of safety and
security. For example, the Department of Correctional Services had spent money
on an inefficient parole system, while its Safety and Security counterpart
committed itself financially to a workable firearms control strategy.
Ms L Chikunga (ANC), also a member of the Correctional Services Portfolio
Committee, commented that the additional prisons would not alleviate
overcrowding in prisons. The number of awaiting trial detainees as well as
those sentenced prisoners not qualifying for parole, compounded this problem.
The prison system had to be transformed.
The Chairperson agreed. She proposed that the Committee invite clusters of
departments so that comprehensive information could be obtained concerning the
impediments to better spending. Site visits should be conducted prior to these
meetings.
While Ms Mashigo expressed her agreement with the Chairperson’s proposal, Ms
Chikunga suggested that the Committee identify what the objectives of the
visits to different departments would be. Members had to establish which areas
of the work of a department had to be investigated.
Mr Dithebe proposed that the expenditure trends of each department be assessed
vis-à-vis the goals set by each department. This strategy would be useful in
identifying deficiencies specific to a department. Ms Fubbs agreed. She
suggested that the Committee meet with the different departments before site
visits were conducted. Members would then know which problem areas to
prioritize.
The Chairperson asked members to identify which clusters would take precedence.
She stressed that members should interact with members of the different
portfolio committees to ensure that members were sensitized to the problems
experienced in different departments.
Ms Fubbs suggested that these briefings be held within the next two weeks. A
strategic approach was needed to convey the uniformity in the approach
commenced within two weeks. A strategic approach was needed to probe
departments.
Mr Schneemann requested the Chairperson’s permission to be excused in order to
attend another committee meeting. The Chairperson expressed her dismay that
members could not remain for the duration of meeting. The Committee could not
meet regularly due to members’ commitments to other parliamentary committees.
This impacted on the work and commitments of the Committee.
Ms Fubbs commented that it was regrettable that the Committee had to continue
its work in the absence of many of its members. A pragmatic approach was needed
to manage this dilemma, as members’ obligations to other parliamentary
committees had to be appreciated.
Mr Schneeman suggested that a meeting be scheduled to discuss this issue. He
reminded the Committee that members had agreed to conduct meetings on Fridays.
The Chairperson accepted the member’s suggestion. However, members expressed a
reluctance to attend meetings on Fridays. She excused Mr Schneeman and Ms
Dambuza. A meeting would be scheduled to discuss matters of attendance.
The Chairperson said that other stakeholders should also be invited to the departmental
hearings to expand the Committee’s knowledge base on problems related to public
spending. She asked Members for suggestions.
Mr Dithebe proposed that research institutions dealing with issues of
socio-economic rights be invited. He cited a research unit based at the
University of the Western Cape’s (UWC) as a possible candidate.
Ms Fubbs said that smaller and newer research institutions should also be
invited to brief the committee. These institutions tended to have more
progressive visions. Briefings by established institutions such as the
Institute for Democracy in South Africa (IDASA) would not be sufficient.
The Chairperson agreed with Mr Dithebe and Ms Fubbs. Spending by government
departments should be in line with the goals of a developmental state. She
expressed concern that South Africans were not enjoying the services the state
could afford to provide. State spending should be analyzed in terms of the
extent to which the basic needs of South Africans were met.
Ms Mashigo asked whether the different financial cycles of provincial and local
government impacted on the spending patterns of departments.
The Chairperson said that this had a minor impact. Municipalities had the
responsibility of issuing grants, a process guided by strict rules to which
municipal structures had to adhere. This function should be separated from the
costs of transferring funds from provincial to local governments.
Ms Fubbs noted that the Department of Arts and Culture had spent zero percent
of its capital budget in the first quarter of the current financial year.
Moreover, this department had used only two percent of its capital budget the
previous financial year. Why was the department not utilizing its budget
according to its strategic plan?
The Chairperson noted her suspicion about the projections the Department of
Arts and Culture had presented to the Committee. This Department had projected
to spend 7% of its budget during the first quarter, but had merely spent 3.8%.
Ms Fubbs commented that the Department of Arts and Culture could utilize its
capital budgets to empower musicians. It could increase the spending on its
community outreach programme as indicated in its strategic plan.
The Chairperson requested the committee researcher to further investigate the
lack of spending by this Department.
Mr Dithebe said that the manner in which departments spent their budgets
impacted on the extent to which the goals of the Accelerated and Shared Growth
Initiative (ASGISA) would be realized.
Ms Fubbs expressed her concerns over the process of land redistribution. How
could the low expenditure of the Department of Land Affairs be explained?
The Chairperson commented that this Department had under spent in the areas of
land restitution and compensation. Funds were not utilized to equip those
beneficiaries of land restitution to develop pieces of land. As a result, many
farms especially in rural provinces had not been properly made use of.
Mr Dithebe commented that the willing buyer-willing seller approach to land
restitution may have hampered this process. The recently announced process of
land appropriation, subject to the conditions set out by the Constitution,
attempted to remedy these delays.
Ms Fubbs agreed that those still in possession of land were deliberately
stalling the process of restitution. To avoid such ‘legal maneuvering’, the
previous minister clearly stated that disputes be resolved within a six-month
period after which a formal process of land appropriation could be initiated.
The Chairperson pronounced that legislation empowered the Minister to act in
the interest of South Africans. The Committee had to ensure that the Minister
be held accountable for the implementation of state policies and legislation.
She asked the committee researcher to investigate the impediments to sufficient
spending by this department.
Mr A Ganief, the committee researcher, advised the Chairperson to write a
letter to the Department of and Affairs, requesting the relevant reasons for
this under spending.
The Chairperson acknowledged the politically sensitive nature of the process of
land restitution. She reiterated, however, that Members of Parliament had an
obligation to ensure that laws and policies of the state were implemented.
The report could not be adopted as the members present did not form a quorum.
Members agreed to adopt this report at the following meeting.
Committee Report on Workshop held in Stellenbosch on 02 and 03 June 2006
Members had resolved to undertake a study tour to Germany. The Chairperson informed
members that preparation for this trip, including its funding application to
Parliament, had be finalized as soon as possible. Funding was provided on a
‘first come – first serve' basis.
Ms Fubbs proposed that the committee be briefed on the legislative framework
and process of the German parliament, prior to their tour. The trip had to
coincide with important cycles of the German financial year to ensure that
members gain as much understanding about the German budget monitoring system.
The Chairperson requested the committee secretary to provide members with the
necessary background information. This could be obtained from the German
embassy. She requested the committee researcher to identify those developing
countries to which possible study tours can be conducted.
ChangesThe Chairperson informed members that she and co-chairperson, Mr
Mkhaliphi would not be attending MINMEC meetings between the national ministers
and their provincial counterparts, as proposed during the workshop. Parliament
had a duty to hold the executive to account and participation in such meetings
could compromise its monitoring and oversight functions.
Chairperson informed members that the Committee's co-chairpersons would
not attend the MINMEC meetings between the national ministers and their
provincial counterparts as this could compromise parliament’s monitoring and
oversight role.
Mr O Bapela (House Chairperson in the National Assembly) would be invited to
brief the Committee on the oversight role of Parliament.
Mr Dithebe commented that the term ‘savings’ was differently understood within
the private and public sectors. He requested the term to be placed between
inverted commas in the report. Members accepted this proposal.
The Committee could not adopt the Report as the members present did not form a
quorum.
Before adjourning the meeting, the Chairperson noted that both reports would be
adopted at a later stage.
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