Correctional Services Strategic Plan & Budget: discussion

JOINT BUDGET COMMITTEE
20 September 2006
CORRECTIONAL SERVICES STRATEGIC PLAN & BUDGET: DISCUSSION

Co-Chairpersons: Ms L Mabe (ANC) and Mr B Mkhaliphi (ANC)

Documents handed out:
Correctional Services Research Report

SUMMARY
In preparation for public hearings on the Security Cluster strategic plans and budgets, the Committee discussed a parliamentary research report on the Department of Correctional Services Budget Vote 20. The report outlined government priorities for 2006 by referring to the President's State of the Nation Address and the government’s Programme of Action. The Department’s new Strategic Plan and goals for its key programmes (security, corrections, care, development, social reintegration, administration) were examined. Corruption would be addressed within the administration programme. Vetting and integrity testing of officials would serve to reduce the incidence of corruption. Risk assessment and profiling tools had been created for offenders. Behaviour would be corrected through individualised treatment programmes. More pharmacists, doctors and nurses would be attracted to the Correctional Services. Development would include the provision of education and skills training programmes.

Members asked certain questions including the filling of vacant finance posts, the outsourcing various services such as food preparation and recruitment, the high costs associated with outsourcing, the tendering process adopted for outsourcing, the need for adequate internal management of prisons before outsourcing was considered, the benefits of the recently installed inmate tracking system, the focus on rehabilitation of prisoners as opposed to mere custody, the need for correct assessment of prisoners, the importance of meaningful capacity to support the provision of Anti-Retroviral medication at accredited sites and the scope of the budget allocation increase for health care facilities. Outsourcing should contribute to a reduction in costs but it appeared as though the practice was resulting in an opposite effect, namely dramatic increases in departmental costs. The broad-based black economic empowerment aspect of outsourcing would also have to be investigated.

MINUTES
The Chairperson stated that the meeting would assist Members in preparations for Public Hearings on the Security Cluster.

Mr A Ganief (Parliamentary Researcher) pointed out that he was not the author of the research document in question. The author was away but he would attempt to provide an overview of the document and address any questions that might arise. 

Ms J Fubbs (ANC) proposed that the researcher should highlight key issues in the document due to time constraints.

Focus areas for Correctional Services and Programme 1: Administration
Mr Ganief stated that the State of the Nation Address had highlighted three core focus areas for Correctional Services: four new prisons would be built, the number of children in custody had to be reduced and the recommendations of the Jali Commission had to be implemented. The government’s Programme of Action of 2005 also listed a number of priorities. R 10.6 billion would be allocated to the Department of Correctional Services in 2006/7. The Justice and Protection Services Cluster would receive a total of R73,3 billion. Strategic objectives and goals of the Department were explained. The report engaged in an analysis of the 2006/7 Budget. Broad expenditure trends were outlined. Six programmes would receive a budget allocation. Security was the largest programme with an allocated amount of R3.3 billion. A key priority in the administration programme was to combat corruption. A new Strategic Plan had been drafted for 2006/7-2010/11. The adjustment in plans tended to have an adverse impact on achievement of targets.

Ms Fubbs asked whether any specific examples of corruption could be provided. The Committee had to focus on the implementation of policy.

The Chairperson pointed out that the Standing Committee on Public Accounts (SCOPA) dealt with certain corruption issues at the end of the financial year. Underspending and the failure to achieve targets were due to variations in strategic plans over time.

The Chairperson sought clarity on the reasons for the discrepancy in recruitment figures between the Estimates of National Expenditure (ENE) and the 2006/7-2010/11 Strategic Plan. She asked if 2211 individuals had already been employed. She noted that Ms Chikunga was a member of the Correctional Services Portfolio Committee and could perhaps assist with additional information.

Ms L Chikunga (ANC) stated that groups of recruits were taken from schools after final year exams. She was not aware of the totals involved. Additional recruits were required to meet the demand for the newly-instituted seven-day working week.

Mr G Schneemann (ANC) asked for a progress report on the filling of vacant finance posts. The failure to fill posts implied that resources were not being properly utilised. He asked which Parliamentary Committee was referred to in the report as having being briefed in October 2005, the Joint Budget Committee or Portfolio Committee on Correctional Services.

Mr Ganief responded that the Portfolio Committee had been briefed.

The Chairperson indicated that more information was required on the Medkor process. Medkor served as the medical aid provider for Correctional Services.

Ms Chikunga added that the Correctional Services Portfolio Committee was concerned about the cost of outsourced recruitment. Kitchen services at prisons had been outsourced to one company. Concerns remained about broad-based black economic empowerment.

The Chairperson noted that SCOPA had advised the department not to outsource the kitchen services. It appeared as though more outsourcing was being contemplated. Outsourcing hindered the objectives of job creation and poverty eradication.

Mr Schneemann asked whether any cost-analysis on the outsourcing of the kitchen service and recruitment had been carried out. The intention of outsourcing was to reduce operating costs and promote efficiency and not to increase costs.

The Chairperson indicated that SCOPA had determined that the outsourcing of the kitchen service had resulted in a 50% additional cost to the Department. This revelation contributed to justifiable doubt on the merits of outsourcing.

Ms Chikunga stated that prisoners continued to prepare food in prison kitchens despite the outsourcing. A basic stipend was paid to them. Outsourcing had reduced the incidence of theft of food in prison kitchens. Johannes burg prison spent a considerable amount on outsourcing of the kitchen service. Monthly stipends still had to be paid to the prisoners who worked in the kitchens.

The Chairperson noted that the company involved used the existing Department facilities. She asked whether the company hired the equipment from the department.

Ms Fubbs asserted that outsourcing could have particular benefits for the department. She noted, however, that only one company was involved and questioned the type of tendering process employed. The broad-based empowerment aspect would also have to be investigated. The contract with the service provider could stipulate that the company would manage and operate existing equipment. Catering skills could also be imparted to prisoners. Further detail from the department was needed to explain the nature of the outsourcing and the benefits involved.

Mr Schneemann agreed and stated that Members had to consider the benefits of outsourcing. Local communities had to be included in the contracts in terms of job creation.

Mr Mkhaliphi declared that the department had to ensure that prisons were managed correctly before outsourcing was considered. He asked whether outsourcing had freed up warders who had monitored the kitchens to serve in other prison areas. Many rural prisons had thriving vegetable gardens and farm facilities and he asked what happened to these resources following outsourcing. He asked whether the company would purchase fresh produce from the farms in question.

The Chairperson acknowledged that Members had to carefully consider the benefits of the service provided and the added value of expenditure. 

Ms Chikunga added that warders had to remain in the kitchens due to the continued presence of prisoners thereby contributing to additional costs. A proper breakdown of costs was required to assist the oversight function.

The Chairperson questioned the value of outsourcing as warders were not freed up to work in high-risk areas. Prisoners continued to work in the kitchens in return for a monthly stipend.

Ms Fubbs stated that a breakdown of costs had to be sourced from the department. She proposed that the department should be present in future to answer concerns raised. Management positions within prisons had to be assigned to appropriately qualified individuals.

Programme 2: Security
Mr Ganief provided detail on the second programme. A nominal percentage increase in the security budget allocation had been facilitated. Key measures to improve security in prisons were recounted. Officials would be vetted to reduce levels of corruption. An inmate tracking system had been piloted at Johannesburg and Durban-Westville prisons. The incidence of violent assaults and unnatural deaths in prison had escalated. New security equipment had been acquired to address the problem.

The Chairperson stated that more information was required on the inmate tracking system. She asked whether the number of escapes had been reduced due to the new system. The benefits of the tracking system had to be determined.

Mr Ditebe cautioned that Members should consider the initial cost of the tracking system. A high number of escapes continued but Members should concentrate on the budget implications.

The Chairperson agreed that the benefits of the project cost had to be determined as well as the scope of the benefits for communities. 

Ms Fubbs asked whether certain problems had manifested in the tracking system and what cost factor was envisaged to address the shortcomings before a wide-spread roll-out was effected.

Ms Chikunga informed Members that each prisoner wore an armband that allowed their movements to be traced. The system was not being fully utilised at Durban-Westville and an unacceptably high number of escapes were occurring. A contract with a service provider had been drawn up and would continue despite doubts over efficacy. The lack of accountability of prison management had to be investigated.

The Chairperson referred to conflicting versions between the department and the prison management on the success of the tracking system. Therefore, oversight trips were of paramount importance to ascertain the value of expenditure.

Mr Mkongi asked which committee, the Joint Budget or the Correctional Services Portfolio Committee, should intervene in the case of wasteful expenditure. The Department tended to be extremely defensive when questioned about efficiency and accountability.

Mr Ditebe asked which company had provided the inmate tracking system. The integrity of the security of the system had to be evaluated. He asked whether the National Intelligence Agency had been consulted at all. Management and officials had to ensure compliance with finance regulations. The Department had to report any criminal acts by staff and incidence of wasteful and fruitless expenditure. Various research entities such as the CSIR were involved in security research. He asked whether such groups had been consulted. The cost of the tracking system had to be justified.

Mr Ditebe asked how many prisons were involved in the project.

Ms Chikunga replied that 241 prisons were divided into maximum and medium categories. Certain prisons situated in all provinces had been identified to serve as centres of excellence. Sections within a specific prison had also been earmarked to serve as centres of excellence. The majority of the sections identified would be women’s sections.

The Chairperson asked whether dangerous prisoners would be included within the centres of excellence. More information on the project was required.

Ms Chikunga explained that a major priority in the prison system was rehabilitation. The centres of excellence would be focused on women and youth sections to impart valuable life-skills. For example, Pollsmoor’s medium section had been identified as a centre of excellence.

Programme 3: Corrections
Mr Ganief noted that the budget allocation had increased by 32%. The programme involved the profiling of offenders and a risk and needs assessment.

The Chairperson asked why no offenders were assessed despite the development of the risk assessment and profiling tools. Members should bear this in mind.

Ms Fubbs stated that the shift from custodial to rehabilitation policy should free up funds for other purposes. A shift of funds should reflect a shift in policy. She wondered whether such a shift had occurred.

The Chairperson indicated that the requested information would be sourced from the author of the document.

Mr Ditebe noted that the number of offenders granted parole was 33% against the target of 55%. Risk assessment tools should be utilised to ensure that those granted parole did not pose a continued high risk to society. Adequate funds should follow policy mandates. The use of financial resources would also contribute to job creation.

Mr Mkongi referred to the key target of providing internal work opportunities. He asked how many prisoners had been assessed to determine suitability for internal work. Correct assessment would ensure a high level of reintroduction into society.

Mr Mashigo sought a breakdown of work opportunities provided as part of the rehabilitation process.

Mr Ditebe stated that the success of job creation programmes could be assessed against the targets outlined in the Strategic Plan.

The Chairperson concurred that the number of apprentice positions created had to be assessed against the targets indicated.

Mr Ditebe declared that the biometric system was in place to promote security issues.

The Chairperson added that many criminal acts were committed by those who had a sound knowledge of the  security systems. Insider knowledge was valuable in perpetrating successful crimes.

Ms Fubbs stated that a general salary scale for government social workers existed. However, a particular incentive could be provided for social workers in the correctional services context. She asked for detail on the correctional supervision process.

Ms Chikunga stated that Parole Boards consisted of community members that received a monthly stipend. Correctional supervision entailed serving a sentence outside of a prison in a community setting.

Ms Mashigo sought clarity on the role of Nicro and NGOs in general.

Ms Chikunga declared that many NGOs such as Nicro were associated with the Department. Co-operation occurred in various fields.

Mr Ganief provided information on programme four that dealt with care. The programme focused on healthcare, Aids and various aspects of social work.

Mr Ditebe noted that Grootvlei prison in Bloemfontein had been designated an ARV treatment site. The cost of the programme would tend to escalate further over time. An estimate of future expenditure was required.

Mr Mkongi stated that scarce skills were a major concern for the department. He asked whether qualified staff existed to deal with the ARV programme.

Ms Mashigo added that the department had raised the concern that a site could not be established without adequate manpower. Job creation within prisons had to be fast-tracked.

The Chairperson reminded Members that a major challenge lay in ensuring that Sector Education and Training Authorities produced much-needed skills. The Department had to ensure that internship programmes were put in place.

Ms Chikunga noted that a budget increase had been facilitated in 2005 to improve health care facilities, in particular the provision of Anti-Retroviral (ARV) treatment. Protocols for providing ARV therapy had been put in place in all correctional facilities. Additional nursing staff was required to provide acceptable levels of care. The provision of ARV treatment in prisons had to be monitored.

The Chairperson noted that junior nurses had to be employed in the Department to assist professional nurses. The cost of acquiring ARV treatment had to be justified by ensuring that prisoners received the medication.

The meeting had served to highlight core issues for Members and would assist in the public hearings process. Discussions would continue at the next meeting.

The meeting was adjourned.