ATC121024: The Budgetary Review and Recommendation Report of the Portfolio Committee on Police on the Independent Police Investigative Directorate, dated 24 October 2012
Police
The
Budgetary Review and Recommendation Report of the Portfolio Committee on Police
on the Independent Police Investigative Directorate, dated 24 October 2012
The
Portfolio Committee on Police, having considered the performance and submission
to National Treasury for the medium term period of the Independent Police
Investigative Directorate (formerly known as the Independent Complaints
Directorate), reports as follows:
1.
Introduction
Structure of the Report:
This Report
comprises nine sections:
·
Section 1: Introduction- sets out the mandate of the
Committee, the purpose of this report (Budgetary Review and Recommendation
Report) and the process to develop this report.
·
Section 2: Provides an overview of the Directorates
Vote and spending for 2011/12 as well as for part of 2012/13 and sets out the
Directorates MTEF submission to National Treasury for 2013/14.
·
Section 3:
Summarises
the
2011/12 report of the Auditor General for the Directorate.
·
Section 4: Provides a broad overview of the changing
strategic and operational environment of the Directorate for 2011/12 and
2012/13.
·
Section 5:
Summarises
performance information per Programme for 2011/12.
·
Section 6: Highlights key observations of the
Committee with respect to financial and performance information for 2011/12, as
well as 2012/13.
·
Section 7:
Summarises
additional information requested from the Directorate in deliberations and
other reporting requirements.
·
Section 8:
Summarises
recommendations of the Committee with a focus on funding for 2012/13 and
2013/14, in light of the above.
·
Section 9: Conclusion.
Committee mandate:
The Committee is guided by its
interest to promote effectiveness, efficiency and professional policing in
·
Pass legislation.
·
Scrutinise and oversee executive action and the organs of
state including the Department of the Police, the Civilian Secretariat for
Police, the Independent Police Investigative Directorate (the Directorate) and
the Private Security Industry Regulatory Authority.
·
Facilitate public participation and involvement in the
legislative and other processes.
·
Engage, participate and oversee international treaties and
protocols.
The Directorate:
Each year, as part of
its oversight function, the Committee considers and reports on the annual
reports of the Independent Police Investigative Directorate (IPID). It is noted
at the outset that the 2011/12 Annual Report is the last report tabled by the
Independent Complaints Directorate. The Independent Police Investigative
Directorate, with a transformed mandate, became effective in terms of the
Independent Police Investigative Directorate Act, No 1 of 2011 on 1 April 2012.
BRRR process:
In
addition, the Money Bills Procedures and Related Matters Amendment Act, (Act 9
of 2009), sets out the process that allows Parliament to make recommendations
to the Minister of Finance to amend the budget of a national department. As
part of this process, Portfolio Committees should compile Budgetary Review and
Recommendation Reports (BRRR) in October of each year, containing
recommendations relating to funding allocations for departments and other
institutions that account to them. The BRRR are also source documents for the
Standing Committee on Finance when it makes recommendations to the House on the
Medium-Term Budget Policy Statement (MTBPS). The annual review and analysis of
performance (entailing both financial and non-financial performance indicators)
also forms part of this process.
This is the first year that the Committee is
undertaking the BRRR process for the Directorate, though it has completed two
prior BRRR reports for the Department of Police. The Committee has overseen the
performance of the Directorate though regular oversight meetings during 2011/12
and 2012/13 and has also received reports on its quarterly expenditure for
2011/12 and for the first quarter of the 2012/13 financial year.
The Committee visited the
Upington
satellite office of the Directorate on 27 July 2012.
Meetings:
The
Committee was briefed on the annual performance for 2011/12 of the Directorate
on 8-9 October 2012. The Committee also met with the Auditor-General on the
audit outcomes on 9 October 2011. Copies of the presentations are available
from the committee secretary. The Committee has already considered and reported
on the respective strategic plans and budget proposals of the Directorate for
2012/13.
2.
Overview
of Directorate Vote and Spending
2.1.
Financial
performance for 2011/12
Vote:
The Directorate
received a final appropriation of R153
,534
million in
2011/12 which was a 19 per cent increase on the R131,435 million received in
2010/11.
Adjusted
appropriation 2011/12:
The main appropriation (R151
,600
million) was increased by R1,934 million during the adjustment period. This
included a rollover of R1
,424
million in Programme 3
to pay for late invoices for software licences and specialised services. An
additional R510 thousand was allocated for higher personnel remuneration
increases that provided for in the main budget. Funds totalling R204 thousand
were moved out of Programme 1 and 2, mainly from the Goods and services
allocation, to Programme 1 and 2 (Machinery and equipment) for the procurement
of furniture and equipment.
Virement
(2011/12
):
Virement
was applied and funds to
the
amount of
R1.276 million (1.7%)
were moved out of Programme 2:
Complaints Processing, Monitoring and Investigation (Goods and Services).
R924 thousand of that money was moved to Programme 1: Administration
(Compensation of Employees: 1.5%) and R352 thousand was moved to Programme
3: Information Management and Research (Compensation of Employees: 1.8%).
2011/12
Quarterly Expenditure:
The expenditure patterns
of the Directorate over a two year period show a disturbing pattern of low
third quarter expenditure, followed (at least in the case of 2011/12) by relatively
high fourth quarter. Only 61.17% was spent at the end of the third quarter of
2011/12 (in comparison to 71.2% in 2010/11).
2011/12
Final expenditure:
The Directorate spent 100% per cent of its budget in the
2011/12 financial year (only R2 thousand remaining). This is an improvement on
previous years where there was under-spending at the end of the fourth quarter
i.e. 97.7% in 2010/11 and 91.2% in 2009/10.
However, despite almost 100%
expenditure overall for 2011/12 it is important to note that Compensation of
employees spent 99.5% of the final appropriation (slightly low spending is due
to the delay in filling certain funded positions). Note that this is a
percentage calculation after funds have been moved and that as stated above,
funds were moved out of Goods and services to address the projected shortfall
in Compensation of employees.
Unauthorised, Fruitless and wasteful
and Irregular expenditure:
There was no
Unauthorised
expenditure recorded for 2011/12. There was an amount of R1 thousand
incurred for Fruitless and wasteful
expenditure. The Irregular expenditure for 2011/12 totalled R83 thousand
of which R20 thousand has been condoned. The actual irregular expenditure
for 2011/12 that was not yet condoned thus amounts to R63 thousand (in
addition to the R184 thousand which was brought forward from previous
years).
Irregular expenditure was
incurred for a number of reasons including approval of overtime exceeding 30%
of basic salary and overtime worked without prior approval; and performance
bonuses paid without a performance agreement (see also summary of report of the
Auditor General).
2.2.
Financial performance for 2012/13
Budget
allocation for 2012/13:
The budget allocation for 2012/13 increased from an
adjusted budget of R153,534 million in 2011/12 to R196,961 million i.e. an
increase of 28% (R43 million). However, it is important to note that, despite
the priority to increase the staffing of the Directorate, Compensation of
employees received only 21% (in comparison to Goods and services, which
received 37%) of the R43 million. In addition, Programme 1: Administration
received 53% in comparison to Programme 2: Investigation and Information
Management (the core business of the Directorate) which received a smaller 35%
of the R43 million.
In addition, trends over three years
reflect a relatively low growth in Compensation of employees (10% in 2010/11;
14% in 2011/12 and 17% in 2012/13) in comparison to higher growth in Goods and
services (46% in 2010/11; 27% in 2011/12 and 41% in 2012/13).
The allocation of the 2012/13 budget
is almost equally divided into Compensation of employees (48%) and Goods and
services (49%).
Spending
for first quarter 2012/13:
During the first quarter of 2012/13, the Directorate spent
17% (R32.873 million against R196.961 million) of its allocated budget, far
below the 25% benchmark. The pattern of low first quarter spending continues as
in previous years (i.e. 19% in 2011/12 and 17% in 2010/11).
According to the Directorate a
number of measures have been taken to reduce under-spending including:
capturing of payments at SITA; monthly expenditure reports per responsible
manager which includes spending, reasons for under and over expenditure and
details on 30 day compliance (see AG report); monthly Budget Control Committee
meetings; and biannual review of budget needs.
Spending pressures:
The Directorate provided
the Committee, for the first time, with a comprehensive analysis of problems
faced in spending during 2012/13, and it is clear that these same systemic
problems were in existence in the previous financial year (i.e. 2011/12). In
essence, the Directorate has identified the following key concerns and has
highlighted measures that can be taken to address these concerns:
·
Misalignment of the budget with the organisational structure
and priorities of the Directorate has meant that the Directorate does not have
the funds to pay for all filled posts (291 as at end August 2012) or to fill
vacant posts (58 as at the end of August 2012). Filling of vacant posts
(especially for investigators) is a key priority in terms of delivery on the
transformed mandate of the Directorate. Currently, the budget is configured so
that only about 48% of funds are directed toward Compensation of employees. A
shortfall of R7
,315
will occur to fund filled posts
(R2,58 million needed) and to fill the 58 vacant posts for three months (R5,056
million).
·
Analysis of the Goods and services budget (including the 28%
of that budget that is allocated to contractual obligations) reflects that the
allocation to Goods and services is too high. In addition, the Directorate has
noted in particular that spending of this Goods and services budget in the
provinces is low and thus the allocation too high for its needs.
·
Cost cutting/control measures can be put in place and funds
can be shifted from the Goods and services budget to cover the shortfall of
funds for Compensation of employees thus allowing these posts to be filled. Key
areas which have been identified for cost cutting (through tightening of
policy, improved management and other measures) include Government Garage (GG)
fleet services- (the Directorate wants to reduce the contracts for GG vehicles
which are projected to cost R7 million for the year) and increase the use of
subsidised vehicles which are more cost effective; reduce other contractual
obligations where possible (allocations for these contractual obligations are
apparently too high); reduce overtime claims (by putting a moratorium on claims
for overtime in Programmes 1 and 3 non-core; and controlling overtime claims
in Programme 2- core); cap payment of performance bonuses (at 1.5%); and ensure
use existing equipment and procure only what is essential. Other measures that
will be taken are consideration of centralisation of payments for key
contractual obligations (including leases); introduction of controls for
Subsistence and Travel (S&T) expenditure and other non-core items, and
negotiate reasonable office rental in line with CPI. The Directorate will
communicate the cost cutting measures and realignment at all levels.
2.3.
Financial needs for 2013/14
Budget
baseline:
According to the indicative medium term baseline allocations, a total of R215
,342
million is allocated to the Directorate for 2013/14
(growing to R232,630 million in 2014/15 and R243,331 million for 2015/16). Of
this R215
,342
million, R105,750 million is allocated
to Compensation of employees and R105,459 million to Goods and services. In
terms of Programme structure, R100
,300
million is
allocated to Programme 1: Administration; R109,418 million to Programme 2:
Investigation and Information Management; and R5,624 million to Programme 3:
Legal Services.
Relationship
to 2012/13 analysis of misalignment of budget:
In the light of misalignment of the
budget to the priorities and organisational structure, the Directorate has stated
that they will need to correct the MTEF baselines (shift funds from Goods and
services to Compensation of employees), and also review the 13/14 proposed
organisational structure to ensure alignment with the available budget.
Submission
to National Treasury:
The Directorate submitted to National Treasury that it
would not be able to implement 1%, 2% or 3% reductions in its current baseline
for the MTEF. However, from a perusal of the submission, the Directorate has
not requested any additional funding either. The submission document does not
seem to accurately reflect the analysis on spending pressures identified in
2012/13. The Directorate has noted that they would need to reconsider their
MTEF submission to National Treasury based on a realignment of the baselines.
3.
Audit findings for 2011/12
The Directorate received an
unqualified report from Auditor-General for 2011/12 with findings. Key findings
included:
·
Predetermined objectives
: (1)
Lack of a written system of reporting performance against
predetermined objectives- In this case it referred to the inability of the AG
to ascertain the reliability of the information with regard to the indicator on
the registration and allocation of new cases within 48 hours of receipt. There
were no Department records to support whether this had occurred or not. (2)
Evidence supporting achievement on strategic objectives was not obtained. (3)
Compliance monitoring controls were not able to detect and prevent
non-compliance with Standard Operating Procedures resulting in irregular
expenditure. (4) 31% of targets not achieved due to capacity constraints.
·
Compliance with laws and
regulations:
(1) A human resource plan was not in place. (2) Accruals: Money owed by
the Directorate was not settled within 30 days. (3) Senior management did not
submit their annual interest declarations before the legislated date.
·
Internal control
deficiency:
Interim financial statements were not submitted.
·
Compensative/circumstantial
overtime:
No approval of overtime payment exceeding 30% of basic salary.
·
Employee costs:
Performance agreement
not pre-approved.
·
Investigations:
Public Protector is
currently investigating the lease arrangement of the City Forum building.
The Directorate reported the
following steps taken to address adverse audit findings:
·
Compilation of a consolidated written document for reporting
performance against objectives.
·
Collection of evidence supporting performance.
·
Engaged with senior management to ensure agreement on
standard operating procedures and development of guidelines.
·
Human resource plan has been compiled and submitted.
·
Still need to improve to ensure are payments settled within
30 days. Annual interest declarations were submitted late in 2011/12 and were
submitted timeously in 2012/13.
·
Red flag on overtime when nearing limit.
4.
Overview of the Strategic
and Operational environment of the Directorate
Outcome-based
approach:
The strategic outcome-oriented goals of the Directorate are linked directly to
Outcomes 3 All people in
The activities of the Directorate focus
specifically on Output 3 (of Outcome 3) which is to combat corruption in the
Justice Crime Prevention and Security (JCPS) cluster and thereby enhance its
effectiveness and its ability to serve as a crime deterrent. More specifically
the Directorate focuses on combating corruption within the police.
Overview of the Strategic Plan
(2011-2016):
Four key areas for
improved service delivery are:
·
Effectively investigate criminal offences committed by
members of the SAPS and Municipal Police Services (MPS).
·
Report and monitor recommendations that were made in respect
of members of the SAPS and MPS resulting from investigations conducted by the
Directorate.
·
Improve reporting and accountability practices.
·
Develop policy, reporting frameworks and standard operating
procedures to regulate investigations.
Overview of
Strategic Plan (2012-2017):
The Directorate revised its Strategic Plan in line with the
National Treasury Framework for Strategic and Annual Plans which focuses on
outcomes-based planning. The targets and outcomes of the 2012-2017 Strategic Plan
focuses on the new mandate of the IPID, due to the promulgation of the IPID Act
1 of 2011 on the 1 April 2012. In addition to strategic outcome-oriented goals
of the IPID, the Plan deals with the three high level outcomes:
·
High level strategic
outcome-oriented goal 1:
A police service that is trusted by the community and
operates in line with the spirit of the Constitution.
·
Intermediate outcomes:
High level strategic outcome-oriented goal 2.1:
The IPID is strong independent
oversight body; and
High level strategic
outcome-oriented goal 2.2:
The police service is responsive IPID
recommendations.
·
Immediate outcomes:
Strategic outcome-oriented goal 3.1:
The IPID is accessible to the
public;
Strategic outcome-oriented goal
3.2:
The performance management system operates optimally; and
Strategic outcome-oriented goal 3.3:
The
IPID processes cases efficiency.
The mandate of the Directorate has
been transformed in line with the IPID Act. In essence, the Directorate is
evolving from a complaints-driven organisation to an investigative-driven
organisation. In addition, the Act tightens the mandate of the Directorate to
focus on more serious and priority crimes committed by members of the police
services; and places strict reporting requirements on the police services on
matters that should be reported to the Directorate for investigation and for
the implementation of disciplinary recommendations.
In terms of the Act, in addition to
the requirement to investigate deaths in police custody and as a result of
police action, the Directorate should also investigate: complaints on discharge
of an official firearm by a police member; rape (on or off duty) by a police
member; rape of any person in custody; complaints of torture or assault by a
police member; corruption matters; and other matter referred from various
sources.
Key operational achievements for
2011/12 were reported as:
·
New legislation
: The legislation that
transformed the ICD to IPID was signed into law by the President on the 12 May
2011.
·
Serious Cases
: The Directorates
strategic decision to prioritise serious cases (deaths that occur in police
custody or as a result of police action) resulted in 90% of these cases being
in 2011/12. The target was 65%.
·
Backlog and Carry over
cases
:
In 2011/12 the Directorate reduced the backlog on carry over dockets which
should be limited to 10% each year. The Directorate carried over 550 cases at
the end of 2011/12 in comparison to the previous year (2010/11) where there
were 1 103 carried over cases.
·
Community awareness
programmes
:
The Directorate held 279 outreach events in 2011/12 exceeding the target of
260. The Directorate issued 60 media statements on cases.
·
Investigation of Criminal
Behaviour
:
The Directorate finalised 86% of investigations into complaints of criminal
behaviour laid against the SAPS and MPS in the year under review. The target
was 55%.
·
Register and allocation
of cases
:
The Directorate achieved 91% in registering and allocation within 48 hours of
the received 4 923 complaints in 2011/12. The 9% of the shortfall in meeting
the 100% target was contributed by
·
Misconduct cases
: The Directorate
completed 98% of investigations into complaints of misconduct lodged against
SAPS members in 2011/12 against the set target of 55%.
·
Recommendations to the
SAPS
:
The Directorate made 1 276 recommendations to SAPS management in respect
of disciplinary action.
5.
Performance
Information for each Programme in 2011/12
5.1.
Programme 1: Administration
This Programme is responsible for the
overall management of the Directorate and its support services. It consists of
internal audit unit, auxiliary services, human resources management, financial
management, supply chain management, asset management, risk and ethics
management, labour relations, employee wellness management and security
services.
The following table indicates the
budget allocated for Programme 1 in 2011/12:
Administration
|
||||
Adjusted
Appropriation
(R000)
|
Virement
(R000)
|
Final
Appropriation (R000)
|
Actual
Expenditure (R000)
|
Variance
(R000) between final appropriation and expenditure
|
R59 949
|
R924
|
R60 873
|
R60 872
|
1
|
An amount of R924 thousand was moved
to this Programme to cover a shortfall in Compensation of employees.
The final appropriation for this
Programme in 2011/12 was R60.8 million with an actual expenditure of R60.8
million and a variance of R1000 which is equal to 100% expenditure. The
Programme spent 99.4% of the allocated budget of R50.837 million in 2010/11 and
89.1% in 2009/10.
The following table highlights only
performance on selective targets for 2011/12:
Strategic Objective
|
Target
|
Actual
|
Evaluate the effectiveness of internal controls
and ensure compliance with applicable prescripts
|
·
16 audit review
|
32
(audit of provinces and 8 follow up audits)
|
Timely identification and effective mitigation of
risks
|
·
16 risk management reports
|
·
16
|
Reduce vacancy rate by effectively administrating
the recruitment, selection and appointment of employees and develop and implement
a retention policy
|
·
Vacancy rate below 10%
|
·
7.9% but no retention policy in
place Due to be adopted by end 3
rd
quarter 2012.
|
Promote discipline in the organisation
|
·
70% disciplinary hearings
finalised in 90 days
·
70% grievances finalised in 60
days
|
·
29%
Not met
·
0%
Not met
|
Reported challenges for 2011/12
included:
·
Capacity in the wellness section was low which resulted in
not meeting the target for HIV and AIDS awareness campaigns.
·
Capacity constraints in labour relations section meant that
grievance procedures were delayed.
·
Low number of female applicants for senior management posts
and low number of applicants with disabilities received resulted in not meeting
the equity targets. The Directorate is engaging with role-players in the sector
to head hunt for disabled applicants.
·
Corporate Governance component established under IPID (April
2012).
·
Delays/non-filling of vacant posts. Have put in place
process in 2012/13 to ensure all vacant posts are filled by an identified date
with weekly follow up meetings to monitor progress.
·
A total of 24 posts were vacant (279 filled out of 303
posts). The majority of these unfilled posts (14) were in Programme 2 (core
business of the Directorate). Eight posts were vacant in Programme 1 and two
posts were vacant in Programme 3.
5.2.
Programme 2: Complaints
Processing, Monitoring and Investigation
This Programme had two components in
2011/12, namely, Complaints processing, monitoring and investigation; and Legal
services.
The strategic objective of this
Programme in 2011/12 was to promote proper police conduct. This objective is
measured by four outputs:
·
Finalising investigations
of death in custody or as a result of police conduct.
·
Finalising investigations
of complaints of criminality against members of the SAPS and MPS.
·
Conducting police station
audits for compliance with the Domestic Violence Act.
·
Processing applications
for exemption in cases of non-compliance with DVA.
The following table indicates budget
and spending allocated for Programme 2 in 2011/12:
Complaints Processing,
Monitoring and Investigation
|
||||
Adjusted
Appropriation
(R000)
|
Virement
(R000)
|
Final
Appropriation (R000)
|
Actual
Expenditure (R000)
|
Variance
(R000) between final appropriation and expenditure
|
R74 522
|
(1 276)
|
R73 246
|
R73 245
|
1
|
An amount of R1.276 million was
shifted from Goods and Services in this Programme to Programme 1
(R924 000) and Programme 3 (R352 000) to defray anticipated
Compensation of employees in these Programmes. The Programme spent 99.9% of its
final appropriation of R73.2 million. There was a variance of R1000
under-spending in 2011/12. It spent 98.6% of its final appropriation (R65.9
million) in 2010/11 and the expenditure in 2009/10 was 100%.
The Directorate met four out of its
six targets in Programme 2 as depicted in the following table:
Strategic Objective
|
Target
|
Actual
|
Register and allocate all new cases within 48
hours of receipt
|
100%
(5 450)
|
·
91%
Not met
|
Investigate deaths in custody or as a result of
police action
|
65%
(470)
|
·
90%
|
Investigate and/or monitor complaints of
criminality and misconduct
|
·
55% of the investigations of
criminality completed
·
55% of the investigations of
misconduct completed
|
·
86%
·
98%
|
Monitor the implementation of DVA
|
·
108 the number of police
stations audited for compliance
·
100% of applications for
exemption in terms of the DVA
|
·
222
·
99%
Not met
|
The following statistics highlight
performance issues for 2011/12 in terms of notifications and complaints:
·
Fewer complaints and notifications were received in 2011/12
(4 923) in comparison to 5 869 in 2010/11. The total case load for 2011/12
was 6 026 cases due to the backlog cases carried over from 2010/11
(1 103 cases).
·
Most complaints and notifications were received in
·
Despite the fact that the most cases were received by
·
Poorest performance for completion of cases during 2011/12
was in
·
A total of 545 recommendations were made to courts/Director
of Public Prosecutions (DPP) on criminal and death cases. The highest number of
recommendations to court/DPP were made in KZN (112); followed by
·
Out of the total of 36 convictions in 2011/12, most were
attained in the
·
The Directorate made 1 276 recommendations to SAPS in
2011/12 with regard to all cases.
5.3.
Programme 3: Information
Management and Research
The strategic objectives for this
Programme in 2011/12 were to:
·
Analyse information in
relation to the Domestic Violence Act.
·
Increase the number of
community-awareness programmes.
·
Strengthen the
ICDs
information and communication technology by
developing and implementing an action plan.
The following table indicates budget
allocated for Programme 3 in 2011/12:
Information Management and
Research
|
||||
Adjusted
Appropriation
(R000)
|
Virement
(R000)
|
Final
Appropriation (R000)
|
Actual
Expenditure (R000)
|
Variance
(R000) between final appropriation and expenditure
|
R19 063
|
352
|
R19 415
|
R19 415
|
0
|
The Programme recorded 100%
expenditure of its final appropriation of R19.4 million in 2011/12. In 2010/11
the Programme spent 88.1% of its budget appropriation of R14.8 million and 66%
in 2009/10 of its appropriation budget of R15.9 million.
The following table indicates
performance of Programme 3 in 2011/12:
Strategic Objective
|
Target
|
Actual
|
Promote public awareness of the ICD role and
services
|
·
Number of community awareness
and outreach programmes launched Target: 260
·
Number of updates to
departmental website Target: Ongoing
|
·
279
·
62
|
Conduct proactive research
|
3
|
·
2
Not met
|
Establish efficient information systems to
support strategic business objectives
|
Revised and approved ICT operational plan.
Implement 15% of ICT operation plan
|
ICT operational plan revised and approved. 15% of
ICT operational plan was implemented
|
Reported challenges for 2011/12
included:
·
Two vacant posts in research section which were not filled
due to decision to downgrade capacity in relation to changed mandate of IPID.
·
Problems in the ICT environment were acknowledged.
6.
Committee
Observations
The
following are key observations of the Committee with regard to the
Directorates financial performance and service delivery performance for
2011/12 and 2012/13:
Relationship between financial and
programme performance:
Over the years, the Committee has questioned whether the budget of the
Directorate has been correctly allocated to ensure achievement of key
performance priorities of the Directorate, i.e. investigations. The skewed
allocation of the budget to the National Office, and the increased
centralisation of functions at National Office has been an ongoing concern.
However, the Directorate has stood firm in its position that this was the
correct approach.
The
Directorate has now acknowledged that:
·
there is no alignment between the budget of
the Directorate and its organisational structure;
·
there is no alignment between performance
reporting and financial reporting; and
·
the budget is not aligned to priorities
This
admission is welcomed by the Committee as it supports the suspicions that the
Committee has had for a number of years, and can now result in a process of
realignment and reprioritisation. All measures that will result in proper
alignment of the budget to structure and priorities, and aligned performance
and financial reporting are supported and encouraged by the Committee.
6.1.
Financial performance
Quarterly expenditure, adjustments and
virement:
While acknowledging the fact that the Directorate spent
99.9% of its 2011/12 adjusted appropriation, the Committee noted that there is
a trend of poor spending by the Directorate. This is reflected in low spending
by the end of the 3
rd
quarter (61% for 2011/12 and low spending for
the previous two financial years) and almost 100% expenditure in 2011/12 at the
end of the 4th quarter. This raises a concern of possible fiscal dumping to
ensure full expenditure of funds. The Committee also raised concerns around the
virement of R1
,2
million that was moved from the Goods
and services budget (in Programme 2) to the Compensation of employee budget in
Programme 1 and 3.
In
response to these concerns the Directorate stated that while there was not
fiscal dumping there were problem areas with regard to spending, largely due
to misalignment of the budget with priorities and organisational structure, as
highlighted above. The key problem with the 2011/12 budget was that there seems
to have been poor planning and thus the misallocation of funds. The allocation
to Goods and services was almost equal to the allocation to Compensation of
employees. Thus despite the priority to increase staffing, especially of
investigators and to fill existing vacant posts, this could not be done,
because there were insufficient funds in the budget for Compensation of
employees.
The
pattern of virement for 2011/12 illustrates this problem as the R1.276 million
was moved from the Goods and Services budget in Programme 2 to Compensation of
employees in Programme 1 and 3 to cover employee costs. The Directorate stated
that they face the identical problem in 2012/13 and will need to approach
National Treasury to move significant funds from their high Goods and services
budget to Compensation of employees to cover existing employee costs and to
ensure that they can fill the 58 posts that are vacant as at end August 2012.
Spending on Goods
and services:
A number of
concerns were noted with regard to spending on line items in Goods and services.
These
included:
·
Increase in domestic travel costs to R15
,7
million (from R10,6 million in 2010/11).
·
An increase in Computer services expenditure
to R7
,0
million in 2011/12 (from R5 million in
2010/11) with a decrease in payments to SITA and increase in payments to
External computer service providers.
The
Directorate acknowledged the problem with high domestic travel costs in 2011/12
and ascribed the problem to poor management and control over vehicles and travel
claims at provincial level, mainly due to the centralisation of functions at
the National Office.
The key problem has
been the underutilisation of subsidised vehicles (whereby the employee pays 30%
of the repayment costs and the Directorate pays the remainder) and the
over-utilisation of Government Garage (GG) vehicles (where all costs are
carried by the Directorate). Loopholes in the policy have allowed use of a GG
vehicle in certain instances even when the employee has a subsidised vehicle.
In addition, employees who qualify for subsidised vehicles are choosing rather
to use a GG vehicle as there are no payments required.
Action
that will be taken in 2012/13 includes the following: The policy will be
amended to close the loopholes and to promote use of subsidised vehicles by
employees that qualify for these. Interim guidelines will be drafted, and the
leases for underutilised GG vehicles will be cancelled.
In addition, the management over vehicles
will be decentralised to provincial level to ensure proper control by
management. The Directorate hopes that cost savings through better management
of vehicles can be used in 2012/13 to cover a projected shortfall in
Compensation of employees.
The
Directorate stated that another reason for high domestic travel costs related
to high claims submitted by investigators. The policy on travel claims is being
reviewed to increase cost-effectiveness.
It was a
concern to the Committee that the Directorate was unable to address the
question of the increase in Computer expenditure, especially decreased
expenditure to SITA and increased expenditure to external consultants, despite
the fact that this information resides within the Annual Report.
Overtime payments:
The
Committee was concerned with high expenditure on overtime (a total of R1
,3
million) and in particular the fact that of this amount a
total of R607 thousand was paid for overtime in Programme 1: Administration and
a lesser amount, R517 thousand for overtime in Programme 2 which is the core
business of the Directorate.
The
Directorate acknowledged the concern and stated that a number of measures will
be introduced to ensure cost-savings in overtime payments and effect better
control. These include a moratorium of overtime for Programme 1 and 3, and
measures to reduce overtime payments in Programme 2. Compliance measures
including alerts before excessive overtime (over 30% of salary) occurs, will be
implemented. Better planning and monitoring at provincial level will assist.
Decentralisation of responsibility:
Over the years, financial and management
responsibility has incrementally been shifted away from the Provincial Heads
and to the National Office. The Committee has consistently stated that this is
a problem and has questioned the high allocation of resources to National
Office, as well as the centralisation of functions.
For the
first time, the Directorate admitted that this centralisation is a problem and
the lack of accountability of Provincial Heads for expenditure costs, has
resulted in poor spending trends and high expenditure in areas where this could
have been better managed. The Directorate has stated that they want to provide
Provincial Heads with more responsibility and accountability over their budgets
and that the Budget Coordinating Committee (at National Office) will assist the
Provincial Heads to ensure that they are capacitated to fulfil these functions
effectively and will monitor and evaluate spending continuously to ensure
improved and consistent spending patterns throughout the year.
Irregular expenditure:
The
Auditor General has noted that lack of compliance with certain standard
operating procedures (including in relation to overtime payments) has resulted
in irregular expenditure. The Committee notes the compliance monitoring
procedures that will be taken to ensure better compliance but also recommended
that disciplinary action is taken when non-compliance occurs (consequences).
The decentralisation of management responsibilities should play an important
part in ensuring better monitoring, compliance and consequential action.
6.2.
Programme performance
The
Committee raised a number of fundamental concerns with the performance
reporting of the Directorate. These concerns fall across Programmes and
include:
·
Lack of analysis by management of
relationships
between Programme performance- working in silos
.
·
Inadequate targets to measure quality of
performance- targets measure outputs (quantity) rather than outcomes (quality).
·
Inadequate linking of performance to
financial performance and budget allocations.
In
addition, the Committee has noted the concerns of the Auditor General with
regard to the lack of a written system of reporting performance against
predetermined objectives (especially with respect to the indicator measuring
registration and allocation of cases within 48 hours of receipt: Programme 2)
which raises doubt as to the reliability of the performance information
provided in the Annual Report. The fact that the performance information
presented in the Report may not be reliable is therefore a serious concern. The
Directorate has stated that they are compiling a consolidated document/written
system to provide written evidence on performance reporting.
Programme 1: Administration
Despite
the fact that the Directorate stated that they had achieved most of their
targets (and were thus satisfied with their performance in this Programme a
number of serious concerns were raised by the Committee with regard to
performance in this Programme. The Committee raised a fundamental problem with
the fact that indicators and targets do not measure the outcome/effect of the
initiative. As a result, while performance may look good on paper, in
practice there are in fact serious problems.
Indicators and targets:
The
Committee raised a concern in 2011/12 during their oversight over the strategic
plan and proposed budget of the Directorate for that financial year, with the
manner in which the targets, particularly for Programme 1 had been set. The
Directorate at the time had argued against the interpretation by the Committee
and had thus decided not to consider amending their targets. The Committee highlighted
some of the consequences of this decision. For example, the target set for
identification and mitigation of risks is that 16 risk management reports
should have been submitted. And they were and therefore the target was
achieved. But the question is whether risk was effectively identified and the
appropriate steps taken in 2011/12. The problem of the Head Office, currently
under investigation by the Public Protector, and poor performance of the
Western Cape and Gauteng offices was identified as an example of just some of
the risks that were not correctly identified or addressed.
The
Committee thus reiterates that proper assessment of performance of this
Programme is not possible without adapting the indicators and targets. Key
targets which measure quantity performance and not quality performance and
which should be
reconceptualised
include the target
for number of ethics and integrity workshops held; number of internal audit
reviews conducted; number of risk management reports submitted; number of
expenditure reports submitted, to mention a few. The Directorate agreed, in the
meeting that the existing targets were an inadequate measure of performance in
this Programme.
Vacant posts:
The Directorate
reported that it had met its target with regard to a vacancy rate of below 10%
- its vacancy rate was 7.9%. However, in response to questions the Directorate
acknowledged that vacancies are in fact a serious problem, and that they do not
have a retention policy in place. This policy is planned to be adopted by the
end of the 3
rd
quarter of the 2012/13 financial year. Highest
vacancies in 2011/12 were in fact in Programme 2 which is the core business of
the Directorate.
Even
more seriously, it was identified by the Directorate that misinformation on
vacancies for 2012/13 had been provided to the Committee in its meeting with
the Directorate on the budget and strategic plan for 2012/13 in March 2012.
During this meeting it was stated that there were 34 newly funded posts for
2012/13, but in fact the number of posts funded was higher.
As
at end of August 2012/13 as highlighted in section 2.2.
of
this report there were 58 vacant posts. At no time in
this meeting in March was it stated that these vacant posts (whether 34 or 58)
would not be filled due to budget constraints.
Clear
misalignment of budget planning is apparent in that the Directorate has now
stated that in terms of its current funds for Compensation of employees (R95
million of which R36.8 million has already been used) not only will it not be
able to fill these posts, neither will it be able to fund all filled posts
until the end of the financial year. The shortfall for filled posts is R2.5
million and the shortfall for filling vacant posts is an additional R5 million.
The
Committee is deeply concerned that the Directorate did not provide accurate
information to the Committee at the beginning of the 2012/13 financial year.
Also, it is clear that there has been severe misalignment of the budget to
organisational structure and performance priorities. The fact that this problem
has not been identified earlier is an indictment of the management of the
Directorate.
The
Committee also noted that the Auditor General had identified lack of compliance
with Public Service Regulations due to the absence of a Human Resource Plan in
place for the MTEF period. The Directorate stated that the Human Resource Plan
has now been compiled and submitted in terms of the relevant regulation.
Head Office lease:
The
Directorate acknowledged, in response to concerns raised by the Committee that
poor management (including poor contract management) and a total misjudgement
of the seriousness of the matter by management, had resulted in problems with
the lease of the City Forum building. The Committee reiterated that this was
one of the issues that it had attempted to bring to the attention of the
management of the Directorate, and it had been ignored.
The
Directorate has and will be taking action to ensure better contract management
in future including strengthening the Legal Service unit; increasing management
involvement in overseeing and directing the procurement by the Department of
Public Works to ensure compliance with all prescripts; consideration of
centralisation of payments for all key contractual obligations (leases,
Government Garage, cleaning services etc) to ensure proper controls; and
negotiating reasonable office rental with landlord in line with the CPI.
The
Committee was also very aggrieved that incorrect information had been sent, in
writing to the Committee with regard to this lease. The Committee had been
told, in writing that the revised needs assessment had been sent off to DPW.
Yet in this meeting, the Committee was told that the revised needs assessment
was only sent off to DPW yesterday i.e. on 8 October 2012. The Directorate
acknowledged that the incorrect information had been reported to the Committee
in its written report.
Management of discipline, grievances and leave:
The Committee raised a number of concerns with regard to the
management of disciplinary cases, grievances and leave within the Directorate.
The long period of time taken to resolve disciplinary and grievances cases was
not acceptable, especially as the number of cases were relatively few. In
addition, the Committee requested that the Department analyse their leave
patterns, in particular to identify cases of abuse of sick leave, which has
financial implications for the Directorate.
Programme 2: Complaints Processing,
Monitoring and Investigation
The core
business of the Directorate resides in Programme 2, and this Programme is thus
key
to measuring performance of the Directorate. An ongoing
concern of the Committee, which has not been taken on board by the Directorate,
despite the recommendation of the Committee, is that the targets in this
Programme are set much too low. Thus the Committee reiterates, again, that
while four out of the six targets were met (and in fact in many cases exceeded
by a large margin), these are not an accurate measure of performance.
Low targets:
The fact that
targets for investigations were set at 55% and 65% and performance was between
86% and 98% means that the targets are too low. Even the poorest performing
offices (
The
Directorate has argued previously that they did not want to increase the
targets as they were not sure how the caseloads would change in line with the
revised mandate of the IPID.
Linkages in terms of the statistics:
A
central concern of the Committee was that there was no attempt made by
management to link the information contained in the statistics provided for the
different stages of a case (i.e. from number of complaints and notifications
received, number of investigations completed, number of recommendations made to
courts/DPP, number of recommendations made to SAPS, number of withdrawals and
number of convictions/no conviction). It is only by linking the information,
that trends and problems can be uncovered, and an accurate picture of the
performance of the Directorate ascertained.
For
example, only 36 convictions were attained during 2011/12 and there were a
total of 38 acquittals, yet 545 recommendations were made to the courts (DPP) for
criminal action. While clearly the convictions and acquittals pertained to
recommendations made in earlier years, the number of recommendations made to
the courts was probably more the less the same. So the question has to be asked
as to why so few convictions are achieved and whether this may relate to the
quality of the investigations completed.
Performance of
Relationship with SAPS:
A
number of concerns were raised with regard to the relationship of the
Directorate with the SAPS including:
·
Number of complaints/notifications referred
to SAPS immediately for investigation: the report contains no information on
this.
·
Outcome of criminal case investigations
referred to SAPS: the report contains no information on this (and in fact the
Directorate acknowledged that they have never tracked this information)
·
Outcome of recommendations made to SAPS:
report contains limited information though the Committee acknowledges that this
tracking process has now become the mandate of the Civilian Secretariat of
Police (who will be expected to report on this)
The
Committee acknowledges that the IPID Act is an attempt to address some of these
relationship and reporting problems but reiterates that a consolidated approach
to track complaints/notifications against the police is essential in order to
address the problems in the longer term.
Programme 3: Information Management and
Research
While
three out of the four targets were reported as met, a number of key problems
were noted by the Committee with regard to performance in this Programme during
2011/12 including lack of analysis of trends and the lack of effective
research/analytical support.
Link between awareness programmes and
complaints:
While the number of community awareness and outreach
programmes increased (and thus the target was met), the fact that the number of
complaints and notifications decreased, means that it is possible that the
effectiveness of these outreach programmes is limited. The fact that the
Directorate has not considered this possibility is a concern. The Committee has
concerns that the Directorate does not seem to make the correct analytical
linkages between programmes or targets, in terms of performance. Isolated
analysis of the performance in individual targets is not useful.
Limited research:
The
fact that only two out of a targeted three research reports were completed
cannot be excused by the fact that there were limited staff. Even within these
constraints it should have been possible to complete this small number of
reports.
The
Directorate noted that in terms of the revised mandate and structure of IPID,
all members of the research component have been moved to the Knowledge
Management unit reporting to Programme 2.
Information Systems to support strategic
business objectives:
The Committees oversight visit to the
IPID satellite office in
Upington
revealed serious
problems with the Information Technology systems in the Directorate. The office
could not report on the number of cases before it, and stated that this
information was captured at the
7.
Summary of Directorates reporting requirements
The following table provides a
summary of the additional information requested from the Directorate during the
hearings and other reporting requirements.
Reporting matter
|
Action required
|
Timeframe
|
Financials and Programme
1
|
|
|
Copy of the 2013/14 budget submission made to National
Treasury
|
Written report
|
Received 12 October 2012
|
Revised slides detailing budget per programme and
details of AG findings
|
Revised slides
|
Received 10 October 2012
|
Detailed report on consultants, contractors and agency
services reflected in Note 4.3 of the Annual Report
|
Written report
|
Received 12 October 2012
|
Detailed list of payments which exceeded 30 days.
|
Written report
|
Received 10 October 2012
|
Details on disposals reflected in Note 27.2 of Annual
Report
|
Written report
|
Received 10 October 2012
|
Copy of report completed on problems with the use of
vehicles and revised policy on vehicles/transport
|
Copy of policy and report
|
Received 10 October 2012
Policy-electronically
|
Breakdown of misconduct/grievances
|
Written report
|
Received 10 October 2012
|
Breakdown of training skills courses offered in
2011/12
and attendance
|
Written report
|
Received 10 October 2012
|
Details on performance rewards/bonuses for 2011/12
|
Written report
|
Received 10 October 2012
|
Report on why overtime payments higher in Programme 1
rather than Programme 2 and why managers are paid overtime allowances
|
Written report
|
Guidelines Received 10 October 2012
|
Copy of leave policy
|
Copy of policy
|
Received 10 October 2012- electronically
|
Recruitment plan for all vacant positions
|
Written report
|
Due 26 October 2012
|
Report on expenditure for computers (case management
system and operating system) and computer services (SITA/external providers)
|
Written report
|
Due 26 October 2012
|
Programme 2
|
|
|
Report on Sea Point case
|
Written report
|
Received 19 October 2012
|
Progress report on McGregor CAS 38/06/2012: CCN
2011070113
|
Written report
|
Received 19 October 2012
|
Progress report on alleged misconduct/criminal cases
against SAPS members in Umbel precinct
|
Written report
|
Received 19 October 2012
|
Breakdown of all recommendations made to SAPS and DPP,
and the outcome thereof, per province
|
Written report
|
Due 26 October 2012
|
Breakdown of all cases referred to SAPS for
investigation and the outcome thereof, per province
|
Written report
|
Due 26 October 2012
|
Breakdown of investigators per provincial office
|
Written report
|
Received 12 October 2012
|
Programme 3
|
|
|
A list of community awareness/outreach events and dates
on which they were held
|
Written report
|
Received 12 October 2012
|
A breakdown of the 44 posts in Programme 3 for 2011/12
|
Written report
|
Received 10 October 2012
|
A breakdown of expenditure in respect of Programme 3 for
2011/12
|
Written report
|
Received 10 October 2012
|
Copies of research reports completed 2011/12 and ensure
that copies of all reports are submitted in future to the Committee on
completion.
|
Copy of research reports
|
Due 26 October 2012
|
8.
Summary of recommendations relating to requests for movement
of funds (virement) for 2012/13, funding for the MTEF and additional issues
Meeting:
The Committee will
call the Directorate to a meeting, within the current parliamentary session to
discuss in more detail, some of the key issues that have arisen in the hearings
on 8 and 9 October 2012. These include the acknowledgement by the Directorate
that the Directorate budget is fundamentally misaligned, and that this will
have implications to their submission to National Treasury for 2013/14. The
Internal Audit Committee will also be invited, along with the acting Executive
Director, the Chief Financial Officer and the Manager of Programme 1:
Administration.
Incorrect information provided to the
Committee:
In addition, the Committee reiterates its concern that
misinformation may have been provided to the Committee during the 2012/13
budget process and the Committees budget report may have to be corrected, to
reflect this.
Movement of funds and cost- saving measures
for 2012/13:
The analysis of the challenges in spending trends
presented to the Committee is long overdue and the Committee welcomes the
initiative taken to identify and address these fundamental problems. The key
tenet- that the budget is skewed toward Goods and services rather than
Compensation of employees and thus out of kilter with both the organisational
structure and strategic priories of the Directorate seems accurate.
The
Committee thus would recommend that National Treasury supports the movement of
funds from Goods and services, to Compensation of employees in order to cover
existing staff costs as well as to fill the 58 vacant posts.
In
addition, the Committee supports the cost-saving measures identified in the
report of the Directorate including the savings in overtime allowances,
performance bonuses,
procurement
of equipment, S&T
allowances, vehicle leases/allowances and office rentals.
Decentralisation of budget planning,
spending and monitoring:
The Committee supports the acknowledgement
by the Directorate that increased centralisation of these functions at the
National Office has resulted in poor spending patterns; and ineffective
controls and supports initiatives to address this situation by decentralising
functions and responsibilities.
Ensuring
effective leadership, in the form of provincial heads (these are all currently
in acting positions) is crucial and should be considered when these posts are
filled. Effective support in the provincial offices and by the National Office
should also be prioritised.
2013/14 reductions to baselines:
Compensation of employees; Goods and services; Payments for Capital Assets:
The
Committee supports the submission by the Directorate that a 1% (2013/14); 2%
(2014/15) and 3% (2015/16) reduction of the baseline for Compensation of
employees is undesirable and will result in the inability of the Directorate to
achieve its transformed mandate.
However,
it is clear that according to the analysis of challenges in spending trends
presented to the Committee by the Directorate, that too much money has been
allocated to Goods and services, and in addition, that there are cost-savings
to Goods and services that can be implemented to ensure additional savings.
In
addition, expenditure in Capital assets was also low in 2011/12, though it may
be possible that if the vacant posts are filled, that additional capital
expenditure will be required to capacitate these employees.
2013/14 realignment of budget to
organisational structure and strategic priorities:
The Committee
recommends that baselines for Compensation of employees and Goods and services
the 2013/14 budget
are
reconfigured to ensure:
·
Alignment of budget with operational
structure
·
Alignment of budget with priorities
This
would require a re-alignment of the ratio of Compensations of employees: Goods
and services to ensure an increased allocation to Compensation of employees,
thus allowing for the hiring of additional staff (especially investigators) to
the Directorate, in line with needs projected for the MTEF. The current 50:50
ratio is undesirable and unsustainable.
Organisational structure:
The
Directorate has stated that a review of the projected organisational structure
is required, in the light of problems identified with the budget. While a
proposed MTEF organisational structure has been approved by the Minister, this
has not been presented to the Committee (despite requests for this information,
on approval of the Minister). In addition, it is clear from the analysis of
problems in spending presented to the Committee that additional
responsibilities need to be provided to Provincial Heads, and decentralised
from National Office. This may have implications for the organisational
structure, especially in terms of reducing capacity at National Office.
It is
recommended that a review of the existing and projected organisational
structure is completed and that a revised plan is developed - supported by
clear motivations and with clear alignment to the budget as well as the
strategic priorities of the Directorate. This report should be submitted to the
Committee on completion.
2013/14 additional funding:
The
submission of the Directorate to National Treasury does not include a request
for additional funding for 2013/14 or the MTEF. In addition, the Directorate
has stated to the Committee that cost-savings and virement will be able to
cover costs of expanding personnel for 2012/13, though this only covers filling
the vacant posts for the remaining three month period.
The
2013/14 budget should be scrutinised to ensure that all these posts (total of
349 posts) can be funded, once the budget is realigned and cost-savings
implemented. If there are shortfalls, then additional funds should be allocated
to ensure that these posts can all be funded.
The
budget should also make provision to ensure that the additional posts
identified for 2013/14 can be filled. However, this recommendation should be
considered in conjunction with the recommendation that the envisaged
organisational structure and posts going forward, is properly motivated in line
with strategic priorities.
The following additional recommendations
are made by the Committee:
Support to recommendations of the Auditor
General:
The
Committee supports the recommendations of the AG including: Continuous
monitoring of compliance with procurement processes; senior management takes
responsibility to ensure that performance information reported on is reliable;
and that they are held accountable for reporting unreliable information; the
Directorate identifies and fills critical vacant posts timeously; senior
management should monitor and review day to day financial activities to ensure
monthly financial information is accurate and reliable; and the Directorate approves
and implements an IT governance framework and monitors the effectiveness of the
new OAPO IT system.
Programme 1 indicators and targets:
The
Directorate should review and
reconceptualise
Programme 1 indicators and targets to enable effective and useful oversight
over performance in this Programme.
Programme 2 targets:
Performance targets
for the indicators for deaths, and criminal investigations should be increased
to the baseline achievement for 2011/12.
Analysis of trends:
While the research
function no longer exists in terms of the new mandate and organisational
structure of IPID, it is essential that a statistician supported by at least
one or two researchers is included in the new organisational structure to
ensure ongoing analysis of the statistics of IPID in terms of notifications,
complaints and recommendations. These persons should be analysing trends on a
continuous basis to inform recommendations to both the Directorates management
and the SAPS on strategic shifts/interventions that need to be put in place to
address problems.
Ongoing analysis of
the statistics and the identification of trends, will allow for immediate
interventions as well as systemic solutions which can be suggested to the SAPS,
to problems identified. This function should be situated in either the
Administration or the Investigation programme.
9.
Conclusion
While
very serious problems were identified in this oversight process, the Committee
is pleased that these problems have at least been identified so that corrective
steps can be taken.
However,
these problems do raise the concern as to whether the Directorate has the
ability and commitment to take on its additional responsibilities in terms of
the IPID Act. A completely new approach is needed, both in terms of the budget
(realignment), management responsibilities and accountability (decentralised),
collaborative and interactive planning and strategising between programmes
(stop working in silos), and a re-commitment by all manager and employees to
the human rights orientation and central purpose of the Directorate.
The
Directorate is still young (in terms of its transformed mandate) and it is thus
not yet too late to ensure the internal transformation that is required in
order to ensure that it can fulfil its mandate effectively and efficiently.
*The
Minister of Police is requested to ensure the implementation of all the above
recommendations contained in the report.
Report to be considered.
Documents
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