ATC140711: Report of the Portfolio Committee on Home Affairs on the Annual Performance Plan and Budget Vote 4 of the Department of Home Affairs, dated 8 July 2014
REPORT OF THE PORTFOLIO
COMMITTEE ON HOME AFFAIRS ON THE ANNUAL PERFORMANCE PLAN AND BUDGET VOTE 4 OF
THE DEPARTMENT OF HOME AFFAIRS, DATED 8 JULY 2014
The Portfolio Committee on Home Affairs
(the Committee) having met with the Department of Home Affairs (DHA) on its
Annual Performance Plan (APP) and budget for 2014/15, reports as follows:
The Committee has a mandate to conduct
oversight over the DHA and its entities, namely, Electoral Commission, Film and
Publications Board and Government Printing Works. The Committee met with the
Department of Home Affairs on 1 July 2014 to receive briefings on the APP and
The entities were not invited to
the meeting prior the budget being debated. This was due to time constraints
resulting from the programme of Parliament. Entities will be invited as soon as
possible to fully brief the Committee on their budget and APPs. During the
briefing the DHA also covered allocations made to the entities.
2. Briefing by the Department of Home
Affairs on the Annual Performance Plan and Budget
The mandates of the DHA are derived from
the Constitutions of the Republic of South Africa, legislation and
international agreements. The DHAs services are categorised into two broad
categories, namely; Civic Services and Immigration Services. The DHA fulfils
its civic mandate by being a custodian, protector and verifier of the identity
and status of citizens and permanent residents in South Africa. The immigration
mandate of the DHA is to control, regulate and facilitate immigration and the
movement of persons through the 72 ports of entry. It also services foreign
missions and determines the status of asylum seekers and refugees in accordance
with international obligations. Other mandates are the funding and oversight of
the Electoral Commission (IEC), Government Printing Works (GPW) and Film and
Publications Board (FPB); administration of the Public Holidays Act (1994) and
funding of political parties through the Electoral Commission.
2.1. Vision of a transformed Department of
The Department of Home Affairs provides
protection of identity and status of all who live in South Africa and South
African citizens living abroad. In so doing, it provides security to
non-security departments such as the Departments of Education, Health, Trade
and Industry, and Social Development. The DHA thus forms part of the security
cluster of departments in its protection of state functions, national borders
and provision of secure documents for citizens and residents.
A transformed DHA will:
a cadre of officials that is patriotic, disciplined, security conscious,
professional and human.
the Information Technology systems through digital technology and integration
for security, service delivery and transformation.
identity and immigration and deliver related services that support the
achievement of national goals; including security and efficient service
delivery to all citizens.
the capacity to secure critical systems and related services by managing risks
in terms of legislation, staffing, culture and organisation.
to be fully integrated into the Justice, Crime Prevention and Security Cluster
(JCPS), while continuing to develop relationships with a wide range of state,
civil society and international stakeholders.
2.2. Programmes of the Department of Home Affairs
The DHA has three programmes, namely Administration,
Citizen Affairs and Immigration Affairs.
Programme 1: Administration
The programme provides leadership, management and
support services to the Department of Home Affairs.
Programme 2: Citizen Affairs
The programme provides secure, efficient and
accessible services and documents for citizens and lawful residents. The
programme also provides the management of the branch for both the head office
and frontline offices and regulates all matters relating to the National
Population Register (NPR). These include maintaining an accurate register of
all citizens and immigrants who had acquired the right to permanent residence;
registering births, deaths and marriages; providing travel and citizenship
documents; providing financial assistance to citizens abroad who wish to return
to South Africa but have no means and determining and granting citizenship.
Citizen Affairs also develops, manages and coordinates the departmental
footprint in relation to opening new offices; deploying registration services
at health facilities; and deploying mobile offices in rural areas where Home
Affairs did not have permanent offices.
The programme provides for all civic, immigration and
refugee affairs functions within all the provinces and at many missions. The
transfers to Government Printing Works, Film and Publications Board and
Electoral Commission also fall within this programme.
Programme 3: Immigration Affairs
The programme through the Immigration Branch
facilitates and regulates the secure movement of people through ports of entry
into and out of South Africa; determines the status of asylum seekers; and
regulates refugee affairs.
The Immigration Branch facilitates the entry and
departure of persons into South Africa in line with the Immigration Act (2002).
It records their movements on the Movement Control System (MCS) and controls
the processing of applications for permanent and temporary residence permits,
including work, study, business and other visas. Immigration Affairs also deals
with the immigration matters in foreign countries and detects and deports
illegal immigrants in terms of the Immigration Act. In addition, the branch
issues enabling documents to asylum seekers and refugees.
2.3. The National Outcomes of Government
For the 2014 2019 period, government had
increased the number of national outcomes from twelve to fourteen. The two
additional outcomes are 13) social protection and 14) national building and
Of the fourteen outcomes, the DHA was
responsible for the following government outcomes:
Outcome 3: All people in South Africa are
and feel safe.
Outcome 5: A skilled and capable workforce
to support an inclusive growth path.
Outcome 12: An efficient, effective and
development oriented public service.
Outcome 14: Nation building and social
In order to contribute to the government
outcomes, the DHA had developed its own outcomes, which were:
Outcome 1: Secured South African
citizenship and identity.
Outcome 2: Secured and responsive
Outcome 3: Services to citizens and other
clients that are accessible and efficient.
OUTCOME 1: Secured South African citizenship and
Strategic Objective 1.1. All eligible citizens are
issued with enabling documents relating to their identity and status. The DHA
planned to increase by 70 the number of offices with live capture functionality
for identity documents and passports. It was anticipated 694 000 births
would be registered within 30 calendar days. The DHA also planned to issue 1.6
million Identity Smart Cards to citizens over the age of 16 years.
Ninety five percent of the green bar-coded identity
documents were to be issued to first time applicants within 54 working days
from the date of receipt of application until the ID was scanned at the office
of application. Ninety five percent of the ID re-issues were to be issued
within 47 working days from the date of application until the ID was scanned at
the office of application.
Ninety five percent of passports done manually will be
issued within 24 working days from application until the passport was scanned
at the office of application. Ninety Seven percent of electronic applications
for passports will be issued within 13 working days from the date of
application until it was scanned at the office of application.
Strategic Objective 1.2. An integrated and digitised
National Identity System that is secure and contains biometric details of every
person recorded on the system. The DHA was in the process of developing the
National Identity System (NIS) which it planned to have operational by 2016/17.
The NIS will integrate population and biometric data of all persons in South
OUTCOME 2: Secured and responsive immigration system.
Strategic Objective 2.1. Refugees and asylum seekers
are managed and documented efficiently. The DHA planned to issue 50% of refugee
IDs within 90 days and issue refugee travel documents within 90 days.
Strategic Objective 2.2. Movement of persons in and
out of the country regulated according to a risk based approach. The Border
Management Agency (BMA) feasibility study and migration policy discussion paper
were to be approved by the Minister of Home Affairs in 2014. The DHA will lead
the establishment of the BMA. The DHA also planned to improve eight ports of
entry with residential and/or office accommodation.
Strategic Objective 2.3. Enabling documents are issued
to foreigners efficiently and securely. The DHA will adjudicate 50% of
permanent residence applications within eight months from the date of
application until the outcome of the application was known. The applications
for business, critical skills and general works permits will be adjudicated
within eight weeks of applications within South Africa.
OUTCOME 3: Services to citizens and other clients that
are accessible and efficient.
Strategic Objective 3.1. Secure, effective, efficient
and accessible service delivery to citizens and immigrants. Ninety percent of
the newly appointed officials will be inducted by the DHA before commencing
service. In addition 300 officials will take part in a skills programme and 100
managers will be enrolled in a leadership programme.
Strategic Objective 3.2. Good governance and
administration. The DHA will submit to the Auditor-General accurate financial
statements by 31 May annually and annual reports submitted to Parliament by 30
September annually. The vacancy rate of the DHA will be maintained at 10% or
below by 31 March 2015.
Strategic Objective 3.3. Ethical conduct and zero
tolerance to crime, fraud and corruption. The DHA planned to have 60% of crime,
fraud and corruption cases investigated and finalised within 90 days and 80
Threats and Risk Assessments
conducted in accordance with the requirements of the Minimum Information
Strategic Objective3.4: Collaboration with
stakeholders in support of enhanced service delivery and core business
objectives. The DHA will collaborate with stakeholders in support of enhanced
2.4. The Departments Contribution to the
National Development Plan (NDP)
The NDP aims to eliminate and reduce
inequality by 2030. The Director-General reported that the DHAs mandate was in
broad alignment with the NDP. The inclusion of all citizens in democracy and
development is enabled by providing them with a status and an identity that
gives them access to rights and services.
The Department of Home Affairs was involved
in a majo
r drive that early registration of birth was
done, especially in the rural areas. The efficient provision of identity
documents and a security system had helped the poor and reduced corruption.
The DHA was putting in place the policy,
legislation, people and systems needed for secure, efficient and strategic
management of immigration.
The DHA had embarked on a large scale IT
Modernisation Programme which would enable the state to deliver services more
efficiently and securely. The same systems will produce reliable statistics for
planning purposes, thus assisting in building a capable state as envisaged in
The promotion and nation building was
promoted by providing the same services to all citizens and residents in over
400 service points.
2.5. The Departments Contribution to the
Medium Term Strategic Framework (MTSF) 2014 - 2019
The DHA commitments to the MTSF being
finalised will focus, inter alia, on the following key areas:
Africas border will be effectively defended, protected, secured and well
managed. This will be done by the establishment of the (BMA) and a strategy to
defend, protect, secure and better manage borders will be developed.
of all persons in South Africa will be known and secured by ensuring that the
only entry to the National Identity System (NIS) was the registration of birth.
NIS will be designed and operational. The DHA will ensure that systems are in
place to capture the biometric data of all travellers who enter and exit South
and streamlined regulations will be finalised to reduce the burden of importing
core and critical skills needed by the economy. There will be changes to
immigration policy and legislation that supported the importation of
economically beneficial skills.
2.6. The Departments Priorities and
Commitments for 2014 - 2015
The Department of Home Affairs had
identified the following goals in support of achieving its strategic
objectives, government priorities and NDP:
management of immigration to contribute to security and development, including
the establishment of a BMA.
a comprehensive and secure NIS.
Home Affairs through investing in people, processes and technology.
service delivery and promote good governance and administration.
officials that are ethical, patriotic and professional.
and firm action in the fight against corruption.
2.7. The Departments achievements during
the period 2013 2014
The Department of Home Affairs reported
that it achieved its target with regard to the registration of birth within 30
days and issuance of Identity Smart Cards. The DHA was able to register a total
of 650 682 births within 30 days. This was against the target of 642 000.
This was possible because of the online birth registration at 391 health
facilities in the country.
In terms of Identity Smart Cards, the DHA
issued 125 112 against the target of 100 000 Identity Smart Cards.
Identity Smart Cards are replacing the green Identity Document and will be
phased in over a period of 5 7 years. This achievement was possible by the
roll out of live capture functionality for passports and Identity Smart Cards
at 70 offices.
The amendment to Regulations in terms of
the Births and Registrations Act came into effect on 20 February 2014 and the
new strategy for Late Registration of Births was adopted.
With regard to Immigration Services, a
focus was on the strengthening of ports of entry. The DHA completed
infrastructure improvements in 11 ports of entry (POE). The Trusted Traveller
Programme was implemented at Maseru Bridge. The programme is used by those that
travel between South African and Lesotho on a daily basis. Instead of the DHA
stamping their passports, they only need to scan their finger on a machine. The
DHA also obtained Cabinet approval in the establishment of BMA and initiating a
3. Key Challenges facing the Department of
Challenges that were identified by the
Department of Home Affairs during the presentation of their APP were in the
seeker and refugee management including the relocation of Refugee Reception
Offices to borderlines.
Overhauling the permitting system and
Dependency on the Department of Public
Works for office accommodation and State Information Technology Agency (SITA)
for communications network.
The continued non-integration of IT
Records management. The Department of Home
Affairs has 160 million records that have to be digitised.
Lack of capacity in critical areas such as
The fight against unlawful activities.
Improvement of administration, especially
in financial management.
Ensuring that staff is appropriately
trained, professional and caring.
4. Budget of the Department of Home Affairs
The DHA showed an 11% real decrease in its
budget allocation (that was after inflation of 6.2%). The total budget of R6.62
billion for the Department included allocations to its related entities; the
Electoral Commission (IEC); Government Printing Works (GPW) as well as the Film
and Publications Board (FPB). In total the budget was reduced by R371 million
from 2013/14 to 2014/15 (as indicated across the DHAs three programmes in the
National Treasury data on the quarterly
expenditure for the DHA for 2013/14 indicated that total expenditure for the
year was 2.7% less than the budget allocated. This was similar to the 2.6%
under spending in 2011/12. Although the DHA was under spending a similar
percentage as the previous financial year, there was less fluctuation or change
in the 2013/14 quarterly expenditure than in 2011/12. The DHA therefore
maintained a fairly consistent and low under spending in 2013/14 (of around 3%
where 1% was usually considered acceptable by National Treasury).
Table: DHA 2014 Budget Programmes &
Sub-programmes in Millions (+/- Percentage change from 2013 after inflation in
4.1. Programme 1: Administration
The first budget programme of the DHA,
Administration, showed a small nominal increase in allocation which actually
means a reduction of 5% or R98 million when considering inflation. The aim of
the programme is to provide leadership, management and support services to the
The most significant change to the
programme was a reduction in the corporate services sup-programme. This
sub-programme largely manages one of the DHAs main objectives - a service that
is efficient, accessible and corruption free. The reduction in expenditure was
concerning given that Corporate Services only managed to fully achieve 4 of its
16 targets (25%) for
outcome in the most recent 2012/13 Annual Report. The budget did not specify
where this real reduction in the Corporate Services budget was going to occur and
how service delivery was to be improved.
4.2. Programme 2: Citizen Affairs
The most significant monetary reduction in
budget allocation was to the largest budget programme: Citizen Affairs. This
programme aims to provide secure, efficient and accessible services and
documents for citizens and lawful residents.
The primary reason for the R521 million
(12%) real decrease in the programmes allocation was because of a R330 million
(79%) decrease in the Status Services sub-programme. This sub-programme
regulates all matters relating to the national population register, including
maintaining a register of all citizens and permanent residents; registering
births, deaths and marriages; providing travel and citizenship documents and
determining and granting citizenship. The reductions were mainly due to
expenditure related to the issuing of enabling documents being funded from the
self-financing funds (which the DHA generates from charging for re-issuing of
documents). This can be seen in the large reduction in Goods and Services
expenditure mainly reflected as a decrease in consumables, i.e.
stationery, printing and office supplies.
This related to a recommendation by the Portfolio Committee on Home Affairs
2013 Budget Review and Recommendation Report (BRRR).
In contrast, the Access to Services sub-programme
received the biggest percentage increase of 38% in real terms (R26 million)
across all sub-programmes. This was encouraging since the sub-programme
provides for the optimal placement and use of the departments services by
opening new offices, deploying registration facilities at health facilities,
scheduling mobile office deployment in remote rural areas, and managing
customer telephonic enquiries.
Within the Citizen Affairs programme,
transfers to the three agencies falling within Vote 4 comprised 42% of the
programmes budget. Most of this (39%) went to the Electoral Commission (IEC)
for National and Provincial Elections this year and Municipal elections in
2016. The IEC received just less (0.08%) than an inflation related increase.
The next entity, the Government Printing
Works, was completely self-sufficient on its own state printing revenue from
2013/14 and no longer needed transfers from National Treasury. This will reduce
the DHA Citizen Affairs budget by around R100 million each year (-R130 million
from 2013 to 2014). Whilst this was encouraging in terms of efficiency it
remained to be seen if the GPW will be able to cope with the significant
increase in targeted Smart ID cards anticipated this year (1.6 million from
only 100 thousand in 2012/13)
The last entity, the Film and Publications
Board received a 10% real reduction in expenditure in 2014 which was reflected
across all four of its programmes. The FPB regulates the creation, production,
possession, exhibition and distribution of films, interactive computer games
and certain publications in terms of the Films and Publications Act (1996). The
FPB had shown gradual improvement in performance against its targets in the
last few years and had ambitions in terms of being more involved in protection
of children from inappropriate content.
4.3 Programme 3: Immigration Services
The smallest programme in terms of
allocation, Immigration Affairs experienced the largest percentage reduction of
14% (19% after inflation). The aim of this programme is to facilitate and
regulate the secure movement of people through the ports of entry into and out
of the Republic of South Africa, determine the status of asylum seekers, and
regulate refugee affairs. The programme has four sub-programmes.
The most significant reduction was in the
Admission Services sub-programme which shows a 41% real reduction in allocation
decreasing from to R396 to R247 million in 2014. This sub-programme is
responsible for issuing visas, securely facilitating the entry and departure of
persons to and from South Africa in line with the Immigration Act (2002)
including work, study and business permits. However the reductions affecting
both the Immigration and Admission Services sub-programmes were in non-core
areas of operations such as venues and facilities, catering, and entertainment
and it was stated they will not negatively impact on the delivery of services.
For several years
the Immigration Affairs programme had been the worst performing programme
and/or section of the DHA in terms of the number of strategic targets achieved.
Monitoring of performance for this programme was needed particularly given the
two NDP priorities of: a) Facilitating the migration of scarce skills into
South Africa to enable rapid growth, as well as b) Promoting regional growth
and development. The 2013 BRRR of the Portfolio Committee on Home Affairs also
a special intervention was required by the
DHA to ensure that the permanent and temporary residence permits and the
related backlogs were addressed. This had impacted negatively on the Minister
of Home Affairs performance target of 50 000 skilled immigrants per annum.
The DHA had been automating the business
processes for issuing enabling documents and allowing biometric data,
photographs, fingerprints and signatures to be captured live electronically.
This systems modernisation programme had allowed the DHA to maintain its funded
establishment at 10 369 posts over the medium term (three years), made up mainly
of frontline and back office staff in service delivery offices as well as head
office staff. Of the funded establishment, 353 (3%) posts were vacant as at 30
November 2013. The DHA did not indicate, however, how many posts they require
that remain unfunded by National Treasury.
Posts were vacant due to natural attrition
and existing vacant posts that were not filled but it was anticipated that they
would be filled over the medium term. The DHA did not employ contract workers
and used consultants on an ad hoc basis, particularly with regard to ICT, where
the DHA experiences difficulty in attracting suitably qualified and experienced
As would be expected, the main service
delivery programmes spend significantly on compensation of employees. This
comprised 48% of the Citizen Affairs programme (of 8333 personnel) and 39% of
the Immigration Affairs programme (of 1024 personnel). This was compared to
only 22% for the Administration Programme.
The 2013 Budgetary Review and
Recommendations Report (BRRR) for the Committee recommended the prioritisation
of the filling of all vacant funded posts within 12 months of vacancies or new
posts arising. The high vacancy rates in audit services, counter corruption and
immigration services had been seen to seriously negatively impact on service
delivery. In particular, the filling of key management positions such as the
Chief Financial Officer, Provincial Managers and the Chief Internal Audit
Executive needed to be finalised as soon as possible.
5. Committee observations
The Portfolio Committee on Home Affairs
observed the following:
presented by the Department on its Budget and Annual Performance Plan was
appreciated and engaged with by Members of the Committee. Members indicated
that additional engagement is needed as soon as possible with the Department of
Home Affairs, Electoral Commission, Film and Publications Board and Government
Committee noted the improvement in service delivery times of key civic
documents and service delivery in many front offices. There was however still a
need for improvement of other key documents such as Unabridged Birth
Certificates and Permanent Residence Permits and service in some offices. The
Committee noted the reduced reliance on consultants by the DHA.
Committee noted immigration initiatives such as the proposed Border Management
Agency as a positive step towards improving border security.
Committee noted with concern the significant reduction of budget allocation
across all programmes of the Department. Whilst there were limitations across
all Departments; the concern was that this will have a negative impact on the
already low performance against targets, particularly in Immigration Services.
Committee expressed concern whether the GPW would be able to fulfil key roles
such as printing Smart ID cards with no additional budget allocations over and
above its own income.
Committee enquired on the relationship of the Department of Home Affairs to the
Electoral Commission in terms of oversight on issues of concern.
The Committee would engage with the Electoral
Commission in this regard.
Based on the engagement with the Department
of Home Affairs (DHA), the Committee recommends the following to the Department
of Home Affairs:
further details be included in the plans and budget as regard the content,
duration and roll out of the training of officials.
there should be specific numerical targets of staff to be appointed in each
financial quarter in order to improve on the vacancy rate. The Department to
ensure that security vetting is maintained on relevant personnel.
the filling of vacancies particularly in audit services, the inspectorate and
senior management such as Provincial Managers and the Chief Financial Officer
to mitigate risks.
detailed plan and progress on the infrastructure and offices to be built by the
Department of Home Affairs should be presented to Parliament by the end of the
2014/15 financial year.
information should be presented to Parliament as soon as possible on actions
taken to mitigate complaints resulting from the implementation of the
the Financial Management of the Department is improved in order to achieve a clean
progress report is called for on the implementation of the Border Management
Agency by the first quarter of 2015.
improvement is needed on the Departments initiatives aimed at improving social
that committee is briefed as soon as possible on the trends, cost and nature of
litigation against the Department.
expansion of DHA presence in rural areas, such as through mobile offices, is
a report to the committee on the challenges and progress in terms of the DHAs
interaction with the Department of International Relations and Cooperation.
The Committee recommends that
the House approves the 2014/15 Budget of the Department of the Home Affairs.
Report to be considered.
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