ATC141027: Budgetary Review and Recommendation Report of the Portfolio Committee on International Relations and Cooperation, dated 24 October 2014
International Relations
The Budgetary Review and Recommendation Report of the
Portfolio Committee on International Relations and Cooperation, dated 24 October
2014
The
Portfolio Committee on International Relations and Cooperation, having
considered the performance and submission to National Treasury for the medium
term period of the Department of International Relations and Cooperation,
reports as follows:
1. Introduction
1.1 The mandate
of the Committee
The
Portfolio Committee on International Relations and Cooperation (the Committee)
is a committee of Parliament mandated by the sections 55 and 92 of the
Constitution of South Africa,
[1]
to oversee and ensure accountability in the formulation and conduct of South
African foreign policy. Consequently, the Committee conducts oversight on
activities of the Department of International Relations and Cooperation (the
Department), its policies, financial spending patterns, administrative issues,
and it holds the Department accountable for its operations and functions. The
Committee is an important mechanism for ensuring oversight over the conduct of
South Africas international relations and cooperation policy.
1.2 Purpose of the Budgetary
Review and Recommendation Report
In
accordance with section 5 of the Money Bills Procedures and Related Matters
Amendment Act 2009 (Act No.9 of 2009), the National Assembly, through its
committees, must assess service delivery performance of each national
department and submit Budgetary Review and Recommendation Report (BRR Report)
for each department, for tabling in the National Assembly. The process allows
the National Assembly to evaluate the effective and efficient use and forward
allocation of resources; and may make recommendations on forward use of
resources. These reports will be considered by the Standing/Select Committees
on Appropriations and Finance respectively when they make recommendations to
the Houses of Parliament on the Medium Term Budget Policy Statement (MTBPS).
In
compiling this report, the Committee as mandated by section 5 of the Money
Bills Procedures and Related Matters Amendment Act 2009, based the assessment
of the Department on its service delivery plan as outlined in the 2013 State of
the Nation Address. The Committee linked domestic priorities to the Departments
Strategic Plan 2012 2017 and aligned the information to priorities and
measurable objectives as set out in the strategic plan.
The Committee examined
the expenditure report as published by the National Treasury, commonly known as
section 32 Reports of the Public Finance Management Act (PFMA) 1999 (Act 1 of
1999). Reference was also made to the Auditor Generals report on the 2013/14
Budget Vote and the Departments Annual Report, which contains the Departments
service delivery information, reflecting its performance in 2013/14 reporting
period.
1.3
The core
function and mandate of the Department
The
overall mandate of the Department is to work for the realization of South
Africas international relations policy objectives. In terms of the provisions
of the Constitution, the President of the Republic of South Africa bears the
overall responsibility for the countrys foreign policy and international
relations. However, the Department is entrusted with the formulation, application
and implementation of South Africas foreign policy which is derived from South
Africas domestic priorities
[2]
. The Minister of International Relations and
Cooperation (the Minister) assumes overall responsibility for all aspects of
South Africas international relations, albeit in consultation with the
President. The Minister also liaises and consults with members of the Cabinet
on overlapping issues and on the priorities and programmes of other departments
that bear an international relations element. In the same breath, other Cabinet
ministers are required to consult the Minister on their international role.
1.4
Measurable
Objectives of the Department
The Department
had identified the following strategic objectives for implementation during the
reporting year, aimed at responding to the domestic priorities as announced by
government for the reporting year as follows:
-
Efficient,
effective, economical and fully capacitated Department;
-
Enhancing the
African Agenda and Sustainable Development;
-
Provide
strategic Public Diplomacy direction nationally and internationally;
-
Provide
effective State Protocol services;
-
Strengthening
political and economic integration of the Southern African Development
Community (SADC);
-
Strengthening of
South-South Relations;
-
Strengthening of
Relations with the formations of the North;
-
Strengthening of
Political and Economic Relations;
-
Participation in
the Global System of Governance and
-
Strengthen
Multilateralism through financial contributions.
During
the reporting period, the thrust of the work of the Department remained
anchored on these overarching priorities as confirmed by the January 2013
Cabinet Lekgotla and the 2013 State of the Nation Address (SONA). In its work
on these priorities, the Department is supported by the following activities:
-
Organisational support;
-
Rendering of professional
services and
-
Organisational strengthening.
2.
Policy
focus areas
2.1
Analysis
of the Departments prevailing strategic and operational plan
The
Annual report reflects the highlights of a number of diplomatic activities
carried out by the Department including its Missions abroad. At the time of
reporting, South Africas representative drive had grown from 34 in 1994 to 126
diplomatic missions in 2014, in 109 countries throughout the world.
During
the reporting period, the Department remained focused towards Africa and
South-South cooperation; ensuring that South Africas foreign relations
contribute to an environment that is conducive to sustainable economic growth
and development; and serve as a basis for addressing governments identified
urgent priorities. In support of governments key targets, outlined in the
medium term strategic framework, the Departments priority was be to pursue
African development and enhanced international cooperation.
President Jacob Zuma in his 2013 State-of-the-Nation Address focused on
domestic imperatives and the creation of jobs. The President announced that
South Africa should position itself as a regional trans-shipment hub for
Sub-Saharan Africa and deliver on the regional integration agenda of the New
Partnership for Africas Development (NEPAD). South Africa has committed to
integrating Sub-Saharan Africa, and supporting the North-South Road and Rail
Corridor, which is part of the African Unions (AU) NEPAD Presidential Infrastructure
Championing initiative. To the Department the message meant enhancing economic
diplomacy as a vehicle for addressing domestic challenges.
In
pursuing its mandate in respect of economic diplomacy, the Department continued
to reflect a bias towards Africa, the Southern African Development Community (SADC),
and towards support for South-South formations. It is believed that economic
diplomacy in the region will support an integrated development strategy for the
Southern African Custom Union (SACU), SADC and the continent that includes
investment promotion and industrial development. For this policy to succeed
there should be a close partnership with government, business and labour. It
has been advocated by followers of foreign policy trends that economic
diplomacy has the potential to attract foreign direct investment to South
Africa and Africa.
The
Department continued to operate in an uncertain international environment and
budget constraints. It received a budget allocation of R5, 754 646 billion for
the 2013/14 financial year after the adjustment estimates. The actual
expenditure for 2013/14 was 102 per cent amounting to R5, 871 296 of the final
appropriation. This constituted an unauthorized expenditure of R116, 7 million.
The Department attributed that to the depreciation of the Rand against other
foreign currencies. It was further due to the expenditure for the facilitation
and provision of protocol services to the heads of state/government attending
the State Funeral of former President Nelson Mandela.
Due
to its huge global footprint, the Department became vulnerable to the
unforeseeable depreciation of the Rand against major currencies, which affected
its operations abroad. This has resulted in some of the major capital projects,
such as the renovations in Washington and building of official residence in
Tokyo, and other operations being suspended. The weakening of the local
currency had serious negative implications for the Departments budget.
The
year 2014 has been regarded as a special year for the democratic dispensation
of South Africa, since the nation was celebrating 20
th
anniversary
of Freedom. The 126 missions abroad have been engaged since the beginning of
the year, to market the successes of South Africa over the last two decades.
South Africa continues to be respected and admired for its successful
transformation, and its independent and constructive foreign policy.
With
regard to the continent, last year, on May 2013, South Africa along with sister
countries of Africa, celebrated the 50
th
anniversary of the founding
of the Organisation of African Unity (OAU) and its successor, the African Union
(AU). The OAU/AU played a pivotal role in the defeat of colonialism and
apartheid, and now its focusing on bringing about socio-economic development,
peace, security and stability on the African continent.
During
the reporting period, the Department continued to operate in an unpredictable
and volatile world, characterized by the inexorable shift to a multipolar world
with the rise of new powers in the South. The new evolving global order was
reported to be often characterized by narrow national interests enjoying
pre-eminence over the principles of multilateralism and international rule of
law. Other factors included increasing global interconnectivity and
interdependence where major economic, health and climate change crises leave
nobody untouched; the growing role of varied non-state actors; new global
migration trends; new forms of warfare; and the appearance of new and
disruptive technologies.
It
therefore executed its mandate against the background of an ever-changing
political and economic environment.
In
order to survive in this environment, South Africa had to shape its domestic
and foreign policies to respond to global drivers and trends.
3.
Overview
and assessment of the financial and non-financial performance of programmes of
the Department and its entity for the 2013/14 financial year
3.1
Financial
expenditure trends of the Department and its entity
Department budget and expenditure
summary
Table 1: Total expenditure
for the 2013/14 financial year
[3]
Programme
(R'000)
|
Final Appropriation
|
Actual Expenditure
|
(Over)/Under Expenditure
|
Administration
|
1 327 802
|
1 267 196
|
60 606
|
International Relations
|
2 761 000
|
2 892 877
|
(131 877)
|
International Cooperation
|
452 012
|
451 689
|
323
|
Public Diplomacy and Protocol
|
261 459
|
281 553
|
(20 094)
|
International Transfers
|
952 673
|
977 981
|
(25 608)
|
Total
|
5 754 646
|
5 871 296
|
(116 650)
|
Source: Annual Report of the Department of International Relations and
Cooperation 2013/14
The Department spent 102 per cent (R5.9
billion) of its appropriated allocation of R5, 8 billion, which represented a
net shortfall of R116, 7 million. This constituted an unauthorised expenditure
as a result of circumstances beyond the Departments control. The situation was
attributable to the depreciation of the Rand against other foreign currencies
as well as the provision of protocol services for the State Funeral of former
President Nelson Mandela. The Department also incurred foreign exchange losses
in missions abroad and payment of membership contributions for organisations
which South Africa is a member.
These amounted to R132 million and R25, 6
million respectively. However, the Department also recorded under-spending on
its infrastructure projects due to the cash-flow shortfall as a result of the
negative impact of foreign exchange rate fluctuation.
[4]
The Committee was provided with a briefing on the 4
th
Quarter
Expenditure Report for 2013/14 published by the National Treasury, and clarity
was given regarding the unauthorised expenditure.
In 2006/7 financial year, the Department also
reported an unauthorised expenditure amounting to R98 million as a result of
foreign exchange losses which remain unresolved. Thus, the total unauthorised
expenditure amounted to R215.6 million, for which National Treasurys
consideration is awaited.
Operational expenditure
The largest element of operational expenditure in
2013/14 was R2.9 billion spent under the International Relations programme
mainly on compensation of employees and goods and services. The next largest
element was R1.3 billion under the Administration programme, followed by R450.7
million under the International Cooperation programme, primarily for goods and
services and compensation of employees. The significant increase in expenditure
relates to cost escalation in property leases, property payment, operating
payments for the departments foreign property portfolio.
Presently, the department spends approximately R575 million
per annum towards operational leases for 800 rented chanceries, residences and
housing where no state owned accommodation is available .The state-owned
property portfolio consists of 133 offices and residential accommodation and
has an estimated market value of R4.6 billion.
Another increase in expenditure relates to the travel
and subsistence budget of the department which is linked to the operations of
the department abroad. Overall, Programme 1 has underspent by R53.6 million on
the total available funds for 2013/14 mainly due to the rescheduling or
deferral of capital projects relating to the construction of new or the
refurbishment of existing chanceries and residential accommodation abroad as
part of the departments mitigation measure to minimise the impact of foreign
exchange loss.
Figure 1
Comparison of nominal expenditure at end 2012/13 and end 2013/14, by
programme
|
Figure 2
Comparison of nominal expenditure at end 2012/13 and end 2013/14, by economic
classification
|
Source: National Treasury: Vote 5: International Relations and
Cooperation prepared for the Standing Committee on Appropriations 4
th
Quarter financial report
Programme spending trends
aligned to service delivery of the Department and its entity
Programme 1: Administration:
The Department reported
that the expenditure for the programme was R1 267 billion which represented
an increase of three per cent as compared to the 2012/2013 financial year. The
increase was due to the inflationary adjustments mainly on office accommodation
related to unitary fees for the Head Office Campus.
Programme 2: International
Relations
: The Department reported that expenditure in this programme increased
significantly from R2 453 billion in 2012/13 to R2 892 billion in
2013/14 at a nominal growth rate of 18, 26 per cent. The Department noted that
this was attributable to the depreciating rand against other major currencies.
The depreciation of the Rand resulted in high exchange rates which increased
operational costs incurred in missions abroad, including salaries, wages, residential
and office accommodation lease payments. As a consequence, the expenditure for
Programme 2 exceeded the budget by R132 million.
Programme 3: International
Cooperation:
The expenditure increased from R368 979 million in 2012/13 to
R451 675 million in 2013/14. This programmes expenditure was also
affected by foreign exchange fluctuations. The increased expenditure was as a
result of the depreciating Rand against other major currencies. The
depreciation of the Rand resulted in high exchange rates which increase
operational costs incurred in foreign currency.
The programme underspend by R7 314
million which was mainly visible under the sub-programme Global System of
Governance, due to a number of scheduled meetings that did not take place as
planned, including ECOSOC, International Maritime Organisation (IMO), and the
Convention on the Conservation of Antarctic Marine
Living Resources
(CCAMLR), among others. The programme overspent by R323 000.00.
Programme 4: Public Diplomacy and
Protocol Services:
The
expenditure decreased from R292 096 million in 2012/13 to
281 553 million in 2013/14. The decrease in expenditure was mainly due to
once-off expenses related to the hosting of the 5
th
Brazil-Russia-India-China-South
Africa (BRICS) Summit. In 2013/14, the programme also facilitated and provided
protocol services to heads of state/government attending the State Funeral of
former President Nelson Mandela.
Main costs incurred related
to expenditure associated with receiving the various Heads of State and foreign
dignitaries who converged on South Africa, these included accommodation, travel
and subsistence and other forms of diplomatic courtesies.
The event was unforeseen and unavoidable, and the expenditure was
incurred after the adjustment process was finalised. As such, the Department
did not have an opportunity to request additional funding to cover the
expenditure. It could not absorb it within the Departments baseline due to a
budget shortfall created by the foreign exchange losses. The programme realised
an unauthorised expenditure of R 20 094 million.
Programme 5: International
Transfers
The Department honoured its membership contributions to international
organisations in full, including contribution to the organs of the AU that are
located in South Africa such as the Pan-African Parliament and the New
Partnership for Africas Development Secretariat ad the African Peer Review
Mechanism. The expenditure increase was also attributable to higher exchange
rates. The transfer payments increased to R977 981 million in the 2013/14
from R937 755 million transferred in the 2012/13 financial year. The
programme realised an unauthorised expenditure of R25 608 million in
foreign exchange rates losses in relation to payment of membership fees and
assessed contributions to the United Nations, African Union and Southern
African Development Community.
Transfers to Departmental Agencies and
Accounts to the end of the financial year were R485.4 million, all of which was
to the African Renaissance and International Cooperation Fund: Operations
transfer. This represents a decrease of R33.2 million, or 6.4 per cent, when
compared with the previous financial year. An amount of R28.5 million was
shifted from the African Renaissance and International Cooperation Fund during
2013/14 for the operationalisation of the South African Development Partnership
Agency and to increase the transfer payment to the African Union Commission:
Office of the Chairperson
Additional information
During the reporting year, virement of funds
amounting to R6, 9 million were made after the adjustment estimates were
concluded in relation to over expenditure. The over expenditure was as a result
of foreign exchange fluctuation, on the assessed contribution within Programme
5. Virements were also made with savings realized from Programme 1 to Programme
4.
Departmental receipts are normally generated
from interest earned from Missions bank accounts; rent on state-owned
property; refunds received through Value-Added Tax (VAT) returns from Missions
related to purchases of previous financial years; foreign exchange rate gains;
and proceeds of asset disposals, such as redundant furniture and fixtures.
According to the Annual Report of the Department, in the 2013/14 financial
year, the amount collected decreased from R46, 7 million in 2012/ 2013 to R36,
6 million in comparison with the estimated value
[5]
.
Performance information
During the reporting year, the core of the
Departments work of conducting South Africas foreign policy remained
predisposed towards Africa and South-South cooperation. On 25 May 2013, Africa
celebrated the 50
th
anniversary of the founding of the Organisation
of African Unity (OAU) and its successor, the African Union (AU). The occasion
was of particular importance to South Africa because of the pivotal role played
by the OAU/AU in the defeat of colonialism and apartheid. The OAU/AU is now
focusing on bringing about socio-economic development, peace, security and
stability on the African continent. As at the end of the reporting year, the
Department continued to have representation in 126 diplomatic missions in 109
countries abroad.
3.2
Analysis
of non-financial service delivery performance of the Department and its entity
for the 2013/14 financial year
The Committee considered and analysed the Annual Report of the
Department of International Relations and Cooperation for the 2013/14 financial
year. In its analysis of the report, the Committee also enlisted the input from
the following: the Department of Performance, Monitoring and Evaluation,
Statistics South Africa and the Office of the Auditor-General.
The focus of the assessment was
on the performance of the key programmes of the Department comprising of
Administration, International Relations, International Cooperation, Public
Diplomacy and Protocol Services and International Transfers. The Departments
performance was measured against its own set targets as identified in the
Strategic Plan of 2012-2017. It is also measured against Governments key
priorities identified in the Presidents State-of-the-Nation Address (SONA) of February
2013 and the Governments Medium Term Strategic Framework 2009-2014. Other key
measures comprise of the moral values and principles that underpin the
countrys foreign policy. The source documents for this analysis include the 2013
Estimates of National Expenditure (ENE); the 2013 State of the Nation Address; the
Delivery Agreement for Outcome 11 (2009-2014) as well as the Departments
Strategic Plan 2012-2017.
The performance of the entity, the African Renaissance and International
Co-operation Fund (the ARF) for 2013/14 is also assessed in this report.
3.3.
Performance per Programme: Achievements
3.3.1
Programme 1: Administration
Main objective:
The purpose of the
programme is to develop overall policy and manage the Department with the
intention of ensuring an efficient, effective, economical and fully capacitated
department.
During the reporting
period, the Department informed that it did not enter into a new Public Private
Partnership Agreement (PPPA); it continued to service the existing PPPA with
Main Street 717 (Pty) Ltd concluded in 2009. In terms of the relationship, the
PPPA designed, constructed, co-financed, and maintains a suitable and
sustainable working environment in the form of the headquarters of the
Department.
Through a Design and
Construction Subcontract as well as a Facilities Management Subcontract, the
PPPA incorporates the carrying out of the works, the installation, commissioning,
operation and maintenance of facilities, including the repair, renewal or
replacement thereof, the management and provision of the services and the
performance of all other obligation of the Private Party under this PPPA from
time to time. The term of the PPPA is 25 years, ending in 2034. The total cost
incurred in relation to the agreement for the financial year 2013/14 is
reported as R189 344 million.
The
Department continued to operate
in a very unpredictable and insecure global environment which was caused in
part by the severe global economic downturn. That also had a negative impact on
the Departments operational budget as the South Africas Governments budget
came under pressure, albeit at a time of greater international demands and obligations.
Despite the challenge, through successful implementation of diplomacy, South
Africa was reported as a respected member of the international community with a
dynamic and independent foreign policy that speaks to domestic priorities.
However the service-delivery environment was faced with risks (among others)
pertaining to: the increased divergent messages abroad of South Africas image;
the use of obsolete and outdated technology and possible increase of
cyber-attacks on the publications produced by the Public Diplomacy branch.
The Diplomatic Academy acted in concert with South Africas foreign
policy by imparting knowledge and skills to senior African women diplomats from
African countries. The training covered mediation, post-conflict reconstruction
and development, regional integration, diplomatic training and public
diplomacy. The training was envisaged in alignment with the women empowerment
vision of the AU Agenda 2063. Intensive training was also undertaken by the
Academy on economic diplomacy as an integral part of the diplomatic training
programme and mission preparatory courses.
The Department reported that in the first three
quarters of the 2013/14 financial year, the average time taken for filling
vacant posts was reduced to seven months. In the last quarter, the Department
managed to achieve the target of filling vacancies within the four-month
target. Furthermore, 30 interns were appointed by the Department. In terms of
Human Resource Management, the main challenge reported by the Department was
meeting equity targets of representation of women at Senior Management (SMS)
Level and people with disabilities. Only four out of a target of 12 at SMS were
appointed and no employees with disabilities were appointed during the year
under review. Reflecting on other targets, the Department noted that the
Diplomatic Academy presented several training courses and workshops during the
2013/14 financial year.
[6]
Notably, the Department also reported that it
piloted the Organisational Functionality Assessment (OFA) toolset introduced by
the Department of Public Service and Administration (DPSA) aimed at improving
functionality of Departments. The results of this toolset indicated that the
structure of the Department should be reviewed. The proposed draft structure
was developed and was still being consulted with various interested parties.
[7]
It was reported that during the year under review, it was clear that the
Departments information and communications technology (ICT) policies and
infrastructure no longer met the modern communications requirements of the
Department. It was recognised that it was in serious need of modernisation.
The Department noted that asset management remained a challenging task
as it has to deal with about 270 000 pieces of assets spread over 126 missions
worldwide.
There were pockets of deviation reported from the pre-determined
objectives. These included the non-compliance by some officials of the
Department with filling of performance agreements and appraisals; not paying
suppliers or service providers within the required 30 days; grievances not
finalised within 30 days; not able to perform risk assessments for the Department
because of limited human resource available to address the additional demand; and
challenges with supply chain management.
In order to mitigate some of the challenges that featured in Programme
1: Administration, the Department reported it has realigned its procurement
process from a decentralised to a centralised approach to enhance its
service-delivery improvement plans. This included appointments of senior
management members to serve in three bid committees; namely specification,
evaluation and adjudication. The Department has also undertaken to increase
capacity to ensure the implementation of risk management activities in the
Department and also with missions abroad.
3.3.2
Programme
2: International Relations
Main objective:
The purpose of this
programme is to promote relations with foreign countries, participate in
international organisations and institutions in line with South Africas
national values and foreign policy objectives. The strategic objectives of this
programme were as follows:
In terms of strategic objectives, this
programme includes the promotion of policies, strategies and programmes to
advance South Africas national priorities through strengthened political,
economic and social relations with targeted countries.
[8]
South
Africa conducted a range of bilateral engagements through Africa; Asia and the
Middle East; Americas and the Caribbean; and Europe. In terms of the
Africa sub-Programme
there were
engagements in each region. In
Southern
Africa
, South Africa remained engaged with developments in the Democratic
Republic of Congo (DRC). In particular, following the 9
th
Session of
the Bi-National Commission as well as a two-day visit to Kinshasa in 2013, the
Memorandum of Understanding (MoU) between the DRC and South Africa on the
development of the Grand Inga Hydro-Power Project was signed which is expected
to generate 40 000 megawatts of electricity. The Annual Report also
indicated that South Africa would benefit as an off-taker of electricity from
Grand Inga.
[9]
In the year under review, South Africa also
conducted visits to Namibia, Lesotho, Botswana, Mozambique and Zimbabwe which were
premised on strengthening strategic ties. In
East Africa
, South Africa conducted bilateral engagements with
South Sudan, Uganda, Ethiopia and Burundi. In
Central Africa
, South Africa conducted bilateral engagements with
the Democratic Republic of Sao Tome and Principe on 29 August 2013 which was
focused on capacity-building in the fields of water and health.
In terms of
West Africa
, President Zuma undertook a working visit to Nigeria in
April 2013 and the Republic of Senegal from the 1st to the 2
nd
of
October 2013 as well as a State visit to Ghana from the 25th to 27
th
of November 2013. In
North Africa
,
the Department reported that President Zuma paid an official visit to Algeria
at the invitation of President Abdelaziz Bouteflika on 15 April 2013 to discuss
the strengthening of the South Africa-Algeria BNC of Cooperation (BNC). The
Department noted that South Africa continued to support to self-determination
of the people of Western Sahara and is committed to its programme of
humanitarian assistance to the Government of the Saharawi Arab Democratic
Republic (SADR). South Africa has continued to try and strengthen bilateral
cooperation with Libya.
The Department further reported that the then
South African Minister of State Security Dr Siyabonga Cwele visited Egypt in
his capacity as Special Envoy of President Zuma to support efforts of
strengthening democratic processes.
[10]
In terms of the
Asia and Middle East sub programme,
In
Central and East Asia
, President Zuma paid a working visit to Japan
on 4 June 2013 to hold talks with Prime Minister Shinzo Abe to strengthen ties.
South Africa hosted the 7
th
Policy Consultative Forum with the
Republic of Korea (POK) in Pretoria on 12 August 2013 and from the 4
th
to the 8
th
of November 2013 Deputy Minister Ebrahim visited the
Republic of Korea, a visit which coincided with the 15
th
anniversary
of the establishment of diplomatic relations.
In the
South
Asia region
, the Department reported that structured bilateral meetings
were held with Pakistan, Sri Lanka and Pakistan. In the
South-East Asia region
, President Zuma paid an Official visit to
Malaysia from the 26
th
to the 27
th
August 2013. A
bilateral meeting between Minister Maite Nkoane-Mashabane and her counterpart,
Minister Marty Natalegawa was held. A Working visit by Deputy Minister Ebrahim
to Myanmar was conducted. The Department also reported that the Deputy Minister
for International Economic Relations of the Philippines, Ms Laura Del Rosario,
conducted a bilateral visit at the invitation of Deputy Minister Ebrahim. She
was hosted by Deputy Minister Fransman where issues such as health, education, agriculture,
trade and investment and skills development were discussed.
In the
Oceania
region
, South Africa participated in the 5
th
Senior Officials Meeting
held in Canberra in May 2013 where a Bilateral Plan of Action was adopted. The
Department also announced that in April 2013, the Foreign Minister of New
Zealand paid a visit to South Africa. Meanwhile, Sir Don McKinnon, Special
Envoy of the New Zealand Prime Minister visited South Africa in March 2014 as
part of their seat on the UN Security Council for the period 2015 to 2016.
[11]
In the
Middle
East Region
, South Africa conducted its relations through structured
bilateral mechanisms such as point commissions, partnership forums and
bilateral consultations. Engagements of this nature were conducted with Qatar,
Iran and Saudi Arabia. South Africa continued to pursue its economic
re-engagement with the Republic of Iraq. President Zuma also authorised the
signing of a MoU on Bilateral Consultations with the Hashimite Kingdom of
Jordan. The Department also reported on its activities related to the
Palestinian question during the 2013/14 financial year which included a range
of activities aimed at contributing positively to the crisis.
[12]
The
Americas
and the Caribbean sub programme
comprise of activities in North America as
well as Latin America and the Caribbean. In North America, bilateral
engagements were conducted with the United States of America and Canada. These
consisted of a working visit by President Barack Obama to South Africa from 29
June to 1 July 2013 and a visit by President Kgalema Motlante to Canada in
November 2013. In terms of
Latin America
,
the Minister and Deputy Minister of the Department undertook several high-level
visits to Latin America and the
Caribbean
from the 2
nd
to the 9
th
of September 2013. The visit
included Venezuela, Peru, Ecuador, Cuba, Colombia as well as Trinidad and
Tobago.
[13]
In terms of
Western Europe,
the French President Francois Hollande conducted a
State Visit from the 14
th
to the 15
th
of October 2013;
and Deputy President Motlanthe visited the United Kingdom from the 15
th
to the 17
th
September 2013. The Deputy President also met with
Princess Astrid of the Kingdom of Belgium in October 2013. The Department also
reported on a series of Bilateral Meetings held by Minister Maite
Nkoane-Mashabane with counterparts from Germany, Sweden and the Netherlands.
[14]
In terms of
Central and Eastern Europe
, President Zuma undertook a Working Visit
to the City of Sochi in the Russian Federation on the 16
th
of May
2013. This was followed by a delegation led by President Zuma to the G20
engagement in St Petersburg from the 5
th
to the 6
th
of
September 2013. This was preceded by a Ministerial visit to Moscow and St
Petersburg to have bilateral meetings with Minister Sergey Lavrov and Minister
Sergey Donskoi, Minister of Natural Resources and the Environment on the 2
nd
of September 2013.
Minister Maite Nkoane-Mashabane also
undertook an Official Visit to Minsk, Belarus in September 2013 for bilateral
consultations. Deputy Minister Fransman undertook working visits to Azerbaijan,
Belarus, the Czech Republic and Romania for political consultations. Deputy
Minister Fransman also hosted the Undersecretary of the State in the Polish
Ministry of Foreign Affairs on the 10
th
of July 2013.
These consultations served as preparatory
meetings for the Official Visit of Prime Minister Donald Tusk to South Africa
in October 2013 at the invitation of Deputy President Kgalema Motlanthe. Deputy
President Kgalema Motlanthe paid a reciprocal visit to Poland on the 14
th
of March 2014 at the invitation of Polish Prime Minister Tusk. To conclude, the
Department reported in this programme that Minister Nkoane-Mashabane hosted Mr
Elmar Mammadyarov of the Foreign Affairs of the Republic Azerbaijan for
political consultations on 21 February 2013.
3.3.3
Programme 3: International Cooperation
The purpose of this programme is to
facilitate participation in international organisations and institutions in
line with South Africas national values and foreign policy objectives
[15]
This programme has the following
sub-programmes and strategic objectives:
3.3.3.1
Sub-programme: Global System of Governance
The strategic objective of this programme is
to participate in the global system of governance to enhance international
responsiveness to the needs of developing countries and Africa, in particular
through a reformed and strengthened multilateral system.
The highlights under the sub-programme included the attendance of South
African delegation led by President Jacob Zuma to the general debate of the 68
th
Session of the United Nations General Assembly (UNGA) in September 2013.
Addressing the General Assembly, the President used the opportunity to
highlight South Africas priorities in the United Nations (UN) and
internationally for the year ahead. The President also challenged the UN
membership to not celebrate the 70
th
anniversary of the UN in 2015,
without a reformed UN Security Council (UNSC). The challenge was acknowledged
and repeated by many member states.
South Africa continued to promote the importance of strengthening and
sustaining effective partnerships between the UN, regional and sub-regional
organisations, especially on the enhanced implementation of Resolution 2033.
The resolution provides for increasingly allowing the African Union (AU) to
respond to conflicts in a proactive and rapid manner, limiting the escalation
of conflict and human suffering in cases where the UN processes take a longer
time to deploy. The situation in the Central African Republic and the
Democratic Republic of Congo were cases in point.
Since assuming its membership in the UN Human Rights Council in January
2014, South Africa has played a major role in cardinal issues such as the
realisation of the right to development, the attainment of millennium
development goals (MDGs) and the configuration of the priorities for the
post-2015 global development agenda. Furthermore, during the reporting period
and in pursuance of the human rights agenda, South Africa played a prominent
role in structures which have a primary focus on the promotion of democracy,
good governance, rule of law and accountable electoral processes, including
deepening of democracy and accountability at global level.
The year 2013 marked the first year of South Africas three-year
membership of the UN Economic and Social Council (ECOSOC). South Africa
participated in the debate which re-affirmed ECOSOC as a principal body for
policy review, policy dialogue on issues of economic and social development and
for follow up to the MDGs.
In terms of the Post-2015 Development Agenda, in 2013 South Africa and
Ireland were appointed to follow up on efforts made towards achieving the MDGs.
South Africa has served as a Co-chair of the G20 Development Working Group
since its establishment in 2010. During 2013, South Africa called for the
implementation of G20 decisions that were aimed at limiting the impact of the
global economic crisis on developed and developing countries and preventing the
occurrences of similar crises in the future.
Under the UN auspices, during the reporting year, South Africa provided
humanitarian assistance to a number of countries during crises caused by
natural disasters, emergency situations and armed conflict. Such countries
included Namibia, Sudan, Democratic Republic of Congo and the Philippines.
In terms of Global Systems of Governance the Director-General noted that
the Department continued to support South Africas proactive role in global
multilateral organisations such as the United Nations (UN), Bretton Woods
Institutions and the G20. The Director-General emphasized that in addition to
the Department supporting the reform of the UN Security Council, since assuming
its position in the UN Human Rights Council on 1 January 2014, South Africa has
focused on the Post-2015 Development Agenda as well as the strengthening of the
UN Economic and Social Council (ECOSOC).
[16]
3.3.3.2
Sub-programme: Continental Cooperation
Strategic
Objectives:
Enhance the African Agenda and Sustainable Development; South Africas
foreign policy remained predisposed towards Africa and South-South Cooperation.
To this end, on the 25th of May 2013, South Africa along with other African
countries, celebrated the 50
th
anniversary of the founding of the
Organisation of African Union which later became the African Union (AU). The
year-long celebrations provided the continent with an opportunity to reflect
not only the achievements and prospects, but also the challenges facing the
continent in relation to integration and socio-economic development.
The Department further noted that South Africa continued to engage the
AU and its structures and was elected to the AU Peace and Security Council
(AUPSC) for the period 2014 to 2016. South Africa also made an important
contribution to the development of the African Common Position on the Post-2015
Development Agenda. She also contributed to the decision on the development of the
AU Agenda 2063 as a plan that will chart Africas development trajectory over
the next 50 years. The Department also assisted in hosting the 50
th
anniversary of the Pan-African Womans Organisation (PAWO) which works towards
the elimination of all forms of discrimination against women.
[17]
In honour of the memory of
the life of the late esteemed member of the Order of Mapungubwe, former
President Nelson Mandela, the AU Summit in January 2014 decided to name the
Large Conference Hall of the AU Conference Complex the Nelson Rolihlahla
Mandela Conference Hall.
In addition, South Africa hosted a successful Consultative Summit on the
African Capacity for Immediate Response to Crises (ACIRC) in November 2013. The
AU Assembly then decided in January 2014 to operationalise the ACIRC. Speaking
further on peace and security matters, it was noted that South Africa, as part
of the SADC Facilitation Team, contributed towards the resolution of the
political impasse in Zimbabwe. South Africa also participated in the SADC
Observer missions to Zimbabwe harmonised elections (July 2013); Swaziland
(September 2013) and Madagascar (October and December 2013).
The Department also acted in support of South Africas Presidential
Special Envoy who assisted in the successful constitutional mediation process
in Madagascar which led to successful elections. The Department also
contributed to mediation efforts to bring about stability in the Democratic
Republic of Congo, the Central African Republic and South Sudan.
[18]
South Africa participated in the Extraordinary Session of the Assembly
of the AU on Africas relationship with the International Criminal Court (ICC)
that took place in October 2013. The Assembly reiterated the AUs unflinching
commitment to fight impunity and promote human rights and democracy. The
Assembly further decided to fast-track the process of expanding the mandate of
the African Court on Human and Peoples Rights (ACHPR) to also try
international crimes (genocide, war crimes and crimes against humanity)
committed on the African soil. The Assembly also decided that African states
parties to the ICC should propose relevant amendments to the Rome Statute. The
Department continued to provide logistical and substance support to the Pan
African Parliament sessions.
The Department provided substantive support to President Zuma during his
participation at the New Partnership for Africas Development (NEPAD) Heads of
State and Government Orientation Committee in Addis on 29 January 2014. The
Assembly commended President Zuma for his political commitment, strategic
support and the impressive update on the progress towards the implementation of
the Presidential Infrastructure Champion Initiative (PICI), as well as the
status report on the North-South Corridor.
3.3.3.4
Strengthen political and economic integration
of SADC
South Africa participated in the 34
th
SADC Summit held in Lilongwe, Malawi in August 2013. The key outcomes included
an update on the mid-term review of the Regional Indicative Strategic
Development Plan (RISDP). A decision was taken to negotiate a new Protocol on
the Tribunal and outstanding technical issues on the SADC Regional Development
Fund.
3.3.3.5
Sub-programme: South-South Cooperation
With regard to achievements reflected on South-South cooperation, South
Africas role in terms of the Brazil, Russia, India, China and South Africa
(BRICS) as well as the India, Brazil, South Africa (IBSA) Dialogue Forum had
been noted. Following the successful hosting of the Fifth BRICS Summit on 27
March 2013, South Africa in its capacity as the BRICS Chairperson, was
responsible for the implementation of the eThekwini Declaration and Action Plan.
This included the establishment of the BRICS New Development Bank. It was also
noted that the Department anchors the Secretariat for the Indian Ocean Rim
Association.
[19]
3.3.3.5
Sub-programme: North-South Cooperation
The highlight under this sub-programme was
the South Africa- European Union (SA-EU) summit in Pretoria in July 2013. Some
of the outcomes related to the agreement to support South Africas
infrastructure programme; and a partnership in the area of rural
electrification. This was with initial target of 300 000 households in
remote areas of South Africa.
3.3.4
Programme 4: Public Diplomacy and State
Protocol
The purpose of this programme is to provide
an effective State Protocol service to Heads of State and Government and
designated dignitaries and render advisory services to various stakeholders.
Additionally, this programme seeks to advance a positive projection of South
Africas image through communication strategies on South Africas foreign
policy positions and programmes nationally and internationally.
[20]
The strategic objectives of this programme
are as follows:
-
To provide strategic
public diplomacy direction nationally and internationally to ensure a
better understanding of South Africas foreign policy; and
-
To
provide effective State Protocol services.
[21]
Programme 4 consists of the following
sub-programmes:
-
Sub-programme Public Diplomacy:
promotes a positive
projection of South Africas image, communicates foreign policy positions
to both domestic and foreign audiences, and market and brand South Africa
by utilising public diplomacy platforms, strategies, products and
services.
[22]
-
Sub-programme State Protocol:
facilitates incoming
and outgoing high-level visits and ceremonial events as well as
coordinates and regulates engagement with the local diplomatic community.
It also provides protocol advice and support to the various spheres of
government, facilitates the hosting of international conferences in South
Africa and manages the State Protocol Lounges (SPLs) and guesthouses.
[23]
In the reporting period, the Public Diplomacy sub-programme launched a
24 hour online radio station in October 2013. This was to promote South
Africas foreign policy objectives and promote a positive of South Africa. The
Department also issued 535 media statements and conducted 41 regular media
briefings by principals. The Department intensified its engagements with
citizens of South Africa through 21 Public Participation Programmes (PPP). The
Ubuntu Magazine is distributed extensively domestically to all stakeholders as
well as through business lounges at OR Tambo and Cape Town international
airports.
In October 2013, the Department hosted a series of events in celebration
of the former liberation leader and diplomat the late OR Tambo. The Department
has also intensified its use of social media to communicate South Africas
foreign policy to a wider audience. In terms of the State Protocol sub-programme,
the Department reported that it provided logistical support for various state
events and international visits and in so doing created a conducive environment
for the furtherance of South Africas foreign policy.
[24]
3.3.5
Programme 5: International Transfers
The purpose of this programme is to
honour
South Africas financial obligations and voluntary contributions to
international organisations.
[25]
This programme provides for
South Africas contribution
with regard to membership of international organisations such as the: United
Nations (UN), African Union (AU) and Southern African Development Community
(SADC). It also provides for transfers to the African Renaissance and
International Cooperation Fund.
[26]
3.4
Challenges regarding service delivery
The Department had identified that its ICT infrastructure would need
upgrading as a matter of urgency. It further acknowledged the need to improve
on management of its assets which comprise 270 000 pieces spread over 126
Missions abroad. It realised the challenge it has of paying all suppliers who
rendered services within the prescribed 30 days; grievances not resolved within
30 days; limited capacity delaying risk assessment and management activities;
and the delay in filling vacancies. It highlighted that it did not meet its
target regarding the full operationalisation of SADPA. It also highlighted the
challenge with the increased divergent messages abroad on South Africas image.
4.
Consideration
of Reports of Committee on Public Accounts (SCOPA)
There
are no SCOPA resolutions for the reporting year 2012/13.
There
is an unauthorized expenditure of R98.918 million, which occurred in 2006/07,
relating to the overspending of the vote or main division within the vote. This
amount will remain in the financial statements of the Department because a resolution
on the status of the unauthorized expenditure from SCOPA is still awaited.
5.
Report
of the Auditor-General of South Africa, the Financial and Fiscal Commission 2013/14
on the Department of International Relations and Cooperation and its entity
The findings of the Auditor-General on the overall financial performance
of the Department of International Relations and Cooperation has remained good,
in terms of its financial statements, in all material respects reflecting an
alignment of expenditure to the pre-determined objectives. There have been,
however, issues of concern persistently highlighted by the Auditor-General
which seemingly gradually affected the findings over a period of five years.
There has been a trend however in the Auditor-Generals audit opinions.
There has been a noted regression from clean audit opinion in 2009/10, to
unqualified audit opinion with findings on pre-determined objectives and/or
compliance with laws and regulations in 2010/11; 2011/12 and 2012/13. For the
2013/14 reporting year, the Auditor-General has expressed a qualified audit
opinion.
5.1
The
Department
Regarding
the financial statements of the Department as at 31 March 2014, the
Auditor-General expressed a qualified audit opinion. The overall financial
performance of the Department was reported as good, with issues which the
Auditor-General advised should be addressed. These were as follows:
-
In
terms of movable tangible capital assets and major capital assets, the
Department did not maintain an updated asset register in accordance with
the requirements of the Modified Cash Standard. This when combined with
the ineffective system of control over assets had an impact on the amounts
recognised as tangible capital assets and minor capital assets. As such, tangible
assets and minor capital assets were understated by R24 938 000.
The Auditor General noted that like the previous financial year the
financial statements presented fairly, in all material respects, the
financial position of the Department as at 31 March 2014.
[27]
-
In
terms of Predetermined Objectives, the Auditor General performed
procedures to obtain evidence about the usefulness and reliability of the
reported performance information for Programme 2: International Relations,
Programme 3: International Cooperation and Programme 4: Public Diplomacy
and State Protocol. In this regard the Auditor General raised no material
findings on the usefulness and reliability of the reported performance
information for the selected
programmes.
-
Regarding compliance with legislation, the financial statements
submitted for auditing were not prepared in accordance with the prescribed
financial reporting framework and were not supported by full and proper
records, as required by section 40(1)(a) and (b) of the PFMA. Material
misstatements identified by auditors in the submission of financial were
not adequately correct, thus resulting in the financial statements
receiving a qualified audit opinion. However, the financial statements
were subsequently corrected.
-
Goods and services with a transaction value below R500 000 were
procured without obtaining the required price quotations as required by Treasury
regulation 16A6.1. In addition, contracts and quotations were awarded to
bidders who did not submit a declaration on whether they are employed by
the state or connected to any person employed by the state.
[28]
-
The
contractual obligations and money owed by the Department
were not settled within 30 days or an agreed period, as required by
section 38 (1) (f) of the PFMA and treasury regulation 8.2.3. In addition,
effective steps were not taken to prevent unauthorised, irregular as well
as fruitless and wasteful expenditure as required by section 38(1)(c)(ii)
of the PFMA and treasury regulation 9.1.1.
[29]
-
Other issues of compliance related to transfers, revenue management,
asset management, consequence management and departmental oversight of the
public entity. In terms of transfers, funds were transferred to entities
without such transfers being subject to the entity establishing effective,
efficient and transparent financial management and internal control
systems as required by section 38(1)(j) of the PFMA.
-
Effective and appropriate steps were not taken to collect all money
due to the Department as required by section 38(1) (c) (i) of the PFMA and
Treasury regulations 11.2.1, 15.10.1.2(a) and 15.10.1.2(e). In terms of
asset management, proper control systems to safeguard and maintain assets
were not adequately implemented as required by section 38(1) (d) of the
PFMA and treasury regulation 10.1.1(a).
[30]
-
Regarding the consequence management, effective and appropriate
disciplinary steps were not taken against officials who had made or
permitted irregular as well as fruitless and wasteful expenditure by
section 38(1)(h)(iii) of the PFMA and Treasury regulation 9.1.3. In terms
of departmental oversight of the entity (the African Renaissance Fund),
the accounting officer did not ensure that oversight and governance of the
performance reporting process of the ARF were effective as required by
treasury regulation 26.1.1.
[31]
-
The internal controls need to be strengthened to ensure greater
accountability. The Auditor General did however reflect on an
investigation that was undertaken on the administration processes at the
South African High Commission in Ghana. The investigation concluded on the
31
st
of October 2013 and resulted in disciplinary proceedings
being instituted against one employee. The aforementioned disciplinary
proceedings were currently in progress.
[32]
5.2
The
Departments response to Auditor-Generals concerns
Risk mitigation mechanisms
utilised by the Department
On matters of Risk
Management, the Department has reviewed and updated its Risk Management Policy
and developed a Risk Management Strategy for the implementation of the policy.
In addition, the Department appointed the Risk Management Committee consisting
of external independent individuals and members of senior management of the
Department. The Department also appointed an Audit Committee also comprised of
independent person who would advise the Accounting Officer on issues of Risk
Management.
[33]
The Department
reported it has developed the Fraud and Corruption Prevention Policy and
Strategy as part of its commitment to managing fraud and corruption risks and
to promote ethical conduct. In an effort to minimise conflict of interest, the
Department has appointed an ethics officer to facilitate the submission of SMS
(Senior Management) financial disclosures on behalf of the Ministry which
resulted in a 100 per cent submission of financial disclosure. The Department
has also implemented a process whereby all officials who are involved in Supply
Chain Management processes sign the Code of Conduct. In addition, officials who
are involved in adjudication processes are also required to declare in writing
any conflict of interest. In terms of recruitment, selection and placement;
panel members are required to sign a declaration and vested interest
certificate to minimise conflict of interest.
[34]
In terms of how the
Department addresses any concerns raised in the Auditor Generals reports, the
Annual Report of the Department reflected that during the 2012/13 financial
year, it has emphasized that has since developed a turnaround strategy to deal
effectively with non-compliance.
[35]
Reflecting further
on adequately addressing non-compliance, the Department noted that that during
the beginning of the 2013/14 financial year, Internal Audit developed the
Rolling Three-Year Strategic Plan as well as the Operation Plan for 2013/14.
Another important mechanism developed was the Chief Directorate: Internal Audit
which is responsible for the internal audit function of the Department. It is
directly accountable to the Accounting Officer and reports to the Audit Committee.
Internal Audit assesses, evaluates and offers recommendations for improving on
the Departments system of internal controls and governance. Internal Audit
also assesses and evaluates the Departmental Performance Information.
5.3
The
African Renaissance and International Cooperation Fund (ARF)
The purpose of the ARF is to
promote economic cooperation between the Republic of South Africa and other
countries, by granting and/or rendering of other financial assistance in
respect of post conflict development projects in such countries.
Loans
or other financial assistance are granted in accordance with an agreement
entered into by the country in question and the Minister of International
Relations and Cooperation (the Minister). Assistance granted is subject to such
terms and conditions as may be agreed upon by that country and the Minister,
acting in each case in consultation with the Minister of Finance.
[36]
The
activities under the ARF are governed by the African Renaissance and
International Cooperation Fund Act, 2000 (Act 51 of 2000) (ARF Act).
Organisational
Structure of the Fund
An Advisory Committee has been established to
manage the Fund and also to make recommendations to the Minister and the
Minister of Finance on the disbursement of funds through loans, grants or other
financial assistance. The Advisory Committee consists of the Director-General
(DG) of the Department or the delegate of the DG, three officers of the
Department appointed by the Minister, and two officers of the National Treasury
appointed by the Minister of Finance. The recommendations of the Advisory
Committee are sent to the Minister for approval. The Minister then writes a
letter seeking concurrence from the Minister of Finance. Once concurrence is
secured, the funds are disbursed as per the arrangements in the project
proposal. At the start of the 2012/13 financial year, the ARF Advisory
Committee made recommendations pertaining to the areas of focus.
[37]
The Fund is managed by the Department and
payments are made on behalf of the Fund by the Department once concurrence is
received from the Minister of Finance. This has resulted in the opening of
control accounts (Payables and Receivables) in the accounting records of the
Department and these accounts are reconciled to the records of the Fund. The
financial statements of the Fund are prepared separately from the Department as
the Fund is registered as a Schedule 3A Public Entity in terms of the Public
Finance Management Act (PFMA), 1999 (Act 1 of 1999). All transactions and
information arising from the work of the Fund are audited by the
Auditor-General South Africa on an annual basis.
[38]
The Director-General
is the Accounting Officer of the ARF in terms of the Public Finance Management
Act (PFMA). The DG has established a Secretariat to assist with disbursement of
the funds as well as monitoring an evaluation. The Secretariat provides
administrative support to the Advisory Committee.
According to the Annual Report 2013/14 of the
ARF, an amount of R485 million (2013: R517 million) was appropriated and
subsequently transferred by the Department to the ARF. The interest received of
R93 million (2013: R74 million) from investments, relates to the amount
deposited with the Corporation for Public Deposits in the South African Reserve
Bank.
In terms of expenditure, during the 2013/14
financial year, the ARF recorded an expenditure of R41 million as compared to
R1 070 million in the 2013/14 financial year. The significant decrease is
attributable to the delay in considering the projects proposal by the Advisory
Committee while governance measures were sought in addressing the 2012/13 audit
report, particular relating to irregular expenditure. However, the R1 070
million includes multiyear projects of which R229 million was recorded as a
disbursement to the recipients in 2013/14 financial year. Requests for funding
amounting to approximately R300 million were received in 2013/14 and is under
consideration.
[39]
The Findings of the Auditor
General
In the Annual Report for the 2013/14 financial year, the Auditor General
noted that the reported performance information: contributes to an integrated,
democratic, peaceful and prosperous continent through development assistance,
capacity building and humanitarian assistance, objectives are useful and
reliable, in all material respects, in accordance with the identified
performance management and reporting framework.
[40]
The Auditor-Generals report 2013/14 on the ARF highlight that the ARF
secretariat was still not yet adequate for monitoring and evaluating its
operations. The ARF does not possess the features of other public entities due
to it being placed within the Department. With regard to its procurement of
services portfolio, the ARF does not have in place the requisite policies,
procedures and processes to play its recently assumed role of assisting in
addressing domestic priorities.
During
the 2013/14 financial year, Auditor-General pronounced an unqualified audit
opinion on the performance of the ARF as follows:
i)
Strategic planning and performance management
The strategic plan for 2013/14 of the ARF was not submitted timeously
for approval by the executive authority.
ii)
Non-compliance with quarterly reporting requirements
The entity failed to report timeously on its quarterly performance to
the executive authority.
iii)
Ineffective systems of financial and risk management
and control
The entity did not provide a framework on how its operational activities
should be carried out; the secretariat of the fund did not have terms of
reference; the accounting officer failed to ensure that a risk management
strategy was implemented; contracts between the entity and projects
implementing agencies were not concluded; and funds were spent in excess of the
amount concurred by the minister of finance.
iv)
No approved delegation of authority
The fund did not have a documented and approved delegation of authority
that indicated the responsibilities of the officials delegated to monitor the
activities of the fund.
v)
Internal audit unit
No internal audits were conducted on the activities of the ARF during the
reporting year.
vi)
Procurement and contract management
Supply chain management prescripts were not followed and deviations were
not properly motivated.
vii)
Expenditure management
The accounting authority did not take adequate and effective steps to
prevent and detect irregular expenditure.
viii)
Other reports: Investigations
An external firm performed an investigation on irregular expenditure
reported in 2012/13 annual report. The outcome of the investigation confirmed
that there was no financial loss incurred by the State and the irregular
expenditure was condoned.
b)
Audit Committees findings
The Audit Committee of the Department confirmed that the Departments
implementation plan for audit issues raised in 2012/13 have been adequately
resolved except for the following:
-
No policies and procedures,
-
No terms of reference for secretariat and
advisory committee, and
-
No organisational structure.
The Department has informed that the ARF has undergone
a self-assessment and review as a consequence of the Auditor-Generals findings
regarding irregular expenditure in 2012/13. It has been reported that the
Department instituted an investigation into the circumstances of the irregular
expenditure and measures were taken in that regard.
The Committee noted the critical factors informing the challenges with
regard to the performance of the ARF. With regard to other concerns raised by
the Auditor-General, the Department undertook to: enhance performance where
needed; regularly conduct asset verifications; pursue the investigations into
the non-compliance matters and implement proper oversight mechanisms over the
ARF. It was reported that the appointment of the chief audit officer has been
finalised.
The Committee also undertook to:
assist and guide the Department on possible governance framework for the
ARF; and meet the audit committee at least once a year to monitor the
Departments compliance with audit matters.
6.
Findings
by the Committee
After
due deliberations on the contents of the Annual Report of the Department and
its entity, the Committee made the following findings:
1.
The Department has been operating under a tight budget
in the past financial year. Its mandate continued to grow and it had to respond
to global drivers and trends that influenced both the international system and
the pursuit of South Africas domestic priorities.
2.
During the reporting year, the Department has recorded
an unauthorized expenditure of R116, 7 million. Circumstances beyond its
control, such as, the protocol services required for the funeral of former
President Nelson Mandela and unavoidable foreign currency fluctuations
contributed to the situation. Follow up with Treasury is needed in order to
obtain confirmation condoning the expenditure.
3.
The Department has commenced implementing the National
Development Plans vision of organisational transformation aimed at making
the Department more efficient and effective. The process is commissioned in
conjunction with the Department of Public Service and Administration.
4.
The Auditor-Generals audit findings for 2013/14 have
expressed a qualified audit opinion with regard to the Departments
performance. The Auditor-General has recommended steps to be taken to rectify
the situation in areas reported on such as internal control, governance,
leadership and compliance with laws and regulations.
5.
Greater collaboration on statistical and research
information were considered necessary to assist the Department in identifying
potential trading partners in Africa and the world.
6.
The Departments ICT policy and infrastructure no
longer met the modern requirements.
7.
Asset management remains a challenging task for the
Department, which has to deal with about 270 000 pieces of assets spread
over 126 missions.
8.
Suppliers were not paid within the 30 days requirement.
9.
The Department is facing challenges with operational
matters which have been reoccurring in previous financial years
10.
A number of municipalities and departments owed the
Department an amount equivalent to R480 million. The Department was slow in collecting
or the debtors were slow in paying back the money due.
11.
There is overall limited capacity in the Department
despite the growing mandate. The slow pace in filling vacancies was noted as a
concern. Some senior management level personnel have left the Department.
12.
Consequence management was not effectively applied.
Wrongdoers were not immediately subjected to requisite measures.
13.
The number of bilateral commissions in pursuance of
economic diplomacy have grown.
14.
The initiative by the AU in establishing ACIRC as a
mechanism for immediate response to crisis is a commendable step
15.
Registration of South Africans Abroad (ROSA) as a
program is not being adequately marketed and publicized.
16.
The Department did not meet its targets regarding the
operationalisation of the South Africa Council on International Relations (SACOIR),
the operationalisation of the South African Development Partnership Agency
(SADPA) and the finalisation of the Foreign Service Bill.
17.
There are soft diplomacy issues which the Committee (Parliament)
could be engaged in to achieve a desired objective. Parliamentary diplomacy was
seen as important in the conduct of international relations. Involvement within
the BRICS processes, trade negotiations, and climate change issues, were cited
as examples.
18.
There were still challenges with the coordination of para-diplomacy
activities. Some municipalities and provinces still conduct foreign policy
activities without the requisite coordination by the Department. There could be
many messengers but with one message.
19.
It was regarded as of great importance that the
citizens of this country were kept informed about the notable strides by the
emerging economies of the South: BRICS, especially with regard to the
establishment of the BRICS Development Bank. There would be a need for the
Department and relevant departments to commence with ratification processes for
the agreement establishing the BRICS Bank in member states.
20.
South Africas contribution to peace, security and
stability on the continent continued to grow considerably. The country has been
supporting the African Union, United Nations and SADC efforts aimed at
promoting peace and security.
21.
Public diplomacy programme still faces challenges as a
tool for communicating South Africas foreign policy both locally and
internationally.
22.
Increased research capacity in the Department was
welcomed as positive development for purposes of early warning regarding
developing trends and threats to the health of South African foreign policy.
7.
Conclusions
Overall
performance by the Department in the reporting year has been satisfactory and
the Committee is encouraged by the efforts undertaken to contribute towards improving
lives of fellow South Africans; a stable and secure continent; and creating a
better world for all.
The
Committee is so far satisfied that the Department has utilized its budget in
accordance with its plans for 2013/14. A lot of significant achievements were
reported, and concerns raised show there is still room for improvement. The
issues raised by the Auditor-General warrant undivided attention of the
Accounting officer to ensure that there is no recurrence. There will always be
room for improvement. The Committee regards this as work in progress and the Department
should make the necessary adjustments in service delivery where needed. The
Committee went further to applaud the Minster for her swift action in
addressing concerns raised through the establishment of a task team in the
Department, which will monitor compliance with issues raised by the
Auditor-General concerning governance, leadership and compliance with supply
chain rules both under the Department and its entity.
The
Department has responded to some of the concerns raised by the Committee as
follows: The agreement establishing the BRICS Bank will soon be tabled in
Parliament for ratification processes. Revenue collection would be easier to
manage in the future as Cabinet has directed that departments requiring
assistance, pay in advance. The issue of the asset register is given priority,
missions would rent full furnished apartments to curb the challenges of owning
movable assets. Creating a position for the chief operations officer was on the
cards; and the Chief Audit Officer had been filled. Economic diplomacy and
training of diplomats in this field was a deliberate decision by the
Department. The ACIRC is aimed at addressing negative forces in the continent.
So far, 13 countries have committed to the initiative to ensure Africa was able
to deal with its own security challenges.
8.
Recommendations
The
Committee is of the opinion that overall the Department has performed according
to the goals it had set itself for the 2013/14 reporting period. The 2013/14
budgetary allocations of the Department were generally aligned to the national
strategic priorities outlined in the 2013 State-of-the-Nation Address, as well
as its strategic direction in terms of its Medium Term Expenditure Framework.
The qualified audit report, when rectified, will still be a positive indication
of commitment of purpose by the Department to diligently execute its mandate.
The
Committee acknowledges that in general there are challenges facing the
Department, with specific reference to the ARF, which can have a bearing on its
service delivery programs. In the midst of the international environment of a
global meltdown, the missions abroad have to deal with decreased support for
developmental assistance from cooperating partners.
The
unpredictable foreign exchange portfolios, have been negatively affecting the
operations of the Department, especially in the Missions, where the bulk of its
activities take place. The Department has accordingly operated within a tight
budget despite its growing responsibilities.
In order to further assist the Department to
enhance its performance, the Committee recommends that the Minister ensures
that the Department implements the following and report to the Committee within
one month of the adoption of this report by the National Assembly:
1.
The upgrading of the ICT infrastructure should enjoy
priority as well as training of ICT officials. The new comprehensive ICT
strategy should be implemented, including modernising the infrastructure and
system of the Department.
2.
A progress report should be compiled regarding the
completeness of an asset register and asset audit of all assets under the
responsibility of the Department locally and abroad. Such a report should be
shared with the Committee before the end of November 2014.
3.
The Department should enhance its marketing strategy regarding
the registration of South Africans travelling abroad. The information should be
disseminated in the Missions abroad and also locally to make citizens aware
before they travel.
4.
The Department should give regular updates regarding
performance of missions abroad for the Committee to monitor alignment of the
mandate to domestic priorities.
5.
The necessary political intervention should be sought
to address the challenges of proper coordination of para-diplomacy activities
conducted abroad by municipalities and provinces.
6.
The issue of reform of the UN systems should remain
alive. The UN General Assembly, where a big number of African countries are
represented, should also be used to raise awareness in this regard.
7.
Regular consultations be held with Statistics South
Africa in order to determine strategic trading patterns and investments.
8.
The position of a chief operations officer dedicated
to operational matters of the Department should be considered.
9.
Concerns raised by the Auditor-General on the Department
and the African Renaissance Fund should be attended to as a matter of urgency
to avoid repeat non-compliance issues.
Report to be considered.
Sources
§
Annual Report 2013- 2014 Department of International
Relations and Cooperation.
§
Strategic Plan, 2012- 2017, Department of
International Relations and Cooperation.
§
National Treasury, Vote 5: International Relations and
Cooperation, Estimates of National Expenditure 2013.
§
Zuma, J.G. 2013, State of the Nation Address at the Joint
Sitting of Parliament. Cape Town.
§
The African Renaissance and International Cooperation
Fund Act 2000
§
Standing Committee on Appropriations: 4
th
Quarter Expenditure Report 2013/14 financial year.
Presentations by other departments
[1]
Constitution
of the
[2]
Department
of International Relations and Cooperation Annual Report 2013-2014 p13
[3]
Ibid.
[4]
Annual Report
2013/2014 of the Department of International Relations and Cooperation
[5]
Ibid.
[6]
Annual Report
2013/2014 of the Department of International Relations and Cooperation
[7]
Annual Report
2013/14 of the Department of International Relations and Cooperation
[8]
Department of International Relations and Cooperation Annual Performance
Plan 2014-2015
[9]
Annual Report
2013/2014 of the Department of International Relations and Cooperation
[10]
Ibid
[11]
Annual Report 2013/14
of the Department of International Relations and Cooperation
[12]
Ibid
[13]
Annual Report
2013/14 of the Department of International Relations and Cooperation
[14]
Ibid
[15]
Department of International Relations and Cooperation Annual Performance
Plan 2014-2015
[16]
Annual Report
2013/14 of the Department of International Relations and Cooperation
[17]
Annual Report
2013/14 of the Department of International Relations and Cooperation
[18]
Ibid
[19]
Ibid
[20]
Ibid
[21]
Annual Report 2013/14 of the Department of International Relations and
Cooperation
[22]
Ibid
[23]
Department of International Relations and Cooperation Annual Performance
Plan 2014-2015
[24]
Annual Report 2013/14 of the Department of International Relations and
Cooperation.
[25]
Department of International Relations and Cooperation Annual Performance
Plan 2014-2015.
[26]
Ibid.
[27]
Ibid
[28]
Annual Report 2013/14 of the Department of International Relations and
Cooperation
[29]
Ibid
[30]
Ibid
[31]
Annual Report 2013/14 of the Department of International Relations and
Cooperation
[32]
Annual Report 2013/14 of the Department of International Relations and
Cooperation.
[33]
Ibid.
[34]
Ibid.
[35]
Annual Report 2013/14 of the Department of International Relations and
Cooperation.
[36]
Ibid.
[37]
Ibid.
[38]
Annual Report 2012/13 of the African Renaissance and International
Cooperation Fund.
[39]
Ibid.
[40]
Annual Report 2013/14 of the African Renaissance and International
Cooperation Fund.
Documents
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