ATC190709: Report of the Portfolio Committee on Police on the 2019/20 Budget Vote 23, Annual Performance Plan (APP) Of the Department of Police (SAPS), Dated 9 July 2019.
Police
REPORT OF THE PORTFOLIO COMMITTEE ON POLICE ON THE 2019/20 BUDGET VOTE 23, ANNUAL PERFORMANCE PLAN (APP) OF THE DEPARTMENT OF POLICE (SAPS), DATED 9 JULY 2019.
The Portfolio Committee on Police examined the Budget Vote of the Police (Vote 23) for the 2019/20 financial year, as well as the projections of the Medium-Term Expenditure Framework (MTEF) for 2014-2019, which were included in the Estimates of National Expenditure (ENE) 2019. The budget was examined in conjunction with the Annual Performance Plan 2019/20. The Committee reports as follows:
- INTRODUCTION
- Structure
The Report provides an overview of the 2019/20 Budget Hearings of the Department of Police. The Report is structured as follows:
- Section 1: Introduction. This section provides an introduction to this Report as well as a summary of meetings held during the hearings.
- Section 2: Strategic Priorities of the Department of Police for the 2019/20 financial year. This section highlights the strategic focus areas for the Department of Police for the year under review.
- Section 3: SAPS Budget and Performance targets for 2019/20. This section provides an overall analysis of the budget allocations, spending priorities, current and capital expenditure, additional allocations and earmarked funding of the Department of Police for the 2019/20 financial year. This section also provides a programme analysis of the Department.
- Section 4: Committee observations: SAPS. This section provides selected observations made by the Portfolio Committee on Police in general, on the annual performance targets and programme specific issues during the 2019/20 budget hearings and subsequent responses by the Department of Police.
- Section 5: Recommendations and additional information. This section summarises the recommendations made by the Portfolio Committee on Police, as well as the additional information requested from the Department of Police.
1.2 Meetings Held
In past years, the Committee met with civil society organisations, but due to the short period from the constitution of the Committee in the 6th Parliament and the tabling of the APPs and the Budget Vote, there was no time to engage civil society. This does not mean that the Committee will not engage civil society organisations in future, particularly the police trade unions, police related research organisations and academic institutions. The Committee met on 02 and 03 July 2019 and had robust engagement with the Department on the 2019/20 APP and Budget allocation.
2.1 State of the Nation priorities
The President has developed seven priorities for the new administration during the MTSF period:
- Economic transformation and job creation;
- Education, skills and health;
- Consolidating the social wage through reliable and quality basic services;
- Spatial integration, human settlements and local government;
- Social cohesion and safe communities;
- A capable, ethical and developmental state; and
- A better Africa and World.
During the SONA speech, the President outlined the following priorities with respect to policing:
- Violent crime is at least halved over the next decade;
- Increase police visibility by employing more policewomen and men, and to create a more active role for citizens through effective community policing forums;
- End gender-based violence and femicide through working towards the establishment of the Gender Based Violence and Femicide Council and a National Strategic Plan;
- Improve success rates in investigating and prosecuting crimes, and to ensure better training and professionalisation throughout the criminal justice system.
- Capacitating and equipping the police and court system to support survivors of gender-based violence;
- Implementation of the National Anti-Gang Strategy and the revised National Drug Master Plan;
2.2 National Development Plan
The strategic priorities for the 2019/20 year has been determined by the SAPS with the understanding that the current year is the penultimate year of the 2014-2019 Medium Term Strategic Framework (MTSF). The National Development Plan priorities remain the key priorities of the SAPS and they include:
- Strengthen the criminal justice system;
- Make the police service professional;
- Demilitarise the police;
- Increase rehabilitation of prisoners and reducing recidivism;
- Build safety using an integrated approach; and
- Increase community participation in safety.
The Department has indicated that making the police professional and increasing the community participation in safety is critical because it relates to community trust in policing. Professionalism remains an important cornerstone of policing and the SAPS has continued to prioritise this NDP goal.
2.3 Ministerial Priorities
In terms of the APP, the Minister has tabled the following strategic priorities:
- Gender-based violence and abuse;
- Crimes against women and children;
- A professional, capable and well-resourced police service;
- Strong community police partnerships; and
- Increased levels of police officers.
2.4 SAPS Priorities
The SAPS has not published a strategic plan 2019-2024, but will align the upcoming MTSF from 2020-2025, in line with the Department of Planning, Monitoring and Evaluation directions. The SAPS has therefore aligned its APP with the 2014/15-2018/9 Strategic Plan. To this end, the Department has prioritised the following:
- Implementing the Turnaround Vision and the Back to Basics approach;
- Implement multi-disciplinary operations to fight crime including Operation Fiela II;
- Recruitment of 3000 trainee constables per year in the MTSF;
- Finalise and implement the Integrated Crime Detection Framework;
- Maintain peace and public order before, during and after the elections; and
- Optimising crime intelligence to support policing operations.
In 2019/20, the National Commissioner has initiated two processes linked directly to the intended outcome of the implementation of the SAPS’s APP.
- The development and implementation of an Integrated Resource Strategy. The Strategy relates to the resources that are required to implement the SAPS’s short and medium-term priorities and in particular, the targeted performance that the SAPS has set itself. This is an integrated approach to the determination, acquisition, distribution and application of all resources. The development and implementation of the Strategy is based on two interrelated elements, the first, being the cost of policing and the second, being the benefit, or return on investment, derived from the application of the resources that have been entrusted to the SAPS.
- Individual performance management system. There will be a clear link between the SAPS’s stated organisational performance and the functions that are performed by incumbents, at all levels. The linking of organisational and individual performance will be supported by the implementation of a rationalised organisational structure, which will facilitate the direction of key resources to local, police station level, while simultaneously rationalising ineffective or unproductive elements of the organisational structure.
2.5 Directorate for Priority Crime Investigation
For the first time, the SAPS APP included an introduction by the National Head of the Directorate for Priority Crime Investigation (DPCI)(Hawks), which points towards an increased acknowledgement of the independence of the DPIC. The National Head of the DPCI has implemented the concept of, “A.I.M, which is, Assessment, Implementation and Monitoring, which seeks to assess the current situation, as well as identify gaps and inconsistencies that need to be addressed within the DPCI. Subsequent to the appointment of the National Head, an analytical investigation was launched to assess and analyse the current situation at the Directorate. Various significant deficiencies were identified, which included (amongst others) the following:
- Incoherent organisational structure;
- High employee turnover rate;
- Failure to implement Section 17G of the SAPS Act, with regards to conditions of service, remuneration, allowances, and other conditions of service, of members of the Directorate;
- Incorrect matching and placement of personnel, in line with their expertise;
- Inadequate distinction between the mandates of the Directorate and the Detective Service within the SAPS; and unsuitable accommodation and storage for the Directorate;
- Poor performance in dealing with disciplinary matters and grievances;
- Regression in the performance of the Directorate, in the areas of organised crime project investigations and prosecution on the Prevention of Organised Crime Act 1998, (Act No 121 of 1998);
- Integrity that does not seem to be beyond reproach; and
- Nepotistic practices, resulting in compromised appointments.
To address the shortcomings, the Directorate will be re-engineered through the implementation of short, medium and long-term solutions, by the setting of clear strategy, designing a responsive structure, securing suitable accommodation, enhancing skills levels and retaining personnel.
2.6 Organisational environment
2.6.1 Leadership
The SAPS faced a challenge with respect to its Chief Financial Officer (CFO) after he was suspended and fired. The matter is still subject to ongoing investigations by the SAPS. The SAPS received a qualified audit with findings and 2017/18 was the second year in a row where SAPS received such a qualified audit. The Committee has in the past flagged the financial performance of SAPS given the inability of the Department to fully implement the recommendations of the Auditor-General of South Africa (AGSA). In December 2018, the SAPS appointed a new CFO, Major General PP Dimpane.
The Directorate for Priority Crimes Investigation (DPCI) was also without a permanent Head since 2014 when Lt. General Anwa Dramat resigned. In 2018, the current Head of the DPCI, Lt. General Lebeya was appointed to lead the DPCI. In between, there was an Acting Head (Major General of the DPCI and a permanently appointed Head, Lt. General Ntlemeza, who subsequently retired after the Supreme Court ruled his appointment was unlawful. It should be noted that the DPCI will be investigating State Capture cases from the Zondo Commission and requires the structure to be fully capacitated.
The appointment of a permanent Divisional Commissioner for Crime Intelligence in March 2018 saw the post vacant for six years prior to the appointment of the incumbent Lt General Peter Jacobs last year. Several commissioners have had investigations against them for corruption and these include the previous acting National Commissioner, the Divisional Commissioner for Forensics and the former Divisional Commissioner for Crime Intelligence. The critical leadership areas for the SAPS remain the forensics environment, financial management, supply chain management (SCM) and procurement as well as Crime Intelligence.
2.6.2 Legislation
The Portfolio Committee will continue to monitor the processing of the amendments to the SAPS Act, the Independent Police Investigative Directorate (IPID) Act, the Regulation of Gatherings Act and the Private Security Industry Regulatory Authority Amendment Act.
The most critical piece of legislation that requires the attention of the Committee is review of the SAPS Act. The SAPS Act was promulgated in 1995, a year before the Interim Constitution was finalised and as a result, there are some areas that are not aligned to the final constitution promulgated in 1996. The review of the SAPS Act has to be tied with the National Development Plan (NDP) outcomes in order to see improved policing and better service delivery.
The SAPS Act has been amended on an ad hoc basis through various Constitutional Court judgements in matters relating to the independence of the DPCI in particular. The “Glenister judgement” provided sufficient independence to the Head of the DPCI. In the same vein, the IPID Constitutional Court Judgement did the same for the Head of the IPID.
As matters stand, the SAPS Act has not been brought to Parliament by the Executive and has been on the legislative programme for over twelve years. It should be a priority for the Committee to finalise the legislative review of the SAPS Act. The Civilian Secretariat for Police has employed a legal person to initiate the review and the Committee should insist on the draft being finalised.
The following pieces of legislation are expected to be placed on the legislative programme of the Civilian Secretariat for Police to be brought to Parliament during the 6th Parliament:
• Draft Criminal Law (Forensics Procedures) Bill
• Draft Firearms Control Amendment Bill
• Draft Controlled Animals and Animal Produce Bill
• Draft Protection of Constitutional Democracy against Terrorism and Related Matters Bill
• Draft South African Police Services Amendment Bill
• Draft Second Hand Goods Amendment Bill
• Draft Independent Police Investigative Directorate Amendment Bill
• Draft Civilian Secretariat for Police Bill
2.6.3 IPID Amendment Bill [B25-2018]
The Independent Police Investigative Directorate Amendment Bill [B25-2018] was finalised in Committee in 2018. In view of there being a Constitutional Court deadline (5 September 2018), the Committee finalised its amendments to the Bill before the Constitutional Court deadline. The Bill was passed by National Assembly and transmitted for concurrence to the National Council of Provinces (NCOP) on 4 September 2018. Parliament’s Legal Services Division has applied for an extension of the deadline in order for the NCOP to deal with the amendments.
2.6.4 Critical Infrastructure Protection Bill [B22B-2017]
The Critical Infrastructure Protection Bill [B22B – 2017] was adopted with amendments on 14 August 2018 and sent to the NCOP for concurrence. The NCOP added amendments which were all largely supported, except one which the NA rejected. In view of the fact the Bill which was a section 75 Bill and no mediation was required, the Bill was reported in the ATC with amendments on 22 February 2019.
2.6.5 Firearms Control Amendment Bill [B40 -2018]
A draft Firearms Control Amendment Bill [B 40—2018] was placed before the Committee on 6 November 2018. The purpose of the Private Member’s Bill was to provide for additional opportunities to apply for the renewal of a licence for a firearm or to surrender or dispose of a firearm. It also provided for an administrative fine to be imposed where an application for the renewal of a licence for a firearm was made later than the 90-day period for application provided by the Act. The Committee did not support the Motion of Desirability on the Bill on the basis that some of the proposed amendments would be included in the proposed Bill which would be tabled by the Civilian Secretariat for Police.
2.6.5 Regulation of Gatherings Amendment Bill [B 47—2018]
The Portfolio Committee on Police considered the subject of the Regulation of Gatherings Amendment Bill [B 47—2018]. The Bill was tabled, introduced and referred to the Committee on 27 November 2018. The purpose of the Bill was to amend the Regulation of Gatherings Act, 1993 (Act No. 205 of 1993), to prohibit protests outside schools, outside places that provide an early childhood development programme and outside child and youth care centres, except for certain prescribed causes; to empower the Minister to make regulations in respect of those causes for which permission may be granted.
After deliberation the Committee decided not to support the Motion of Desirability on the Bill.
- SAPS BUDGET AND PERFORMANCE TARGETS FOR 2019/20
The SAPS receive a budget allocation of R97.59 billion, which is a nominal increase of 6.4% when compared to the previous financial year. Total expenditure increases to R111.18 billion over the medium-term expenditure framework (MTEF), which is an average annual growth rate of 6.6%.
The bulk of expenditure is located in Current payments. Of the total budget, R93.01 billion thereof is allocated to Current payments (95.3%). This is mainly due to Compensation of Employees (CoE) that received R76.35 billion of the total budget (representing 78.1%). The table below indicates that the bulk of expenditure on CoE is located in the Visible Policing Programme, as it has the largest number of employees.
Table 1: SAPS Budget summary
|
R million |
2019/20 |
2020/21 |
2021/22 |
|||
|
Total |
Current payments |
Transfers and subsidies |
Payments for capital assets |
Total |
Total |
|
|
MTEF allocation Administration Visible Policing Detective Services Crime Intelligence Protection and Security Services |
20 446.5 49 912.5 19 994.6 4 092.7 3 148.9 |
21 853.1 48 308.6 19 185.3 4 019.0 3 065.1 |
779.9 282.8 123.0 19.8 6.0 |
1228.3 1 321.2 686.3 53.9 77.8 |
21 853.1 53 286.0 21 416.2 4 389.0 3 379.0 |
23 245.1 56 794.1 22 867.8 4 676.2 3 597.0 |
|
Total expenditure estimates |
97 595.3 |
93 016.4 |
1 211.6 |
3 367.4 |
104 323.3 |
111 180.2 |
Source: National Treasury 2019 Budget
Remaining in Current payments, expenditure on Goods and services represents 17.1% of the total Departmental budget allocation. Of the R97.59 billion total budget allocation, R16.65 billion was allocated to this account, in which the bulk of expenditure items, such as advertising, consultants, contractors and legal services resides. Of the Current payments in the Visible Policing Programme, all operating leases are paid from this account (R3.09 billion).
Payments for capital assets accounts for 3.4% of the total budget allocation of the Department, the bulk of which is allocated to the Administration and Visible Policing Programmes that received R1.22 billion and R1.32 billion, respectively. Payments for capital assets include Buildings and other fixed structures, Machinery and equipment, Biological assets (dogs and horses) and Software and other intangible assets. In the Administration Programme, expenditure on buildings and other fixed structures (construction and refurbishment of police stations) is a ring-fenced amount of R870 million. Almost 40% of the total allocation to Payments for capital assets (R1.32 billion) in the Visible Policing Programme is allocation for expenditure on Machinery and equipment.
Transfers and subsidies represents 1.2% (R1.21 billion) of the total Departmental budget allocation, the bulk of which is in the Administration Programme (R779.9 million) and Visible Policing Programme (R282.8 million) for payments in Households. This is related to the number of personnel associated with these two Programmes.
3.1 Significant changes to the 2019/20 SAPS budget
Over the medium-term, Cabinet has approved reductions to the Department’s baseline amounting to R1.5 billion. Of this:
- R853 million over the period is transferred from the Administration programme to the Department of Justice and Constitutional Development in support of the migration of the integrated justice system programme to the Department of Justice and Constitutional Development to centralise the management and coordination of the programme;
- R570 million over the medium term is reduced across all programmes from non-core goods and services items, mainly communications (R242.8 million), fleet services (R97.3 million), operating leases (R87.2 million), and travel and subsistence (R61.5 million) due to the implementation of cost-containment measures;
- R60 million over the MTEF period is reprioritised from computer services in the Detective Services programme to the Department of Home Affairs to support the establishment of the Border Management Authority; and
- R20.3 million over the medium term is reprioritised from operating leases in the Visible Policing programme to the Civilian Secretariat for the Police Service for office accommodation.
As a large portion of the reductions is on non-core goods and services, the Department’s ability to deliver services will not be affected. In addition, the Department will still have access to funds transferred to the integrated justice system programme when needed, provided project plans are submitted to the integrated justice system board for approval.
3.2 Expenditure Estimates
The budget allocation increased by 6.4% or R5.9 billion in 2019/20, compared to the previous financial year. The largest percentage increase is seen in the Crime Intelligence Programme (7.57%), followed by the Detective Services Programme (7.14%) and Protection and Security Services (7.02%). Due to increasing criticism over the effectiveness of the Crime Intelligence Division, a Turn-around Strategy was adopted in 2018, and as such it is encouraging to note that resources are made available to realise the Strategy.
Table 2: Comparative changes in budget allocations per programme
|
Programme R million |
Revised Estimate |
Main allocation |
Nominal Increase/ Decrease 2019/20 |
Real Increase/ Decrease 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
|
|
2018/19 |
2019/20 |
||||
|
Programme 1: Administration |
19 403.1 |
20 446.5 |
1 043.4 |
32.7 |
5.38 per cent |
0.17 per cent |
|
Programme 2: Visible Policing |
46 872.3 |
49 912.5 |
3 040.2 |
573.0 |
6.49 per cent |
1.22 per cent |
|
Programme 3: Detective Services |
18 661.6 |
19 994.6 |
1 333.0 |
344.7 |
7.14 per cent |
1.85 per cent |
|
Programme 4: Crime Intelligence |
3 804.7 |
4 092.7 |
288.0 |
85.7 |
7.57 per cent |
2.25 per cent |
|
Programme 5: Protection and Security Services |
2 942.4 |
3 148.9 |
206.5 |
50.9 |
7.02 per cent |
1.73 per cent |
|
TOTAL |
91 684.2 |
97 593.3 |
5 909.1 |
1 085.1 |
6.4 per cent |
1.18 per cent |
Source: Treasury (2019)
The Visible Policing Programme remains the core service delivery programme of the Department. In 2019/20, the Programme received a main allocation of R49.9 billion, which is a nominal increase of 6.49% compared to the previous financial year. The Programme was allocated 51.14% of the total budget of the Department. The proportional allocation did not change from the previous financial year.
The Administration Programme received the second largest proportional allocation of the total Departmental budget in 2019/20 (20.95%). The allocation increased from R19.4 billion in 2018/19 to R20.4 billion in 2019/20, which is a nominal increase of 5.38%. The allocation is expected to grow at an average annual rate of 6.2% over the medium-term and will receive an allocation of R23.24 billion in 2021/22.
The Detective Services Programme received 20.49% of the total Departmental budget (third largest) in 2019/20. This is slightly under the proportional allocation of the Administration Programme (20.95%), as investigation of crime is a key service delivery mandate of the Department. The proportional allocation increased by 0.14% when compared to the previous financial year’s proportional allocation. In 2019/20, the Programme received an allocation of R19.9 billion, which is a nominal increase of 7.14% compared to the 2018/19 revised estimate of R18.6 billion. During the 2015/16 MTEF, the Detective Services programme received significant attention and had many resources made available. The Programme is expected to have an average annual growth rate of 7.0% over the medium-term and will receive an allocation of R22.8 billion in 2021/22.
The main allocation of the Crime Intelligence Programme increased with R288 million in 2019/20 when compared to the previous financial year, which is a nominal increase of 7.57%. The R4.09 billion allocation will be used to implement the Crime Intelligence Turn-around Strategy and capacity building in the Crime Intelligence Division. Historically, the Crime Intelligence Programme received a small proportional budget allocation. In 2019/20, the Programme received 4.19% of the total budget allocation.
The Protection and Security Services Programme received the smallest proportional allocation at 3.23% of the total Departmental allocation. In 2019/20, the Programme received an allocation of R3.14 billion, which is an increase of 7.02% when compared to the R2.94 billion allocation in 2018/19. The allocation is expected to increase at an average annual growth rate of 6.9 over the medium-term.
3.3 Significant spending items
The Department has six significant spending items, which represents 91.8% of the total Departmental budget allocation. The most significant spending item is on Compensation of employees (CoE). In 2019/20, the expenditure will be R76.35 billion of the total Departmental allocation of R97.59 billion, which represents 78.2% of the total. This large proportional allocation is due to the labour intensive nature of the Department. The allocation increased by 7.85% in 2019/20 when compared to the previous financial year. Over the medium-term, spending on CoE is expected to grow by an average annual rate of 7.2%.
The second largest spending item is Fleet services, which compromises 4.4% of the total Departmental budget allocation. In 2019/20, the item was allocated R4.25 billion, which is an increase of 2.81% compared to the previous financial year. Between 2015/16 and 2018/19, the allocation made to Fleet services had an average annual growth rate of 3.3%, which will increase to an average annual growth rate of 5.5% over the medium-term. The SAPS has the largest vehicle fleet of all government departments. In 2017/18, the SAPS had 52 000 vehicles and various other transport equipment. As expenditure on Fleet services increases, expenditure on Transport equipment decreases.
In 2015/16, the allocation for Transport equipment was R1.20 billion, which increased to R1.87 billion in 2018/19. The item had an average annual growth rate of 15.8% during this period. In 2019/20, the allocation (R1.70 billion) decreased by 8.76% when compared to the previous financial year. Over the medium-term, the item has an average annual growth rate of 0.5% (R1.9 billion in 2021/22).
3.4 Goods and services expenditure trend and estimates
The allocation for Goods and Services increased from R16.28 billion in 2018/19 to R16.65 billion in 2019/20, which is a nominal increase of 2.31%. Significant changes to items under Goods and services include:
The allocation of Legal services increased from R334.3 million in 2018/19 to R363.2 million in 2019/20, which represents a nominal increase of 5.5%. The allocation has an average annual growth rate of 5.5% over the medium-term.
- Expenditure on Contractors increased from R466.4 million in 2018/19 to R514.0 million in 2019/20, which is an increase of 10.19% in comparison. Between 2015/16 and 2018/19, the allocation of Contractors decreased by 6.4% from R568.4 million in 2015/16 to R466.4 million in 2018/19. However, the allocation is expected to have an average annual increase of 7.1% over the medium-term to R573.6 million in 2021/22.
- The allocation of Training and development increased from R82.9 million in 2018/19 to R91.3 million in 2019/20, which is an increase of 10.23%. Between 2015/16 and 2018/19, the allocation had an average annual decrease of 4.5%. The average was mainly due to the significant decrease in the 2017/18 financial year in which the item was allocated R77.2 million. Over the medium term the average annual growth rate is 7.4%.
3.5 Claims against the state
In 2017/18, the Department allowed for R6.509 billion in contingent liabilities in terms of claims against the Department. A major spending pressure in the Administration Programme was more expenditure on civil claims than estimated. As part of actions initiated to curb the increase of civil claims, a Management Intervention Project was initiated during 2016. The aim was to address the root causes, establish ownership and accountability for the prevention of incidents leading to civil claims.
The first phase of the project commenced, on 5 June 2016 and ended, on 30 April 2017. The project consisted of 107 activities, to address the 38 root causes that were identified. Some of the root causes that lead to civil claims are as follows:
- Unlawful arrests, unlawful detention, damage to property and state property, assault and shooting incidents, due to a lack of compliance with rules and regulations, recruitment choices, poor training and poor command and control, as well as control and political condonation of police violence.
- Motor vehicle accidents (negligence), due to a lack of compliance with rules and regulations.
- Loss of state property, due to a lack of compliance with rules and regulations, resulting from lack of consequences, recruitment choices, poor training and poor command and control.
In 2018/19, R379.8 million was estimated for claims against the state and in 2019/20, this amount was raised to R397.2 million, which is an increase of 4.58%. Over the medium term, the amount increases to R438.24 million in 2021/22. This is an average annual growth rate of 4.9%. Furthermore, claims against the state represents an average of 32.8% of the total allocation of Transfers and subsidies.
3.6 Ring-fenced allocations
The following items received specifically and exclusive appropriations (ring-fenced) in the 2019 Appropriations Act:
- Compensation of employees: R76.35 billion
- 2019 National Elections: Deployments to safeguard voting stations: R180 million
- Police Stations: Building and upgrading: R 886.2 million (This is an increase from the R822.2 million allocation in 2018/19).
- Civilian Secretariat for Police Service: Operations: R146.6 million (Increased form the R131.2 million allocation of the previous financial year).
- Employee social benefits: Post retirement: R99.66 million
- Directorate for Priority Investigations (DPCI): R1.7 billion
- R1.39 billion is allocated to CoE
- R253.3 million is allocated to Transfers and subsidies
- R 43.6 million is allocated to Payments for capital assets
- R1.146 million is allocated Vehicle licenses: License fees paid to municipalities.
3.7 Administration Programme
The purpose of the Administration Programme is to provide strategic leadership, management and support services to the South African Police Service; and provide for the functions of the Civilian Secretariat for the Police Service.
The Administration Programme was allocated R20.4 billion in 2019/20, which is a nominal increase of 5.4% when compared to the R19.4 billion allocation in 2018/19. The Programme received the third largest portion of the total Departmental budget and of the Programme’s total budget, the Corporate Services sub-programme received 98.5% thereof. The sub-programme’s allocation of R20.1 billion increased by 5.33% in 2019/20 when compared to the previous financial year. Over the medium-term, the allocation of the sub-programme will grow by an annual average rate of 6.2%.
The Civilian Secretariat for Police sub-programme is not a true sub-programme, but a separate Department located in the Police Vote. The entire allocation of the sub-programme is transferred to the Department of the Civilian Secretariat for Police at the start of the financial year and can be seen in the Transfers and subsidies account of the SAPS.
The Management sub-programme received R86.5 million in 2019/20, which is a nominal increase of 6.92% when compared to the previous financial year.
Table 3: Administration Programme
|
Sub-programme |
Budget |
Nominal Increase / Decrease in 2019/20 |
Real Increase / Decrease in 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
|
|
R million |
2018/19 |
2019/20 |
|
|
|
|
|
Ministry |
61.6 |
65.1 |
3.5 |
0.3 |
5.68 % |
0.46 % |
|
Management |
80.9 |
86.5 |
5.6 |
1.3 |
6.92 % |
1.64 % |
|
Corporate Services |
19 129.4 |
20 148.3 |
1 018.9 |
23.0 |
5.33 % |
0.12 % |
|
Civilian Secretariat |
131.2 |
146.7 |
15.5 |
8.2 |
11.81 % |
6.29 % |
|
TOTAL |
19 403.1 |
20 446.5 |
1 043.4 |
32.7 |
5.4 % |
0.17 % |
Source: Treasury (2019)
3.8 Visible Policing Programme
The purpose of the Visible Policing Programme is to enable police stations to institute and preserve safety and security; and to provide for specialised interventions and the policing of South Africa’s borders.
The Visible Policing (VISPOL) Programme remains the core service delivery programme of the Department, as it receives more than half of the total Departmental budget (51.1%). The R49.4 billion budget allocation in 2019/20 increased by 6.5% when compared to the R46.8 billion budget of 2018/19. Of the total Programme’s budget (R49.9 billion), 78.3% thereof (R39.04 billion) goes to the Crime Prevention sub-programme. Compared to the previous financial year, the budget allocation for the Crime Prevention sub-programme had a nominal increase of 7.72%, which is the largest increase of the sub-programmes.
Table 4: Visible Policing Programme
|
Sub-programme |
Budget |
Nominal Increase / Decrease in 2019/20 |
Real Increase / Decrease in 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
|
|
R million |
2018/19 |
2019/20 |
|
|
|
|
|
Crime Prevention |
36 278.9 |
39 084.0 |
2 805.1 |
873.2 |
7.73 % |
2.41 % |
|
Border Security |
2 101.1 |
2 183.0 |
81.9 |
- 26.0 |
3.90 % |
-1.24 % |
|
Specialised Interventions |
4 383.7 |
4 374.7 |
- 9.0 |
- 225.2 |
-0.21 % |
-5.14 % |
|
Facilities |
4 108.6 |
4 306.8 |
198.2 |
- 14.7 |
4.82 % |
-0.36 % |
|
TOTAL |
46 872.3 |
49 912.5 |
3 040.2 |
573.0 |
6.5 % |
1.22 % |
Source: Treasury (2019)
The budget allocation for the Specialised Interventions sub-programme decreased slightly by 0.21% in 2019/20 when compared to the previous financial year. Over the medium-term, the average annual growth rate of the sub-programme is 3.7%, which is in stark contrast to the increase between of 12.1% between 2015/16 and 2018/19.
3.9 Detective Services Programme
The purpose of the Detective Services Programme is to enable the investigative work of the SAPS, including providing support to investigators in terms of forensic evidence and criminal records.
The Detective Services Programme received a budget allocation of R19.9 billion in 2019/20 which is a nominal increase of 7.1% when compared to the R18.6 billion allocation of the previous financial year. The Forensic Science Laboratory sub-programme received a significant budget increase 2019/20. In the previous financial year, the sub-programme had a budget allocation of R1.70 billion that increased to R1.93 billion in 2019/20, which is a 13.47% nominal increase. The budget allocation for this sub-programme increases at an average annual growth rate of 8.1% over the medium-term and will receive R2.152 billion in 2021/22.
Table 5: Detectives Services Programme
|
Sub-programme |
Budget |
Nominal Increase / Decrease in 2019/20 |
Real Increase / Decrease in 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
||
|
R million |
2018/19 |
2019/20 |
|
|
|
|
|
|
Crime Investigations |
12 789.9 |
13 595.7 |
805.8 |
133.8 |
6.30 % |
1.05 % |
|
|
Criminal Record Centre |
2 551.8 |
2 734.2 |
182.4 |
47.2 |
7.15 % |
1.85 % |
|
|
Forensic Science Laboratory |
1 702.4 |
1 931.7 |
229.3 |
133.8 |
13.47 % |
7.86 % |
|
|
Specialised Investigations (DPCI) |
1 617.5 |
1 733.0 |
115.5 |
29.8 |
7.14 % |
1.84 % |
|
|
TOTAL |
18 661.6 |
19 994.6 |
1 333.0 |
344.7 |
7.1 % |
1.85 % |
|
Source: Treasury (2019)
Specialised Investigations: Directorate for Priority Crime Investigation (DPCI)
The Specialised Investigations sub programme contains the function of the Directorate for Priority Crime Investigations (DPCI), commonly known as the Hawks. The budget allocation to the DPCI has been contentious in past financial years. The SAPS Act stipulates specific reporting requirements for the DPCI. The Directorate was meant to be a separate budget programme of the SAPS, meaning that it would receive a separate budget. However, the Act did not state “budget programme”, but only “programme” making it a sub-programme of the Detective Services Programme. National Treasury argued that there is not a sufficient differentiation between the mandate of the Detective Services Programme and the DPCI. To ensure a sense of financial independence, the funds of the DPCI are ‘ring fenced’ in the Appropriations Act, meaning that funds must be exclusively used for the functions of the DPCI.
In 2019/20, the allocation of the DPCI is R1.7 billion, of which:
- R1.39 billion is allocated to CoE;
- R253.3 million is allocated to Transfers and subsidies;
- R 43.6 million is allocated to Payments for capital assets;
- R1.146 million is allocated Vehicle licenses: License fees paid to municipalities.
The 2019/20 budget increased by 7.1% from the R1.6 billion of the previous financial year. Over the medium-term, the allocation is set to increase by 6.8%. It is unclear whether the allocation will be sufficient to support the capacity improvements as identified by the National Head of the Directorate1 during 2018.
3.10 Crime Intelligence Programme
The purpose of the Crime Intelligence Programme is to manage crime intelligence, analyse crime information, and provide technical support for investigations and crime prevention operations.
The Programme forms a key operational dimension within the Back-to-Basics Approach, in that of crime intelligence supports proactive and reactive policing and necessitates actionable crime intelligence that is used proactively and reactively in the prevention and investigation of crime.
Table 6: Crime Intelligence Programme
|
Sub-programme |
Budget |
Nominal Increase / Decrease in 2019/20 |
Real Increase / Decrease in 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
||
|
R million |
2018/19 |
2019/20 |
|
|
|
|
|
|
Crime Intelligence Operations |
1 567.5 |
1 689.8 |
122.3 |
38.8 |
7.80 % |
2.47 % |
|
|
Intelligence and Information |
2 237.2 |
2 402.9 |
165.7 |
46.9 |
7.41 % |
2.10 % |
|
|
TOTAL |
3 804.7 |
4 092.7 |
288.0 |
85.7 |
7.6 % |
2.25 % |
|
Source: Treasury (2019)
The Crime Intelligence Programme received R4.09 billion in 2019/20, which is a nominal increase of 7.6% when compared to the previous financial year. Proportionally, the Programme received 4.2% of the Department’s total budget allocation. The Crime Intelligence Operations sub-programme received R1.68 billion in 2019/20, which is a nominal increase of 7.8% when compared to the previous financial year and comprises 41.2% of the Programme’s total budget.
The Intelligence and Information sub-programme received R2.4 billion in 2019/20, which is a nominal increase of 7.41% when compared to the previous financial year. The sub-programme was allocated 58.8% of the Programme’s total budget.
3.11 Protection and Security Services Programme
The purpose of the Protection and Security Service Programme is to provide protection and security services to all identified dignitaries and government interests. The Programme received 3.2% of the Department’s total budget allocation. The Programme’s allocation increased from R2.9 billion in 2018/19 to R3.1 billion in 2019/20, which is a nominal increase of 7.0%.
Table 7: Protection and Security Services
|
Programme |
Budget |
Nominal Increase / Decrease in 2019/20 |
Real Increase / Decrease in 2019/20 |
Nominal Percent change in 2019/20 |
Real Percent change in 2019/20 |
|
|
R million |
2018/19 |
2019/20 |
|
|
|
|
|
VIP Protection |
1 528.3 |
1 626.5 |
98.2 |
17.8 |
6.43 % |
1.16 % |
|
Static and Mobile Security |
1 062.1 |
1 132.6 |
70.5 |
14.5 |
6.64 % |
1.37 % |
|
Government Security Regulator |
84.7 |
101.2 |
16.5 |
11.5 |
19.48 % |
13.57% |
|
Operational Support |
267.2 |
288.6 |
21.4 |
7.1 |
8.01 % |
2.67 % |
|
TOTAL |
2 942.4 |
3 148.0 |
205.6 |
50.0 |
7.0 % |
1.70 % |
Source: Treasury (2019)
The significant nominal increase of 19.48% in the budget allocation for the Government Security Regulator sub-programme is due to the anticipated implementation of the Critical Infrastructure Protection Act, 2017 (Act 22 of 2017). The Act was adopted by Parliament on 27 August 2018, which repeals and replaces the National Key Points Act, 1980 (Act 102 of 1980). The allocation will have an average annual growth of 12.1% over the medium-term and is expected to reach R119.4 million in 2021/22. The growth rate is further telling of the increased focus on this item, as the sub-programme had an average annual decrease of 9.3% between 2015/16 and 2018/19.
3.12 PERFORMANCE ANALYSIS
Throughout the 5th Parliament, the Portfolio Committee on Police had robust engagements with the SAPS on their performance measurement system. The National Treasury and the Office of the AG echoed these concerns, by noting that there is no clear link between the state fund allocated to the Department and the impact on safety and security.3 In 207/18, the AG made a material finding on the inadequacy of the performance management system of the SAPS.
The SAPS performance system has relied heavily on direct performance measurements based on numerical targets. These measurements are undoubtedly useful in the measurement of performance, but should not be predominant. The 2019/20 APP shows a clear intention to move to measuring indirect targets or outcomes to assess the impact of policing in South Africa. This approach follows the international trend of police performance systems that have shifted away from the use of predominantly numeric performance indicators towards the inclusion of indirect performance indicators. This shift is clearly stated in the by the National Commissioner in the implementations of the Integrated Resource Strategy to measure the cost of policing and the benefit, or return on investment, derived from the application of the resources by the SAPS through state funds.
The SAPS has introduced an additional category of performance information, referred to as statistical performance information whose intention is to impart information, related to the SAPS’s performance but which is either purely compliance-based, or which is information that the SAPS contributes to, as one of several key role-players, both within the public and private sectors. These indicators will be developed further during the development of the upcoming MTSF and SAPS Strategic Plan.
Another key shift of the Department in the 2019/20 APP is the removal of the performance indicators on the reduction of reported incidence of crimes against women and children, which were historically included under Part B of the SAPS APP, but now falls under the statistical performance information (newly added category of performance information). Although the reduction of crimes against women and children is a key priority of government, the measurement has some unintended consequence associated with targeted reduction, especially at station level. This is a key area where the SAPS must develop a tool to measure the impact of planned initiatives to increase the reported incidents.
As part of the new category of performance information, the measurement for conviction rates has been included, as opposed to the Programme and sub-programme plans (Part B of the APP), as the performance measurement is a joint responsibility between departments and not the sole responsibility of the SAPS. In the past, the Portfolio Committee had robust engagement with the Department on the calculation of its conviction rates, because it differed from that of the Department of Justice and also because the SAPS has little control over the conviction of defendants.
3.12.1 Administration Programme
Budget overview: The Administration Programme received the second largest proportional allocation of the total Departmental budget in 2019/20 (20.95%). The allocation increased from R19.4 billion in 2018/19 to R20.4 billion in 2019/20, which is a nominal increase of 5.38%. The allocation is expected to grow at an average annual rate of 6.2% over the medium-term and will receive an allocation of R23.24 billion in 2021/22.
Programme purpose: Provide strategic leadership, management and support services to the South African Police Service; and provide for the functions of the Civilian Secretariat for the Police Service.
Programme objective: To regulate the overall management of department and provide centralised support services
Performance indicators: The following performance indicators and targets measure the effectiveness of the Administration Programme of the SAPS:
|
Objective statement: Establish an adequate human resource capability with emphasis on investigating capacity, intelligence gathering and operational environment. |
|
|
Human capital is an asset to the organisation and critical to its functioning. This objective focuses on ensuring the availability of adequate human resource capability, thereby providing an efficient and effective service to the community. |
Performance indicator & target 2019/20
|
|
Strategic Objective Annual Targets
Performance Indicators and targets
|
|
|
Objective statement: Transform and professionalise the Service
|
|
|
This objective statement intend to bridge the skills gap through continued skills development, specifically in areas, which require specialised skills directed at specialised policing functions i.e. Public Order Policing, Forensic Analysis, Crime Investigations, Crimes Committed against Women and Children, Crime Intelligence and Cybercrime. |
Performance indicator & target 2019/20
Strategic Objective Annual Target • 97% of 81 858 learners assessed and declared competent upon completion of their training
Performance indicator and targets:
Visible Policing and Detective Services
Specialised capabilities
|
Infrastructure development is a major challenge for the SAPS. In terms of the SAPS Long-term infrastructure development plan, the following projects were identified:
- Site clearance: 32 site clearances finalised
- Planning and Design: 42 phase completed
- Execution: 25 police stations built
In 2019/20, three police stations will be built at a cost of R627.6 million. However, the expenditure estimates for infrastructure as published by the SAPS includes infrastructure projects with a total project cost of at least R250 million but less than R1 billion over the project life cycle. It is believed that the new SAPS Head Office planned for construction in Maitland, Cape Town has an estimated construction budget of R1.3 billion.
|
Objective statement: Improvement of requisite resources to sustain quality service delivery on strategic priorities (New) |
|
|
Enable timeous reaction to requests for police assistance and support the prevention, combating and investigation of crime. |
Performance indicator & target 2019/20 Strategic Objective Annual Target Maintain a ratio of 4.54:1 personnel to vehicles Performance indicators and targets
|
|
Objective statement: Enhancing Information Systems/Information and Communication Technology (IS/ICT) to support the business objectives of the SAPS. |
|
|
This strategic objective focuses on the modernisation of policing practices and processes and the improvement of policing effectiveness, efficiency and service delivery. |
Performance indicator & target 2019/20 Strategic Objective Annual Target
Performance indicators and targets
|
Two new performance indicators were added to the achievement of the objective to enhance the Information Systems/Information and Communication Technology (IS/ICT) to support the business objectives of the SAPS. The Committee should request details on the Vehicle Monitoring Units to be installed thirteen 10111 centres. The SAPS has an Automated Vehicle Location Service (AVL) installed in most vehicles, but the system is currently dysfunctional and part of an ongoing court case.
|
Objective statement: Inculcate a culture of uncompromising compliance and performance management. |
|
|
Promote compliance with the regulatory and organisational control frameworks. Reinforce the reliability and validity of reported performance information on the predetermined objectives. |
Performance indicator & target 2019/20 Strategic Objective Annual Target
Performance indicators and targets
|
The SAPS received two consecutive qualified audit opinions from the Office of the AG, which led to the inclusion of a new performance indicator to obtain an unqualified audit opinion for the 2019/20 financial year. The basis of the opinion was the nondisclosure of SITA assets on the SAPS Asset Register. The new performance indicator replaced the 2018/19 indicator to reduce the number of material findings by 50%. The SAPS should retain the target to reduce the number of material findings and strive to obtain a clean audit (unqualified audit with no material findings).
3.12.2 Visible Policing Programme
Budget overview: The Visible Policing Programme is the core service delivery programme of the Department and as such received little over half of the total budget allocation of the SAPS budget (51.14%). In 2019/20, the Programme received a main allocation of R49.9 billion, which is a nominal increase of 6.49% compared to the previous financial year.
Purpose: Enable police stations to institute and preserve safety and security; and to provide for specialised interventions and the policing of South Africa’s borders.
Programme objective: Discourage all crimes by providing a proactive and responsive policing service that will reduce the levels of priority crime.
Performance indicators: The following performance indicators and targets measure the effectiveness of the Visible Policing Programme of the SAPS:
|
Objective statement: Contribute to the reduction of serious crime, including contact crime, contact-related crime, property related crime and other serious crime. |
|
|
The reduction of serious crime (contact crime, aggravated robberies) plays a pivotal role in ensuring that all people in South Africa are and feel safe. Sustained reduction in the levels of serious crime is a priority for government as it is a key driver of socio economic development in the country. |
Performance indicator & target 2019/20
Strategic objective annual targets
Performance indicators and targets
|
The SAPS has identified 30 police stations, referred to as the “high crime weight stations”, for focused attention over the short and medium-term, which will translate into the implementation of specific proactive and reactive interventions, on an annual basis. These stations will be reviewed on an annual basis, with the express intention of monitoring the application of these interventions, which relate to core policing functions, including the prevention and investigation of crime.
|
Objective statement: Quality service delivery and responsiveness |
|
Performance indicator & target 2019/20
|
The indicators used to measure quality service delivery and responsiveness should be reviewed to use outcome indicators and not output indicators. This should be a key objective of the SAPS to be measured based on outcome indicators and not output indicators.
The indicator to finalise 90% of applications for new firearms it set to measure the improvement of service delivery by the SAPS in terms of the number of new firearm licenses, finalised in terms of the Firearms Control Act, 2000 (Act No. 60 of 2000). However, this indicator has shown continuous underperformance over the past years, mostly due to the partial collapse of Central Firearms Registry (CFR).
The numerical value placed on the number of stations compliant to the set criteria for rendering a victim friendly service to victims of rape, sexual offences, domestic violence and abuse should rather measure the quality and effectiveness of services rendered by these stations.
In terms of reaction times to complaints, the AG has consecutively made material findings on the response times, as the reported information cannot be verified. The 2018 Victims of Crime Survey (VOCS) found that the percentage of South Africans who were satisfied with police response in 2017/18 was 54%, which is a decrease of 5,5% from the previous year. The most common reason for dissatisfaction with the police (34,4%) was that "they don't respond in time".
|
Objective statement: Enhancing partnership policing (Strengthening the community centred approach to policing) |
|
|
Crime is a social phenomenon that cannot be prevented by the police alone, hence partnership is critical in the fight against crime. CPFs play a pivotal role in the building of partnerships, sharing information between the police and the community and tapping into resident’s knowledge and expertise. Consultative and partnership policing fosters good relationships between a vast number of stakeholders, including Government, municipalities, businesses, civil society and other interest groups. |
Performance indicator & target 2019/20 Strategic objective annual targets
Performance indicators and targets
|
The establishment of a new social compact to address violent crime as part of a holistic community-centred policing approached was a key focus of the June 2019 SONA, as well as the Minister and National Commissioner.
A key component thereof is the establishment and functionality of CPFs. The SAPS APP measures the number of CPFs implemented at police stations, while stating that it must be ‘functional’. However, the SAPS cannot measure the functionality of CPFs by the performance indicator and target as currently stated.
The June 2019 SONA specifically prioritised the fight against gangsterism. The Western Cape SAPS Anti-Gang Unit (AGU) was launched in November 2018 to combat gangsterism in the Cape Flats. As part of this effort, the School Safety Strategy that has been implemented at the majority of schools is functional although safety remains a concern in some areas. A relationship with other government departments must still be formalised to effectively deal with school safety.
|
Objective statement: Police incidents of a security nature, which require specialised intervention. |
||
|
This objective relates to the response to situations that requires a response, which exceeds normal policing and involves a specialised capability, due to the risk associated with the situation, like hostage negotiations. |
Performance indicator & target 2019/20
• 100% of medium to high-risk incidents responded to in relation to requests received by the National Intervention Unit (NIU) and Special Task Force (STF) respectively.
|
|
|
Objective statement: Police incidents of public disorder and crowd management. |
|
|
|
Performance indicator & target 2019/20 Strategic objective annual targets
Performance indicators and targets
|
|
|
The Constitution guarantees citizens’ right to public protest, but the SAPS must protect citizens and their property. The manner in which this SAPS executes this mandate often leads to clashes between the SAPS and protesters. There are numerous examples in which the SAPS used lethal force leading to the deaths in order to disperse protests. The 2012 Marikana incident where the SAPS killed 38 miners during protest actions at the Lonmin mine brought the use of excessive force into the public domain and the establishment of the Marikana Commission of Inquiry. The Commission made various recommendations to improve the responsiveness to protests action.
3.12.4 Detective Services Programme
Budget overview: The Detective Services Programme received 20.49% of the total Departmental budget (third largest) in 2019/20. This is slightly under the proportional allocation of the Administration Programme (20.95%), as investigation of crime is a key service delivery mandate of the Department. The proportional allocation increased by 0.14% when compared to the previous financial year’s proportional allocation. In 2019/20, the Programme received an allocation of R19.9 billion, which is a nominal increase of 7.14% compared to the 2018/19 revised estimate of R18.6 billion. During the 2015/16 MTEF, the Detective Services programme received significant attention and had many resources made available. The Programme is expected to have an average annual growth rate of 7.0% over the medium-term and will receive an allocation of R22.8 billion in 2021/22.
Purpose: Enable the investigative work of the SAPS, including providing support to investigators in terms of forensic evidence and criminal records.
Programme objective: To contribute to the successful prosecution of offenders by investigating and analysing evidence.
Performance indicators: The following performance indicators and targets measure the effectiveness of the Detective Services Programme of the SAPS:
|
Objective statement: Effective investigation of serious crime. |
|
|
The aim of this objective is to improve the detection and trial-ready case docket rate, thereby contributing towards successful prosecutions and enhanced confidence in the Criminal Justice System |
Performance indicator & target 2019/20 Strategic objective annual targets
Performance indicators and targets Contact crime:
Crimes committed against women 18 years and above (Murder, Attempted Murder, All Sexual Offences, Common Assault and Assault GBH):
Crimes committed against children under 18 years (Murder, Attempted Murder, All Sexual Offences, Common Assault and Assault GBH):
Contact-related crime:
Property-related crime:
Other serious crime:
Criminal and violent behaviour during public protests
Serious crimes at the identified 30 high crime weight stations (New)
Contact crimes at the identified 30 high crime weight stations (New)
|
|
Objective statement: Enhance the processing of Forensic Evidence case exhibits (entries). |
|
|
The intention is to reduce the backlog of case exhibits within a specific period thereby supporting the investigative process and enhancing service delivery. |
Performance indicator & target 2019/20 Strategic objective annual targets
Performance indicators and targets
|
3.12.5 Directorate for Priority Crime Investigation (DPCI)
The Directorate for Priority Crime Investigations (DPCI), commonly known as the Hawks is located as a Directorate within the SAPS under the Specialised Investigations sub programme.
Budget overview: The budget allocation to the DPCI has been contentious in past financial years. The SAPS Act stipulates specific reporting requirements for the DPCI. The Directorate was meant to be a separate budget programme of the SAPS, meaning that it would receive a separate budget.
However, the Act did not state “budget programme”, but only “programme” making it a sub-programme of the Detective Services Programme. National Treasury argued that there is not a sufficient differentiation between the mandate of the Detective Services Programme and the DPCI. To ensure a sense of financial independence, the funds of the DPCI are ‘ring fenced’ in the Appropriations Act, meaning that funds must be exclusively used for the functions of the DPCI.
In 2019/20, the allocation of the DPCI is R1.7 billion, of which:
- R1.39 billion is allocated to Compensation of Employees;
- R253.3 million is allocated to Transfers and subsidies;
- R 43.6 million is allocated to Payments for capital assets;
- R1.146 million is allocated Vehicle licenses: License fees paid to municipalities.
The 2019/20 budget increased by 7.1% from the R1.6 billion of the previous financial year. Over the medium-term, the allocation is set to increase by 6.8%. It is unclear whether the allocation will be sufficient to support the capacity improvements as identified by the National Head of the Directorate7 during 2018.
Performance indicators: The following performance indicators and targets measure the effectiveness of the DPCI:
|
Objective statement: Reduce levels of fraud and corruption in the public and private sectors, thereby improving investor perception, trust in and willingness to invest in South Africa (New) |
|
|
Fraud and Corruption is a serious national security threat that undermines the authority of the state and the economic development of the country. The country faces intolerably high levels of corruption within the public and private sectors, which undermine the rule of law and impede government’s efforts to achieve its socio-economic development and service delivery objectives and overcome inequality. The Serious Corruption Investigation Component within the DPCI, plays a pivotal investigative role in the Anti-Corruption Task Team (ACTT), that is mandated as the central body to give operational effect to government’s Anti-Corruption agenda which reports to the Anti-Corruption Inter-Ministerial Committee (ACIMC). |
Performance indicator & target 2019/20
|
|
Objective statement: Reduce levels of serious organised crime through the successful closure of serious organised crime project investigations |
|
Performance indicator & target 2019/20
|
As part of the June 2019 SONA, the President highlighted the need to address drug abuse and address gangsterism in an effort to reduce violent crime. The purpose of the closure of clandestine laboratories is to disrupt, dismantle and neutralise organised criminal groups and their involvement in the illicit production and supply of drugs. The unlawful possession and dealing in drugs is measured in the Statistical Performance Information under the Visible Policing Programme.
|
Objective statement: Specialised investigation of serious organised crime through the successful closure of serious organised crime project investigations |
|
|
The fight against serious organised crime is a continuous and dynamic process. Transnational Crime manifests in many forms, including trafficking in drugs, firearms, and even in persons and further undermining financial systems. Organised Crime, therefore, requires a strategic response through the adoption of a threat-based project driven, multi-disciplinary case planning and a management investigative approach and a methodology to address serious organised crime groups by disrupting, dismantling and neutralisation. |
Performance indicator & target 2019/20
|
3.12.6 Crime Intelligence Programme
Budget overview: The main allocation of the Crime Intelligence Programme increased with R288 million in 2019/20 when compared to the previous financial year, which is a nominal increase of 7.57%. The R4.09 billion allocation will be used to implement the Crime Intelligence Turn-around Strategy and capacity building in the Crime Intelligence Division. Historically, the Crime Intelligence Programme received a small proportional budget allocation. In 2019/20, the Programme received 4.19% of the total budget allocation.
Purpose: Manage crime intelligence, analyse crime information, and provide technical support for investigations and crime prevention operations.
Programme objective:
- To gather crime intelligence in support of the prevention, combating and investigation of crime.
- To collate, evaluate, analyse, coordinate and disseminate intelligence for the purpose of tactical, operational and strategic utilisation.
- To institute counter-intelligence measures within the South African Police Service.
- To prevent and fight crime through enhanced international cooperation and innovation on police and security matters.
Objective statements and performance indicators: The following performance indicators and targets measure the effectiveness of the Crime Intelligence Programme of the SAPS.
|
Objective statement: Conduct security assessments within the SAPS (New) |
|||
|
The conducting of security assessments, including the vetting of members, is one of the most basic defensive measures in the protection of classified and confidential information. |
|
||
|
Objective statement: Conduct network operations to infiltrate/penetrate criminal groupings/syndicates and collect intelligence on priority threats. |
|
||
|
This objective emphasises the important role of intelligence-led police activities that contribute towards the prevention of crime and successful investigations. |
Performance indicator & target 2019/20
|
|
|
Network operations are operations undertaken by Crime Intelligence on Provincial and Cluster level to gather intelligence/information so that a situation can be better understood or to generate intelligence/information on criminal organisations, groups or individuals that could be turned into evidence for use in a court of law. The performance on this indicator has been good in past years.
3.12.7 Protection and Security Services Programme
Budget overview: The Protection and Security Services Programme received the smallest proportional allocation at 3.23% of the total Departmental allocation. In 2019/20, the Programme received an allocation of R3.14 billion, which is an increase of 7.02% when compared to the R2.94 billion allocation in 2018/19. The allocation is expected to increase at an average annual growth rate of 6.9 over the medium-term.
Purpose: Provide protection and security services to all identified dignitaries and government interests.
Programme Objective: Minimise security violations by protecting foreign and local prominent people and securing strategic interests.
Performance indicators: The effectiveness of the Protection and Security Services Programme of the SAPS is measured by two performance indicators, the first being providing in-transit and static protection and the second, regulating the physical security in identified government buildings and strategic installations through the use of audits. The indicator relates to the security breaches of the in-transit protection of all individuals identified as:
- VIPs (refers to Ministers/ Deputy Ministers/ Premiers/ Speakers/ Deputy Speakers/ MECs/ Judge President/ Ad-Hoc VIPs) with regard to threats in terms of the Risk Information Administration System (RIMAS) policy,
- Persons approved by cabinet; and
- Persons by virtue of their public office or strategic importance to the country (including foreign dignitaries).
A security breach is any act that bypasses or contravenes security policies, practices or procedures resulting in physical harm, medical emergency or embarrassment of a VIP. However, incidents of breaches have been misrepresented in the past, such as motor accidents where a VIP were involved. Although an accident does not bypass security policies, speeding on the insistence of the VIP does contravene security policies. The relationship between Close Protectors and their Principles has come under intense scrutiny during the 5th Parliament, which led to some improvement in the working conditions of VIP Protectors.
A major concern, previously raised by the SAPS, is the spending pressure put on the Division by the Department of International Relations and Cooperation (DIRCO) for the protection of foreign dignitaries. There is a consistent increase in events held in SA and thus an increased number of dignitaries in need of protection. This is an unfunded mandate of the SAPS that should be addressed through engagements with DIRCO to enable SAPS to recover the money for the provision of protection and security services for DIRCO events.
|
Objective statement: Provision of in-transit and static protection. |
||
|
The protection of VIPs is critical to the sustained functioning of Government and its relations with the international community. The objective relates to the protection of the President, Deputy President, former Presidents, their spouses, identified VIPs including foreign Heads of State/Government and former Heads of State/Government and their spouses in terms of the Presidential Handbook as approved by Cabinet |
Performance indicator & target 2019/20
|
|
|
Objective statement: Regulation of physical security in identified government buildings and strategic installations. |
||
|
The auditing of strategic installation contributes to the sustained protection of critical state assets. The evaluation of NKPs contributes to the sustained protection of critical state assets. |
Performance indicator & target 2019/20 Protection and Security Services
Presidential Protection Services
|
|
- COMMITTEE OBSERVATIONS
The Committee made the following observations during the 2019/20 budget hearings:
Resource allocations at top 30 crime stations
The Members of the Portfolio Committee raised concerns about the resource allocation for the top 30 crime stations in the country. The Portfolio Committee was concerned that where police stations are categorised as part of the top 30 stations and collectively they contribute to more than 50% of crime in the country, they should be properly resourced with human and material resources.
Transfer of Integrated Justice Service Budget
Members raised their concerns about the movement of the Integrated Justice Services budget of R853 million to the Justice and Correctional Services Department. The Committee wanted to know whether the SAPS was not using the money and whether it would remain as an indicator in the SAPS APP.
SITA / ICT
Members wanted answers from the SAPS on the efficacy of the SAPS ICT systems and the role of State Information Technology Agency (SITA) with respect to maintenance. Members wanted to know if the technology systems were outdated and what was being done to deal with outstanding SITA contracts. SAPS had to provide answers about their readiness to implement the 4th industrial revolution and deal with cyber-crime in the country.
Building of Police stations
Members questioned the pace of building police stations and access to services by community members in rural areas. It appears that the building of stations in rural communities have been neglected by the SAPS building programme. Members were concerned that the SAPS did not take the fight against crime in rural areas seriously. Members also questioned whether the SAPS still had a rural safety programme and whether it was operational. The Olievenhoutbosch station was contested by Committee Members who insisted that it was not a fully-fledged police station
Reduction of Violent Crime by 50%
Members raised questions about how the SAPS intend to achieve the target set by the President of a 50% reduction of violent crime. Members wanted to know how this will be achieved and what the SAPS had planned to achieve the target within the next decade. The creation of safety and security and a society free of crime and violence will remain a dream if the SAPS did not provide very clear strategies and plans to implement and achieve the target. Some Committee members were not happy about the target of 50% and questioned what was being done about cross border crimes such as illegal drugs and illegal immigrants entering the country. Members questioned how these reductions will be realised because SAPS is currently setting targets of 1-2% reduction of crime. Members indicated that the low targets were unacceptable.
Corruption within SAPS
Members discussed how the SAPS was going to reduce corruption within its ranks and whether the SAPS is doing everything that it should to reduce corruption and the perception of corruption within the ranks of SAPS. It was pointed out that the Metro Police was part of the SAPS with respect to oversight and monitoring and Members were concerned about who monitors the Metro Police.
Gender Based Violence
Members were not satisfied that the SAPS was doing enough as far as Gender Based Violence (GBV) was concerned. The Committee wanted to know what the SAPS was going to do with respect to the strategy to deal with and decrease GBV. The Committee noted that there was no Victim Friendly Rooms in all police stations throughout the country and members questioned the fact that in some police stations, police officers who abuse their wives and children are employed. They do not have proper training. The SAPS had an effective women’s group which had ceased to exist and members wanted to know what happened to the group.
Employment of CPF members as trainee police officers
Members raised the possibility of the SAPS including Community Police Forum (CPF) members in the 7000 trainees that the SAPS expect to train. In addition, Members wanted to know when such training will take place. The importance of including members of the CPFs was emphasised as they were at the forefront in fighting crime and the SAPS should consider recruiting some of these members as possible trainees.
Domestic Violence and Vulnerable Groups
Members questioned whether the SAPS was committed to policing vulnerable groups such as women, children and homeless people. In this respect it was pointed out that the killings of homeless people on Tshwane was concerning and Members wanted to know what was being done about the case. Members also questioned whether the SAPS was implementing the Domestic Violence Register at all police stations. Members were particularly concerned with the fact that protection orders were violated, not enforced by local police stations and cases were withdrawn by the police and complainants.
Safety of Schools
The safety of schools was raised by members as a point of concern, especially in view of the increasing levels of violence that compromised the safety of learners and teachers. Members wanted to know what the police was doing about school safety and what the programme was with respect to this. Members wanted the Metro Police departments to assist the SAPS in policing schools.
Recovery of Illegal Firearms
Members wanted to know how much illegal firearms were recovered by the SAPS and how many of the recovered firearms belonged to the police officers. There were concerns about the fact that corruption has played a big role in the current gang violence a that more should be done to curb illegal firearms.
Anti-Gang Unit (AGU)
Members raised their concerns about the manner in which the Anti-Gang Unit was progressing. There were concerns that the SAPS were shifting people from the stations and giving them AGU jackets without the requisite training. In view of the fact that the Minister has announced that the AGU should be established nationally, the members require proper training as the members of some gangs who undermine the Rule of Law were professional.
Private Security Companies
The Committee expressed its concerns about the role played by the private security industry and Members questioned whether they are a threat or not and whether they could be turned around to support and work hand in glove with the SAPS as a force multiplier. Members suggested that the private security industry should rather be seen as being able to assist the SAPS in reducing crime and that their expertise should be harnessed for this purpose.
SAPS Budget
Members expressed their concern on the SAPS budget with respect to the 78.2% being allocated to Compensation of Employees. Members wanted to know if it was value for money and what the standard norm was of budgets of other jurisdictions. Members suggested that it would be better if the SAPS provides a provincial breakdown of the budget, so that they could see what the allocations per province was.
Police vehicles
The Committee questioned the availability of resources, in particular vehicles available at stations to fight crime. There was concern that the communities that were quite high on the Top 30 station list did not have the requisite resources, especially vehicles. Members called on the SAPS to make sure that the vehicle allocation to police stations were prioritised.
Border Policing
Members raised serious concerns in the manner in which the borders and ports-of-entry was managed. Members questioned whether the SAPS had the requisite tools such as scanners, canines and biometrics fingerprint devices at border posts to stem the increase in cross border crime such as illicit drugs and human trafficking.
SAPS APP Targets
The Committee questioned some APP targets. It was pointed out that the SAPS should move from its approach to target setting in terms of monitoring and evaluation from inputs and outputs to outcomes and impact. As an example, the SAPS reaction times to complaints was pointed out as regressing and getting longer. In some cases, the SAPS identified targets which was less than the previous year’s baseline, and this should not happen. The SAPS should set key performance indicators that measure impact. The Chairperson noted that the AGSA made significant findings in this respect.
Crime Intelligence
The Committee was concerned about the ability of the SAPS to effectively deal with cyber-security. In this respect the Committee requested that Crime Intelligence briefs it on the changing nature of crime threats, particularly those relating to cyber-security. The Committee wanted to know if the Department had the capacity to effectively deal with the threats. The Committee also informed the SAPS that it would not give it a blanket support on de-classification of information applications for access to information given the country’s constitutional dispensation. The Committee told the SAPS to go back and reconsider what it had asked of it with respect to de-classification of information.
4.1 SAPS Responses
The National Commissioner indicated that the fight against crime in rural areas was taken very seriously by the SAPS and that three (3) stations were earmarked for completion and that SAPS aims to increase its footprint in deep rural communities by building satellite stations and mobile contact points. Such stations were already identified. The SAPS will also embark on a work-study to investigate where the station at Olievenhoutbosch should be sited.
The SAPS issues all members with bullet resistant vests (BRV) and all trainees are issued with such BRVs. It was regulation that all stations should have 5% stock of BRVs and the Department replaces BRVs that have been damaged in the course of duty.
The SAPS have already placed adverts for the recruitment of 7000 additional trainees and the members of the CPFs are free to apply if they meet the requirements. After training and certification, the members will be deployed at local stations and other priority areas such as the AGU, taxi units. The members are recruited for the current financial year. As far as the intake is concerned, there are graduates and non-graduates. They are channelled into two streams where their expertise could be used proactively within the SAPS.
The SAPS reported that they took allegations of corruption very seriously and acts against its own members. They co-operate with IPID who also investigate such cases. SAPS also conduct exit interviews with members to ascertain what the reasons for their resignations. The morale of members is always monitored and exit interviews assist with helping SAPS understand the reasons for the low morale. The Employee Health and Wellness section is also mobilised to address instances of low morale amongst the members. The turnaround vision is based on the fact that the SAPS is a performance based organisation. Performance is rewarded and a reward strategy was developed. Provincial and national excellence awards are held where members can receive recognition and rewards of up to R30 000. The promotion process is currently under review.
The SAPS reported that that almost every station has a Domestic Violence register which is inspected every week by officers of the police station. There is 90% compliance with the weekly inspections. The SAPS has also discouraged women from withdrawing domestic violence and cases involving violence against women and children.
As far as the review of the SAPS Act was concerned, the Civilian Secretariat for Police Service was driving the process. They are working closely with the SAPS and the draft document has been submitted to the State Law Advisers and the Department is awaiting certification before the process will proceed.
The movement of the funds (R853 million) from the Integrated Justice System budget was transferred to the Department of Justice and Correctional Services (DOJCS). The SAPS will still have access to the budget, as they submit project plans to the DOJCS.
Over 5400 vehicles for the SAPS was replaced annually at a cost of R1.8 billion. An amount of R1.4 billion was allocated for the current financial year. The Department was about to purchase 1452 vehicles and 4298 were to be boarded. There is a total shortage of 6421 vehicles. The aircraft fleet was ageing and the Department will auction the current fleet after approaching National Treasury to use the opportunity costs for replacement purposes. A project planning team has been appointed led by the Deputy National Commissioner to lead the negotiations with the National Treasury. SAPS was also using unmanned aerial vehicles (drones) to fight crime.
Strategies to deal with violent crime will be addressed by the National Crime Combatting Forum (NCCF) and the NATJOINTS. The five pillar approach will deal with priority crimes such as gender based violence and violent crime which include Trio crimes, gangsterism, taxi violence, illicit drugs and alcohol, corruption and stock-theft. The TOP 30 stations have been identified and crimes against women and children have been prioritised. Task teams have bene established on all the five pillars of the strategy. The SAPS reported that they were moving away from the operational policing concept (which involve the deployment of high density operations) towards basic policing which is inexpensive, cost-effective and give stations more control. It was pointed out that Operation Thunder costs between R6-R9 million per month.
Illegal firearm theft constitutes another serious threat for the SAPS and the Department recovered 37 000 firearms of which 362 were police issued firearms. The SAPS recovered a further 7041 firearms and the serial numbers were erased. SAPS is giving priority to the turnaround strategy for the Central Firearms Registry (CFR) and the responsible Divisional Commissioner with restart the process.
The National Commissioner asked the Committee and the public to bear with the SAPS as the APP is rolling on strategic plan which addresses long term strategic priorities. The Annual Operational Plan and action plans will be presented at another session, but the SAPS will ask for a closed session as operational information will be presented.
The SITA and FDA matter with respect to the provision and maintenance of ICT systems has become a national security issue. In this respect, the SAPS was let down by the SITA and was calling on the Minister to support the department in walking out of the SITA contracts. The Minister of Police supported this call. The National Commissioner informed the Committee that cyber criminals pose a real threat as they have the technology (sourced from the Deep Web) to hack the Reserve Bank and move huge amounts of money.
As far as Crime Intelligence (CI) was concerned, the CI environment requires support and in future, the SAPS will function on operationalised intelligence. The CI have partnered with the Council for Scientific and Industrial Research (CSIR) to develop a ICT Framework for CI. All the products are integrated and this as reduced backlogs and produce uniform units of intelligence.
4.2 DPCI Responses
The DPCI reported that they are a process of re-engineering in view of section 17 K of the SAPS Act, which states that they have to be a separate programme. The proposed new structure has taken into consideration certain required competencies in the NDP, especially chapter 7, 12, 13 and 14. A management assessment was undertaken to re-engineer processes and the structure. There is a high turnover rate and personnel was transferred to SAPS and as a result, personnel figures have decreased. The DPCI has 2519 members on its staff establishment when they should be 5000. Some of the buildings that are occupied by the DPCI have been condemned as it does not comply with building regulations. They have maintenance problems such as leaking roofs and this was brought to the portfolio Committee on 18 March 2018. The DPCI proposed that the Promed building can be improved and then it could site the Head Office in one building. It required financial support and support of the Department of Public Works to accomplish this.
The SAPS have seconded 38 members to assist the DPCI in investigations and a multi-disciplinary approach to investigations have been embarked on. The DPCI established an integrity section and the Anti-Corruption Rask Team (ACTT) continues to function. The DPCI reported that they require forensic Chartered Accountants in their investigative team.
4.3 Minister of Police
The Minister of Police concurred with respect to de-linking of the DPCI Programme from the Detectives Programme and informed the Committee that there are engagements with National Treasury about this. The DPCI is under-capacitated and should be at full strength for it to be operationally effective, it requires 5000 members. The Minister indicated that he would support the idea of taking control of the management of buildings out of the hands of the Department of Public Works. The Minister noted the request from the SAPS for a blanket support by the Portfolio Committee for the SAPS not to declassify information. He stated that such requests should be directed to the Joint Standing Committee on Intelligence as it co-ordinates the structures on intelligence.
As far as technology was concerned, the Minister made it clear that the intention was to get the SAPS out of agreements with SITA as it has slowed down progress in the fight against crime. Given the fact that technology is available of the market, criminals are better placed to commit crime through technology. In this respect he asked that the SAPS be given space as they are not where they are supposed to be with the technological support and as a result, he would be addressing the SITA matter with the Minister of Communication.
- PORTFOLIO COMMITTEE RECOMMENDATIONS
The Portfolio Committee welcomed the National Commissioner’s admission that it is not the police alone that fights crime and to this end the Committee will adopt an integrated plan and schedule joint parliamentary security cluster meeting to give effect to an integrated approach to fight crime. The Portfolio Committee makes the following recommendations:
- The Committee recommends that the SAPS fully resource the top 30 stations with human and material resources that contribute most to crime in order to ensure that it attains critical mass in the fight against crime.
- The Committee recommends that the SAPS reports on all IJS projects applications to the Department and Justice and Correctional Services.
- The Committee recommends that the building programme of the SAPS in rural areas must be accelerated to provide rural communities better service delivery.
- The Committee supports the approach by SAPS and the Minister to sharpen its use of ICT by reviewing its contracts with the SITA and developing its own technology section. The Committee recommends that this approach should be strengthened and implemented as a matter of urgency.
- The Committee recommends that the SAPS prepares a detailed strategy and operational plan to implement the President’s target of a 50% reduction in violent crime by increasing its APP targets on violent crime and reporting to the Committee on the new targets and strategy.
- The Committee recommends that the SAPS develop clear plans to enhance Border Security and provide it with an update to participate in the Border Management Agency BMA).
- The Committee recommends that the SAPS collaborates with the IPID and the DPCI on investigating systemic corruption within the ranks of the Department and provide the IPID and DPCI with the required information required to deal with corruption.
- The Committee recommends that the SAPS applies vetting to all police officers responsible for dealing with domestic violence at station level to ensure that they have not been convicted of domestic violence and that they have the requisite training to deal with victims of abuse.
- The Committee recommends that the SAPS revises the Victim Friendly Rooms location, volunteers and equipment to ensure that it is available to all victims of abuse, especially women and children. The Committee recommends that all domestic violence registers are inspected regularly by the station management to ensure that they are filled out.
- The Committee recommends that the SAPS works with the Department of Basic Education and the Metro Police to improve safety services to schools where there are high levels of inter-personal violence.
- The Committee recommends that the SAPS must do more to trace and recover stolen firearms and increases the sanction for police officers who negligently lose their firearms.
- The Committee recommends that the SAPS urgently makes available human and material resources to the National Anti-Gang Unit and train its members as a matter of priority to fight the gangs across the country.
- The Committee recommends that the Department reviews it’s Compensation of Employees allocation against international benchmarks and value for money. The SAPS should provide the Committee with a breakdown of provincial budgets.
- The Committee recommends that the SAPS reviews its APP targets with respect to baselines to measure impact and outcomes of particular programmes. The Committee further recommends that the SAPS should not provide targets which are unrealistic and less than the previous year’s targets. The Committee noted the low targets on crime reductions for violent crime and recommends that all violent crime targets be reviewed and changed to reflect the new requirements for violent crime set by the President.
- The Committee recommends that the SAPS must table the SAPS Amendment Bill as a matter of priority in order to align the SAPS Act with the Constitution during the 2019/20 financial year.
5.1 Conclusion
The Portfolio Committee on Police in the 6th Parliament endeavours to exercise vigorous oversight over the Executive and the Department in line with its constitutional mandate. The fact that many members of the Portfolio Committee is new does not detract from its mandate and the Committee is grateful for the interaction with the Minister and the National Commissioner and his team to bring the required co-operation.
The Portfolio Committee on Police is mindful of its huge responsibility to exercise oversight over the R97 billion budget and programmes of the SAPS and will expect continued accountability as the SAPS has so diligently done in the past. The Committee has noted the request for the SAPS for support of the Committee on its integrated approach to policing and will work with other committees in Parliament with a view to ease the reporting burden on SAPS.
The Committee pledges to continue to monitoring the SAPS implementation of its APP and Strategic Plan together with its budget spending. The Portfolio Committee on Police supports the budget of the Department of Police for 2019/20 and recommends that the Budget Vote 23 be adopted.
The Democratic Alliance reserved its rights with respect to supporting or not supporting the budget vote.
Report to be considered.
Documents
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