ATC200604: Report of the Portfolio Committee on Small Business Development on Budget Vote 36 of the Department of Small Business Development for Financial Year 2020/21, Dated 29 May 2020
Small Business Development
Report of the Portfolio Committee on Small Business Development on Budget Vote 36 of the Department of Small Business Development for Financial Year 2020/21, Dated 29 May 2020
1. INTRODUCTION
The Portfolio Committee on Small Business Development (“the Portfolio Committee”) having considered Annual Performance Plans and Budget allocations of the Department of Small Business Development (“the Department”), alternatively, (“DSBD”) and its entity, Small Enterprise Finance Agency (“sefa”) reports as follows: -
1.1 Background
The Constitution of South Africa (Act No. 108 of 1996) recognises that the legislative authority has an important role to play in overseeing both the financial and non-financial performance of government departments and public entities. Section 27 of the Public Finance Management Act (No. 1 of 1999) makes provision for Ministers to table the annual budget for a particular financial year in the National Assembly before the start of that financial year. Whereas section 10(1)(c) of the Money Bills Amendment Procedures and Related Matters Act (No. 9 of 2009) makes provision for Ministers to table Strategic Plans and Annual Performance Plans for (APPs) their respective Departments, public entities or institutions, which must be referred to the relevant Portfolio Committees for consideration and adoption.
It is important for the strategic plans to be tabled within the stipulated period because the plans provide information for the budget appraisal process of the relevant Portfolio Committee. Strategic Plans identify strategically important outcome orientated goals and objectives against which public institutions medium-term results can be measured and evaluated by Parliament. Annual performance plans identify the performance indicators and targets that the institution endeavours to accomplish in the upcoming budget year. The annual performance plan shows funded service-delivery targets or projections. The annual budget sets out what funds an institution is allocated to deliver services and most importantly, indicates the resource envelope for the year ahead, and sets indicative future budgets over the Medium Term Expenditure Framework (MTEF). The budget covers the current financial year and the following two years.
At the beginning of each year following the State of the Nation Address (SONA) by the President, the Minister of Finance tables before Parliament a detailed outline of the State's Budget: how much money will be or ought to be spent, on what, in that financial year. The Minister of Finance delivered his budget speech on 26 February 2020. Accordingly, his speech preceded the tabling of the Annual Performance Plans and Strategic Plans. The Department has complied with this responsibility. It has presented its budget vote before Parliament, which, amongst others, postulated how the Department aim to reconcile its resources with the service delivery imperatives as outlined by the President of the Republic of South Africa in the State of the Nation Address particularly in light of the Covid-19 pandemic. One of the foremost statutory functions of the Parliament is to therefore discuss, pass and oversee the Department’s Budget. The Department of Small Business Development Budget (Vote No. 36) was referred to the Portfolio Committee for consideration and reporting.
1.2 Purpose of the Budget Vote
The budget is a political and financial instrument that the government uses to ensure that its policy programmes are operationalised through the allocation of financial resources to the different spheres of government, specifically to programmes and projects. It reflects an outcomes centred public spending approach. It is further described as a tool that the government uses to evaluate the financing of its key policy objectives. It also used to evaluate whether the macro-economic perspectives of the Budget and the respective Budget Votes meet the requirements of government policies and give substance to the government’s five-year plan. Therefore, the purpose of Vote 36 for the Department is to promote the development of survivalist, small, micro, medium and co-operative enterprises that contribute to inclusive growth and job creation.
1.3 Objectives of the Report
The objectives of the report are as follows: -
- To describe and analyse the budget of the Department of Small Business Development, vote 36, over the 2019/20 financial year;
- To consider, soon to be phased out due to the recent reconfiguration of state departments, vote 39 as sefa, is now an agency of the Department of Trade, Industry and Competition (DTIC) through Industrial Development Corporation (IDC);
- To report on the deliberations and consideration, which are essentially the unpacking and examining of the Department annual performance plan and its associated budget vote in relation to the strategic plan;
- To make recommendations concerning the endorsement, adjustment or rejection of budget vote 36 and any other recommendations regarding the implementation of the Department strategic plan;
- To record general and specific observations and make appropriate recommendations.
1.4 The Portfolio Committee Process
Owing to the country’s ongoing lockdown due to Covid-19 epidemic, this year’s budget vote process is being held under very challenging conditions. The Portfolio Committees are meeting via online mechanism to pore over the Department and entities strategic and annual performance plans, budgets and performance targets. Furthermore, it is worth noting that this year’s budget vote report will not be debated in the House, as is usually the norm, and excluded one of the DSBD entity, Seda. In compliance with the referral by the National Assembly, the Portfolio Committee on Small Business Development held its briefing with the Department of Small Business Development on 13 May 2020 and Small Enterprise Finance Agency on 20 May 2020 to consider their annual performance plans and the Department budget vote.
1.5 Special Adjustment Budget
On 15 March 2020 the President declared a national state of disaster in South Africa in terms of the Disaster Management Act, 2002, following the declaration of the global COVID-19 pandemic by the World Health Organisation. Government had to act swiftly to minimise the economic impact of the pandemic, this implies a redirection of resources. On 21 April 2020, the President announced a R500 billion fiscal support package that includes spending towards COVID-19 priorities. On 30 April 2020 the National Treasury published on the “Economic Measures for COVID-19”, outlining an R500bn response, as well as identifying the funding sources for the package. Part of the funding sources for this package is a R130 billion baseline reprioritisation in the 2020/21 financial year. The Minister of Finance will accordingly be tabling a revised budget during June 2020 and this will require the Departments and entities to revise their own strategic plans, annual performance plans, performance targets and budgets for tabling and consideration by Parliament.
2. OVERVIEW OF THE DEPARTMENT OF SMALL BUSINESS DEVELOPMENT
2.1 Aim and Purpose of the Department
To lead and coordinate an integrated approach to the promotion and development of entrepreneurship, Small, Micro and Medium Enterprises (SMMEs) and Co-operatives, and to ensure an enabling legislative and policy environment to support their growth and sustainability.
2.2 Mandate of the Department
To lead and coordinate an integrated approach to the promotion and development of entrepreneurship, small businesses and co-operatives, and ensure an enabling legislative and policy environment to support their growth and sustainability.
2.3 Vision of the Department
A transformed and inclusive economy driven by sustainable, innovative SMMEs and Co-operatives.
2.4 Mission of the Department
The coordination, integration and mobilization of efforts and resources towards the creation of an enabling environment for the growth and sustainability of SMMEs and Co-operatives.
2.5 Values
The values and principles that underpin the DSBDs pursuit of its vision and mission are shared across the three entities, and are predicated on the principles of Batho-Pele as follows: -
- Innovation;
- Integrity;
- Professionalism;
- Customer-centric;
- Commitment and;
- Caring organization.
2.6 Legislative and Policy Mandates
The directive of the Department is primarily premised on diverse sections of legislations and policies such as the Constitution (1996), Public Finance Management Act (1999), Public Service Act (2007), White Paper on National Strategy for the Development and Promotion of Small Business (1995), Small Business Development Act (1980), National Small Enterprise Act (1996), as amended in 2003 and 2004, Companies Act (2008), Close Corporation Act (1984), Co-operatives Act (2005), Co-operatives Amendment Act (2013), Co-operative Banks Act (2007), Industrial Development Corporation Act (1940), Business Act (1991), Broad Black Business Economic Empowerment Act (2003), National Empowerment Fund Act (1998), Preferential Procurement Policy Framework Act (2011), Intergovernmental Relations Framework Act (2005), Local Government Bylaws, Youth Enterprise Development Strategy, Innovation and Technology Strategy, National Development Plan (NDP), New Growth Path (NGP), the Industrial Policy Action Plan (IPAP), Agricultural Policy Action Plan (APAP) and 2014-2019 Medium Term Strategic Framework (MTSF).
2.7 Programme Structure (2020/21)
Table 1: Programme Structure
Programme NO. |
Programme Name |
Sub-Programmes |
Programme 1 |
Administration |
|
Programme 2 |
Sector and Market Development |
|
Programme 3 |
Enterprise Development |
|
Programme 4 |
Development Finance |
|
Source: DSBD 2020/21 Annual Performance Plan
3. POLICY PRIORITIES FOR 2020/21
3.1 National Development Plan
The implementation of the National Development Plan (NDP) is one of the key government imperatives under the current administration and is aligned with the Africa Agenda and the global Sustainable Development Goals (SDGs). The NDP focuses us on the overall objectives, supported by South Africans, to eradicate poverty and substantially reduce inequality by 2030 through the creation of jobs and accelerating inclusive economic growth. The Department is directed to implement chapters three (3) and six (6) of the NDP that deal with the economy and employment as well as rural inclusive growth. The NDP is the country’s vision, with a target of creating 9.9 million new jobs from small businesses by 2030.
3.2 The Medium Term Strategic Framework
The current period marks the beginning of the second generation Medium Term Strategic Framework (MTSF) following the adoption of the NDP. The Cabinet had decided back in 2013 that the 2014 - 2019 MTSF would form the first five-year implementation phase of the NDP and mandated work to begin on aligning the plans of the state organs with the NDP vision and goals. Thus, for the past five years the MTSF has made some priorities aimed at achieving radical socio-economic transformation through decent employment and inclusive growth. The government has thus approved 2019 – 2024 MTSF for implementation by government departments. The MTSF 2019 - 2024 aims to address the challenges of unemployment, inequality and poverty through three pillars -:
- Driving a strong and inclusive economy;
- Building and strengthening the capabilities of South Africans;
- Achieving a more capable state.
These three pillars underpin seven priorities of the MTSF and they are as follows -:
Priority 1: A capable, ethical and developmental state
Priority 2: Economic transformation and job creation
Priority 3: Education, skills and health
Priority 4: Consolidating the social wage through reliable and quality basic services
Priority 5: Spatial integration, human settlements and local government
Priority 6: Social cohesion and safe communities
Priority 7: A better Africa and world
Owing to its mandate the Department of Small Business Development has therefore been consigned the responsibility to champion Priority 2: Economic Transformation and Job Creation. Some of the key functional areas of the Department would as a result include but not limitedto -
- Upscaling and expanding support to small businesses;
- Creating more jobs;
- Drive inclusive economic growth;
- Champion re-industrialisation of the economy and emergence of globally competitivesectors;
- Increasing access to and uptake of information and technology (ICT);
- Ensuring competitive and accessible markets through reduced share of dominant firms in priority sectors as well as;
- Mainstreaming of youth, women, and Disabilities with minimum 40 percent target for Women, 30 percent for youth and 7 percent for Persons with disabilities in the SMMEs and Co-operatives Sector.
3.3 State of the Nation Address
During 13 February 2020, the State President Honourable Matamela Ramaphosa delivered his third state of the nation address (SONA)wherein a number of policy issues of interest to the Department of Small Business Development were announced. He, among others, underlined “the state of our economy that was not growing at any meaningful rate for over a decade whilst the rate of unemployment is deepening”. The President specifically made mention, as part of alleviating youth unemployment, the partnership between the National Youth Development Agency (NYDA) and the Department of Small Business Development to provide grant funding and business support to 1000 young entrepreneurs in the next 100 days. Whereas SheTradesZA platform to assist women-owned businesses to participate in global value chains and markets was also announced as one of the most innovative initiative. He furthermore announced plans to reinforce procurement opportunities for small enterprises by designating more than 1000 locally produced products to be be procured from Small, Medium and Micro Enterprises.
3.4 Planned Policy Initiatives
As reported in the past most of the planned policy initiatives as contained in table two (2) below had been earmarked for implementation during 2015/16, 2016/17, 2017/18 and 2018/19. During the budget vote process the Department informed the Portfolio Committee that it has experienced delays in the finalisation of key policies, most significantly, the amendment of the National Small Enterprise Act. The Department did acknowledge that it was supposed to have finalised the legislative process during the 2018/19 financial year. However, the stakeholder engagements and the development of policy positions which will inform the amendment to the Act (such as Alternative Dispute Resolution and the Institutional arrangements) were well underway. According to the Department, these additional areas will inform the amendments of the Bill.
During the MTSF period, the Department plans to undertake comprehensive amendments to the Act, implement, and monitor the National Small Enterprise Act. Key areas that will be covered in the amendment bill will, amongst others, include the establishment of the Ombud Office and Unfair business-to-business practices.It is important to note that, over and above these, the Portfolio Committee has implored the Department to look into Franchising regulations, Business Act, and other key policy measures falling outside DSBD purview such as the current Public Procurement Bill to name the few.
Table 2: Planned Policy Initiatives
Policy |
Intent |
National Small Enterprise Act (No. 102 of 1996) as amended in 2003 and 2004 |
|
Integrated Strategy on the Promotion of Entrepreneurship and Small Enterprises |
|
Midterm Review of the Co-operatives Strategy (2012-20220: |
|
Source: DSBD 2020/21 Annual Performance Plan
3.5 Summary of the Key Priorities Informing the 2020-25 Strategic Plan and 2020/21 Annual Performance Plan
The key priority / focus areas informing the balanced strategy framework of the DSBD have been identified and incorporated into the plan. These include -:
- Finalisation and implementation of the Township Entrepreneurship Fund;
- Establishment of Funds in partnership with the private sector;
- Review and implement Credit Guarantee Scheme;
- Finalise and implement the SMME Funding Policy;
- Finalise amendments to the National Small Enterprise Act to deal mainly with the establishment of the SMME Ombud Office, regulations/licensing of businesses owned by foreign nationals and unfair business to business practices;
- Implement National Incubation Policy and Incubation Standards; and
- Accelerate establishment of incubators and digital hubs in the townships and rural areas.
4. BUDGET ANALYSIS
4.1 Estimates of National Expenditure
It is perhaps worth noting that this budget vote report purposelyomitted analysis of the estimates of national expenditure (ENE) because the data and information that the Department of Small Business Development submitted to National Treasury in 2019 has somehow been reviewed. For instance, the published ENE report still makes mention of the four programmes as follows -:
- Programme 1: Administration;
- Programme 2: Sector Policy and Research;
- Programme 3: Integrated Co-operatives Development and;
- Programme 4: Enterprise Development and Entrepreneurship.
While the strategic plan and annual performance plan, the Departmental programmes have slightly been amended as follows -:
- Administration;
- Sector and Market Development;
- Enterprise Development and;
- Development Finance.
However, for ease of referencing table 3 below provides budget summary for vote 36 as approved and recorded by the National Treasury during the previous year with four programmes i.e. administration, sector policy and research, integrated co-operatives as well as enterprise development and entrepreneurship.
Table 3: Estimates of National Expenditure
|
2020/21 |
2021/22 |
2022/23 |
|||
R million |
Total |
Current Payments |
Transfers and Subsidies |
Payments for Capital assets |
Total |
Total |
MTEF Allocation |
||||||
Administration |
129.1 |
125.5 |
- |
3.5 |
136.8 |
143.5 |
Sector Policy and Research |
28.0 |
27.9 |
- |
0.1 |
28.7 |
31.8 |
Integrated Co-operatives Development |
140.0 |
52.4 |
87.3 |
0.3 |
147.1 |
152.9 |
Enterprise Development and Entrepreneurship |
2 109.7 |
45.5 |
2 063.8 |
0.3 |
2 383.6 |
2 432.5 |
Total Expenditure Estimate |
2 406.8 |
251.4 |
2 151.1 |
4.3 |
2 696.1 |
2 760.7 |
Source: National Treasury (2019)
According to National Treasury, before the outbreak of the corona virus pandemic, expenditure was expected to increase at an average annual rate of 6.8 per cent, from R2.3 billion in 2019/20 to R2.8 billion by 2022/23. As usual, the bulk of the Department’s spending over the medium term is on transfers to the Small Enterprise Development Agency, amounting to R2.8 billion, and to Small Enterprise Finance Agency for implementation of the Township Entrepreneurship Fund, amounting to R2.8 billion, as well as for internally administered incentives amounting to R1.5 billion. The new and revised budget will be tabled to Parliament once the Minister of Finance has delivered his emergency budget to the House during June 2020.
4.2 Revised Programmes and Budget Allocation[Based on 2020 – 2025 Strategic Plan]
4.2.1 Programme 1: Administration
The purpose of programme one is to provide strategic leadership, management and support services to the Department. The programme is allocated R409 million over the MTEF period with Corporate Services taking a large chunk of the budget. The programme is responsible, among others, for making certain that sound governance is in place, enhanced contribution to socioeconomic development outcomes, professional and capacitated small business development sector as well as guaranteeing that limited resources are utilised optimally. Programme one has five sub-programme and Sub-Purpose:
- Ministry - to provide for administrative and logistical support to the Minister and Deputy Minister, as well as support staff and make provision for their salaries;
- Departmental Management (Office of the DG) - to provide strategic leadership, management and support services to the Director General and the Department;
- Corporate Services - to provide enterprise-wide support services comprising of human resources, legal services, learning and development and transformation policy and coordination;
- Financial Management - To provide strategic leadership and advice on supply chain, financial and asset management related services to the department; and
- Communications and Marketing - to provide coherent, communications, marketing and stakeholder management support to the Department and its agencies.
Table 4: Expenditure Estimates - Programme 1
Sub-programme (R’000) |
|
Projections |
||
MTEF |
||||
Total MTEF |
2021/22 |
2021/22 |
2022/23 |
|
Ministry. |
81 875 |
25 802 |
27 329 |
28 744 |
ODG. |
56 680 |
17 852 |
18 878 |
19 950 |
Corporate Services. |
185 219 |
58 199 |
62 029 |
64 991 |
Financial Management. |
62 587 |
19 907 |
20 887 |
21 793 |
Communication and Marketing. |
23 013 |
7 306 |
7 674 |
8 033 |
Total |
409 374 |
129 066 |
136 797 |
143 511 |
Source: DSBD Annual Performance Plan2020/21
4.2.2 Programme 2: Sector and Market Development
The purpose of programme two is to facilitate and increase access to markets for SMMEs through business information, product development support and value chain integration. Programme two has the following sub-Programme and Sub-Purpose:
- Business Information and Knowledge Management - To provide evidence based (economic analysis, econometrics, research) business information to direct sector thought leadership;
- Ease of Doing Business - To reduce the administrative and regulatory burden of document business for SMMEs;
- Access to Market Support - To provide domestic and international market support services to SMMEs;
- Sector Specific Support - To support the entry and growth of SMMEs in prioritised and designated sectors of the economy.
Table 5: Expenditure Estimates - Programme 2
Sub-programme (R’000) |
|
Projections |
||
MTEF |
||||
Total MTEF |
2021/22 |
2021/22 |
2022/23 |
|
Co-operatives Development. |
40 707 |
12 569 |
13 794 |
14 344 |
Co-operatives Programme Design and Support. |
63 038 |
20 874 |
20 766 |
21 818 |
Supplier Development and Market Access Support. |
61 393 |
19 303 |
20 450 |
21 640 |
Total |
165 138 |
52 746 |
55 010 |
57 802 |
Source: DSBD Annual Performance Plan 2020/21
According to DSBD the sub-programme budget has not changed but still in line with old budget structure under Integrated Co-operatives Development. The budget allotted to this programme over the MTEF period is up from R117 million to R165 million. Over the MTEF Co-operatives Development is apportioned R40 million, Co-operatives Programme Design and Support R63 million while Supplier Development and Market Access Support receives R61 million.
4.2.3 Programme 3: Enterprise Development
The purpose of programme three (3) is to oversee the promotion of an ecosystem that enhances entrepreneurship and the establishment, growth and sustainability of small businesses and cooperatives as well as coordinating business development support interventions across various spheres of government. For the MTEF programme three is allocated R2.8 billion largely due to transfers to Seda. For the current financial year, the programme had been allocated R917 million which as indicated earlier will likely be affected by the ongoing budget reprioritisation. The Enterprise Development Programme comprises of the following sub-programmes:
- Enterprise and Supplier Development - To drive the transformation of the economy through the formulation of policy instruments and advocacy work aimed at the inclusion of SMMEs in the mainstream economy;
- Entities Performance - To exercise oversight including overseeing the execution of programmes by the implementing agencies that report to the Department of Small Business Development, namely Seda and Sefa;
- SMME Competiveness - To work with Municipalities through their integrated Development Plans to develop, enhance and implement enterprise development programmes toward improved Local Economic Development (LED);
- Entrepreneurship - To coordinate the provision of an entrepreneurship development and support service infrastructure by government in general and the DSBD in particular. Drive implementation of youth focused entrepreneurship interventions in partnership with various stakeholders;
- Policy and Legislation Support (IGR and Coordination) - To develop and review policies and legislation to create and promote sustainable growth opportunities for small businesses and co-operatives and to advance coordination and cooperation amongst the different spheres of government.
Table 6: Expenditure Estimates – Programme 3
Sub-programme |
|
Projections |
||
MTEF |
||||
Total MTEF |
2021/22 |
2021/22 |
2022/23 |
|
Small Enterprise Development Agency |
2 798 983 |
889 140 |
937 368 |
972 475 |
Research |
61 163 |
19 817 |
19 413 |
21 933 |
Policy and Legislation |
14 102 |
4 211 |
4 801 |
5 090 |
International Relations |
0 |
0 |
0 |
0 |
Monitoring and Evaluation |
13 249 |
4 016 |
4 448 |
4 785 |
Total |
2 887 497 |
917 184 |
966 030 |
1 004 283 |
Source: DSBD Annual Performance Plan 2020/21
4.2.4 Programme 4: Development Finance
The purpose of programme four (4) is to develop and review SMME Funding policy to ensure broadened access to finance for SMMEs and Co-operatives. The programme will also design, review and implement instruments that are aligned to the broader participation in the mainstream economy by small businesses and co-operatives owned by individuals from with preference to historically disadvantaged communities.For the current financial year programme is allocated R1.2 billion while R4.2 billion is budgeted over the MTEF period. Programme four has the following sub-programmes -:
- Programme Policy - To develop and review policies to create and promote financial support interventions aimed at supporting small businesses and co-operatives and advance coordination and cooperation amongst the different sphere of government;
- SMMEs Design and Support - To design programmes, models and mechanisms to support businesses throughout their lifecycles. The Sub-programme also review existing programmes, models and mechanisms as well as designing and pilot new and improved programmes;
- Risk Cover & Business Rescue - To provide for interventions that are aimed at supporting those enterprises that can still recover;
- Co-operative Support - To review existing programmes and design new one based on the review outcomes and changes in the co-operatives development landscape and economic conditions;
- Monitor and Report on entity transfers - To guide development of programmes sitting with the entities and report on the impact of the interventions.
Table 7: Expenditure Estimates – Programme 4
Sub-programme |
|
Projections |
||
MTEF |
||||
Total MTEF |
2021/22 |
2021/22 |
2022/23 |
|
Township Entrepreneurship Fund |
2 800 000 |
800 000 |
1 000 000 |
1 000 000 |
Black Business Supplier Development Programme |
893 594 |
283 751 |
299 357 |
310 486 |
Co-operative Incentive Scheme |
274 799 |
87 254 |
92 052 |
95 473 |
Craft Customised Sector Programme |
35 086 |
11 141 |
11 754 |
12 191 |
National Informal Business Upliftment Instrument4 |
251 340 |
79 810 |
84 200 |
87 330 |
Entrepreneurship |
20 684 |
6 727 |
7 118 |
6 839 |
Total |
4 275 503 |
1 268 683 |
1 494 481 |
1 512 319 |
Source: DSBD Annual Performance Plan 2020/21
SMALL ENTERPRISE FINANCE AGENCY
5. MANDATE
The Small Enterprise Finance Agency (sefa) was established in April 2012 through the amalgamation of South African Micro-Finance Apex Fund (SAMAF), Khula Enterprise Finance and Industrial Development Corporation’s small business activities. It is corporatised as an entity in terms of the Companies Act of 2008 and Section 3(d) of the Industrial Development Corporation (IDC) Act, 1940, and thus a wholly owned subsidiary of the IDC. Section 3(d) of the IDC Act seeks “to foster the development of small and medium enterprises and co-operatives”. Unlike its sister entity Seda which is a schedule 3A entity, sefa is oddly a schedule 2 entity (in line with the parent entity IDC). There Public Finance Management Act has no provision that deals with subsidiaries as a corporate form and/or separate from their parent entities. In terms of the PFMA, the Minister of Small Business Development is legally not the Executive Authority and therefore her ability to exercise oversight responsibility over the agency as prescribed in the Public Finance Management Act is still impaired.
6. LEGISLATIVE AND POLICY MANDATE
sefa’s operations are governed and guided by a wide range of legislative requirements and government policies. The table below outlines the most prominent policies and Acts that guide
and influence sefa’s operations.
Table 8: Guiding Legislations
Policies and legislation that guides sefa Operations |
||
Foundational Policies |
Sector-Based Policies |
Legislation |
The National Strategy on the Development and Promotion of Small Business in South Africa (1995) |
Co-operatives Development Policy (2004) |
National Small Business Act (1996; revised 2004) |
Integrated Small Business Development Strategy (2004 – 2014) |
Integrated Strategy on the Development and Promotion of Cooperatives (2012) |
National Credit Act |
The Integrated Strategy on the Promotion of Entrepreneurship and Small Enterprises (2005) |
National Informal Business Upliftment Strategy (2013) |
Industrial Development Act |
|
Youth Enterprise Development Strategy 2013-2023 (2014) |
Financial Intelligence Centre Act (FICA) |
|
Consumer Protection Act, 2008 |
|
Companies Act of 2011 |
||
Co-operatives Act (No. 14 of 2005) |
||
Short Term Insurance Act |
||
Promotion of Access to Information Act, 2000 |
||
Public Finance Management Act (1999 as amended) |
Source: sefa Corporate Plan 2021/2025
7. SEFA STRATEGIC PILLARS
Vision
To be the leading catalyst for the development of sustainable small, micro, medium and co-operative enterprises through the provision of finance.
Mission
To provide simple access to finance in an efficient and sustainable manner to small, micro, medium and co-operative enterprises throughout South Africa by: -
- Providing loan and credit facilities to SMMEs and co-operative enterprises;
- Providing credit guarantees to SMMEs and co-operatives;
- Creating strategic partnerships with a range of institutions for sustainable SMMEs and co-operative enterprise development and support;
- Developing, through partnerships, innovative finance products, tools and channels to catalyse increased market participation in the provision of affordable finance.
Values
SEFAs values and guiding principles to deepen institutional culture and organisational cohesion are: -
- Kuyasheshwa: We act with speed and urgency;
- Passion for development: Solution-driven attitude, commitment to serve;
- Integrity: Dealing with clients and stakeholders in an honest and ethical manner;
- Transparency: Ensuring compliance with the best practice on the dissemination and sharing of information with all stakeholders;
- Innovation: Continuously looking for better ways to serve our customers.
Objectives
- Ensure sefa is a high impact, high-performance Development Finance Institution (DFI) that is responsive to the government’s microeconomic policies and specifically the DSBD MTEF plan;
- Align sefa’s organisational structure, culture and innovative delivery model to be responsive to its mandate and strategy;
- Develop the sefa brand value-proposition for our target markets, improve distribution reach, and establish winning collaborative models;
- Improve sefa’s sustainability, operational effectiveness, efficiency and service delivery by streamlining business processes and deploying technology solutions.
8. SEFA PROGRAMME OVERVIEW
In order to ensure effective implementation of the Corporate Plan, sefa will continue to implement the following programmes:-
Table 9: Strategic Programmes
Programme |
Strategic Programmes |
Strategic Initiatives |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
Management and Internal Audit. |
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
|
Source: SEFA Annual Corporate Plan 2021/25
9. FINANCIAL CONSIDERATIONS
The Small Enterprise Finance Agency initial capitalisation was derived from the three main sources -:
a) The balance sheet of the merged institutions (Khula and South African Micro- Finance Apex Fund [samaf]);
b) Annual transfers from the fiscus (MTEF allocation), and
c) The long-term interest-free loan from the IDC
On an annual basis the agency has been receiving its MTEF allocation through the Economic Development Department (EDD) via the agency’s shareholder, the IDC, and accounted for by sefa as a shareholder loan in terms of the signed IDC Annual Grant Through Shareholder Loan Agreement. Following the reconfiguration of the state departments in 2019 the Department of Trade, Industry and Competition will soon take over this responsibility.
For the MTEF period, sefa recorded R777.6 million MTEF allocation, which is a reduction of R24.5 million (an equivalent of R8 million annually). The MTEF allocation is utilised to subsidise the interest rate, funding of support services to clients, the Khula Credit Guarantee Fund and shortfalls incurred in operations of sefa. A projected inflationary increase was calculated for the remaining 2 years of the 5-year planning period. sefa strives to raise funds through donor funding and thus maximising on job creation and developmental impact. R450 million has been raised in the last 2 years with the European Union, and R300 000 of that amount will be utilised in the financial year 2021.
A further R2,8 billion Township Entrepreneurship Fund (TEF) has been allocated to sefa, over the MTEF period, with additional R1 billion budgeted for 2024 and 2025 Financial Years (FY) respectively, adding to a total of R4.8 billion over 5 years. This fund will be used for end user loans under Micro, Direct and Wholesale Portfolios at discretionary rates and provision of infrastructure and facilities to SMME’s, and will allow sefa to create a job multiplier of 981 148 jobs, approvals of R10.8 billion and disbursements of R10.5 billion with roll over effect over 5 years. In addition, sefa has been allocated R200 million in 2021 for use of Blended Finance and R50 million to distressed funds.
Table 10: Strategic Programmes
|
2020/21 |
2021/22 |
2022/23 |
2023/24 |
2024/25 |
Total over MTEF |
MTEF Allocation (R’000s) |
246 908 |
260 541 |
270 164 |
283 672 |
297 855 |
777 613 |
TEF Allocation |
800 000 |
1 000 000 |
1 000 000 |
1 000 000 |
1 000 000 |
4 800 000 |
Source: SEFA Annual Corporate Plan 2021/25
sefa currently has a signed facility letter with IDC for an interest-free loan and 5-year capitalmoratorium of R921 million. During the 2019 financial year, sefa signed an R640 million loan agreement with IDC and an R150 million loan drawdown was made in 2019 financial year. The budget assumptions for the drawdowns are as follows -
Table 11: Strategic Programmes
|
2018/19 (the amount is already drawn) |
2020/21 |
2021/22 |
2022/23 |
2023/24 |
2024/25 |
Total |
Drawdowns (R’000s) |
150 000 |
290 000 |
200 000 |
0 |
0 |
0 |
640 000 |
Source: SEFA Annual Corporate Plan 2021/25
Since inception, sefa’s financial performance has been under pressure due to low growth economic environment which had a negative impact on the performance of sefa funded clients and the related effect of sefa loan book performance. Negative revenue growth as a result of the erosion of capital and the declining loan book emanating from high impairments, non-profitable properties, high staff cost structure and the direct lending expensive operating model, which had an adverse effect on sefacost to income ratio, cash reserves and overall sefa’s financial sustainability. The MTEF reductions will have a significant impact on sefa’s financial sustainability, business performance (loan book outcomes), cash balances and reserves. To achieve some positive financial outcomes, sefa will introduce financial measures and initiatives to counter the reduction in the allocation from fiscus and funding deficit. The budget assumes that the IDC interest-free loan will be fully drawn down by the end of year five at R640 million.
10. OBSERVATIONS
Having reflected on the Department andsefaannual performance plans and budgets for 2020/21,the Portfolio Committee hereby register the following observations and recommendations for consideration by the Department: -
10.1 The Portfolio Committee notes that this year’s budget vote process takes place right in the middle of the Covid-19 pandemic that coincidentally came at a time when the South African economy was already under severe strain, posing not just a health risk to the people, but threatening livelihoods as well. The road to economic recovery will certainly be a challenging and daunting task. The Committee cautiously welcomes the government risk-adjusted approach to reopening the economy;
10.2 The Covid-19 endemic compelled the government to relook at the budget that had earlier been announced by the Minister of Finance in February 2020, leading among others, to the Special Adjustment to the Budget in order to modify the 2020/21 budget to utilise current baseline allocations to provide for the rapidly changing economic conditions and enable spending on the COVID-19 response;
10.3 The Portfolio Committee furthermore notes that the Minister of Finance will also present a revised fiscal framework to the House in June 2020 to account for revenue losses emanating from the economic shock of the pandemic and subsequent lockdown;
10.4 The Committee observes that prior the outburst of the Covid-19 pandemic the government had already approved the 2019 – 2024 Medium Term Strategic Framework which basically paved the way for all the government departments including DSBD to conclude their strategic plans and accompanying annual performance plans for 2020/21. While the Portfolio Committee is mindful that these strategic plans, APPs, performance targets and budget will be reviewed once the Minister of Finance tables a revised budget in June 2020, there are nevertheless few legacy areas that require specific and urgent attention by the Department;
10.5 During the previous budget vote report the Portfolio Committee noted that due to the interconnectedness between the organisational structure and the strategy, the long outstanding issue of the organisational structure will only be attended to once the Department initiates its strategic planning activities. The Portfolio Committee had further recorded and concurred with the Department of Public Administration (DPSA) guidance to the DSBD in 2018 to the effect “the changes to organisational structure of the Department of Small Business Development should be held in abeyance until the sixth administration is in place given the anticipated changes expected to the Machinery of Government. This will also afford the new Executive Authority an opportunity to apply his/her mind on the configuration of the Department”;
10.6 As mentioned hereinabove, the estimates of the national expenditure (department budget) is not aligned to the policy and planning strategic documents. The new planning structure has 14 subprogrammes, recording an increase from 11 subprogrammes. Strategic alignment of the plans and budget would help the department allocate resources not only efficiently but also in an effective manner;
10.7 The Portfolio Committee further records that sefa ownership by Economic Development Department/DTIC via Industrial Development Corporation has been on the agenda for quite some-time. This include the appointment of a permanent Bard and the Chief Executive Officer, as well as the issue of pending amalgamation between sefa and Seda;
10.8 Sefa annual reports have consistently demonstrated that most MFIs and RFIs that benefits from sefa wholesale funding are predominantly white owned. Also, the rate of interest charged by MFIs and RFIs is not being monitored by sefa, consequently, there has been instances where small enterprises are charged double the rate of what is permissible in terms of the National Credit Act;
10.9 The Committee observes that some of the previous Portfolio Committee recommendation does not find expression in the sefa corporate plan, some of these were “sefa must explore other means of helping small enterprises in a manner that is self- reliant using the Gramin Bank of Bangladesh model and/or Limpopo based Small Enterprise Foundation, SEF impairments are next to nothing”;
10.10 During the previous financial year, sefa was forced to tap into IDC reserves (R921 million). According to the agency, “the IDC loan draw down was necessitated by the worsening cash status of sefa with the depletion of cash resources over the five (5) year period as a result of high staff costs, high impairments rates and a worsened property portfolio”. It seems, sefa financial position is deteriorating. As noted earlier “the MTEF reductions will have a significant impact on sefa’s financial sustainability, business performance (loan book outcomes), cash balances and reserves”.
11. RECOMMENDATIONS
11.1 The coronavirus pandemic is affecting small businesses in a variety of ways. The Portfolio Committee is conscious of the disruption that the pandemic has caused on the targets and budgets of the Departments in general and DSBD in particular. Many small businesses are struggling to stay afloat because they cannot operate under the COVID- 19 lockdown. However, the Committee is pleased with the response and leadership demonstrated thus far by the National Command Council (NCC), South African government and various private sector players that have implemented interim measures to curb the immediate and longer-term effects of the Covid-19 pandemic on business and industry. The Department of Small Business Development must remain focus and do what is within its control to assist small enterprises financially or otherwise including mitigating supply chain disruptions;
11.2 During its strategic plan annual performance presentation the Department informed the Portfolio Committee that it has experienced delays in the finalisation of key policies, most significantly, the amendment of the National Small Enterprise Act. The Portfolio Committee is mindful of the significant disruption that is being caused by the Covid- 19 pandemic and aware that many Departments will have difficulty in meeting the timelines. However, the new normal requires a new mind-set. The Portfolio Committee has been consistently informed that lot of groundwork had already been achieved. The introduction of the bill to Parliament must be effected before the end of the 2020/21 financial year;
11.3 It is envisaged that the current strategic plan, annual performance plan, performance targets and budget will be reviewed as soon as the Minister of Financedelivers his amended budget in Parliament in June 2020. This is an opportunity for the Department to rectify the misalignment of the policy and planning strategy which as indicated above reveals that the budget of the Department was tabled without taking into consideration the broader strategic focus of the Department;
11.4 Another critical policy issue that needs to be taken into account by the Department as it reviews its strategic plan is the macro-organisational structure that is aligned to the broader policy objectives of the government. The Department is currently operating on a start-up structure. The Department of Public Service Administration has in the past reiterated its commitment to assisting the Department finalise organisational structure. The organisational structure has direct implication on the costs structure and budget of the Department;
11.5 The Department, in its own admission, has noted strategic posts have remained vacant for too long. The Portfolio Committee is concerned that absence of a permanent Director General may handicap the Department in fulfilling its mandate. The Department must furnish the Committee with an Action Plan on the filling of vacant positions that exist in the Executive of the Department, which are Deputy Director- Generals and Chief Directors before the end of Q2 of the 2020/21 financial year;
11.6 The process of amalgamating sefa and Seda must be speeded and the strategic plan of the Department must pronounce on the institutional realignment of these two and possibly other entities e.g. National Empowerment Fund (NEF). Sefa need to be stabilised as a matter of urgency in order to assist the Department fulfil its mandate of improving access to finance for all South Africans;
11.7 Sefa financial stability requires greater scrutiny and focus from the Portfolio Committee. The agency, since inception, has struggled to collect outstanding loans resulting in impairments and debt write offs amounting to millions. The situation is likely to get worse with the current and ongoing pandemic, MTEF allocation(s) being reduced or reprioritised and interest free loan from IDCbeing fully exhausted. The Portfolio Committee needs a detailed appraisal report and turnaround strategy fromsefa before the end of Q1 2020/21.
Report to be considered.
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