ATC201105: Report of the Portfolio Committee on Cooperative Governance and Traditional Affairs on Oversight Visit to the Limpopo Province, 10 – 16 October 2019, Dated 4 November 2020
Cooperative Governance and Traditional Affairs
REPORT OF THE PORTFOLIO COMMITTEE ON COOPERATIVE GOVERNANCE AND TRADITIONAL AFFAIRS ON OVERSIGHT VISIT TO THE LIMPOPO PROVINCE, 10 – 16 OCTOBER 2019, DATED 4 NOVEMBER 2020
Having conducted oversight to the Limpopo Province on the VBS Mutual Bank matter, and having subsequently called to Parliament other implicated municipalities from the Gauteng Province, the Portfolio Committee on Cooperative Governance and Traditional Affairs reports as follows:
- BACKGROUND
The Municipal Investment Regulations, published in 2005, prescribe what investments are permissible for municipalities to make, and make it clear that only banks registered in terms of the Banks Act, namely, commercial banks are safe for municipalities to place deposits – not mutual banks such as VBS Mutual Bank. Despite this prohibition, 16 municipalities invested money with the VBS Bank during the 2016-17 and 2017-18 financial years.
However, two of these municipalities managed to withdraw their investments before the North Gauteng High Court ordered the liquidation of the Bank on 13 November 2018. The remaining 14 municipalities lost their investments and have disclosed impairments totalling R1.6 billion (including interest). As tabulated below, the bulk of this loss (72 percent) involved investments by eight municipalities in Limpopo: Makhado, Greater Giyani, Collins Chabane, Elias Motsoaledi, Vhembe District, Ephraim Mogale, Fetakgomo Tubatse, and Lepelle – Nkumpi municipalities.
Four municipalities also suffered losses in the North West (Dr Ruth S Mompati District, Mahikeng, Moretele and Madibeng), and two in Gauteng (West Rand and Merafong). An estimated 32 percent of the money lost was from grants intended to fund infrastructure projects. The funds invested in VBS were a combination of conditional grants, equitable share and own revenue.
- OVERSIGHT OBJECTIVES
Against the foregoing background, the Portfolio Committee on Cooperative Governance and Traditional Affairs embarked on an oversight visit to the affected municipalities, starting in Limpopo. The purpose of the oversight visit was twofold. The first was to ascertain the service delivery impact of the lost investments in the affected municipalities. The second objective was to follow up on the issues emerging in Parliament during the Portfolio Committee’s joint meeting with the Standing Committee on Public Account (SCOPA) on municipalities that had received disclaimed/adverse audit opinions over the previous three financial years. In this regard, the Committee held meetings with,
- The auditors of Collins Chabane, Vhembe District, Mogalakwena, Fetakgomo-Tubatse, Mopani District, Elias Motsoaledi, Greater Giyani, and Ephraim Mokgale municipalities;
- The MEC responsible for Cooperative Governance, Human Settlements and Traditional Affairs in Limpopo;
- The Mayors, Municipal Managers, Members of the Mayoral Committee (MMC’s) and other officials from Greater Giyani, Mopani District, Vhembe District, Makhado, Collins Chabane, Elias Motsoaledi, Ephraim Mogale, Fetakgomo-Tubatse, Lepelle-Nkumpi, Mogalakwena, Thabazimbi, Merafong and West Rand District municipalities;
- Other stakeholders, including community representatives, representatives of traditional leaders, political parties, and the labour movement.
Source: Limpopo Department of Cooperative Governance, Human Settlement and Traditional Affairs (2019).
Portfolio Committee Delegation: Ms F. Muthambi (ANC) Chairperson; Ms D. Direko (ANC); Ms M. Tlou (ANC); Mr G. Mpumza (ANC); Ms P. Xaba-Ntshaba (ANC); Mr B. Hadebe (ANC); Mr H. Hoosen (DA); Mr C. Brink (DA); Mrs G. Opperman (DA); Inkosi B. Luthuli (IFP); Mr M. Groenewald (FFP); and Ms H. Mkhaliphi (EFF).
Support Staff: Mr A. Sokomani (Committee Researcher); Ms S. Cassiem (Committee Secretary); Mr M. Erasmus (Committee Assistant); Mr M. Molepo (Parliamentary Communication Services).
- OVERSIGHT FINDINGS
In line with its oversight objective, the Portfolio Committee drew findings in respect of both the lost investments in the VBS Mutual Bank, as well as the disclaimed/adverse audit opinions, which the municipalities received in the last three financial years. Both issues affected all the visited municipalities, except for Mopani, Mogalakwena, Thabazimbi, Greater Giyani and Ephraim Mogale.Mopani, Mogalakwena and Thabazimbi had no investments in the VBS, while Ephraim Mogale, Greater Giyani, Merafong and West Rand District had no consecutive adverse/disclaimed finding in the last three financial years.
Findings in respect of both VBS and disclaimed/adverse audits:
- Collins Chabane Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
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- Vhembe District Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
- Makhado Local Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
- Fetakgomo-Tubatse Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
- Elias Motsoaledi Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
- Lepelle-Nkumpi Municipality
Impact of VBS Investment on Service Delivery |
The R150 million lost to VBS negatively affected:
|
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
Findings in respect of VBS investments only
- Greater Giyani Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
- Ephraim Mogale Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
- Merafong Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Risks |
The municipality was not dysfunctional but at risk due to:
|
- West Rand District Municipality
Impact of VBS Investment on Service Delivery |
|
Consequence Management |
|
Findings in respect of consecutive disclaimed/adverse audits:
- Mopani District Municipality
Consequence Management |
|
Causes of Consecutive Disclaimed and Adverse Audit Findings |
|
- Mogalakwena Local Municipality
Consequence Management |
|
Causes of Consecutive Disclaimed/Adverse Audit Findings |
|
- Thabazimbi Local Municipality
Consequences Management |
|
Causes of Consecutive Disclaimed/Adverse Audit Findings |
|
- Meetings with stakeholders
Vhembe District |
Matters arising included:
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Fetakgomo-Tubatse |
Matters arising included:
|
- COMMITTEE OBSERVATIONS
From the foregoing findings, the Portfolio Committee notes the following:
- Vhembe District. The Council Resolution to award the District’s former Municipal Manager a settlement of close to R1 million was wrong and should not have been allowed. The municipality seemed to have no appetite for implementing the Auditor-General’s recommendations, including investigating unauthorised, irregular, fruitless and wasteful expenditure. The issue of safety was also of great concern to the Portfolio Committee as it heard of rampant assassinations taking place in the Districtin connection with the VBS matter. People are on the run for their lives, torn away from their families. The District is in need of urgent intervention from law enforcement authorities.
- Greater Giyani. The municipality also seemed to have no appetite for implementing the Auditor-General’s recommendations, including investigating unauthorised, irregular, fruitless and wasteful expenditure. It was concerning that, the municipality spent large amounts of money in legal disputes with the Municipal Manager implicated in the VBS matter – only to reach a settlement agreement at further cost to the taxpayer.
- Mopani District. It was perhaps too ambitious for the Portfolio Committee to expect the municipality to coordinate the provisions ofbasic services within its jurisdiction while it could not fix light bulbs in the elevators and provide decent sanitation facilities within its own premises. The municipality also did not seem to have made much progress since the joint meeting with SCOPA. The Portfolio Committee found the responses from the municipal leadership, particularly the Acting Municipal Manager, evasive and long-winded. This gave the impression that the Acting MM was not completely honest with the Committee.All the adverse findings against the municipality had occurred under the watch of the Acting MM in his capacity as the Chief Financial Officer. As in the joint meeting with SCOPA, the Portfolio Committee could not make any headway with the Acting MM. The municipality had also made very little progress since the joint meeting with SCOPA.
- Mogalakwena. This was one of the most volatile municipalities visited, with all the characteristics of a war zone.The municipality appears to be under serious capture. A culture of intimidation also seemed to pervade the municipality.Hostility and aggression from the Mayor made it difficult for the Portfolio Committee to resolve matters conclusively, including the issue relating to the granting of a supposed three months study leave to a Municipal Manager who had just joined the municipality.The municipality sabotaged the planned engagements with stakeholders, as part of the oversight, including barring people from entering municipal premises.Furthermore, there was no indication that the municipality had followed up on its undertaking to SCOPA, including taking corrective measures to ensure that the municipality operated normally. There seemed to be no appetite for consequence management. The municipality also reported a debt collection rate of 73 percent, but had no cash reserves for operating expenditure.
- Elias Motsoaledi. The Portfolio Committee did not find the responses emanating from the municipal leadership satisfactory. While the Committee notes the improved audit outcomes in the municipality, there are still serious challenges, including R162 millionunauthorised expenditure, and R82 million in irregular expenditure. The Committee also learnt that the Acting MM had earned an acting allowance amounting to R148 000, but that his material possessions were worth millions of rand. The Acting MM has also been in the acting position for more than ten months, which was not reasonable. The municipality also seemed to have no appetite for consequence management, including following up on wasteful and fruitless expenditure. The municipality also did not withhold the pension of the CFO implicated in the illegal investment in VBS.
- Ephraim Mogale. The municipality tended to downplay and minimise the gravity of the illegal investment in the VBS by emphasising that the invested funds were surplus cash and did not affect planned capital projects. This made it seem like the lost R80 million was of no consequence to the municipality. The presentation to the Portfolio Committee was extremely sparse and did not provide a proper account of the state of the municipality.
- Fetakgomo-Tubatse. The municipality was not holding regular council meetings, as there was a gap of nine months between the last council meeting and the one preceding it. There were still simmering tensions arising from the poor handling of the amalgamation of Fetakgomo and Greater Tubatse municipalities, including pay disparities among employees in the same grade. The municipality also seemed to have no appetite for disciplining people involved in wrongdoing.
- Lepelle-Nkumpi. The Portfolio Committee appreciated that this was the first municipality, among all the visited municipalities, that had an administrative leadership with a clear plan of action towards the transformation of the municipality towards a fully functional institution, following the loss of R150 million to the VBS. This was the only municipality that had a full, credible Financial Recovery Plan in line with the requirements of Section 142 of the Municipal Finance Management Act (MFMA). The municipality also took proactive steps and followed up with law enforcement agencies regarding progress on cases opened for investigation. Other municipalities, on the other hand, tended to sit and wait for the investigators to provide updates. The Committee appreciates the cooperation from the Acting MM, and encourages and urges the political leadership of the municipality to support the municipal administration, especially the Acting MM.
- Thabazimbi. The municipality appointed some councillors on a full-time basis. After a certain period, it retracted the full-time appointments and turned them into part-time appointments. It further deducted the monies, which the councillors earned while serving Council full-time. The Portfolio Committee is of the view that the municipality acted unfairly in relation the deduction of the monies. The councillors should not be penalised because they did not appoint themselves on a full-time basis. It was the municipality’s fault. There were also serious litigations in the municipality amounting to hundreds of millions of rand, and these were becoming the breeding ground for fictitious and fraudulent claims.However, compared to Mogalakwena, Thabazimbi gave to the Portfolio Committee a better account of the state of the municipality and progress made thus far.
- Merafong. The Report tabled to Council on the outcome of the investigation into the VBS Mutual Bank matter recommended a written warning valid for a year. Council sought to review the Report but obtained legal opinion to the effect that it did not have a legal standing to undertake the review. The Portfolio Committee noted that this was a wrong legal opinion. The sanction of a written warning valid for a year was not a good precedent. Council must review it and set it aside.
- West Rand. It cannot correct that the R76m VBS impairment loss had no effect on the finances of the municipality. The presentation the National Department of Cooperative Governance and Traditional Affairs was not convincing in this regard. The municipality was not among the ‘basket cases’ and had the potential to perform better. The Committee needs to understand better the R76m impairment loss on the operations of the municipality.
- Role of National Treasury and the Reserve Bank. The illegal investments in the VBS occurred for a considerable period before National Treasury and the Reserve Bank took notice and intervened. It is therefore pertinent to ask whether these institutions had adequately performed their oversight responsibility in the VBS matter. It also relevant to question whether the intervention, in the form of writing letters to the concerned municipalities, was adequate. The role of Provincial Departments of Cooperative Governance, Provincial Treasuries, Mayors and Accounting Officers also needs scrutiny.
- Reliance of consultants. The Portfolio Committee is concerned that in most of the municipalities visited there was excessive reliance on external consultants to perform work that municipal officials are supposedly qualified to do.
- Political-administrative stability. At the heart of the observed challenges and problems confronting the visited municipalities, was a lack of a clear separation of roles and responsibilities in the political-administrative interface. Politicians interfered in administration and officials were involved in political matters.
- Lack of consequences management and compliance with legislation. Observed in the majority of the visited municipalities was a sheer lack of consequences for the abuse and misuse of public finances, as well financial management laws and regulations. There was no regard, whatsoever, for the findings and recommendations of the Auditor-General as the same issues arose for three consecutive financial years.
- COMMITTEE RECOMMENDATIONS
- The Portfolio Committee should summon to Parliament the leadership of the Mogalakwena Local Municipality, and any other implicated official in the municipality, to account further on the matter relating to the supposed study leave of the Municipal Manager,the appointment of the Acting MM, and the appointment of 400 staff members outside the municipal organogram. The municipal leadership should also provide an explanation on why it failed to mobilise stakeholders to participate in the Portfolio Committee’s oversight programme. A threat analysis with the South African Police Services in relation to the Municipal Manager is also necessary for the municipality to undertake. (The Committee has since implemented this recommendation)
- The Portfolio Committee, in cooperation with the Minister of Cooperative Governance and Traditional Affairs, should consider serious intervention into Mogalakwena in order to normalise the municipality and bring back stability. (The Committee has since implemented this recommendations)
- The Portfolio Committee should improve on its stakeholder mobilisation strategy for oversight, and not rely on municipalities to invite stakeholders.
- The Portfolio Committee should work with law enforcement agencies to investigate the close to R1 million settlement awarded to the former Municipal Manager of the Vhembe District.
- The political leadership of the Lepelle-Nkumpi Local Municipality should provide the Municipal Manager with all the necessary support and cooperation in his efforts to steer the municipality back towards sound financial management and effective governance.
- The Thabazimbi local municipality should refund the monies deducted from the part-time councillors whom the municipality had erroneously appointed full-time. This was the municipality’s fault, not the councillors.
- The Portfolio Committee further urges the relevant Thabazimbi councillors to pay their rates and desist from contravening the provisions of the Municipal Systems Act.
- Thabazimbi should not only investigate those municipal employees doing business with the municipality but also those in the employ of the state doing business with the municipality.
- The Portfolio Committee should follow up on the issue relating to the upgrading of roads in the Vhembe District, as this would be an immense contribution to Local Economic Development in the District.
- The Makhado Local Municipality should institute civil proceedings to recover monies from the Chief Financial Officer whom the municipality should not have allowed to leave.
- The Ephraim Mogale Local Municipalityshould follow up with the police regarding progress in the petrol cards fraud case, where the municipality lost R197 000. The Mayor should take all the necessary steps to ensure that the municipality pursues this follow-up, including considering the option of lodging a civil claim against the responsible individual.
- The responsible law enforcement agencies should accelerate the pace of finalising the cases of malfeasance opened against the implicated individuals in the visited municipalities.
- All the visited municipalities should strive to minimise reliance on external consultants for the preparation of Annual Financial Statements and Asset Registers. The Provincial Legislatures should consider providing support in the form of deploying a team of financial experts to provide training and alleviate the shortage of financial skills.
- A clear separation of roles and responsibilities - as envisaged in Chapters 7 and 8 of the MFMA -is necessary to enforce, in order to curb political interference in the municipal administration, limit the involvement of officials in politics, and bring about political-administrative stability in the municipalities in question.
- The Collins Chabane Local municipality should institute consequence management, including civil recovery proceedings, against those members of the Executive Committee who got the MM to sign the VBS investment instruction while hospitalised.
- Merafong Local Municipality should furnish the Committee with the name of the Senior Counsel who advised that Council could not review the lenient disciplinary recommendation on the VBS matter. Municipality should also furnish Committee with council resolution relating to the secondment of Rand West District CFO to Merafong. Municipality must also submit a financial recovery plan. The MPAC should furnish the Committee with the VBS Report, which Council reportedly rejected for no apparent reason.
- The West Rand District Municipality must furnish the Committee a comprehensive report on the impact of the R76m impairment loss on municipal operations.
- APPRECIATION
The Portfolio Committee appreciates the dedication of Portfolio Committee Members who worked extraordinary hours to ensure that the Committee’s oversight objectives in Limpopo are realised. The Committee also extends gratitude to those municipalities who interacted with the Committee cordially, respectfully and cooperatively. The inputs from stakeholders, including traditional leaders, enriched the Portfolio Committee’s oversight findings. The Committee further appreciates the support from the Office of the Auditor-General, officials of the Department of Cooperative Governance, the Department of Traditional Affairs, the Municipal Infrastructure Support Agent,law enforcement, as well as Parliamentary support staff.
Report to be considered.
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