Measurable Performance and Accountability Delivery Outcome 11

This is a DRAFT for discussion Please send any comments to mamothe@po.gov.
za before 5pm, Thursday, 14th January, 2010

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Measurable Performance and Accountable Delivery

Developing the MTSF into outcomes with measurable outputs and optimal activities
January 7 , 2010
Table of Contents
INCLUDEPICTURE "http://profile.ak.fbcdn.net/object2/1107/100/n8383028996_2992.jpg" \* MERGEFORMATINET INCLUDEPICTURE "http://profile.ak.fbcdn.net/object2/1107/100/n8383028996_2992.jpg" \* MERGEFORMATINET ....1 Measurable Performance and Accountable Delivery......................................................................1 Developing the MTSF into outcomes with measurable outputs and optimal activities ..................1 January 7 , 2010...........................................................................................................................2 Table of Contents.........................................................................................................................1 The Red Circles.............................................................................................................................5 Chapter 1:Improving Government Performance The Context and Key Objectives....................................................................................................................................6 1.1. Context......................................................................................................................................6 1.2. Two Key Objectives : Measurable Outputs Accountable Delivery..............................................7 Chapter 2:Improving Government Performance The Methodology............8 2.1. Motivation for an Outcomes-Based Performance Management (OBPM) System...........................8 Since 1994, we have made some progress in many areas of our work. Government has successfully improved access to services and increased its expenditure on service delivery; however, this did not always translate into better outcomes. We would have expected that increasing expenditure and increasing activities should produce outputs and outcomes, however, this did not happen for various reasons:.....................................................................................................................................................8 We sometimes had the incorrect policy we therefore must be willing to continuously review policy ..................................................................................................................................................................8 Policies were incorrectly interpreted when being implemented an ongoing monitoring and evaluation process based on detailed data and analysis is needed to tell us when we are going off the desired path..............................................................................................................................................8 Policies properly interpreted but implementation was done badly quicker feedback will allow us to correct mistakes........................................................................................................................................8 Incorrect assumptions regarding the links between inputs (resources), activities and intended outputs the inputs and activities that are selected do not always result in the desired output this calls for us to provide evidence that the activities we choose will produce the desired outputs..........................8 Absence of a performance management system and monitoring & evaluation (M&E) framework we do not centrally articulate our detailed performance requirements and do not track delivery with a sufficient level of detail..............................................................................................................................8 Government structure, decision-making processes, and activity coordination mechanisms are not designed for optimal performance management our co-ordination mechanisms need to be improved to ensure accountable delivery......................................................................................................................8 ........................................................................................................................................................8 Most of the abovementioned reasons for poor performance relate to Governments ability to convert inputs into outputs through activities. If our Outcomes and Measurable Outputs approach only set targets for desired outputs, this would not highlight the strong need for improvement in the conversion process. For each priority outcome, we therefore include a shortlist of key activities that are critical in order to achieve a desired output. Data-driven insights, evidenced-based ideas and consultations with key stakeholders are used to ensure that the activities that are most likely to have a strong influence on the desired output. The progress of implementing these activities will be included in a reporting card for monitoring purposes. In this way, we hope to change behaviour towards more efficient activity selection and delivery...............................................................................................................................................8 It is important to understand that this approach is not to be prescriptive on how a Government Department operates, but seeks to increase focus on high priority activities and monitor their implementation. It does not specify how they should be implemented and how funding will be allocated to these activities. Each Government Department will retain full decision making rights to decide how to deliver against the output targets and activities.........................................................................................9 A strong institutional design with good management and the ability to make changes when things dont work will also be required in support this approach. ........................................................................9 2.2. Process for Implementing the Performance Management System ..............................................9 At a high level, the process for defining outcomes can be summarised as follows:...........................9
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........................................................................................................................................................9 As shown above, the process can be broadly divided into two phases: 1) measurable output definition and 2) accountable delivery. The first phase involves the definition of the key outcomes associated outputs that Government will focus on. Targets and measures are set for each output and the key activities and inputs required to deliver against these targets are defined. Once measurable outputs are finalised and consensus is gained around these inputs, the focus shifts towards the next phase (accountable delivery of the desired outputs). A cross-functional sector delivery forum is created to negotiate and plan how the desired outputs will be achieved. Once negotiations are finalised, the delivery plan and accountability is formalised in a performance agreement and sector delivery agreement. An implementation cluster is then set up to function as a coordinating and implementation mechanism.........9 2.3. The Outcomes Measurable Outputs Optimal Activities Methodology......................................9 The methodology utilised to set targets is a departure from the traditional Input-Output Model where targets are set at only the output level based on fixed inputs. In this approach, we first identify the list of key outcomes that will be included (see Section 2.3). The outcomes are then broken down into priority outputs that have the largest influence on the outcome. For example, the management of HIV/AIDS (output) is a key contributor towards achieving the outcome of live long and healthier lives in South Africa. Targets are set at the output level based on a consultative process and data-driven research. Part of this research includes identifying the short-list of key activities that will have the most impact on the outputs. These activities are monitored as part of the reportcard on the outcome. All targets also take into consideration the limited availability of inputs in order to ensure that they are achievable. We have assumed that inputs can be reallocated from one department to another, within a department and that some limited new allocations could be made..........................................................10 ......................................................................................................................................................10 The outcome relating to Human Settlements (Outcome 8) is used an explanatory example. In this example, we show only a subset of the output metrics developed for the outcome for illustrative purposes. Below, we show 4 outputs. For each output, metrics are defined for measurement of the output. Data-driven research and consultation with the Department of Human Settlements was used to understand the current reality and set targets for these metrics. Lastly, key activities that will enable the achievement of targets are defined and monitored. These activities are only selected if there is sufficient evidence to motivate their inclusion.........................................................................................................10 2.4. Choosing the Outcomes...........................................................................................................11 The point of departure is the ANC Election Manifesto of 2009. The Manifesto defines the objectives as follows:................................................................................................................................................11 2.5. Translating Outcomes into a Delivery Agreement.....................................................................15 2.6. Coordinating Mechanisms to Drive the Outputs and Activities..................................................17 1.1. Concerns with Current Coordination Structures........................................................................17 1.2. A New Approach is Needed Coordination to Give Expression to Priorities...............................18 1.3. Policy Coordination...................................................................................................................18 1.4. Implementation Coordination...................................................................................................18 1.5. Presidents Coordinating Council..............................................................................................22 1.6. Cabinet Makgotla.....................................................................................................................22 1.7. Conclusion ...............................................................................................................................22 2.7. Key Takeaway..........................................................................................................................24 The performance management process outlined in this chapter consists of four key steps. These are shown below as a summary of the Chapter........................................................................................24 ......................................................................................................................................................24 Chapter 3:Setting Targets for Each Outcome..............................................................................25 .....................................................................................................................................................26 3.1. Outcome 11: Create a Better South Africa, a Better Africa and a Better World.......................26 1.8. Executive Summary.................................................................................................................26 1.9. Outcome Definition and Importance.........................................................................................26 1.10. Current Reality.......................................................................................................................27 1.11. Desired Outputs and Performance Scorecard..........................................................................28 ......................................................................................................................................................28 ......................................................................................................................................................28 1.12. Key Activities..........................................................................................................................29 The key activities that have to be implemented for this outcome are as follows:............................29 Public Sector Capacity-Specific:......................................................................................................29
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Develop a forward-looking strategy that factors in the geopolitical situation, energy and security challenges, international migration issues , intra-trade in Africa...............................................................29 Develop a strategy on negotiating trade and investment agreements that focuses on the quality of agreements not the quantity ...................................................................................................................29 Identify and implement structured bilateral mechanisms and agreements with clear economic benefits for South Africa...........................................................................................................................29 Contribute supported, operational, mission ready forces to UN/AU Peace Missions within the thresholds (people, finances & capabilities) as approved by Cabinet for the financial year.......................29 Establishment and participation in regional and continental peace and security architecture.........29 Chapter 4: Delivery Agreement Guidelines..................................................................................30 4.1. Introduction..............................................................................................................................30 Once we have agreed Outcomes, Output measures with targets and optimal activities for each of the 12 outcomes, our next key challenge is to convene a Delivery Forum and negotiate a Delivery Agreement which is implemented and co-ordinated by the outcome based cluster..................................30 For the purposes of providing guidelines for how to produce the Delivery Agreement we will use Outcome 8 sustainable human settlements as an illustrative example..................................................30 4.2. The First Task Selecting Participants of the Delivery Forum....................................................30 The Delivery Forum is made up of all institutions that are required to contribute in some significant way to the achievement of the outcomes and, in particular, the outputs. We cannot invite every single person/institution that may have some small contribution to make as this will complicate the process and create an unnecessary administrative burden. For example, we could say that Safety is a key part of the human settlement outcome and, therefore, we should invite the Police to the delivery forum; however, they are not a significant contributor to the outputs in human settlements and their absence will not jeopardise the process. Only Major partners and contributors need to be present at the Delivery Forum. The Minister responsible for delivering against the Outcome (in this case, the Minister of Human settlements) should strive to select only the major partners that will deliver the respective outcome......30 For the Human Settlements outcome, the most likely list is as follows:..........................................30 Category A (Partners who are central to the entire process): Department of Human settlements, the Treasury, The nine provincial departments of human settlements, Cogta, Department of water, Department of Energy / Eskom, the HDA, the NHFC and other Government agencies, the 27 large Municipalities, Department of Transport...................................................................................................30 Category B (Partners who contribute significantly to specific outputs): Department of Land Affairs, the Deeds Office, Department of Public Enterprises, Department of Public Works, DTI.............................30 Further institutions may need to be added to Category A and B. Note that this example is for illustrative purposes only and therefore may not contain the full list. The difference between Category A and Category B partners is that Category A will play a lead role in delivering a large portion or subcomponent of an activity. A third category could also be created for external partners with whom we need to negotiate after we have internal agreement, e.g., the Banking Council, the NHBRC, etc..............30 The Delivery Forum should only be convened once each partner has been given time to prepare and has provided all the basic information required to engage with other partners at the meeting. This is to ensure that the Delivery Forum has the information it requires to produce the agreement. The kind of preparation involves:...............................................................................................................................30 For land providers going through their asset register and collating information about potential land parcels for housing...................................................................................................................................30 For Local Government a comprehensive list of informal settlements with as much detail about current ownership of the land occupied, the current levels of service, costing for upgrading, assessment of project management capacity in their area, etc.......................................................................................30 Once this kind of preparation has been completed, the Delivery Forum should meet for two days. The forum should be facilitated by a small group of experienced facilitators who understand what is required and have the ability to produce a negotiated agreement at the end of two days........................31 4.3. Creating The Delivery Agreement.............................................................................................31 The Delivery Agreement is a very detailed document as it specified exactly how outputs will be achieved. This includes a responsibility matrix for each outcome, timelines, actions plans, funding plan, data, monitoring plan and a process for implementation. .......................................................................31 As an example, we explain the steps required to create the delivery agreement for 2 areas of Outcome 8: 1.) Acquiring public land for low income/affordable housing and 2.) Upgrading of 500 thousand informal units of accommodation..............................................................................................31 1). Acquiring Public Land ...............................................................................................................31
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The key partners are the DHS, land affairs, public enterprises, public works, HDA, treasury and the 27 Municipalities. ...................................................................................................................................31 Each partner is asked to review their asset register and identify parcels of land that are well-suited from a location point of view for medium/high density, low income/affordable housing............................31 The target is 6,250 ha of land over the four years. Available land could then categorised as follows: easily usable free land which will take time to release but has no financial cost and easily available but has financial implications, which will take time to release and incurs costs..............................................31 The long term benefit of spending money to acquire the land for housing must be explained, understood and agreed by all. .................................................................................................................31 The institutional capacity to land bank must be established. .........................................................31 The principles for determining market values must be agreed. ......................................................31 The next step is to review each parcel of land and determine if it meets the criteria and is affordable. ..............................................................................................................................................31 The negotiation will probably arrive at a point where only a few parcels are problem-free and can be made available. The rest will are likely to have some or other bottleneck that must be resolved. ......31 The agreement will aim to identify ideal parcels of land, define the bottlenecks and put them in an ordered list from easy to resolve to difficult to resolve. .....................................................................31 This completes Phase 1. The next phase involves setting up the land banking capacity to work with the relevant partners to resolve bottlenecks and transfer land. The goal is to secure 6,250 ha of land in the next 4 years.......................................................................................................................................31 2). Upgrading of 500 Thousand Units of Accommodation in Informal Settlements. .........................31 The partners will include the DHS, National Treasury, CoGTA, Department of Water Affairs and Forestry, Eskom, 27 Municipalities, the 9 Provincial departments and any other agencies of government involved in this area of work. ..................................................................................................................31 Step 1 is to agree the definition of the outcome, i.e., what does upgrading mean?, what standards will be used?, etc. ...................................................................................................................................31 Step 2 is to choose the actual projects so we end up with a list which shows the area, the specific informal settlements, the total number of units to be upgraded and the funding contribution from that Municipality. An illustrative example follows:..........................................................................................32 Step 3 is to resolve funding for the output as a whole and then each individual project. The funding is likely to come from three sources: reallocation of the current budget, contribution from the Municipality and a new allocation from the budget...................................................................................32 Step 4 involves gaining mutual agreement on the institutional delivery process. Many guidelines and handbooks describe the process for upgrading, one or some of these must be adopted as the preferred model. The actual project management process which describes roles and responsibilities for each partner must also be defined. The process to enable community participation should also be finalised as well as the decision making powers of the Municipalities, Provinces and National Departments. i.e., what process do we use?, who does the project management?, etc...................................................32 Step 5 is to determine the timelines and milestones to be achieved each year...............................32 A similar exercise is undertaken for each output measure and we end up with a fairly comprehensive delivery plan. The lead Minister or group of Ministers and their Departments must then manage the process of ensuring that the Delivery Agreement is implemented and reporting on progress. The implementation cluster is the main forum to ensure co-ordination, co-operation and deal with problems as they arise. The six monthly report will be based on the Delivery Agreement and will include a review of the Delivery Agreement and make changes where needed.......................................................32 The challenge is to produce 12 such agreements and begin implementing them before the July Lekgotla...................................................................................................................................................32 Summary and Next Steps...........................................................................................................33
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The Red Circles This document is a draft and still has many shortcomings. Where there is a red circle in the document, it means one of three things: 1. 2. 3. The information is still missing - If you can help, please fill in the gaps The issue requires more debate and more input please share any views or new ideas you have The issue is work-in-progress and requires fresh ideas to make it stronger
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Chapter 1:Improving Government Performance The Context and Key Objectives

1.1. Context
By January 2010, the current administration will be well into its first year of political governance. The January 2010 Lekgotla will be, technically, the second, but effectively, the first of the new administration and, as such, it is a critical platform to define a coherent developmental agenda and chart a clear way forward for the remainder of the electoral period. This is a time to review where we are today with regards to our mandate and agree on where we would like to be at the end of this term in office and beyond. We need to acknowledge two key features of the current environment in developing our thoughts. The legacy of apartheid in creating huge inequality, poverty and spatial dislocation is still very much with us and must begin to be undone by this process. The world recession may be over but the next few years will remain very challenging in generating revenues and promoting economic growth. Despite these, we must learn how to do more with less. The broad agenda and mandate for the period has been established in both the manifesto of the ruling party and the Medium Term Strategic Framework (MTSF) adopted in July 2009. In translating this agenda into a Delivery Plan, we need to do two important things: establish detailed and measurable outputs for the broad Outcomes described in these two documents and then agree on priority areas of work. This will provide Government with the requisite level of direction to ensure and place sufficient emphasis on the most critical areas of our mandate. It will be important to make strategic choices on where to focus in order to ensure that our limited resources are deployed most efficiently against this agenda. In addition, a clear, consolidated articulation of our expectations from each area of Government enables us to measure delivery and better manage performance over the long-term. It is also important to understand that improving performance is not only about better planning and prioritisation. Increasing our capacity to delivery also involves stretching and leveraging our resources in order to achieve more with less. A key goal should be to ensure that, in the least, the outcomes we achieve are reflective of our level of expenditure. For example, our spend in Education has tripled since the end of apartheid in 1994 and educational spend per capita is now on par with Malaysia, yet, our average scores in international tests of Grade 8 Maths and Science were half of Malaysias score and well below the international average (TIMS 2003). In order to achieve better results, we need to increase the efficiency of Government and move up the performance curve (see below). This document proposes a set of Manifesto and MTSF based Outcomes with measurable outputs and optimal Activities while also suggesting co-ordination and Implementation mechanisms. Once we optimise how resources are deployed, we need to focus on further improving productivity and innovation within all areas of Government in order to achieve more for every Rand or work hour spent by Government.
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High
Performance
SOUTH AFRICA Low Low High
To move us up the performance curve faster than we can build capacity (which is a longer term goal), we need to use the limited capacity available to reach further by: making our work simpler, reducing compliance work that adds no or little value, and reducing the number of institutions that are required ensure strong management team for the priority sectors focus efforts on some key deliverables and do them well
Human and System Capacity
1.2.
Two Key Objectives : Measurable Outputs Accountable Delivery
Two important results are required from this process in order to enable more effective performance management, monitoring and evaluation: Define a clear set of priority OUTCOMES, with measurable outputs and an optimal mix of key activities. It must do this using the priorities articulated in the ANC Election Manifesto and elaborated in the 2009 2014 MTSF as the basis Produce a road map and determine the best coordinating mechanisms to drive the outputs and activities to ensure that the entirety of Government works as an accountable team to deliver on the priorities
Over the past months, The Monitoring and Evaluation Ministry within the Presidency has initiated a process of defining the Outcomes and measurable outputs. Draft versions of the list of outcomes and associated outputs, metrics and activities have been discussed at several key Government meetings including the FOSAD meeting on 26 November, 2009. Furthermore, we have engaged with Ministers and Departments within most areas of Government to obtain feedback, some of which has been incorporated. This document will present, in Chapter 2, a more detailed explanation of the methodology we have used in choosing the Outcomes and developing the output measures and optimal activities we recommend for the new Delivery Plan. Chapter 3 is a presentation of each Outcome in more detail and Chapter 4 provides guidelines on how a Delivery Agreement should be prepared and the steps required to create such a document. We than conclude with a summary and next steps.
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Chapter 2:
2.1.
Improving Government Performance The Methodology
Motivation for an Outcomes-Based Performance Management (OBPM) System
Since 1994, we have made some progress in many areas of our work. Government has successfully improved access to services and increased its expenditure on service delivery; however, this did not always translate into better outcomes. We would have expected that increasing expenditure and increasing activities should produce outputs and outcomes, however, this did not happen for various reasons: We sometimes had the incorrect policy we therefore must be willing to continuously review policy Policies were incorrectly interpreted when being implemented an ongoing monitoring and evaluation process based on detailed data and analysis is needed to tell us when we are going off the desired path Policies properly interpreted but implementation was done badly quicker feedback will allow us to correct mistakes Incorrect assumptions regarding the links between inputs (resources), activities and intended outputs the inputs and activities that are selected do not always result in the desired output this calls for us to provide evidence that the activities we choose will produce the desired outputs Absence of a performance management system and monitoring & evaluation (M&E) framework we do not centrally articulate our detailed performance requirements and do not track delivery with a sufficient level of detail Government structure, decision-making processes, and activity coordination mechanisms are not designed for optimal performance management our coordination mechanisms need to be improved to ensure accountable delivery
Most of the abovementioned reasons for poor performance relate to Governments ability to convert inputs into outputs through activities. If our Outcomes and Measurable Outputs approach only set targets for desired outputs, this would not highlight the strong need for improvement in the conversion process. For each priority outcome, we therefore include a shortlist of key activities that are critical in order to achieve a desired output. Datadriven insights, evidenced-based ideas and consultations with key stakeholders are used to ensure that the activities that are most likely to have a strong influence on the desired output. The progress of implementing these activities will be included in a reporting card for monitoring purposes. In this way, we hope to change behaviour towards more efficient activity selection and delivery.
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It is important to understand that this approach is not to be prescriptive on how a Government Department operates, but seeks to increase focus on high priority activities and monitor their implementation. It does not specify how they should be implemented and how funding will be allocated to these activities. Each Government Department will retain full decision making rights to decide how to deliver against the output targets and activities. A strong institutional design with good management and the ability to make changes when things dont work will also be required in support this approach.
2.2.
Process for Implementing the Performance Management System
At a high level, the process for defining outcomes can be summarised as follows:
Measureable Outputs
Politically Agreed Outcomes The MTSF and other key strategy documents are translated into a 12 main outcome indicators They form a clear, simple expression of Governments mandate Outcome Measures The most valuable outputs that influence each outcome are defined and agreed upon Measures and targets are set for these outcomes Key Activities and Inputs A list of key activities required to achieve each output target is created Essential inputs that form part of the delivery chain for the outputs are identified
Accountable Delivery
Delivery Forum Produces Delivery Agreement
Set Up Coordinating & Implementation Mechanism
President appoints Minister /s accountable for delivery of outcome Delivery forum created consisting of institutions or agencies that play a role in delivering the outcome Delivery forum negotiates terms of delivery and produces Delivery Agreement
Establish a Cabinet Cluster for each outcome Agree on how best to implement delivery agreement Produce six monthly report to President
As shown above, the process can be broadly divided into two phases: 1) measurable output definition and 2) accountable delivery. The first phase involves the definition of the key outcomes associated outputs that Government will focus on. Targets and measures are set for each output and the key activities and inputs required to deliver against these targets are defined. Once measurable outputs are finalised and consensus is gained around these inputs, the focus shifts towards the next phase (accountable delivery of the desired outputs). A cross-functional sector delivery forum is created to negotiate and plan how the desired outputs will be achieved. Once negotiations are finalised, the delivery plan and accountability is formalised in a performance agreement and sector delivery agreement. An implementation cluster is then set up to function as a coordinating and implementation mechanism. 2.3. The Outcomes Measurable Outputs Optimal Activities Methodology
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The methodology utilised to set targets is a departure from the traditional Input-Output Model where targets are set at only the output level based on fixed inputs. In this approach, we first identify the list of key outcomes that will be included (see Section 2.3). The outcomes are then broken down into priority outputs that have the largest influence on the outcome. For example, the management of HIV/AIDS (output) is a key contributor towards achieving the outcome of live long and healthier lives in South Africa. Targets are set at the output level based on a consultative process and data-driven research. Part of this research includes identifying the short-list of key activities that will have the most impact on the outputs. These activities are monitored as part of the reportcard on the outcome. All targets also take into consideration the limited availability of inputs in order to ensure that they are achievable. We have assumed that inputs can be reallocated from one department to another, within a department and that some limited new allocations could be made.
InputOutcome Model
Input
Activities
Outputs
Outcomes
Step 4 How much do we need to invest to achieve the best mix of desired outcomes?
Step 3 Where should the system focus in order to achieve the outputs?
Step 2 Which priority outputs should we measure to see if we are achieving each outcome?
Step 1 What are the key outcomes that Government wants to achieve?
4
New Evaluation and Monitoring Approach
Determine optimal allocation of inputs given desired outcomes Reallocate inputs if necessary
Measure delivery of key activities that we believe will fundamentally enhance the performance of the conversion process
Measure 35 outputs that tell us whether we are making progress in delivering the outcome Tested with internal and external experts
Derived from ANCs Manifesto and MTSF
The outcome relating to Human Settlements (Outcome 8) is used an explanatory example. In this example, we show only a subset of the output metrics developed for the outcome for illustrative purposes. Below, we show 4 outputs. For each output, metrics are defined for measurement of the output. Data-driven research and consultation with the Department of Human Settlements was used to understand the current reality and set targets for these metrics. Lastly, key activities that will enable the achievement of targets are defined and monitored. These activities are only selected if there is sufficient evidence to motivate their inclusion.
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* Gap market is currently defined as households earning between R3,500 to R9,000 per month who do not qualify for subsidised housing and cannot access mortgage finance Note: Only contains subset of the outcome metrics, targets and activities
2.4.
Choosing the Outcomes
The point of departure is the ANC Election Manifesto of 2009. The Manifesto defines the objectives as follows: Continued democratisation of our society based on equality, non-racialism and non-sexism; National unity in diversity which is the source of our strength; Building on the achievements and the experience since 1994; An equitable, sustainable, and inclusive growth path that brings decent work and sustainable livelihoods; education; health; safe and secure communities; and rural development; Targeted programmes for the youth, women, workers, rural masses, and people with disabilities; and A better Africa and a better world.
It goes further to identify 5 Priority areas of work to give effect to the objectives: 1. Creation of decent work and sustainable livelihoods 2. Education 3. Health 4. Rural development, food security and land reform 5. The fight against crime and corruption Informed by the Election Manifesto, Government adopted the Medium Term Strategic Framework (MTSF) for the mandate period 2009 2014 in July 2009. The MTSF translates
the Election Manifesto into a Government strategic framework. It elaborates on the Election Manifesto and identified the Ten (10) Strategic Priorities, that serve as the basis for determining the Governments Implementation Plans for the period to 2014. The MTSF states: The MTSF base document is meant to guide planning and resource allocation across all spheres of government. National and provincial departments in particular will need immediately to develop their five-year strategic plans and budget requirements, taking into account the medium-term imperatives. Similarly, informed by the MTSF and their 2006 mandates, municipalities are expected to adapt their integrated development plans in line with the national medium-term priorities. It proceeds to articulate the Ten Strategic Priorities as: 1. Speed up economic growth and transform the economy to create decent work and sustainable livelihoods 2. Massive programmes to build economic and social infrastructure 3. A comprehensive rural development strategy linked to land and agrarian reform and food security 4. Strengthen the skills and human resource base 5. Improve the health profile of society 6. Intensify the fight against crime and corruption 7. Build cohesive, caring and sustainable communities 8. Pursue regional development, international cooperation 10. African advancement and enhanced
9. Sustainable resource management and use Build a developmental state, including improving of public services and strengthening democratic institutions.
To ensure that planning and implementation reflect the priorities contained in the two strategic documents, Government established two new functions within the Presidency; Ministries in The Presidency for The National Planning Commission and Performance Monitoring and Evaluation. Both Ministers committed themselves to developing the MTSF into a more detailed set of Outcomes with Measurable Outputs with some key activities being recommended as the way to best achieve the outputs. This will also require changes in the allocation of inputs and resources to ensure delivery on the priority areas. In translating the Manifesto and the MTSF into Outcomes, twelve (12) key outcomes and have been identified: 1. Quality basic education 2. A long and healthy life for all South Africans 3. All people in South Africa are and feel safe 4. Decent employment through inclusive economic growth 5. Skilled and capable workforce to support an inclusive growth path 6. An efficient, competitive and responsive economic infrastructure network 7. Vibrant, equitable, sustainable rural communities contributing towards food security for all
8. Sustainable human settlements and improved quality of household life 9. Responsive, accountable, effective and efficient Local Government system 10. Protect and enhance our environmental assets and natural resources 11. Create a better South Africa, a better Africa and a better world 12. An efficient, effective and development oriented public service and an empowered, fair and inclusive citizenship The conversion of the Election Manifesto and the MTSF into a set of 12 outcomes backed by measurable outputs and key activities to achieve the outputs was the product of consultation and discussion at both the Ministerial and Administrative levels. The Table below places the Election Manifesto and MTSF key strategic objectives and the Outcomes alongside each other. It is clear from the table that there is a high degree of correlation and consistency across the three. The outcomes are not another set of priorities per se. They reflect the desired development impacts we seek to achieve given governments policy priorities as contained in the Election Manifesto and the MTSF. In this sense the outcomes with measurable outputs and key activities is thus the core strategy to achieve the Election Manifesto and MTSF priorities.
Manifesto
1. Creation of decent work and sustainable livelihoods 2. Education
MTSF
1. Speed up economic growth and transform the economy to create decent work and sustainable livelihoods 4. Strengthen the skills and human resource base 5. Improve the health profile of society 3. A comprehensive rural development strategy linked to land and agrarian reform and food security 6. Intensify the fight against crime and corruption
Outcomes
4. Decent employment through inclusive economic growth
1. Quality basic education 5. Skilled and capable workforce to support an inclusive growth path 2. A long and healthy life for all South Africans 7. Vibrant, equitable, sustainable rural communities
3. Health 4. Rural development, food security and land reform 5. The fight against crime and corruption
contributing towards food security for all
3. All people in SA are and feel safe
2. Massive programmes to build 6. An efficient, competitive and responsive economic economic and social infrastructure network infrastructure 7. Build cohesive, caring and sustainable communities 9. Responsive, accountable, effective and efficient Local Government system 8. Sustainable human settlements and improved quality of household life
8. Pursue regional development, 11. Create a better South Africa, a better Africa and African advancement and a better world enhanced international cooperation 9. Sustainable resource management and use 10. Protect and enhance our environmental assets and natural resources
10. Build a developmental state, 12. An efficient, effective and development oriented including improving of public public service and an empowered, fair and inclusive services and strengthening citizenship democratic institutions.
The process from priority setting based on the Election Manifesto and MTSF through the outcomes definition with measurable outputs and key activities, has laid a solid basis for signalling what the current Administration will be seeking to achieve by 2014. 2.5. Translating Outcomes into a Delivery Agreement
The process steps of translating outcomes into an agreement are shown below. The responsibility for coordinating and managing such a process needs to be assigned to a Minister or group of Ministers for each outcome in order ensure that there is only one point of accountability. The President will appoint the Minister/s and meet with the Minister/s on a six-monthly basis to discuss progress and results.
Once the outcomes Government wants to achieve, the output measures that must be used and associated activities and inputs have been finalised, the next step involves creating the institutional framework to manage delivery and assign accountability for the outcomes. These delivery requirements will be formalised in a performance letter from the President to a Minister, group of Ministers or Sector including the MECs. The President appoints this entity (or these entities) as accountable for the delivery of the outcome. After the initial performance letters are finalised, each responsible Department or group of Departments will meet with all institutions and agencies that play a role in delivering an outcome for a sector. They will meet in a DELIVERY FORUM to negotiate a DELIVERY AGREEMENT that describes roles and responsibilities against timelines and budgets. The sector delivery forum should ideally meet for two days of tough negotiations that will allow for delivery agreements to be brokered. The departure point will be the outcomes, outputs and activities required of the sector. The forums will focus on designing and agreeing the implementation process and activities underlying the outcomes/outputs. They will specify what each institution or agency is undertaking to implement, within specific time frames and budgets, and for which they are fully mandated and willing to be held accountable. The implementation of delivery agreements will typically be financed from budget savings and reprioritization across Departments and agencies. A part of the delivery agreement also relates to producing information on outputs and outcomes required for monitoring and reporting purposes. Both these aspects need to be included in the delivery agreement. Other elements such as details of the delivery strategy, accountability and governance mechanisms and consultation processes followed should also be included in the delivery agreement. Delivery forums may also wish to form a special purpose DELIVERY UNIT to address select areas of blockages in delivery. It will partner the appropriate delivery institutions in working towards removing the blockages. More importantly its interventions would create models for improving delivery that can be followed by others. Once the Delivery Agreement is finalised, an outcomes cluster is set up to manage coordination and implementation of the outcome. The cluster periodically will review agreements and decide whether any changes are required. Regular Report-back meetings with the President every six months will evaluate progress and provide guidance on how to overcome obstacles related to delivery. Reports will comment on all four aspects of the Delivery Chain Outcomes, Outputs, Activities and Inputs. The report-back will be in the form of a concise, one-page report.
2.6.
Coordinating Mechanisms to Drive the Outputs and Activities
This section requires more debate
The second objective of the performance management framework relates to producing a road map and determining the best coordinating mechanisms to drive the outputs and activities to ensure the entirety of Government works as a results driven, accountable team to deliver on the priorities. The logic being that having a core strategy is a necessary but not a sufficient condition for effective implementation. To succeed in meeting the outcomes set we also need appropriate implementation coordination structures. As the well known axiom goes structure follows strategy. The question is which structures and mechanisms are most conducive to driving the core outcomes-based strategy? Government has in place policy coordination and implementation structures both at the political (Cabinet) level and the administrative (FOSAD) level, but it is generally held that current structures of coordination have not worked too well. 1.1. Concerns with Current Coordination Structures Analysis and evidence from various reviews reveal that the current cluster system is not working well and is not optimally delivering on many of governments key policies and priorities. Cabinet has three key roles of developing coherent policy, managing and overseeing delivery and intervening on ad-hoc and urgent issues. At the Cabinet level the following key concerns have been recorded by a number of parties: Cabinet clusters formed on basis of common area of work not a specific set of objectives Agenda of meetings not focused. Too many unproductive meetings led to poor attendance by Ministers Ministers not properly briefed about proposals from sister departments that impact on them Quality of information in Cabinet memorandums not adequate does not present options, strategy and strategic consideration Clusters groupings too generalised structure did not follow a strategy so have broad groups with little substance in common Nature of the agendas at these meetings more about information sharing, a clearing house for process, general policy discussion little focus on implementation FOSAD clusters discuss matters but not decision making cannot hold people accountable Attendance poor 40% of DGs attend value of time spent limited, mostly junior officials attend
At the FOSAD Cluster level the concerns expressed are as follows:
The above concerns suggest that the current system is primarily geared towards supporting policy matters with very weak attention to implementation. This is a structural problem in that the system fails to distinguish between coordination of priority setting and policy on the one hand and the coordination of implementation on the other. This
conceptual distinction is important as each involves different dynamics and challenges requiring different mechanisms. The offshoot of this is that while Cabinet has been able to give strong expressions to its role in policy coordination, its role in driving implementation has been hampered and weakened. 1.2. A New Approach is Needed Coordination to Give Expression to Priorities The new approach is built on the understanding that there is an important distinction between policy coordination and the coordination of implementation. Form should follow function and coordination practice should be seen as a concrete manifestation of policy priorities. The policy coordination and coherence function relates to structures at the centre of government responsible for generating coherent government policies, resolving conflicts and contradictions in policy and taking decisions on policy proposals, especially where we have choices. The policy function continues to reside with individual departments and final authority with Cabinet. Implementation coordination refers to institutional arrangements to effectively deliver on commitments contained in governments plans and policy frameworks. In other words these are organisational arrangements that help get things done such as ensuring better education outcomes and that houses get built and in proper locations. Cabinets role in this process needs to be strengthened and key institutions would be Cabinet Committees and appropriate cluster system arrangements. Quite clearly the two involve different dynamics and challenges and require different focus with actors and institutional arrangements appropriate to task. In the sections below we elaborate on the institutional arrangements and modes of coordination for these two coordination functions. The main argument being that it is in the field of policy implementation that the design of structures and the practice of coordination require major reform. Proposals in this regard as well as the ongoing coordination of policy are presented below. 1.3. Policy Coordination Policy development continues to reside with individual departments and with Cabinet having the final authority. The structures by and large remain the same, but some process changes are proposed to improve the evidence base for policy decisions at Cabinet level. On matters of policy, the relevant Cabinet Committee receives information after the matter has been deliberated on in Cabinet Clusters. The Cabinet Office will monitor to ensure that all affected Departments have been consulted and where opposing or contrary opinions have been raised these are reflected so that the Cabinet Committee can properly discuss the policy issue. The requirement that originating departments consult with relevant departments on cross cutting issues and reflect the different views (opposing and supporting) already exists. The Cabinet Office will have to ensure this is strictly adhered to in the future. From the Cabinet Committee the matter is passed on to Cabinet. In terms of the long-term vision and strategic planning process, the National Planning Commission once it begins its work, will generate a number of ideas issues. Departments and the Implementation Clusters and Committees will need to interrogate these and where necessary translate them into well developed policy proposals. 1.4. Implementation Coordination To strengthen the role of Cabinet in implementation, a system of Cabinet Clusters is proposed. The aim of these Committees is to bring all relevant parties into the
implementation process at the political level. Every second month (8 weeks) the Cabinet Clusters would include relevant provincial and local political principals. This would facilitate vertical (national, provincial and local) integration. In so far as existing structures such as MinMECs are appropriate, these will be used. Week
Week 1 Week 2 Week 3 Week 4
Month 1
Implementation Clusters (Senior Officials all spheres) Cabinet Cluster (Ministers, MECs and Senior Officials) Cabinet Committees Cabinet
Month 2
Implementation Clusters (Senior Officials all spheres) Cabinet Cluster and Senior Officials) Cabinet Committees Cabinet (Ministers
The Cabinet Clusters will focus on Outcomes, monitor progress, iron out bottlenecks, overcome delays and secure mutually supporting action across the relevant parties. The Cabinet Clusters table progress reports to Cabinet on a bi-monthly basis. The existing Programme of Action will be replaced by the measures, targets and key actions that make up the delivery chain for the achievement of each Outcome called Government Implementation Actions (GIA) in future. The Implementation Actions will become the basis for the Performance Agreement between the President and Ministers. At the level of officials, an Officials Implementation Cluster is to be formed. It is proposed that officials directly involved in implementation attend and not necessarily the DG. The officials attending should have delegated authority to make decisions. The Officials Implementation Cluster will be co-chaired by the lead Department and the Outcomes Coordinator in The Presidency. The Presidency will be the secretariat and have the responsibility to prepare regular data report cards detailing progress against the targets. This process will be overseen by the 2 Ministers in The Presidency. The table below presents two examples of the composition and agenda of Cabinet Clusters. It is evident from the examples that the Agenda relates to the outcomes and associated output measures and activities, i.e. the supportive delivery chain of the outcomes. This makes for more focused discussion and deepens the quality of the discussions.
Proposed Cabinet Cluster Agenda
The table below depicts the proposed membership of the Cabinet Clusters.
Outcome Area Basic Education Health Justice, Crime Prevention and Security
Outcome Improved Quality of Basic Education A long and healthy life for all South Africans All people in South Africa are and feel safe
Proposed Members Basic Education, Higher Education and Training and nine MECs Health plus nine MECs Justice & Constitutional Development, Police, Correctional Services, Home Affairs, State Security and nine Safety and Security MECs Economic Development, Finance, Trade and Industry, Public Enterprises, Rural Development and Land Reform, Agriculture Forestry and Fisheries, Tourism, Science and Technology, Labour, Communication, Higher Education, Mineral Resources, Public Works, Energy, Environment, Water, Transport, Presidency (NPC), and Cooperative Governance and Traditional Affairs
Employment and Economic Growth
Decent employment for people through facilitation of inclusive economic growth
Human Resources and skills Rural Development and Food Security
A skilled and capable workforce to support an inclusive growth path Vibrant, equitable, sustainable Rural Communities and Food Security for all Sustainable human settlements and an improved quality of household life A responsive, accountable, effective and efficient Local Government system Environmental assets and natural resources that are well protected and continually enhanced A better Africa and a better world as a result of our contribution to global relations An efficient and development-oriented Public Service and An empowered, fair and inclusive citizenship An efficient, competitive and responsive economic infrastructure network
Higher Education and Training, Trade and Industry, Science and Technology, Premiers Offices, Youth Development Agency Rural Development and Land Reform, Agriculture, Cooperative Governance and Traditional Affairs, Water and Environmental Affairs, nine MECs for Agriculture, Economic Development, Finance, Trade and Industry, Forestry and Fisheries, Health, Transport, Presidency (NPC) Human Settlements, Finance, Cooperative Governance and Traditional Affairs, nine MECs for Housing and Local Government Cooperative Governance and Traditional Affairs, Finance, Human Settlements, Water, Rural Development, Transport, nine MECs for Local Government and Housing, SALGA Water and Environmental Affairs, Forestry and Fisheries. Nine MECs for Agriculture and Environmental Affairs
Sustainable Human Settlements
Local Governance
Environment
International Cooperation, Trade and Security Public Sector Capacity and Citizenship
International Relations and Cooperation, Defence, State Security, Trade and Industry, Tourism. Public Services and Administration, Cooperative Governance and Traditional Affairs, Finance, The Presidency (National Planning Commission), Office of the Premiers, Arts & Culture, Social Development, Sports & Recreation Economic Development, Public Works, Finance, Trade and Industry, Communication, Water, Transport, Presidency (NPC), Human Settlements, Rural Development and Land Reform, Environment, Science and Technology
Infrastructure
The core elements of the new approach can be summarized as follows: Configure new cluster system around (12) Outcomes Create Cabinet Clusters that will include Ministers, Deputy Ministers and appropriate MECs (and senior Officials) Cabinet to focus on performance of government each meeting to review implementation, identify blockages or interventions required to speed up delivery make decisions Cabinet Clusters supported by Officials level Implementation Clusters FOSAD Clusters to be discontinued
1.5.
Presidents Coordinating Council
While the above implementation coordination system consisting of the Cabinet Clusters strengthens intergovernmental coordination through the inclusion of provincial MECs and HODs, the Presidents Coordinating Council remains an important structure. Some modifications are however necessary. The Presidents Coordinating Council renamed the Presidents Intergovernmental Forum (PIF) should have Implementation issues and performance with an emphasis on concurrent functions as explicit agenda items for this important institution. More specifically the PIF should include five specific items on each agenda Budgets/Financial Performance, Education, Health, Local Government (including human settlements) and job creation (emphasis on the PWP and CWP). The administrative and secretariat functions including Agenda setting should shift to the Presidency. The Cabinet Office in The Presidency should serve as the secretariat for the PIF. As is currently the case the PIF should meet four times a year. Two of its meetings that precede the major Cabinet Makgotla should have as a standard agenda item the work of the National Planning Commission to ensure inputs and alignment. Consideration should be given to include executive mayors of metros. 1.6. Cabinet Makgotla The Cabinet Makgotla are critical nodal points for deep reflection on progress in terms of governments priorities, the major challenges and obstacles standing in the way of meeting our goals and considering new policy directions. Past Makgotla have not always lived up to this expectation. Instead they have been characterised by thick wads of paper in several files. In this situation substantive discussion gets limited and has been hampered. Clearly the Cabinet Makgotla should be more focused on the key strategic policy issues facing the country, progress against key policy objectives, as well as, the performance of government with particular reference to the institutional / policy / legislative / regulatory blockages to better performance. Specifically more discussion is needed on the options available, the trade-offs that may be required and the strategies necessary advance the development goals and objectives. For the January 2010 Lekgotla this translates into the following main agenda items: 1.7. Our policy commitments Assessment where are we now New outcomes matrix Government Implementation Actions what we need to do and the targets to be achieved
Conclusion
The effective development of policy and the implementation and delivery of services are often hindered by poor coordination structures and mechanisms. Evidence and analysis based on reviews show that existing structures are not working well. Government or the state more generally, is a complex organisation involving over one and a half million people, thousands of managers, hundreds of policy makers, hundreds of politicians and hundreds of institutions. Over the past fifteen years, government has become more fragmented. Senior officials and members of the executive sit in too many meetings, processes have become too complex and institutions have become bureaucratised. The effect of this fragmentation is that the state is not as effective as it should be and the coordination function at the centre is not able to drive the
implementation or delivery of governments key priorities1. A key conclusion of this document is that the system of coordination at the centre is designed to enhance policy coordination and not the coordinated implementation of governments key programmes. While the development of policy is a critically important task of government (and will always remain so) it is generally accepted that governments ability to implement its policies is what is lacking. While policy inconsistency is a problem in specific instances, it is in the implementation of those policies where the greater deficit arises. The proposals in this document attempt to rectify this weakness. Specifically, it calls for a new approach which: Better distinguishes coordination between policy coordination and implementation
Focuses on implementation of outcomes Creates Cabinet Clusters to strengthen vertical integration by including provinces and Local Government where necessary Proposes a 4 week Cabinet cycle giving Ministers time free from meetings Replaces FOSAD clusters with Officials Implementation Clusters co-chaired by the outcomes Coordinator in The Presidency and lead Department Focuses the Makgotla on key priorities related to strategy, budget and tradeoffs Refocuses and renames the PCC to highlight provincial and municipal issues
The defining characteristic of a developmental state is that it is a capable state, able to drive an agenda for development that requires both focused implementation and effective coordination.
2.7.
Key Takeaway
The performance management process outlined in this chapter consists of four key steps. These are shown below as a summary of the Chapter.
Target Setting for Outcomes: Outcomes Measurable Outputs Optimal Activities Inputs
Delivery Forum: Negotiate a Detailed Delivery Agreement
Implementation and Cabinet Clusters Based on Delivery Agreement
Six Monthly Reports Produced and Delivery Agreement is Periodically Reviewed
Chapter 3:
The twelve outcomes are:
Setting Targets for Each Outcome
1. Quality basic education 2. A long and healthy life for all South Africans 3. All people in South Africa are and feel safe 4. Decent employment through inclusive economic growth 5. Skilled and capable workforce to support an inclusive growth path 6. An efficient, competitive and responsive economic infrastructure network 7. Vibrant, equitable, sustainable rural communities contributing towards food security for all 8. Sustainable human settlements and improved quality of household life 9. Responsive, accountable, effective and efficient Local Government system 10. Protect and enhance our environmental assets and natural resources 11. Create a better South Africa, a better Africa and a better world 12. An efficient, effective and development oriented public service and an empowered, fair and inclusive citizenship For each outcome, we have provided the following: A brief summary Some background information regarding its importance A perspective on the current state of the outcome
The key section specifies outputs with metrics (how will it be measured) and targets
(unless otherwise stated, all targets are for 2014)
The optimal activities we think will best contribute to achieving the output
3.1.
Outcome 11: Create a Better South Africa, a Better Africa and a Better World
1.8. Executive Summary There is evidence that South Africa is currently already involved in creating a better South Africa, a better Africa and a better world SA has become an important player in Africa and the world and has made an important contribution to world peace and stability as a non-permanent member of the Security Council over the past two years FDI inflows were as high as $9bn during 2008 and is them most diversified FDI on the African continent 9 South African corporates made UNCTAD's Top 100 list of nonfinancial corporations from developing countries The key outputs and activities for Outcome 11 include:
Outputs
1 Free Movement of South African Goods and People
Metrics
Share of World Trade & Growth in Exports Volume of FDI inflows & outflows Visa- Free Movement Agreements
Key Activities Required

Develop a forward-looking strategy that factors in the geopolitical situation, energy and security challenges, international migration issues , intra-trade in Africa Develop a strategy on negotiating trade and investment agreements that focuses on the quality of agreements not the quantity Identify and implement structured bilateral mechanisms and agreements with clear economic benefits for South Africa
Preservation of Regional & Global Peace, Security and Sustainable Development
Involvement in Peace Missions Population Representation in Military Membership in Peace & Security Councils
Contribute
supported, operational, mission ready forces to UN/AU Peace Missions within the thresholds (people, finances & capabilities) as approved by Cabinet for the financial year Establishment and participation in regional and continental peace and security architecture
1.9. Outcome Definition and Importance Creating a better South Africa, a better Africa and a better world involves external partnerships that promote our domestic agenda:
Economic: Promotion of socio-economic development and regional integration Political / Military: Promotion and maintenance of a peaceful, stable and secure Africa
The outcome is important because South Africa has to contribute to the global economy because understanding and contributing to global issues is part of improving quality of life for South Africans
1.10. Current Reality South Africa recorded FDI inflows of $9bn during 2008, a substantial increase on the 2007 figure of $5.7bn. This is the highest and most diversified FDI in Africa as it includes energy, machinery, mining, as well as banking (largest share). These inflows have been supported materially by single large deals, for example, the $5.6bn investment by the Industrial and Commercial Bank of China into Standard Bank in 2008. In addition, South Africa is also obtaining more of a presence on the global corporate stage. 9 South African corporates made UNCTAD's Top 100 List of nonfinancial corporations from developing countries as ranked by their 2007 foreign assets (Sasol, Gold Fields, Naspers, Steinhoff, Sappi, MTN, Barloworld, Datatec and Bidvest). Since 2000, SA has been a major contributor to UN and AU peacekeeping missions. Examples include the troops and military observers deployed in the DRC, Burundi, Darfur (in Sudan), Cote DIvoire and Nepal among others. Currently, SA is involved in peacekeeping missions in Sudan, Burundi, DRC, CAR, Ethiopia and Eritrea. We also played a strong role in the reconstruction of the DRC, having helped end the countrys civil war. The above examples suggest that South Africa has become a more prominent citizen in a more globalised world. We have also worked on several missions to create a better, more stable Africa and world
1.11. Desired Outputs and Performance Scorecard

1 Free Movement of South African Goods and People
Fostering partnerships for trade and investment will allow government to find new markets for South Africas higher value products Fostering knowledge sharing, technical cooperation and priority skills development partnerships will allows South Africa to strengthen its productive capacity and long term competitiveness
Metric
Current Value 1
Target Value 2
Rationale
Share of World Trade & Growth in Exports
Share of World Trade Growth in Exports Trade per capita
0.52% 2.8% $3,597
1% 5% $5,800
Metrics that reflect trade openness are accepted indicators for foreign policy Targets are consistent with a 10% annual increase
Volume of FDI inflows & outflows
Volume of FDI inflow Volume of FDI outflow FDI Confidence Index rating # of business delegations into SA
$9 bn $4.8 bn 18th N/A
$18 bn $10 bn 12th Start tracking
FDI inflow is an accepted indicator for foreign policy Targets are consistent with a 15% annual increase
Visa- Free Movement Agreements
# of bilateral agreements on visa exemptions for South Africans
~18
Increase
Metric allows assessment of how free South Africans are to travel / move globally
Note: 12007 or 2008 value unless otherwise indicated; 22014 value unless otherwise indicated; Sources: How the World Rates South Africa, SouthAf rica.inf o ; World Bank World Trade Indicators 2008; Foreign Direct Investment, African Economic Outlook; www.africaneconomicoutlook.org ; South Africa Had Record Foreign Capital Outf low in 4th Quarter , Nasreen Seria, Bloomberg news March 25, 2009; http://travel.iafrica.com/destin/1797820.htm ; http://www.ioltravel.co.za/article/view/5088956 ; CIFP (Country Indicators f or Foreign Policy) website
Preservation of Regional & Global Peace, Security and Sustainable Development
Promoting and maintaining a peaceful and stable external environment is a significant contribution South Africa can make to creating a better Africa and a better world Regional stability also enhances regional integration and trade opportunities
Metric
Current Value1
9 2729 N/A
Target Value2
Rationale
# of DOD external operations Average # of personnel deployed daily in external operations % of African conf licts with SA peacekeeping involvement TBD
Involvement in Peace Missions
Metrics allow assessment of a countrys relationship with its neighbours by examining the number of international disputes in which the country was involved
Population Representatio n in Military
Ratio of SANDF active personnel to total population # of SANDF personnel # of youths trained in Military Skills Development System
0.15% 74,000 N/A
TBD 24,565 by 2012
Metrics allow assessment and comparison of the portion of a countrys population involved in the operation of the military Estimates of ef fective reservist strength are based on the numbers available within f ive years of completing full-time service.
Membership in Peace & Security Councils
Membership of AU Peace & Security Council and UN Security Council Number of UN organizations
Yes
Yes
Metrics allow assessment of South Af ricas stature within the United Nations and Af rican Union Used as an indicator of a countrys relative dominance)
Note: 12007 or 2008 value unless otherwise indicated; 22014 value unless otherwise indicated; * In this case, prolonged civil unrest ref ers to civil unrest that has lasted f or more than 1 year Source: Development Indicators 2009, Of f ice of the Presidency; Department of Foreign Affairs; Department of Defence Multi -Year Strategic Business Plan 2009 ; Monitor Analysis
1.12. Key Activities The key activities that have to be implemented for this outcome are as follows: Public Sector Capacity-Specific: Develop a forward-looking strategy that factors in the geopolitical situation, energy and security challenges, international migration issues , intra-trade in Africa Develop a strategy on negotiating trade and investment agreements that focuses on the quality of agreements not the quantity Identify and implement structured bilateral mechanisms and agreements with clear economic benefits for South Africa Contribute supported, operational, mission ready forces to UN/AU Peace Missions within the thresholds (people, finances & capabilities) as approved by Cabinet for the financial year Establishment and participation in regional and continental peace and security architecture
Significant Government work and resources are used in this area. We need a better set of metrics to measure whether we are being successful
Chapter 4:
4.1. Introduction
Delivery Agreement Guidelines
Once we have agreed Outcomes, Output measures with targets and optimal activities for each of the 12 outcomes, our next key challenge is to convene a Delivery Forum and negotiate a Delivery Agreement which is implemented and co-ordinated by the outcome based cluster. For the purposes of providing guidelines for how to produce the Delivery Agreement we will use Outcome 8 sustainable human settlements as an illustrative example. 4.2. The First Task Selecting Participants of the Delivery Forum
The Delivery Forum is made up of all institutions that are required to contribute in some significant way to the achievement of the outcomes and, in particular, the outputs. We cannot invite every single person/institution that may have some small contribution to make as this will complicate the process and create an unnecessary administrative burden. For example, we could say that Safety is a key part of the human settlement outcome and, therefore, we should invite the Police to the delivery forum; however, they are not a significant contributor to the outputs in human settlements and their absence will not jeopardise the process. Only Major partners and contributors need to be present at the Delivery Forum. The Minister responsible for delivering against the Outcome (in this case, the Minister of Human settlements) should strive to select only the major partners that will deliver the respective outcome. For the Human Settlements outcome, the most likely list is as follows: Category A (Partners who are central to the entire process): Department of Human settlements, the Treasury, The nine provincial departments of human settlements, Cogta, Department of water, Department of Energy / Eskom, the HDA, the NHFC and other Government agencies, the 27 large Municipalities, Department of Transport. Category B (Partners who contribute significantly to specific outputs): Department of Land Affairs, the Deeds Office, Department of Public Enterprises, Department of Public Works, DTI. Further institutions may need to be added to Category A and B. Note that this example is for illustrative purposes only and therefore may not contain the full list. The difference between Category A and Category B partners is that Category A will play a lead role in delivering a large portion or sub-component of an activity. A third category could also be created for external partners with whom we need to negotiate after we have internal agreement, e.g., the Banking Council, the NHBRC, etc. The Delivery Forum should only be convened once each partner has been given time to prepare and has provided all the basic information required to engage with other partners at the meeting. This is to ensure that the Delivery Forum has the information it requires to produce the agreement. The kind of preparation involves: For land providers going through their asset register and collating information about potential land parcels for housing For Local Government a comprehensive list of informal settlements with as much detail about current ownership of the land occupied, the current levels of service, costing for upgrading, assessment of project management capacity in their area, etc.
Once this kind of preparation has been completed, the Delivery Forum should meet for two days. The forum should be facilitated by a small group of experienced facilitators who understand what is required and have the ability to produce a negotiated agreement at the end of two days. 4.3. Creating The Delivery Agreement
The Delivery Agreement is a very detailed document as it specified exactly how outputs will be achieved. This includes a responsibility matrix for each outcome, timelines, actions plans, funding plan, data, monitoring plan and a process for implementation. As an example, we explain the steps required to create the delivery agreement for 2 areas of Outcome 8: 1.) Acquiring public land for low income/affordable housing and 2.) Upgrading of 500 thousand informal units of accommodation. 1). Acquiring Public Land The key partners are the DHS, land affairs, public enterprises, public works, HDA, treasury and the 27 Municipalities. Each partner is asked to review their asset register and identify parcels of land that are well-suited from a location point of view for medium/high density, low income/affordable housing. The target is 6,250 ha of land over the four years. Available land could then categorised as follows: easily usable free land which will take time to release but has no financial cost and easily available but has financial implications, which will take time to release and incurs costs. The long term benefit of spending money to acquire the land for housing must be explained, understood and agreed by all. The institutional capacity to land bank must be established. The principles for determining market values must be agreed. The next step is to review each parcel of land and determine if it meets the criteria and is affordable. The negotiation will probably arrive at a point where only a few parcels are problem-free and can be made available. The rest will are likely to have some or other bottleneck that must be resolved. The agreement will aim to identify ideal parcels of land, define the bottlenecks and put them in an ordered list from easy to resolve to difficult to resolve. This completes Phase 1. The next phase involves setting up the land banking capacity to work with the relevant partners to resolve bottlenecks and transfer land. The goal is to secure 6,250 ha of land in the next 4 years. 2). Upgrading of 500 Thousand Units of Accommodation in Informal Settlements. The partners will include the DHS, National Treasury, CoGTA, Department of Water Affairs and Forestry, Eskom, 27 Municipalities, the 9 Provincial departments and any other agencies of government involved in this area of work. Step 1 is to agree the definition of the outcome, i.e., what does upgrading mean?, what standards will be used?, etc.
Step 2 is to choose the actual projects so we end up with a list which shows the area, the specific informal settlements, the total number of units to be upgraded and the funding contribution from that Municipality. An illustrative example follows:
Area Johannesburg Cape Town
Settlement
Number of Units 47,000 units 34,000 units
Funding Source 20% Cash contribution from Metro 30% Cash contribution from Metro
Thembalihle
KTC Squatter Camp
Step 3 is to resolve funding for the output as a whole and then each individual project. The funding is likely to come from three sources: reallocation of the current budget, contribution from the Municipality and a new allocation from the budget. Step 4 involves gaining mutual agreement on the institutional delivery process. Many guidelines and handbooks describe the process for upgrading, one or some of these must be adopted as the preferred model. The actual project management process which describes roles and responsibilities for each partner must also be defined. The process to enable community participation should also be finalised as well as the decision making powers of the Municipalities, Provinces and National Departments. i.e., what process do we use?, who does the project management?, etc. Step 5 is to determine the timelines and milestones to be achieved each year. A similar exercise is undertaken for each output measure and we end up with a fairly comprehensive delivery plan. The lead Minister or group of Ministers and their Departments must then manage the process of ensuring that the Delivery Agreement is implemented and reporting on progress. The implementation cluster is the main forum to ensure co-ordination, co-operation and deal with problems as they arise. The six monthly report will be based on the Delivery Agreement and will include a review of the Delivery Agreement and make changes where needed. The challenge is to produce 12 such agreements and begin implementing them before the July Lekgotla
Summary and Next Steps

12 Outcomes: Measurable Outputs: Describe the mandate of Government and are based on the MTSF these need to be politically approved For each Outcome, we have identified a limited number of Outputs; we need to agree that these Outputs are the best ways of delivering the desired Outcome. Outputs need to be debated and agreed. For each Output, we have developed a measurable target which needs to be approved. In many instances, data does not exist if it is available we need to fill in the gaps and where it does not exist we need to develop the system to get the data and have a baseline. Using data and evidence from other experiences we have identified optimal Activities that are most likely to help achieve the Outputs. These Activities will also be monitored and measured when a report card is prepared every six months. We need to debate the Activities being proposed and then either discard, improve modify them so that we adopt a fully supported list of Activities.
Targets:
Optimal Activities:
Set up a Delivery Forum: Made up of the major and supporting partners with whom we need to work closely to deliver the Outputs. Delivery Agreement: The Delivery Forum negotiates an agreement which describes how the Outputs will be achieved and how the Activities will be conducted in detail. The roles and responsibilities and undertaking of each partner are documented.
Outcome based Cluster: The key partners for each outcome lead by a Minister/group of Ministers form themselves into a Cluster The main task of the cluster is to co-ordinate and facilitate the implementation of the Delivery Agreement. It will also take responsibility for new policy ideas, reviewing the Delivery Agreement and making changes and finally for producing a six monthly report on progress while identifying the blockages. By July 2010 Delivery Agreement in place, cluster in place, some implementation done and first report ready.

Measurable Performance and Accountability Delivery Outcome 11

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This is a DRAFT for discussion Please send any comments to mamothe@po.gov.

za before 5pm, Thursday, 14th January, 2010

Measurable Performance and Accountable Delivery

Chapter 1:Improving Government Performance The Context and Key Objectives

SOUTH AFRICA Low Low High

Human and System Capacity

Two Key Objectives : Measurable Outputs Accountable Delivery

Improving Government Performance The Methodology

Motivation for an Outcomes-Based Performance Management (OBPM) System

Process for Implementing the Performance Management System

Set Up Coordinating & Implementation Mechanism

Derived from ANCs Manifesto and MTSF

Choosing the Outcomes

contributing towards food security for all

3. All people in SA are and feel safe

Coordinating Mechanisms to Drive the Outputs and Activities

This section requires more debate

At the FOSAD Cluster level the concerns expressed are as follows:

Proposed Cabinet Cluster Agenda

Employment and Economic Growth

Decent employment for people through facilitation of inclusive economic growth

Human Resources and skills Rural Development and Food Security

Sustainable Human Settlements

Presidents Coordinating Council

Delivery Forum: Negotiate a Detailed Delivery Agreement

Implementation and Cabinet Clusters Based on Delivery Agreement

Six Monthly Reports Produced and Delivery Agreement is Periodically Reviewed

Setting Targets for Each Outcome

(unless otherwise stated, all targets are for 2014)

Key Activities Required

Preservation of Regional & Global Peace, Security and Sustainable Development

1.11. Desired Outputs and Performance Scorecard

Share of World Trade & Growth in Exports

Share of World Trade Growth in Exports Trade per capita

0.52% 2.8% $3,597

Volume of FDI inflows & outflows

$9 bn $4.8 bn 18th N/A

$18 bn $10 bn 12th Start tracking

Visa- Free Movement Agreements

# of bilateral agreements on visa exemptions for South Africans

Preservation of Regional & Global Peace, Security and Sustainable Development

Involvement in Peace Missions

Population Representatio n in Military

0.15% 74,000 N/A

TBD 24,565 by 2012

Membership in Peace & Security Councils

Delivery Agreement Guidelines

Area Johannesburg Cape Town

Number of Units 47,000 units 34,000 units

KTC Squatter Camp

Summary and Next Steps

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