The DPSA Review of Provinces DEPARTMENTAL REPORT Province Free by monkey6


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									The DPSA Review of Provinces



Free State Province






April 22, 1997

2 ANNEXURE H 1.0 VISION & MISSION The vision of the department is to: Ø Provide quality and relevant education to all learners of the Province. Ø Provide an effective and efficient education service that will fully develop human potential resources in order to contribute to the socio-economic viability of the Free State. The vision is firmly founded in the principles of accountability, democracy, equity, redress, justice and ownership. The mission of the department is to: Ø Ø Ø Ø Ø Ø Ø Ø Ø Ø Provide efficient administrative and sound financial management systems. Eliminate backlogs in relation to provisioning of material and physical resources. Promote a culture of learning, teaching and service. Actively engage all stakeholders in decision-making processes. Provide equal opportunities for learners of all ages to acquire lifelong learning and critical thinking skills through an outcomes-bases education and training system, which is driven by essential outcomes. Encourage a participatory decision-making process, which will empower the whole. Achieve equity in a unified education system by providing adequate facilities and resources, human and physical, for all. Collaborate with all stakeholders [learners, teachers, parents, NGO's, the business/private sector, communities and other departments] in order to ensure a sense of relevance, partnership and ownership. Promote school-based sport, arts and culture as a reflection of the needs, beliefs and ideals of society. Redress imbalances and inequalities.

The vision and mission of the department was developed by members of the management team. This has however not been communicated to all members of staff yet. Presently there is no ownership or understanding of the vision and mission widely across the department. Component parts of the department do not have their own vision and mission. The vision and mission is directly linked to the Strategic Plan of the department.

2.0 2.1


3 The Strategic Plan was drawn up by the top management of the department. They were assisted by ODA. District Managers, Directors, Chief Directors and the MEC were involved in the process. The Strategic Plan has not yet been communicated to all the staff. It is the MEC's intention that the lower levels be brought on board in critiquing the strategic plan and getting ownership of it. It would seem however that other roleplayers, like unions and parent bodies have not been involved in the process of developing the plan. The Plan does set performance targets, activities, time scale for achievement and identifies who is accountable for the achievement of targets. It is uncertain how performance against the targets set out in the plan, are monitored. The Strategic Plan contains action plans for each of the component parts of the department. The Strategic Plan of the component: Community Sport and Recreation was also provided. Although this is a new department that has been created in January 1997, the component presently resides partly in the Department of Education and the Department of Social Services. The Strategic Plan is not detailed and does not depict the vision and mission. It lists an aim which is: "To address the needs of all Sport communities through development programmes/training session" Projects have been identified and responsibility has been allocated to an individual. Target dates for completion have been set. 2.2 Purpose and Functions The purpose of the department as set out in the organogram is to: "Develop the intellectual, spiritual and physical potential of the individual." The functions of the department as set out in the organogram are: Render formal certificate education Render an education institute service Provide school management development services Provide specialised education services Provide College Education, Vocational Training and Community Education Render departmental administration services Provide Human Resources Services Provide Financial Administration Provide Logistics and Office Administration Services Render departmental works and physical planning services

4 The purpose and functions set out in the organogram are linked to the Strategic Plan. 2.3 2.3.1 Policy decisions, planning & action National - Provincial linkage The department recognises and acknowledges that there interaction between the national and provincial department. They respect norms and standards set by the national department. With the promulgation of the South African Schools Act, the department is in the process of revising the Free Schools Act to align it with the South African Schools Act. There is a strong link between the national and the provincial departments of education. There are various channels of communication between the national and the provincial department. On the political level there are meetings of Council of Education Ministers. There are also HeadCom meetings with National DG and HoD's of the provincial education departments. There are links with various national task teams and commissions. The provincial department regularly attends national policy setting for a. They are satisfied with the role they play in policy development. The department appreciates the co-operation, and clear understanding in terms of roles and responsibilities with the national department. The provincial department receives support from the national department on a wide range of issues. 2.3.2 Provincial policy The provincial policy priorities seem to be ad hoc and not communicated widely across the department. The task team were informed that the province is in the process of development and priorities are evolving. Although these initially did not seem to be clear to the department, it was communicated to the task team that the following are the provincial policy priorities: Investing in HRD Movement toward equity, education and health Representativeness Redress There did not seem to be a link between the policy priorities of the province and the objectives of the department, which are set out in the Strategic Plan of the department.

5 Priorities of the department are informed by the political head. The budget speech of the MEC sets the pace in that regard. The modus operandi is that decisions are taken at Cabinet level. This filters to the HoD. Such decisions are then channeled to management at departmental meetings. Depending on the nature of a resolution, the Hod may also interact directly w the relevant ith component. Guidelines to turn Cabinet/MEC decisions into action exists in the form of a memo from DG's Office which sets out how requests from Cabinet are dealt with. Cabinet decisions, which require action are monitored by the supervisors. There is an implementation committee established by Cabinet to monitor the implementation of Cabinet decisions. 3.0 LEADERSHIP AND MANAGEMENT Three types of management meetings are held. Ø A meeting of Executive Management [HoD and two Chief Directors] a re held every week. It is not always easy to adhere to the programme. There is a standing agenda but additional items can be added on. The HoD makes use of a checklist to monitor the performance against delivery and implementation of decisions taken at previous meetings. Ø On the last Friday of every month there is a management meeting where the HoD meets with all Chief Directors, Directors and the twelve District Managers. There is an open agenda so that people can add any matter that they would like to discuss. Minutes are recorded and used to monitor implementation. Ø There are also meeting of various components. The department feels that their communication of information through the department is poor. This can be attributed to various reasons, e.g., lack of experience, shortage of staff, people are not always available to prepare documents to convey messages to institutions, no person is responsible for liaison and communication, and an absence of a coherent communication system in the department. The powers delegated to the HoD include: Ø The appointment of CS educators Ø Financial delegations Ø Limited delegations for provisioning


STRUCTURE The approved organogram of the department is as follows: Deputy Director-General

Chief Directorate: Formal Certificate Education

Chief Directorate: Departmental Administrative Services

Directorate: Education Institute

Directorate A: School and Subject Development

Directorate B: School and Subject Development

Directorate: Special Needs

Directorate: College Education, Vocational Training and Community College Education

Directorate: Developmental Words and Physical Planning Services

Directorate: Human Resource

Directorate: Financial Management

Directorate: Logistic Service

The department operates a three-tier system: provincial department of education, 12 district offices and 3048 schools of which more than 50% are farm schools. The department wanted to have the district managers at the level of director, but in terms of Chapter J they are restricted in creating management echelon posts. The department is exploring the possibility of creating the posts in terms of CS Educators posts.

5.0 5.1

SERVICE DELIVERY ACTIVITIES Performance The department feels that they are trying hard, albeit under difficult circumstances, to promote a culture of teaching, learning and service within the department. The department does not have a formal mechanism for measuring the performance of service delivery.

ADMINISTRATIVE ACTIVITIES 6.0 PERSONNEL It is the aim of the department to decentralise functions up to district level. However, only six districts are fully operational. Functions are being decentralised for these six district offices. Most of the files are kept at head office and some files are kept at district offices. It would appear that the department does not have its full complement of personnel files. The task team was informed by the department that all staff are implemented onto the PERSAL establishment. Yet, according to a report produced on the 3 April by an Establishment Team of the province, the following problems were brought to the attention of the department: 1. 2. 3. 4. 200 officials appear on the PERSAL establishment and not on the payroll. 155 officials appear on the payroll, but not on the PERSAL establishment. 10 components appear on the PERSAL establishment, but not on the payroll. 59 components appear on the payroll, but not on the PERSAL establishment.

The staff position at present is as follows:
No of posts Provincial DG's Office PERSAL Department Filled Funded Vacant Unfunded Vacant Number on payroll Not absorbed

35342* 34316*

30699* 32405*

3024* 1911*


* #

Statistics from Establishment Team [3/4/97] Statistics from Department [24/4/97]

8 There are discrepancies in figures provided by the various sources as reflected above. A breakdown of the payroll statistics was not available to make meaningful comparisons. 6.1 Rationalisation The department reported that the process of amalgamation has been completed. The department reports that there are only 15 supernumeraries. However, the report of the provincial Establishment Team reveal that there are 15 "borrowed" posts and 1712 "active" additional posts. At this stage only six of the district offices are operational although not fully staffed. There does not seem to be any process to manage the low morale arising out of the uncertainty about jobs. The statistics on Voluntary Severance Packages are as follows: CS Educators No. applied No. approved No. refused 1082 1022 60 Public Servants No. applied No. approved No. refused Being processed 144 45 23 76

The basis of refusal was if staff were in key posts and if a school was not over staffed. 6.2 Recruitment & Appointment of staff At a school level the Education Labour Relations Council regulations apply in the recruitment and appointment process. With the public servants, the lower level posts are advertised within the district. Higher posts are advertised widely. The DG has to approve the advertisement for the vacancies for public servants. There was confusion about exactly what recruitment and appointment powers for public servants were delegated to the HoD. According to the senior managers of the department, the Chief Director had to recruit public servants up to the level of Assistant Director. Higher posts were appointed by the HoD. This was presented differently in a subsequent interview with the HoD who confirmed that he had no delegated recruitment powers, but he merely made recommendations and the appointment were made by the DG. Effectively it takes about two weeks to approve the appointment of a CS educator and about six weeks for public servants.

9 6.3 Leave Leave planning is done at institutional level. Leave forms are sent to head office to be entered onto PERSAL. Leave forms are not always handed in and they do not always reach head office. It was reported that some officials have as many as 2000 days of leave. 6.4 Misconduct The department has a labour relations component which handles misconduct cases of CS educators at the head office of the department. The misconduct cases of public servants are handled centrally in the Office of the DG. No statistics on misconduct cases were available but the d epartment reported that the nature of the cases especially with CS educators involve: drunkenness, teachers not attending classes and teachers not having professionally. 7.0 FINANCE The HoD is the Accounting Officer and the Director: Financial Management is responsible for the financial performance of the department. The department has their own bank account. Financial delegations have been made to the HoD and this allows the department to function independently. They compile their own financial statements which gets consolidated into the financial statements of the Province. The following process is in place to make heads of components within the department accountable for their spending: The department has appointed 2 programme managers and 52 responsibility managers. The budget is compiled according to cost centres [over 180] within the department. Programme and responsibility managers are accountable for spending. There are four sub directorates: Salaries, Expenditure, Budget, Internal and Loss Control, which support the administration of expenditure of the department. There is a total of 166 posts to support the function of which 104 have been filled. The budget proposal of the department is done on the basis of inputs made by responsibility managers and programme managers. The department has been allocated a budget that is inadequate and cannot suffice in terms of their needs.

10 The team was informed that responsibility managers link the budget to the Strategic Plan. This is reflected in the identified spending objectives of the department. The department is faced with the serious challenge of accommodating the shortfall in their budget allocation. Some strategies are being put into place. These include: A workshop where a consultant assisted the department in cutting down on the original budget. Each programme manager was requested to conduct workshops and ascertain on how to meet the shortfall no recruitment will take place. It is doubtful whether these strategies will be sufficient to realise sufficient cutbacks to allow them to perform within budget. 7.1 The Budget and Expenditure The total voted budget for the current financial year is R1140 billion. It is anticipated that the department will overspend by about R280 million. The department reported that their present budget allocation is only sufficient to pay salaries until December 1997. The breakdown of the budget is as follows: • The Personnel expenditure is R1150bn reflecting a shortfall of R10 million. This implies that the present personnel expenditure will consume more than 100% of the budget. Capital costs to develop infrastructure: R69 million which has been suspended from the budget to go to another project in public works for the completion of existing capital projects and maintenance of schools. Professional and special services are paid for centrally by DG's Office.



The department has outsourced the following services: • Computerised services, PERSAL and FMS, Catering at hostels, school and colleges, Transport. They are also considering the possibility of outsourcing the training for the establishment of school governance structures, security services at certain school and colleges. The department has inherited certain contracts for transporting of pupils and catering at hostels from previous administrations. They are still obliged to honour these contracts despite financial constraints. It is anticipated that when these expire, they will not be renewed.


11 • The performance against the contracts are monitored by District Managers, specific directorates and hostel advisors. School principals are also responsible for some monitoring.

The budget does not include Transfer Payments. The department has a current account at First National Bank. 7.2 Spending Approval/delegations Responsibility managers approve expenditure for the department accordance with the Financial delegations have been granted to the HoD. in

Cheques are generated through Buro Orane. Data is captured and transmitted to PERSAL and FMS. Cheques are printed out at Buro Oranje. 7.3 Provisioning The Directors approve requisitions. At district level, district managers have delegated powers to approve requisitions. The maximum amount for approval is R5000. All amounts above this are subject to the tender procedures. The department has major problems with the Tender Board. experience hostile victimisation from the Tender Board. They

There are a number o problems with the tender of text books and stationery. The way the decisions are made and the tender allocation causes problems for the department. This was evidenced in the recent awarding of a tender for stationery, which caused problems for the department and incurred severe financial drain on the department in the region of R21 million. In awarding the tender for stationery, the provincial Tender Board, decided on a three tiered tender arrangement. The Tender Board awarded contracts to one manufacturer Freedom Stationers, who was to supply goods to Qwa Qwa Stationers who was in turn to supply 33 SMME's. The SMME's were to hire warehouses to store the books and deliver them to schools. The department alleges that it cautioned the Tender Board on this practice but their recommendation was ignored. The three-tiered system contributed to delay and was open to abuse. In terms of the contracts issued by the Tender Board, it would seem that 35 people were contracted to supply the books. As it turned out it seems that the department paid the SMME's but the manufacturers were not ultimately paid. The manufacturers then instituted legal proceedings against the department and they were advised by the State Attorney that they were liable for the payment to the manufacturer, despite their having paid SMME's. This resulted in the department paying twice for

12 the books. Further legal action is being undertaken by Qwa Qwa Stationers demanding payment for the books for the third time. The Tender Board is now adopting a similar technique in the awarding of the tender for textbooks and the department refuses to accept this arrangement. Their refusal is misconstrued by Tender Board. The HoD is concerned that the SMME's would not be able to guarantee state assets and issue safeguard against damage or losses. Provisioning is done centrally for the province. 7.4 The financial management system The financial management information system used by the department is the FMS. The department is not satisfied with the system and the province is looking for an alternate system. The department has on-line facilities and they receive reports. The accuracy of the reports depend on the accuracy of the information fed into the system. The FMS is fully interfaced with the PERSAL and Provisioning systems. The department feels that the FMS reports are not user-friendly. It is complicated and difficult for a not financial managers to interpret them. Hence, it does not facilitate management decisions unless training is done and explanations accompany the reports. Committed expenditure is built into the FMS but it does not reflect capital works aspects. 7.5 Management of Assets All the property of the department is listed in an inventory. All inventories are kept centrally. Each inventory controller at institutional level sends copies to head office each time changes occur. Losses are referred to the Treasury. The department investigates the matter if necessary and asks for approval for items to be written off. Items have not been costed into an asset register. It seems that there are problems in the effective management of vehicles. The department has 554 allocated GG cars and 135 subsidised cars. Vehicles are managed effectively at head office and district office level but there are problems with control in the field. There is widescale abuse of government vehicles: carrying unauthorised passengers, making unauthorised trips, vehicles not being returned, accidents, thefts and abuse of petro cards. During the 1996/97 financial year, thirteen vehicles have been stolen.

13 8.0 8.1 GENERAL ISSUES The lack of staff is hampering the functioning of the department. Some directors are in charge of as many as 6 districts. The structure of the department does not equip them well for delivery. Consequently, staff are overstretched as they have to handle a heavy workload. The Finance and HR areas are severely understaffed. The matter is being addressed as a matter of urgency. The transfer of the department's Public Works function to the provincial Department of Public Works is causing a great deal of frustration for the department. The department was not consulted in the decision-making process that resulted in the transfer of the function. They feel that the politicians are engaged in a power struggle in the determination of posts. The department feels that if its Public Works function is centralised it will cause delays as their priorities will not be the same as the provincial Department of Public Works. There are tensions about the rightful location of Schools Sport function. It is being contested between the soon "new" and not yet established Department of Sport and the Department of Education. If the School Sport function is to be transferred to the new department, it would mean that teachers will have to be transferred as well. The department only filled 60% of the vacancies. Certain forces were not happy with the new appointees. This resulted in a moratorium on all appointments and it meant that until the beginning of November 1995 no one could be appointed. The Budget allocation at present can only enable the department to pay personnel expenditure until December 1997. There is no funds for the administration and general operation of the department including high priorities like establishing of governing bodies and empowerment of them to understand the modus operandi, getting schools geared to deliver on Curriculum 2005, and the training and retraining of teachers. There is a sinking morale amongst staff because of the various challenges facing the department There is serious tensions between the administrators and politicians. If it is not managed properly, it will be hazardous for service delivery. There is a serious communication gap between the HoD and the MEC. This manifests itself in them not sharing the same vision or talking with the same voice on a number of important issues.







14 8.8 The department is not allowed to participate in them national contracts. The provincial Tender Board restrains them from participating in national tenders. The department is unable to employ security staff because of lack of funds. This means that many of the facilities are without security. The department can only purchase items of under R100 without quotations. They find this a cumbersome and time-consuming administrative procedure, which causes unnecessary delays in procurement. There has been a double payment of certain stationery involving R21m. The department is still locked in litigation in this regard and could be held liable for a third payment of the stationery. The department was initially challenged with merging and consolidating five education departments into one. This process was fraught with many problems as they had inherited many different systems and procedures. The department experiences problems in attracting competent and skilled staff. Training which needs to be undertaken on a massive scale is not a priority for the department because they do not have the funds for it. The department does not have a good communication strategy. They need to communicated to a large group of role players but often do not have time to prepare and collate information properly for circulation. The Education Labour Relations Council and the Provincial Bargaining Chamber is not congruent. The department is bound by decisions because they get mandated nationally and the provincial representatives are often not adequately briefed. This allows the unions room for manipulation and caused distrust. When there are problems at a school, union members call for sit-ins without following the legal procedures. They have inherited divergent staff with different attitudes. They still experience resistance to change and there are people within the department trying to sabotage the transformation process. The department feels restrained at the lack of delegations in investigating misconduct, provisioning and appointments. This causes delays and ultimately affects the service delivery of the department.












15 8.20 8.21 The infrastructure at district office level is totally inadequate. The department has still not managed to retrieve all the Personnel files. Some individuals in the department still have no files. There is a big disparity in the skills and expertise of the school management teams. They come from divergent backgrounds and some of them lack school management skills. Training is needed but there are no funds to do this. Some schools are seriously overcrowded with as many as 2000 learners and they are forced to operate platoon systems. No funds have been allocated for the building of new schools and it is unlikely that the problem would be solved in the short term. The department is grappling to unlock itself from the old system, and to transform itself. There needs to be a new approach to training and teaching which would free the department from the civil mentality that is thwarting it at the moment. A major problem is that the department is mainly concerned with collating statistics and they do not manage the information properly or meaningfully. There is a lack of mechanism for monitoring delivery on the performance targets set out in the Strategic Plan.







16 9.0 9.1 RECOMMENDATIONS Recruitment and Appointments should be handled as a priority. These functions should be delegated to the HoD so as to enable him to recruit and appoint much needed staff as quickly as possible. There should be a full investigation into the circumstances surrounding the double payment of R21 million for stationery. The procedures employed by the Tender Board in the awarding of tenders should be reviewed as a matter of urgency to avoid a similar occurrence. Bilaterals should be held with the HoD of Public Works to place urgent matters such as the building of schools high on their priority. Creative ways need to be explored to provide more financial resources for the department because they will not be able to administer the department with the lack of adequate funds. Training needs to be given more serious consideration by the department especially if they are to implement the Curriculum 2005 and the Culture of Learning, Teaching and Service. There should be strong links with the Education Labour Relations Council, the National and the Provincial Bargaining Chambers so that all negotiations are fully informed before they enter negotiations. Management training for schools managers should be offered by the department to facilitate capacity building. The establishment of he district offices should be a priority for the department since they form an important link between head office and the institutions. A communications strategy needs to be drawn up for the department. The department should put in place a system of monitoring delivery against targets set in the Strategic Plan. The department needs to gear up for transformation. Change agents should be identified who could drive the process of transforming the department to meet its need to renew and revitalise the education system.









9.10 9.11


17 10.0 PROVINCIAL STAFF INTERVIEWED Name NS Nkonka JF Stemmet PJ Slabbert SA Marias JP Faure TMF Lioma A Viviers ADO Moloabi R Thoahlane FCH Rumboll P Jafter BG Mosal JJ Celiers PJ Mathabathe FJ Visage H van der Walt LLM Lebakong Rank Chief Director Chief Director Director Deputy Director Deputy Director Director Director:CES Director Director Director District Manager District Manager District Manager Deputy Director Deputy Director Deputy Director Director Responsibility School Management Departmental Support Services Financial Management Financial Control Financial Planning HR School Sport School Management & Governance Colleges Learning/Teach & Assessment

Auxiliary Services Auxiliary Services Provisioning Auxiliary and Logistics

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