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					ANNEXURE C DEPARTMENT OF SOCIAL WELFARE 1.0 VISION AND MISSION Since its establishment, the Department has constantly been in a state of flux. It was initially combined with the Department of Health, from which it was separated in May 1996. It was then combined with the components of Sports, Arts and Culture of the Department of Education in July 1996. This new merger was also unbundled in January 1997. All the mergers and unbundlings left the Department without support as these had remained in the Department of Health. In November/December 1996, planning activities within the department were suspended due to political upheavals in the province. 2.0 2.1 STRATEGIC PLANNING AND MANAGEMENT Departmental Plans In November, strategic planning workshops were held, facilitated by the ODA. The second step was to look at strategic objectives and the allocation of resources. The Department separated again this year and remained Social Welfare. The Department of Social Welfare [DSW] is currently reviewing its strategic plans in the light of these changes. The department has regional offices in six regions [see structure] that are each headed by a Deputy Director [DD]. Due to staff shortages, each Deputy Director [often referred to as the Regional Manager] is currently responsible for two regions, head of institutions and sub-regional offices. DD's participated in the drafting of the strategic plans for the department, plus Head of component from Assistant Director upwards [extended management]. The process of communicating these strategic plans is currently continuing, e.g. through circulars to the regional offices. Further, regional workshops for all regions shall again be held to identify strategic objectives. These regional workshops shall be finalised by the end of May 1997. Each component has its own strategic plan within the broader one. The strategic plan goes up to the year 2000, but subject to review after seeing how the one year plan is implemented. This strategic plan was drawn up in 1995, based on a year plan. Identification of accountability and responsibilities shall be done at the next workshop. As a result of the manner in which the department has been operating, there have been instances of duplication of resources such as equipment, vehicles, etc. The Provincial Review Task Team was briefed that it was possible that two vehicles belonging to the same department but

2 different directorates would leave head office for the same region. In other cases, vehicles belonging to one Directorate in terms of line functionary could stand unused whilst other line functionary is unable to function due to lack of vehicles. Monitoring of performance against set targets not yet finalised. In fact they are struggling to even put in targets. 2.2 Purpose and Functions Purpose To render a social welfare, arts and culture service. Functions 1. 2. 3. 4. 5. Render comprehensive social services Render social security services Render social development services Render information and heritage services Render administrative support services

The purpose and functions currently in use in the Department of Social Welfare are those that were developed when Social Welfare was still part of Arts, Science, Culture and Technology. 2.3 Policy decisions, planning and action

2.3.1 National - provincial linkage Many departmental policies are based on national policy and the Department of Welfare was seen as the national counterpart. Regular meeting is also held in Pretoria. These include welfare policy:- Inter-Ministerial Committee on Child care, new strategy on crime prevention, alcoholic and drug abuse, Child Care Act [inputs and amendments], liaison on social security, secure care, tendering of provisioning, interdepartmental workshop on financing of welfare services, etc. Inputs are often made at these forums. Some national policies are adapted to suit local needs. The HoD was of the opinion that her department seems to be getting sufficient. 2.3.2 Provincial policy In general, there would appear to be minimal provincial adaptation of national policy.

3 The Department of Social Welfare has identified itself as one of the key priorities based on the political utterances and an increase in their budget allocation. Outside social welfare, provincial officials identified Education, Health, and Safety and Security as the other top priorities of the province based on the same criteria. 3.0 LEADERSHIP AND MANAGEMENT The good relationship that is said to exist between the administration and MEC makes implementation of the Cabinet decisions to be a smooth process. Monthly management meetings are held between the HoD and the heads of components/Directors. Extended monthly management meetings are held with officials from Assistant Director upwards. Weekly [Monthly] auxiliary meetings with HoD -checking on projects. All Directors and Regional Heads meet once a month. Directors meet staff and their respective line functionaries at least once a month. General communication was said to have been a problem in the past but that this will improve with the new structure. The ever changing position of the department in the past 2 years has affected the morale of the staff seriously. Presently, however, they feel at ease.


Chief Director

Director: Social Security

Director: Comprehensive Welfare Service

Director: Developmental Services

Director: Administrative Support

6 regional offices each headed by a Deputy Director - Bloemfontein - Botshabelo - Bethlem - Welkom - Kroonstad - Mangaung This structure is an old one

5 5.0 5.1 SERVICE DELIVERY ACTIVITIES Performance Shortage of staff is a hindrance [staff functions are centralised in the HRM of the Office of the Premier]. The provincial department is of the view that it satisfies its clients in the rendering of professional services, although it is hampered by staff shortages. There is, however no clear measurements of performance. The Department is still relying on statistics, meetings with children in institutions such as places of safety, and abscondment rates of children in institutions. 5.2 Service providers Subsidising social welfare programmes - many of the subsidies are approximately R60 - 70 million, e.g. old age homes and other NGO's. They subsidised institutions are evaluated annually and subsidies increased or lowered. Claims are submitted monthly, and 75% of the claims are paid. In total, there are 6 state institutions [places of safety, Old age homes]. It is foreseen that these could also be outsourced, although employees at these institutions do not wish to be out of the public service. Some services are outsourced/ privatised. These would include catering and gardening services at 3 of the institutions, while gardening only in one institution. Pension's payout will also be outsourced because of security problems. ADMINISTRATIVE ACTIVITIES 6.0 PERSONNEL The staff position at present is as follows: Funded Vacant 494 Unfunded Vacant No on Payroll Not absorbed 16* 40*

No of Posts 1 840

Filled 1 346

There are discrepancies [40 personnel] in the figures provided by the Office of the Premier and the Department of Social Welfare exist. NOt all staff is on PERSAL. The DSW has no control over the number of personnel on payroll and as such a possibility of ghosts cannot be ruled out. There is a big problem with payment of pensions for people who died. Inspector assist in detecting these.

6 6.1 Rationalisation The different administrations have been amalgamated. Supernumerary staff will not be many. Seemingly not all staff are on PERSAL. Received 10

Approved 1

Busy processing 9

These figures include the component Arts, Science and Culture before it was unbundled.


Recruitment and Appointment of staff There is a central personnel management unit. All advertisements are approved by the DG, and the central Human Resource department serves as the secretariat to the whole process of HR management. All appointments up to Administrative Officer are approved by a Director. From SAO level up to Assistant Director level, the HoD must approve. All appointments above AD level must be approved by the PSC. Advertisement of posts is done internally, except in cases of Deputy Directors posts and higher which are advertised externally. DG and MEC have a final say in the appointment and approval of all appointments. Unfreezing of posts has to be done through the HoD. On average, appointments take 6 weeks to 5 months. With decentralisation it is hoped that it will take shorter. Problem of shortage of staff in central HRM hampers the rendering of an effective HR function.


Leave Leave Planning is undertaken within the department. Regional offices of the department send leave forms directly to the central HRM in the Office of the Premier. There are too many loopholes in this process.


Misconduct Cases of misconduct are handled through the department then referred to the Labour Relations component of HRM [central]. Approximately 25 cases were handled during the previous financial year. These include absenteeism, alcohol abuse, negative attitude and robberies. Misconduct cases take long to be finalised - and this affects the morale of other staff.


FINANCE HoD is Accounting Officer and Directors are appointed in writing as Responsibility Managers, who report to the HoD on a monthly basis. Regional Heads also report to their respective Directors on a monthly basis. From 1 April, the department will be handling its own financial matters/budget. Previously, financial affairs relating to social welfare were handled by the Department of Health.

7 7.1 The Budget and Expenditure Discussions regarding the budgetary allocations of the department were seriously hampered by the absence of line function managers of the department. The Provincial Review Task Team had to hold discussions with these officials who perform staff functions in the department who could not answer to some of the questions relating to the budget. However, the information including documents supplied to the Provincial Review Task Team indicate the budget allocations as follows:


Budget in R'000 4 978 780 226 47 082 42 433 9 970 3 082

1996/97 Actual

1997/98 Budget in R'000 22 361 896 832 48 355 41 463 13 476 1 866

Administration Social security Social support Social Welfare facilities Social development Auxiliary and Associated Services Total

24 685 310 772 567 560 45 108 784 22 050 026 5 523 715

887 771

871 581 644

1 024 353

The over expenditure on programmes was attributed to the unexpected increase in the number of beneficiaries of the pension grants. The total increase of R917 000 was due to the implementation of a cost effective network service to meet needs of the community through evaluation and financing of welfare programmes and wrong allocation of PERSAL money "programme 4's personnel expenditure which is deducted from the objective codes of programme 1". Under expenditure on amounts for programmes is due to non-filling of vacant posts, journal entries including the pension payment for March are still outstanding, and payments for private welfare organisations has not been accounted on time. Transfer Payments dealt with by the department are mainly subsidies to institutions such as: - Welfare organisation of the Dutch Reformed Church. - Creches - Old age homes - Organisations for physically and mentally disabled.

8 Spending agencies submit their audited financial reports. No transfers are made through the Office of the Premier. 7.2 Spending Approvals/delegations The following delegations were described as having being given: - For purchases by departments (with quotations): up to R7 500; - Invitation of tenders: up to R75 000 per case; - For purchase above R75 000 - to be referred to the Tender Board. Response time from the Office of the Tender Board was reported as poor as a result of lack of staff in the Office of the Tender Board [ 5 out of an establishment of 17]. Appointments are in the process of being made. 7.3 Provisioning The Department is in the process of being building its administrative support capacity - it is still serviced by the Department of Health. 7.4 Financial Management System No major problems are being experienced with these systems. Reports are received regularly, but inaccurate, hence the Department uses of own commitment register. There are major problems with the Office of Tender Board, e.g. waiting too long on tenders, no set policy for public procurement, lack of people with expertise, no proper guidance, and it does not consider the recommendations of departments. Cheques are generated by the Department of Finance. 7.5 Management of Assets Nearly 100% of all stock at institutions under the control of DSW is accounted for. Provincial Review Task Team was further informed that the accounted stock is in the process of being costed into as asset register. Vehicle audit will be done as a result of transfer of equipment from the Department of Health. Theft of stock and the register thereof is with the Department of Finance. 8.0 INFORMATION SYSTEMS The Office of the Premier and Department of Finance are responsible for supporting PERSAL and FMS, as well as the Provisioning Administration System. The Information Technology component is responsible for determining the IT strategy for the province, through and interdepartmental IT Committee. The

9 department's IT strategy is going to be based on the national IT strategy of the Department of Welfare.

10 9.0 9.1 ISSUES Since its establishment, the Department has been in a constant state of turbulence. It was initially combined with the Department of Health. It was separated from the Department of Health in May 1996 and combined with the component Sports, Arts and Culture in July 1996. The latter had been separated from the Department of Education. This merger was further unbundled in January 1997. All mergers and unbundling left the Department without support staff, who was in the Department of Health. This is the first year in which the department has had the opportunity to develop its own vision and mission, and the process seems to be effective in terms of broad participation. As of now, there is no approved structure; only the structure inherited from the department of which it was part. There are no strategic plans. There is no capacity for provincial policy development due to all the changes that took place. The Department of Social Welfare has identified itself as one of the key priorities for the province. This impression is based on the political utterances and an increase in their budget allocation. There seems to be sufficient meetings at different levels and also in the Regions. Management seems to be doing a lot of things in order to establish systems and plans, as well as co-ordination. The Department is considering two options for the control of regions. In terms of Option 1 [which is currently operational] each HQ Director is responsible for specialised functions in all the regions, whilst in Option 2, each Director is responsible for specific regions. Service delivery is hindered by staff shortages. There are no formal systems for measuring performance, however certain indicators are used, e.g., social workers use statistics of cases close monthly, abscondments from children's institutions, etc. Officials admitted that they are not confident of the accuracy of their personnel figures. Different figures were provided by the central HRM component, which differs by approximately 40 from the figures supplied by the Department/HRM component. This could be attributed to some of their personnel still being carried by the Health Department. Appointments can take up to 6 months to be finalised. This was attributed to the lack of capacity in the central HRM office. Serious concerns were raised about the Office of the Tender Board. The main concern being that the Office does not consult with the Department in its appointment of tenders/contractors. In many cases the Tender Board would











11 award contracts to companies not recommended by the department without giving any reasons. This has led to situations where those appointed companies have been more expensive but have failed to provide satisfactory services. 9.12 There is a problem of internal officials working with outside crime syndicates.

10.0 10.1

RECOMMENDATIONS There is an urgency to finalise the structure of the department and the allocation of functions. Assistance will have to be provided by national departments in this regard. Departments should have the delegated authority to define their structures, only confined by their core activities, funding available and the needs for service delivery. The human resource and finance functions should be decentralised speedily to line departments. Centralisation of this function is seen as one of the major stumbling blocks expediting appointments and effective financial management training should be organised aimed at developing capacity for strategic planning and policy development skills in the province, particularly in areas of financial management, human resource management, and overall strategic planning and management. In the development of policy by national departments, the uniqueness of and the interests of province should be taken into account. This calls more for broad policy frameworks and guidelines at national level, rather than rigid centralised rules. Mechanisms from consultation with the national counterpart department on policies and line functionary matters need to be formalised and improved. A moratorium should be placed on further reallocation of departments to different political heads, at least for the next six months to enable departments to set the basics right. The roles of HQ management in relation to regional management structures should be more explicitly defined. The principle should be that as much managerial autonomy as possible is given to the regions. The resolution of this matter should take into account the experiences of other provinces and departments that have regional offices. The Tender Board procedures must be reviewed. Officials responsible for tendering in departments should work more closely with the Office of the Tender Board.










Name Ms Ntjantja Ned W Linstron AJ de Kock WH. Sapsford MJ Mokhoabane E.W Titus

Rank Chief Director Deputy Director Assist. Admin. Officer Deputy Director Deputy Director Assistant Director

Responsibility HoD Admin. Support Personnel Institutions Welfare Welfare

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