SECTION E

POLITICAL SYSTEMS 
 

1. INTRODUCTION 
Well structured municipal systems essential  The way in which municipal political systems are organised is critical to ensure that: 
  • municipal Councils are accountable, transparent, and respond to the needs of their constituencies 
  • local citizens and communities are able to participate effectively in the policy formulation process 
  • political leadership and vision are translated into implementable programmes. 
Three questions regarding formal structure  Three inter-dependent questions regarding the formal structure of municipal political systems need to be debated: 
  • Firstly, whether there should be an executive Mayor model, and whether municipalities should be statutorily obliged to appoint an Executive Committee 
  • Secondly, how should municipal committee systems be structured, and 
  • Thirdly, how large should municipal Councils be. 
Regular elections, participation, and traditional leaders  In addition to well structured political systems, good local governance requires that free and fair local elections are regularly held, and that municipal Councils proactively enhance democratic participation, both through the formal Council process and through other structured mechanisms. The relation between democratically elected Councils and traditional leaders also requires attention. 
 

Two common forms of structure 

2. POLITICAL STRUCTURES 

There are two internationally common forms of political structures: 

Mayor-Council Form: 

The Mayor-Council form provides for a clear separation of powers between the executive (Mayor) and legislature (Council). Executive powers are statutorily vested in the office of the Mayor, and are not dependent on delegation from the Council. Typically, the Mayor is directly elected. As the executive, the Mayor is head of the administration, and may exercise this function directly, or appoint a Chief Administrator to manage this function on his/her behalf. 

Council-Manager Form: 

The Council-Manager form of municipal government is characterised by unity of powers. The Council acts as both the legislature and executive. The Council appoints a Chief Executive Officer or Town Clerk as head of the administration. The Council may (and is sometimes statutorily obliged to) appoint an Executive Committee, and delegate executive powers to this committee. The Mayor is the Chairperson of Council, and the ceremonial head of the municipality. 

Options for municipal political structures 

In South Africa, the Constitution specifies that a municipal Council: 
  • makes decisions concerning the exercise of all powers and the performance of all functions of the municipality 
  • must elect a Chairperson 
  • may elect an executive committee (subject to national legislation), and 
  • may appoint personnel. 
Mayor / Executive Committee/ Council - some options  South African municipal political structures could be organised in a number of ways, including: 
  1. Council could be required by statute to elect a Chairperson (Mayor) and delegate executive authority to such person (with the exception of non-delegatable powers). This option can be described as an indirectly elected executive Mayor. 
  2. Council could be required by statute to elect a Chairperson (Mayor) who is also Chairperson of the Executive Committee. In this option the Mayor would exercise his/her executive powers in committee, and not as an individual. 
  3. Council could be required by statute to elect both a Chairperson (ceremonial) and an Executive Committee. Many municipal Councils currently have this form of political structure. 
  4. The existing system, where both executive and legislative powers are vested in Council, and Council is under no statutory obligation to appoint an Executive Committee, could be retained. 
  5. An amendment to the existing legislative framework could ensure that executive powers are vested in the office of the Mayor; that the Mayor is directly elected; and that legislative powers are retained in the Council. 
Different structures for different settlement types  These options are not necessarily equally appropriate for different settlement types. For example, executive Mayor options may be appropriate for our large cities, which require strong political leadership to drive policy programmes aimed at transforming the urban system, sometimes in the face of resistance from powerful urban elites. Executive Mayor options may be less appropriate in rural areas and small towns, where the Council is likely to be smaller and therefore better able to co-ordinate executive decisions as a collective. 
 

Role of head of administration 

Role of the head of the administration 

Within each option, the role of the head of the administration (usually called a Town 

Clerk, Chief Executive Officer or City Manager) requires careful consideration. The head of the administration plays a critical role in facilitating interaction and communication between the political and administrative arms of the municipality, ensuring the implementation of policy decisions, and the management of the administration. Within developmental local government, the head of the administration is also a strategic manager, focusing the resources and capacity of the organisation on core policy goals, building teams and facilitating partnerships, and providing leadership for transformation. 
Political appointement/ merit appointment  The head of the administration is not simply a neutral administrative post. For this reason the head of the administration is a political appointment in many countries. In others, the position is fused with that of the Executive Mayor. There are also a range of mechanisms to enhance the accountability of the head of the administration as a merit appointment. For example, the head of the administration may be appointed on a limited term contract which specifies performance criteria for the post. Regular performance assessments would determine whether the contract is renewed or not. 
 

3. COMMITTEE SYSTEMS 
National legislation for establishing committees  Whichever form of political structure is adopted, national legislation should provide for municipal Councils to establish committees. National legislation may provide criteria for determining whether municipal Councils should elect an executive committee or any other committee, and their size. 
Delegated powers, advisory powers  Municipal committees assist the Council to fulfil its functions. Committees can have delegated powers (to take decisions on issues within their terms of reference) or advisory powers (to advise the executive on issues within their terms of reference), or a combination thereof. They can play a supervisory, management or advisory role. 
Roles of committees determine structure  The most efficient structure of committees should be determined by their role: 
  • Committees established to oversee the workings of the administration (supervisory or management) tend to operate best when they have distinct areas of competence, and are aligned to the administrative departments/clusters/units which they supervise. However, there is a danger that only having committees structured along departmental lines will lead to fragmented decision-making. 
  • Committees established to formulate policy (or manage a participative policy formulation process) may operate best where the focus of the committee crosses departmental boundaries (for example, poverty alleviation or inner city regeneration). 
  • Some countries have dual systems, where one set of committees is responsible for policy formulation, and another for overseeing the operations of the administration. The dual system of separating these functions may not operate effectively until such time as policy frameworks are in place. Until this time decisions regarding daily management may in fact be policy decisions, rather than an assessment of whether administrative actions are in line with existing policy frameworks. 
Which kind of committee system will best enable a municipality to fulfil its functions depends on local requirements, needs and policy priorities. 
Community-based committee system  Some South African councils are experimenting with a community-based committee system in which up to half of the membership (excluding the executive committee) consists of community members who volunteer for service. The choice of extra-institutional committee members is guided by either party affiliation or specialised knowledge (or both) depending on the core-task of the committee. The advantages of this approach are that the council can access specialised knowledge free of charge and community participation in decision-making is enhanced. 
General requirements of committee systems  While the committee system should be flexible enough to accommodate diversity between municipalities, there are some points which apply across municipalities: 
  • certain committees which improve the overall accountability of the Council (eg, audit committee) may be statutory requirements 
  • the establishment of cross-departmental committees with a clear policy focus, and a mandate to manage participative policy processes on specific issues will enhance integration between functions. Municipalities should be able to appoint community leaders and members of civil society to these committees, to facilitate direct public participation in policy formulation, and 
  • supervisory and management committees should be streamlined, to avoid decision-making delays and over-bureaucratisation. The establishment of smaller committees with clear areas of focus will assist in this regard. 
Importance of information systems  It is critical that councillors are provided with sound information as a basis for decision-making. The committee system has traditionally been driven by reports generated by the administration. While this is usually sufficient with respect to supervisory functions, committees with a policy focus require a broad base of information sources. Options such as the establishment of policy research units; contracting in policy research capacity; and the establishment of a relevant data base should be considered. 
 

4. THE NUMBER OF COUNCILLORS 

There are many approaches to determining an appropriate size for municipal councils. 

 
Statistical approach  One approach assumes that there is a statistically 'correct' number of councillors for any local community. This approach may use indicators such as the ratio of councillors to constituents to determine the 'correct' number of councillors. However, the ratio of councillors to constituents varies internationally from 1:10 to over 

1: 150 000, and nationally from 1:10 to 1: 29 929. This wide range shows that the 'correct' number of councillors varies from community to community, and cannot be statistically determined. The statistical approach ignores specific local conditions such as how easy or difficult communication is between councillors and constituents, how much support councillors have to fulfil their role, and the impact of size on the efficiency and operations of Council. 
Numbers of councillors - 

quality rather than quantity 

 More councillors do not necessarily mean more local democracy or accountability. On the contrary, fewer councillors with more support, may better facilitate local democracy and accountability. Municipal councillors need to be empowered to provide community leadership, effectively articulate the needs and aspirations of their constituencies, and facilitate local democratic processes. 
Empowerment of councillors requires a reduction in numbers  Significant investment in empowering local councillors will be required, if they are to enhance the democratic and development role of local government. Given that South Africa currently has nearly 12 000 elected councillors, it is unlikely that municipalities will be able to afford to provide even basic logistical support, such as access to telephone and other communication facilities, unless the current number of councillors is reduced. 
 

5. DEMOCRATIC PARTICIPATION 

Apartheid LG not about democratic participation 

 The need for participation
Historically, local government in South Africa has not played a strong role in the promotion of local democracy. As with other organs of the apartheid state, local government has been used as a mechanism of control and suppression in black areas. White local authorities have tended to keep their citizens at a distance, with citizen involvement assumed necessary only when services broke down or costs increased dramatically. 
Rich tradition of local community mobilisation  As a nation we have a significant history of local community mobilisation and active involvement in community affairs. However, our municipalities have only a relatively short experience in mobilising community participation for local development. There is much scope for increasing the role of municipal Councils in the promotion of democracy. Municipal Councils have a central role to play in enhancing local democratic participation, both as a means of rebuilding local communities and as a contribution to nation-building. 
Councils need to harness and promote the tradition of democratic participation  Local democracy can be fostered in many ways. The importance of effective representation of community interests by elected councillors in the decision making structures of local government, for example, can never be over-emphasised. The elected Council remains at the heart of local democracy, provided that, electoral competition is open and regular. However, the contact between municipalities and communities need not be limited to election and representation. On the contrary, increased citizen involvement will increase municipalities' ability to effectively shape viable human settlements. 
Strengths of democratic participation  Democratic participation in government enhances effective governance by: 
  • building human capital and strengthening democratic cultures in communities 
  • enhancing official responsiveness by enabling public interests to be clearly expressed by communities themselves 
  • promoting government legitimacy by ensuring transparency 
  • creating conditions for smooth policy implementation by facilitating an understanding of policy objectives and constraints, and incorporating citizen preferences and concerns into the design of policy programmes 
  • channelling independent energy, ideas and sometimes resources into civic projects, and 
  • improving citizens' knowledge of the governing processes and its constraints, and so fostering an understanding of the need for prioritisation. 
Many municipalities already promoting participation  Forms of participation
In one way or another, most South African municipalities already play a role in enhancing local democracy, predominantly through providing access to government, allowing for the oversight over municipal decisions, and consulting their constituencies on forms of development in their area. Many municipalities, either by law or by choice are already accustomed to: subjecting land use decisions (such as rezoning, township establishment and street closures) to public inspection and comment; giving public notice of loans, large investments, new by-laws, and amendments to rates for comment; opening budgets, financial statements and auditors reports for scrutiny; and allowing citizens to contest property evaluations. 
Participatory, consultative processes should be strengthened  It is also rare today for municipalities to engage in major infrastructural developments without first canvassing the opinions and inputs of community groups, usually through public meetings or more structured consultation processes, as in the development of Local Development Objectives. These forms of participation clearly need to be retained and strengthened. Mechanisms like Integrated Development Planning and participatory budgeting offer new opportunities in this regard. 
Involvement in service delivery  There are a range of opportunities to actively involve citizens and communities in service delivery programmes. Some good experience has already been gained in enlisting citizens in the regeneration or upgrading of their communities. 
Building culture of local democracy  Creative mechanisms to build a culture of local democracy and promote an understanding of how citizens can contribute to their governance of their own communities, such as the establishment of Youth Councils, should be encouraged. 
Encouraging enterprise for the public good  Lastly, municipalities may structure opportunities and incentives for citizens and communities to engage in entrepreneurial activities on their own behalf, which also benefit the public at large. Some mechanisms to enable local economic development, such as community development corporations, are good examples of this. 

Local Councils have a mandate to lead 

 Structuring participation
Structuring mechanisms to ensure meaningful democratic participation is not easy. In the absence of an appreciation that municipal Councils, as the only body elected by all local citizens and representative of all local interests, have the legitimate right to take decisions on behalf of the community, there is a danger that participatory processes may undermine the representative role of elected councillors. 
Managing the diversity of communities  Managing participation is always time consuming and costly, and participation often opens or deepens community splits and tensions. Municipalities should bear in mind the following principles when structuring participative processes: 
  • civil society is not homogenous, and any participatory process should recognise the divisions and unequal power relations between those it seeks to involve 
  • the most marginalised groups are often those who have the least capacity to participate. Investment in the provision of information and logistical support is often a prerequisite for participation by marginalised groups 
  • democracy is in an interactive process, and participatory processes themselves provide a way of building capacity for deeper participation, and 
  • the way in which participatory processes are structured influences the outcomes of such processes. Municipalities should therefore seek to design processes and structures for participation in consultation with stakeholder groups 
Changes in management to meet challenge of local democracy  Successful initiatives to promote democratic participation require both political commitment and a fundamental shift in the internal management of municipalities. Decision making structures and administrations designed to provide and maintain standard services in standard ways are usually hierarchical and rule bound. Municipalities which seek to enhance democratic participation within their communities need to enhance democratic participation within their organisations. 
  6. TRADITIONAL LEADERS

Traditional leaders can play an important role in building local democracy, particularly within rural areas. 

The Constitutional position 

 The role of traditional leaders
The Constitution recognises traditional leadership and authorities as an institution and acknowledges their status and role as defined by customary law. The Constitution also accords traditional leadership at the local level a role on matters affecting local communities, the details of which are left to national legislation. Consultations to develop proposals in this regard are underway. 
Some key issues  Some of the critical issues which have emerged during consultation, and which require further consideration, are: 
  • There is often confusion and misunderstanding regarding the roles and functions of elected councillors and traditional leaders, particularly with respect to the delivery of services. Further clarification is required. 
  • Some traditional authorities and municipalities lack infrastructure, capacity and funding. This places severe constraints on rural development initiatives. 
  • Tension between municipal councils and traditional leaders often arises around land. Tenure systems (eg, long-term leases for which individuals and groups can apply) and land administration systems which serve the dual function of meeting development priorities and accommodating the interests of traditional authorities are urgently required. One option, currently being considered by the Department of Land Affairs (DLA), is the joint representation of both traditional leaders and elected councillors (together with other roleplayers, including a representative from the DLA) on statutory land boards at a primary and district level. Among other things, land boards could consider applications for leases, and for the release of land for development. 
  • There is often a lack of effective day to day communication between municipal councils and traditional authorities. Mechanisms must be created and maintained to enable traditional leadership and municipalities to act jointly on issues of common concern, and for communication between the two to be enhanced. 
Relationship between municipalities and traditional authorities  Within the framework of the Constitution, municipalities and traditional authorities have some similar statutory powers and functions, and share much the same area of jurisdiction and constituency. It is therefore vital that the relationship between municipalities and traditional authorities be organised in a way that will allow both institutions to fulfil their constitutional mandates, and contribute effectively to rural development. 
Options require further consultation  To ensure a mutually satisfactory relationship between municipalities and traditional authorities, various tentative models have been proposed specifically by the Houses of Traditional leaders. The proposals vary greatly. For example, one suggests that elected councillors should be co-opted to serve on traditional councils / structures which are already in place, and that no additional rural municipalities are created. Another proposes a role for traditional leaders in municipal councils, whereby two traditional leaders are appointed to serve on each municipal council. Further consultation on these and other proposals is required.

 
 

Election process and allocation of votes to seats 

7. MUNICIPAL ELECTIONS 

Regular, free and fair municipal elections are central to the establishment of strong and credible local government. A democratic system of local government requires an appropriate framework for municipal elections. There are two imperatives for municipal elections: 
  • There must be a structured elections process which provides for the efficient management of free, fair and regular polls as and when required. 
  • There must be an appropriate electoral system which provides a format for allocating votes to seats in a way which supports, rather than detracts from, the purpose invested in a particular structure of government. 

Electoral Commission 

 Management and conduct of elections
The Constitution establishes an Electoral Commission which is required to manage elections of national, provincial and municipal legislative bodies in accordance with national legislation; to ensure those elections are free and fair; and to declare the results. The Commission has been given detailed and extensive functions for these purposes in terms of the Electoral Commissions Act of 1996. 
What role for municipal officials and resources?  Municipalities have no direct legislative authority or responsibility for the management or conduct of municipal elections after 30 April 1999. However, the Commission may appoint 'a public administration', including municipal officials, to conduct elections. The issue of whether or how municipal officials and resources should be made available to the Commission for the conduct of elections is not legislatively established, and must still be discussed between the Commission and relevant local government role players. 
National legislation  Before municipal elections can be held, national legislation is required to establish criteria or procedures for several matters relating to municipal elections. National legislation is required to fix: 
  • the term of office of a municipal council (the period of time for which a municipal council is elected) 
  • when a new municipal council must be elected to replace it, and 
  • to identify a procedure for calling and setting a date or dates for the election. 
Simultaneous or staggered elections?  Consideration should be given to the issue of whether municipal elections occur on the same day as national and provincial elections. The advantages of simultaneous elections include costs savings and less disruption of government activity. The disadvantage of holding simultaneous elections is that municipal elections may become a plebiscite (vote) on the performance of majority parties in national and provincial government. This disadvantage may be minimised if parties were required to draw up a municipal-specific election manifesto. 
  Electoral Systems
The electoral system establishes the kind of election, the number of seats, the size of electoral districts, the electoral formula, the term of office, and so forth. These matters have an effect on local democracy and the way in which councillors and a municipal council relate to constituencies and conduct business. The choice of an electoral system should be guided by the main purpose which such a system is aiming to achieve (for example, representivity, accountability and election simplicity). 
Representivity and accountability  The present South African municipal electoral system is based on a parallel system of proportional representation and first-past-the-post-ward candidature. This ensures elements of representivity (the proportional matching of some council seats with votes cast) and accountability (the responsiveness of individual councillors to a particular ward). 

The dual values of representivity and accountability should both be enhanced in any future electoral arrangements. With the possible exception of very small towns, neither a system of pure proportional representation which does not concentrate responsiveness and accountability of any representative to a particular geographic base, nor pure first-past-the-post in which proper representivity is ignored enhances both representivity and accountability. A mixed (rather than parallel) system which combines proportionality with a specific geographic base seems to provide the best solution. 

For example: 

  • a ward based PR system, in which all councillors are elected by name and party from wards according to first-past-the-post, and any PR discrepancy is corrected by 'topping up' with additional councillors from wards, or 
  • Mixed Member Proportionality in which a number of councillors is elected by name and party from wards according to first-past-the-post, plus a number from party lists to make up any discrepancy. 
An alternative is that the 60:40 ward to PR ratio should be adjusted. 

The system must also incorporate principles and factors relating to gender; thresholds; the nature of party lists; and the number of councillors. 

Decisions on appropriate electoral systems cannot be finalised until there is clarity on the choice of categories and types of municipalities. 

Concluding comment 

Democratic and developmental local government requires regular and free elections and appropriate political structures and committee systems. Local government should 

enhance democratic participation both within its institutions and within the community, 

and develop sound relations with traditional leadership. In order to empower municipal councillors to play an effective role in building local democracy, the number of municipal councillors should be reduced. 
 

SECTION F 

ADMINISTRATIVE SYSTEMS 
 

1. INTRODUCTION 

Transformation towards a municipal system empowered to play a developmental role, meet the needs of local communities, and promote socio-economic prosperity hinges on the way on which in which municipal administrations are organised. 
Old system a barrier to developmental governance  In the past municipal administrative organisation has too often acted as a constraint or barrier to innovative delivery, democratic initiatives, integrated development and accountable administration. The administration has been conceptualised as a neutral machine, to be controlled and managed through rigid and top-down procedures, which have hindered responsiveness, stifled initiative, and deskilled and disempowered the workforce. 
Reskilling of front-line workers to promote co-operation with community  In many old municipal administrations, hierarchical grading systems and narrow job definitions deskilled jobs at the front-line level (the personnel who interact directly with the public), and training was mainly targeted at a small elite at the top of the organisation. This needs to change. Front-line workers interact with the community and end-users of services on a daily basis. As such, they need to be empowered to provide information, services and advice to the community. The front-line needs to be reskilled, and encouraged to play a more active role in building cooperative relations between municipalities and communities. 
A new mind set, a new approach  Real transformation is linked to qualitative rather than simply quantitative changes regarding the working practices, strategic approaches, performance, leadership and organisational culture of municipalities. 
 

2. ORGANISATIONAL TRANSFORMATION 
Innovations to meet local needs  There are a range of options and municipal 'organisational models' which have emerged around the world. Within a framework which provides for integrated delivery, accountability, performance enhancement and monitoring, capacity-building and shared learning, municipalities should explore innovative institutional arrangements which best meet the needs of their localities. 
Some models for consideration  An overview of some organisational models is provided here to stimulate discussions within municipalities about appropriate organisational structures: 
 

A "neutral", hierarchical bureaucracy 

 Traditional Public Administration: 

The traditional public administration model is based on the idea of a 'neutral' bureaucracy (that is "non-political"). It is assumed that the process of turning policy directives into programmes, and implementing the programmes, involves a set of rational scientific management techniques. Hierarchical (top-down) accountability and detailed job descriptions are used as control mechanisms to ensure that the administrative machinery functions 'rationally'. This assumption of a rational process does not take account of differing interests within the bureaucracy or the complex policy environment in which the administration operates. 
Departmentalism hinders integrated development and deskills front-line workers  The traditional public administration model is characterised by strong, separate departments and committees, loosely co-ordinated by a Chief Executive Officer (who is likely to have a legal training) and some form of Executive Committee. This tends to disperse power away from the centre of the municipality into the hands of heads of departments and Chairs of Committees. This results in strong departmentalism with little interdepartmental co-ordination. Given that development projects often require close co-ordination across departmental lines, this model is unlikely to prove 'development-friendly'. Further, strong departmentalism often tends to foster empire-building. Departments themselves are hierarchically structured, which results in the deskilling of jobs in the lower tiers of the hierarchy, and the consequent disempowerment of the front-line workforce. 

Decision-making power concentrated in hands of professional "experts" 

 Corporate Management:
The corporate management approach recognises that the administration is not a neutral machine, and argues that, given that there will always be an element of bureaucratic discretion (choice) in implementing and interpreting policy, this discretion is best safe-guarded in the hands of qualified personnel or 'impartial experts', who possess both proven expertise, and a code of professional ethics. The idea here is that professionals are able to monitor one another through peer review, and it is therefore possible to reduce rigid bureaucratic controls as horizontal accountability (between professionals) supplements hierarchical accountability. This approach does not exclude 'consultation' with end-users (the public), but emphasises that final decision-making power should rest with professionals who are 'neutral' and capable of 'value-free' judgements (free of prejudice). 
Tends to exclude civil society participation  This model is characterised by the centralisation of political and managerial power behind corporate rather than departmental objectives. Departments and committees are brought under a strong Policy (or combined policy and finance) Committee. Overall authority rests with one Chief Executive, who has final decision making power. The CEO is likely to have a financial training, and focus the organisation on outputs which reflect 'value for money'. Management techniques will include rational and scientific management (for example, critical path analysis, measurement of performance by outputs, etc.). While this approach results in upgrading of public sector skills, it concentrates power in the hands of technocrats (a professional elite), and allows little room for civil society bodies to participate in governance. 

Privatisation, competition, contracts 

 The Commercial contractor:
The contracting model argues that if the state allocates public goods on a centralised basis, clients or consumers of services have minimal control over the quality, quantity and manner in which services are delivered. Because the state has a monopoly over the provision of basic services, consumers have little power to negotiate over quality, quantity and price. It is argued that the most effective way in which consumer control can be increased is through creating a competitive arena, that is, providing consumers with a choice of service providers. This choice is institutionalised in markets, through privatisation of services or the simulation of market conditions in the bureaucracy. The ultimate market instrument, the contract, is used to regulate the relationship between service providers and purchasers. 
Over-emphasis on price?  In organisational terms, line departments are often dismantled and the administration organised into competing delivery units. This model splits the organisation into purchasers of services and providers of services. It creates devolved cost centres and stand-alone business units which compete for business in both internal (within the organisation) and external markets. The commercial contractor model may be criticised for reducing the measure of public service to a preoccupation with price, and reducing accountability to a contractually-regulated transaction. 

Power centred in elected councillors, many options for service delivery, increased community participation 

 The Strategic management model:
The strategic approach is about developing a clear strategic focus. Organisationally, this approach is eclectic (draws from many different experiences and approaches). It makes use of a range of service delivery options, provided that they meet the needs of the municipality and community. Central concerns include shifting power to elected councillors; challenging departmentalism through establishing project-based task teams (which may comprise a combination of management, unions, end-users, community representatives; and other delivery agents and cuts across departments); reducing the need for layers of middle management and detailed operational regulations, and increasing the capacity of civil society to participate in decision-making. 
Strong centre to drive strategy, front-line enhanced, partnerships possible  The strategic approach recognises the need for a strong centre in order to plan strategically, and perform functions such as programming outputs, auditing standards and monitoring the impact and quality of programmes. A strategic centre can include both councillors and officials. While it may take the form of a municipal committee, its focus should not be limited to any one sector/function; and it should not become responsible for managing the daily operations of the municipality. (It could potentially be linked to and supported by the unit/ committee responsible for consolidating Integrated Development Plans (IDPs).) A strong centre and clear set of measurable outputs allows for the devolution of operational power to the front-line. If capacitated and empowered, front-line staff can utilise the considerable knowledge and expertise of those who actually perform delivery functions to enhance effective operations. A range of partnerships with community, private sector and other government agencies could be considered. 
  3. HUMAN RESOURCE DEVELOPMENT 
  Municipalities should develop an integrated Human Resource Development (HRD) strategy, which includes capacity building, training, staffing, and labour relations. 
 

Councillors have a wide range of skills requirements 

Capacity-building 

For elected officials: Councillors are often faced with a bewildering array of tasks, each requiring different skills. They interact with business, community interest groups, the media, organised labour and municipal staff. They facilitate community consultation processes, develop policy on a wide range of issues, oversee the implementation of a range of programmes, and provide leadership, mediation and conflict-resolution. Capacity-building and support are essential if councillors are to play their many roles effectively, and promote democracy within the community and within the organisation. 
Councils have a role to develop capacity in communities  Within communities: Municipalities also have a role in developing the capacity of the community. Programmes can range from civic awareness around a specific issue (eg, environmental protection, human rights) to programmes which enable communities to engage more effectively with the municipality (eg, information and training on tendering procedures to small contractors) or use services more efficiently (eg, water conservation). Municipalities could enhance civic awareness through developing outreach programmes in local schools, churches and other community forums. 
Targeted skills training and support for staff  For delivery: Many municipalities, particularly within rural areas, currently lack sufficient skilled staff. Training programmes needs to be targeted at meeting these skills shortages. Innovative ways of bridging skills gaps should also be considered. For example, in some areas District Councils are already providing treasury and other services to towns within their areas of jurisdiction. 

Strategies, and procedures, including affirmative action 

 Staffing
Municipalities should develop information systems which facilitate both career development for individual staff members, and a staffing strategy for the municipality. Staffing strategies, recruitment and selection procedures, and career advancement procedures, should be guided by a clear affirmative action policy, which includes a gender component. 
Human resources management  Job-evaluation systems, performance management systems and other human resources management systems should support the career development and progression plans put forward in the staffing strategy. 

National Bargaining Council 

 Labour Relations
Municipal labour relations are conducted between individual municipal councils or municipal employer associations and organised labour. Over the past years the old system of labour relations has been restructured, and a new National Bargaining Council for local government has recently been established. 
Urgent issues of parity and grading  The transition process has resulted in several issues which require urgent attention within a system of municipal labour relations. The new National Bargaining Council 

provides a mechanism to set in place a viable system of municipal labour relations, and tackle the outstanding issues of: 

  • calculating the cost implications of achieving employee parity in conditions of service (same conditions for same work), and negotiating phased programmes with clear time-scales to achieve parity, and 
  • developing a new occupational grading system for local government which compliments new training systems and strategies, and increases opportunities for staff mobility between municipalities and between sectors. 
In order to operate effectively as a national collective bargaining structure, some form of grading of municipalities is required for use in the National Bargaining Council. 
 

Requirements of developmental LG 

Training 

Developmental local government requires new skills and attitudes. Municipalities are therefore faced with an entirely new human resources development challenge, and the training system should be restructured to meet this. 
Existing system  The existing training system is governed by the Local Government Training Act of 1985, and the Manpower Training Act of 1981. Two training boards exist in terms of this legislation, namely the Training Board for Local Government Bodies (TBLGB) and the Local Government Education and Training Board (LGETB). The TBLGB is funded predominantly from grants from national government (R8 million for the 1997/98 financial year), and a levy imposed on municipalities. In terms of the Manpower Training Act, a levy is also imposed on municipalities and payable to the LGETB. 
Existing system  Over many years problems have been experienced with the fragmented local government training sector and the financial burden on municipalities brought about by the two levy systems. These problems are beginning to be addressed. It is envisaged that the Manpower Training Act will be repealed when the Skills Development Act is passed. This will result in the abolition of the LGETB. Consensus has also been reached by Organised Local Government and Organised Labour that the TBLGB should also be abolished. 
New standards-based system linked to SAQA/ NQF  A new local government training system will be established. It is envisaged that local government will establish itself as a Sector Education and Training Authority under the new Skills Development Bill. This would also involve submitting to the South African Qualifications Authority to be recognised as an Education and Training Quality Assurer. This will enable local government to participate in national standard setting and quality assurance procedures. 
Quality assurance - training providers separate from quality assurers  Both the South African Qualifications Authority Act and Skills Development Strategy Bill are adamant that quality cannot be guaranteed if a provider of training is also a quality assurer. This sound principle is taken further in the Skills Development Bill which proposes that competition between providers enhances programme quality and relevance. This implies that local government, assisted by its Sector Education and Training Authority, should develop a training plan, which would then be put up for competitive tender to universities, technikons and private contractors. 
National data base to identify skills needs  The establishment of a Sector Education and Training Authority will also assist municipalities with planning to meet their staffing needs. The Skills Development Strategy envisages Sector Education and Training Authorities establishing a national data base of skills trends and sectional labour market skill projections. Local government could both add to such a system and benefit from it. Its information on skills needs could inform institutions such as universities making decisions about where to allocate their resources, and it could learn from others about anticipated shifts in skill needs which may affect it. 

Concluding Comment 

Administrative systems either advance, or hinder, the cause of developmental local government. There is no one ideal administrative model. Each municipality will need to develop an administrative system which is geared to meet its specific needs, and empowers it to play a developmental role. Within any administrative system, integrated human resource development strategies and programmes are essential to support the new vision of local government. 
 
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