STRATEGY

ON THE PROVISION OF

TARGETED SUPPORT TO

DEPARTMENTS

by

Department of Public Service

and Administration

2

TABLE OF CONTENTS

Section Page

1. Introduction.......................................................................................................4

2. Problem Statement...........................................................................................4

3. Main Goals for providing targeted support........................................................5

4. Key Objectives for providing targeted support..................................................5

5. Legislative Mandate..........................................................................................6

6. Policy Context...................................................................................................7

7. Definitions.........................................................................................................9

8. Model for Providing Targeted Support............................................................10

9. Coordinating Structures for Targeted Support................................................15

10. Conclusion......................................................................................................17

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ACROYMNS AND GLOSSARY

AG – Auditor-General

D: GI – Directorate: Government Interventions

DPME – Department of Planning Monitoring and Evaluation

DPSA – Department of Public Service and Administration

EXCO – Executive Committee

HOD – Head of Department

HR – Human Resource

ICT – Information and Communication Technology

MANCO – Management Committee

MOU – Memorandum of Understanding

MPAT – Management Performance Assessment Tool

MPSA – Minister for Public Service and Administration

MTSF – Medium-Term Strategic Framework

NDP – National Development Plan

NT – National Treasury

PMDS – Performance Management and Development System

PSA – Public Service Act

PSC – Public Service Commission

SMS – Senior Management Service

Department – refers to the Department of Public Service and

Administration

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1. INTRODUCTION

1.1. This document provides a strategy for the provision of targeted support to non-

compliant government departments. The Medium-Term Strategic Framework

(MTSF) of government for 2014 – 2019, approved by Cabinet on 23 July 2014,

puts an emphasis that the Department of Public Service and Administration

(DPSA) needs to ‘develop mechanisms to help departments strengthen their

internal Human Resource Capacity’.

1.2. The 2013 Management Performance Assessment Tool (MPAT) results suggest

that Human Resource Capacity is not the only challenge that confronts the

functionality of government departments. The MPAT results highlight

challenges in other management standards such as Service Delivery

Improvement Plans, organisational design, management of discipline and

diversity management. All these policy areas stated above fall within the

mandate of the Minister for Public Service and Administration (MPSA).

1.3. The Strategy is developed by the DPSA to coordinate targeted support to non-

compliant government departments in line with the mandate of the MPSA

outlined in section 3 (6) of the Public Service Act, 1994 as amended by the

Public Service Amendment Act 30 of 2007. This is also a direct response to the

weakness in government departments that have also been raised by the Public

Service Commission and Auditor-General (AG) in their reports.

1.4. The Strategy will also seek to provide hands-on support to improve actual

delivery of services to our people; and proactively support departments resolve

areas of weaknesses and non-complaint.

1.5. However, it should be noted that although the DPSA will provide hands –on

support to departments, individual departments are still ultimately responsible

for the effective and efficient functioning of their internal human resources

including to ensure full compliance with regulatory prescripts.

2. PROBLEM STATEMENT

2.1. The findings from the 2013 MPAT Report indicate that a number of government

departments are not complying with the basic regulatory standards and

prescripts contained in various regulations and Directives governing the

functioning of the Public Service.

2.2. The 2013 MPAT Report shows, for example, that 65% of departments were

assessed as non-compliant with a standard related to organisational design;

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82% with a standard related to human resource planning; 90% with a standard

related to management of disciplinary cases; 70% with a standard for service

delivery improvement and; 98% with a standard related to diversity

management.

2.3. In a large percentage cases, government departments do not comply with

Directives and Circulars issued by the DPSA because of the lack of

understanding and sometimes with poor expertise to internalise and

implement. Other challenges relate to the lack of adequate capacity, proper

delegations and consequences for failure to implement policies.

2.4. On the other hand, the DPSA recognises the fact that government will not be

able to achieve its developmental goals if the back-office systems are not

functioning optimally, hence the need to provide targeted support to

departments has been identified.

2.5. The findings indicated above from the 2013 MPAT Report are clear sign that

government departments are not where they are supposed to be and that there

is a need for urgent steps to improve compliance rate. This strategy seeks to

provide the solution to these challenges by changing the way government

works.

3. MAIN GOALS FOR PROVIDING TARGETED SUPPORT

3.1. The main goals for developing the strategy on the provision of targeted support

to departments is to achieve the following:

a) Improved compliance and adherence to the provisions of the legislation,

Directives and Circulars issued by the Department.

b) Reduced audit findings on human resource management issues and other

related policy areas.

c) Improved functionality of government departments to deliver on their

mandate and provision of services to the general public.

4. KEY OBJECTIVES FOR PROVIDING TARGETED SUPPORT

4.1. To provide mechanisms and a platform for providing both professional and

administrative support to departments in order to improve compliance with

basic and minimum regulatory requirements contained in the legislation and in

various Directives and Circulars issued by the DPSA.

4.2. To enable government departments to fulfil their obligations and to deliver on

the Programme of Action of government outlined in the Medium-Term Strategic

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Framework, State of the Nation Address delivered by the President of the

Republic of South Africa and the National Development Plan-Vision 2030

4.3. To ensure that government departments improve performance through

continuous monitoring and evaluation.

4.4. To ensure Improved Service Delivery by government departments and

improved confidence in the manner in which government services are rendered

to the public.

5. LEGISLATIVE MANDATE

5.1. The strategy for the provision of targeted support is premised on the legislative

mandate of the Minister for the Public Service and Administration as stated in

section 195 (1) of the Constitution of the Republic of South Africa and section

3 of the Public Service Act, 1994 as amended by Public Service Amendment

Act 30 of 2007.

5.2. According to Chapter 10 (section 195[1]) of the Constitution of the Republic,

Public Administration must be governed by the democratic values and

principles enshrined in the Constitution, including the following principles:

a) A high standard of professional ethics must be promoted and

maintained;

b) Efficient, economic and effective use of resources must be promoted;

c) Public administration must be development –oriented;

d) Services must be provided impartially, fairly, equitably and without bias;

e) People’s needs must be responded to, and the public must be

encouraged to participate in policy making;

f) Public administration must be accountable;

g) Transparency must be fostered by providing the public with timely,

accessible and accurate information;

h) Good human-resources management and career-development

practices, to examine human potential, must be cultivated; and

i) Public administration must be broadly representative of the South

African people, with employment and personnel management practices

based on ability, objectivity, fairness, and the need to redress the

imbalances of the past to achieve broad representation.

5.3. In terms section 3 (1) of the Public Service Act (PSA) of 1994, as amended, the

Minister for the Public Service and Administration is responsible for establishing

norms and standards relating to;

a) The functions of the public service;

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b) Organisational structures and establishments of departments and

other organisational and governance arrangements in the public

service;

c) Labour relations, conditions of service and other employment

practices for employees;

d) The Health and wellness of employees;

e) Information management ;

f) Electronic government in the public service;

g) Integrity, ethics, conduct and anti-corruption; and

h) Transformation, reform, innovation and any other matter to improve

the effectiveness and efficiency of the public service and its service

delivery to the public.

5.4. Section 3 (6) (a) of the Public Service Act states that “If so requested by the

President or an executive authority, the Minister may advise, or assist in such

manner or on such conditions as the Minister may determine, the President or

the relevant executive authority as to any matter relating to the public service.

6. POLICY CONTEXT

6.1. Medium Term Strategic Framework

6.1.1. On 23 July 2014, the Cabinet approved the Medium Term Strategic Framework

(MTSF) of Government for 2014 – 2019. The MTSF is derived from the National

Development Plan (NDP) which is a national plan and vision for the country for

2030. The MTSF for 2014 – 2019 is the first building block towards the

implementation of the NDP which was adopted overwhelming by all political

parties represented in the National Assembly of Parliament on 15 August 2014.

6.1.2. The MTSF has 14 Outcomes to be achieved by government by 2019. The 14

Outcomes are as follows:

1. Quality Basic Education

2. A long and healthy life for all South Africans

3. All people in South Africa are and feel safe

4. Decent employment through inclusive growth

5. A skilled and capable workforce to support an inclusive growth path

6. An efficient, competitive and responsive economic infrastructure network

7. Vibrant, equitable, sustainable rural communities contributing towards

security for all

8. Sustainable human settlements and improved quality of household life

9. Responsive, accountable, effective and efficient local government

10. Protect and enhance our environmental assets and natural resources

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11. Create a better South Africa and contribute to a better Africa and a better

world

12. An efficient, effective and development oriented Public Service

13. A comprehensive, responsive and sustainable social protection system

14. A diverse, socially cohesive society with a common national identity

6.1.3. The Minister for the Public Service and Administration is responsible for leading

the implementation of Outcome 12: An efficient, effective and development

oriented Public Service. The chapter on Outcome 12 has 8 sub-outcomes and

they are as follows:

a) A stable political-administrative interface

b) A public service that is a career of choice

c) Efficient and effective management and operations systems

d) Procurement systems that deliver value for money

e) Increased responsiveness of public servants and accountability to

citizens

f) Improved inter-departmental coordination and institutionalisation of long-

term planning

g) Improved mechanisms to promote ethical behaviour in the public service

6.1.4. The strategy for targeted support to non-compliant government departments is

a direct response to the need raised in the MTSF under sub-outcome 2: A public

service that is a career of choice. The DPSA is required to develop mechanism

to strengthen internal capacity of government departments for Human

Resource Management.

6.1.5. However, as indicated above the Public Service is also confronting challenges

in other policy areas that falls within the mandate of the MPSA which include

organisational design, discipline management, diversity management, service

delivery improvement plan, Batho Pele programmes, etc. As a result, this

strategy attempts to provide a holistic approach to resolve all the challenges

mentioned above.

6.2. Management Performance Assessment Tool

6.2.1. It is important that this document reflects on the role of the Management

Performance Assessment Tool (MPAT) as the strategy attempts to address

most of the non-compliant issues raised in the 2013 MPAT results. The MPAT

has five Key Performance Areas and of the five, two relates to the work of the

Department and they are: Governance and Accountability (Service delivery

charter, standards and SDIP; Assessment of policies and systems to ensure

professional ethics; Fraud prevention; and Corporate governance of ICT);

Human Resource Management (HR Planning; Organisational Design;

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Assessment of HRD; Application of recruitment and retention strategies;

Management of Diversity; Employee Wellness; Delegations; Implementation of

levels 1-2 PMDS; Implementation of SMS PMDS; Implementation of SMS

PMDS for HODs; and Management of Disciplinary Cases).

6.2.2. With regard to hands-on support that will be initiated by the Department, the

source for identifying government departments that require targeted support will

be MPAT Report. Other critical sources such as Audit Reports from the Auditor-

General and research reports from the Public Service Commission will be used.

7. DEFINITIONS

7.1. Targeted support – A situation where the DPSA will provide hands on support

to a specific department to resolve a specific area of non-compliance. Hands

on support will include guiding a specific department step by step on how to

address a problem at hand until it is resolved. This support will be provided

either at the request of a specific department or the DPSA initiated request for

a short to medium term period.

7.2. Non-compliant department – A government department that scores a total

of less than 50 per cent on performance areas and standards in the

Management Performance Assessment Tool (MPAT). The total score will be

calculated on the standards that fall under MPAT key performance areas

Governance and Accountability and; Human Resource Management which fall

under the mandate of the MPSA.

8. MODEL FOR PROVIDING TARGETED SUPPORT

8.1. The diagram in Figure 1 illustrates a high-level model for providing targeted

support to non-compliant departments by the Department. The model is

premised on four main pillars, namely: Initiation, Planning and Development,

Implementation and Closure.

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Figure 1: Framework for Providing Targeted Support

Pillar 1: Initiation

8.2. The first pillar: Initiation in Figure 1: Framework for Providing Targeted Support

illustrates three scenarios that can trigger a need to provide targeted support in

a particular government department. The first scenario is a Cabinet initiated

support which can be invoked as a prerogative of the National Executive.

8.3. The second scenario that can trigger a need for the provision of targeted

support is a pro-active request from individual departments. In terms of Section

3 (6) (a) “If so requested by the President or an executive authority , the Minister

for Public Service and Administration may advise, or assist in such a manner

or on such conditions as the Minister may determine, the President or the

relevant executive authority as to any matter”.

8.4. The Department will also be able to initiate the provision of the targeted support

to non-compliant departments as scenario three of the Framework. The DPSA

will be able to initiate the need to provide support in terms of section 3 (1) and

(2) of the Public Service Act, 1994. The Department will make use of reports

produced by government departments at the centre of government and

Initiation

• Cabinet initiated Support

• Pro-active request for support

• DPSA initiated support (MPAT, SD sites, etc.)

Planning & Dev.

• Diagnostic assessment

• Assembly multi-disciplinary team

• Develop support programme

• Develop Project Plans

• Sign MOU with recipients of support

Implementation

• Deploy multi-disciplinary team to identified departments

• Implement support programme developed for departments

Closure

• Close-out report on the support

• Continous monitoring of departments under support

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Constitutional Bodies to evaluate the need to provide targeted support to

departments.

8.5. Departments in the direst need of targeted support will be identified and a

maximum of 5 departments will be recommended per year. A letter will outline

an intention by the DPSA to provide targeted support on identified areas that

are the responsibility of the MPSA in terms of the Public Service Act and

Regulations. Affected departments will be offered assistance and will be free to

reject the offer.

Pillar 2: Planning and Development

8.6. The second pillar of the Framework for Providing Targeted Support focuses on

the planning aspect of the intervention or targeted support as well as

development of the necessary programme to address the challenges at hand.

There are four main activities which this pillar focuses on and they are as

follows:

a) Conduct diagnostic assessment

b) Assembling of a multi-disciplinary team

c) Develop tailor made interventions or support programmes

d) Develop Project Plans for providing support

e) Sign a memorandum of understanding with a recipient of support.

Figure 2: Integrated Planning and Development Phase

8.7. The first activity in the diagram indicated above as figure 2 is to conduct a

diagnostic assessment in the department that has been identified for targeted

support. The main reason for conducting diagnostic report is to understand

Diagnostic Assessment

Assembly Multi-disciplinary Team

Develop a tailored made intervention

Develop project plans

Sign memorandum of understanding

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underlying factors for non-compliance through a structured interview with

selected officials and completion of questionnaires. The analysis of the data

which would have been received will provide clear insight of the support that is

required.

8.8. The second activity of pillar two is about the assembling of the multi-disciplinary

intervention team from the relevant branches of the Department based on the

analysis of report mentioned above and other departments at the centre of

government and Constitutional Bodies.

8.9. The third major activity is to develop a tailor-made targeted support or

intervention programme for selected departments. The main objective with this

activity is to ensure that it is not business as usual. Branches of the Department

will be required to develop a short-term and very effective and efficient support

tools to provide support that yield maximum results in the short space of time.

This would be necessitated by the fact that the Department has limited human

resource which is required to provide both targeted support to departments

whilst also expected to carry on with daily operations as reflected in the Annual

Operational Plan and Strategic Plan of the Department.

8.10. The fourth activity under this pillar talks to the development of project plans for

the implementation of the targeted support programme. This is to ensure that

all that is meant to be implemented is implemented by the relevant individuals

in the Department and on time.

8.11. Lastly, the Director-General of the Department will need to sign a Memorandum

of Understanding (MOU) with a recipient department. The main purpose of the

MOU is to ensure that there is an agreement that binds two departments on the

activities, time-frames and deliverables that must accomplished at the end of

the targeted support.

8.12. All of the above activities to be finalised following an interactive process and

with the full co-operation of the affected department.

Pillar 3: Implementation

8.13. The third pillar: Implementation is meant to ensure that multi-disciplinary teams

from different branches of the DPSA are deployed to non-compliant

departments and institutions to implement targeted support programme that

has been developed in consultation with the affected department. It is

envisaged that all targeted support programmes initiated by the Department

should not take more than 3 months to complete.

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8.14. This stage will be implemented in various forms depending on the challenges

on the ground. In most instances, the Department will visit the recipient

departments and provide step by step assistance or guide in terms of

developing and implement policies or processes that are required. This could

mean that, in other instances, the multi-disciplinary team would have to spend

one to two weeks in the targeted department for support. In other instances, a

day or two will be sufficient to conduct a workshop with a group of affected

departments.

8.15. This activity also requires that the Department avails the most competent and

experienced employees of the Department for deployment to address all the

identified challenges in the selected departments. This exercise will also need

to be used as a mechanism to build and expand internal capacity to provide

targeted support by ensuring most of the employees of the Department get

exposure to targeted support or interventions.

8.16. During this stage, it will also be important to draw in departments that are

performing exceptionally well in policy areas or processes for which a targeted

support programme is intended. In a case of a province, it may also be useful

to foster peer learning and sharing of good practice within a policy area or

processes that have been endorsed by the Department. This will ensure that

employees of the Department do not spend too much time travelling to

provinces.

8.17. The Executive Committee (EXCO) of the Department will from time to time be

given progress reports on the implementation of the targeted support

programme especially when major challenges are encountered.

8.18. Branches of the Department will need to budget for operational costs that will

be associated with targeted support to departments and where it becomes

necessary, the directorate: Government Interventions should be in the position

to assist.

8.19. A joint implementation committee consisting of the DPSA and recipient

department to be established to co-manage and oversee the work. The joint

implementation committee to meet at least forthnightly to ensure that all

indicators on the approved implementation plan are met.

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Pillar 4: Closure

8.20. The fourth pillar: Closure, focuses on two main deliverables. For each

department that will be provided with targeted support, a comprehensive close-

out report will be compiled to the Executive. Amongst others, the report will

reflect on the state of that department before and after the targeted support;

and interventions that were undertaken by the Department. The report will also

reflect on the challenges encountered and how they should addressed going

forward.

8.21. The close-out report will also contain recommendations on the steps that must

be taken by the recipient department to ensure long-term sustainability of the

improvements following the targeted support or interventions.

8.22. The DPSA will develop a monitoring and evaluation system to continuously

track performance and progress of the departments that were provided with

targeted support to ensure that improvements that have been achieved in

those departments are sustained.

9. COORDINATING STRUCTURES FOR TARGETED SUPPORT

9.1. It is a well-known fact that to successfully implement any multi-disciplinary

support programme or intervention, you need effective coordinating

mechanisms. This is particularly important because the targeted support cuts

across the Public Service and requires collaboration from all branches of the

Department.

9.2. The coordinating structures that are proposed for the coordination of targeted

support to non-compliant departments are as follows:

a) Executive Committee

b) Steering Committee on Interventions

c) Individual Project teams

d) Directorate: Government Interventions

9.3. The composition, roles and responsibilities of the coordinating structures for the

targeted support initiative is as follows:

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Coordinating

Structure(s)

Composition Roles and Responsibilities

Executive

Committee

(EXCO)

DG and the

Executive

Provide strategic direction and

support to interventions and

targeted support initiatives

Steering

Committee on

Interventions

D: Government

Interventions and

representatives

from branches

Develop a department-wide

programme for targeted support

or interventions.

Coordinate and oversee

operations for targeted support

and interventions in non-

complaint departments

Individual Project

Teams

Relevant Staff

from Branches

Implement project plans on the

ground.

Ensure that all issues agreed on

the MOU with recipient

departments are done.

Provide progress report on the

implementation of targeted

support to Departments.

Directorate:

Government

Interventions

Staff Analyse reports produced by

DPSA and other central

departments on government

performance

Facilitate the development of a

multi-disciplinary support

programmes for intervention

Development and monitoring of

project plans (project

management and reporting to

Steercom)

Monitor and prepare progress

reports to Cabinet on

interventions and targeted

support to poor performing

departments

Provide secretariat services to

the Steering Committee and

manage day-to-day activities for

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Coordinating

Structure(s)

Composition Roles and Responsibilities

targeted support and

interventions

9.4. The MPSA is a very important stakeholder in this strategy because this initiative

emanates from the Medium Term Strategic Framework of government (2014 –

2019); and Outcome 12, an outcome that the Minister is responsible for leading

and implementing.

9.5. As part of implementing Outcome 12, the Minister will be responsible for

providing political direction and oversight to the strategy for providing targeted

support. The Minister will also play a major role during the initiation and closure

of some of the targeted support and interventions programme that are directed

by Cabinet. Progress reports on the implementation of targeted support and

interventions will be tabled to Cabinet through the Minister at least once a year.

9.6. Although not mentioned above, the Management Committee (MANCO) of the Department will also play a key role in this strategy. It is expected that senior managers, who are members MANCO, will avail themselves to assist in unblocking challenges in selected non-compliant departments as part of providing targeted support. As it is the norm in the Department, project proposals and progress reports from targeted support and intervention initiatives will be presented at MANCO meetings for considerations.

10. CONCLUSION

10.1. After a targeted support, the Department will need to develop a close-out report

which will be presented to both the recipients of the support and Minister for

Public Service and Administration.

10.2. There will be a need, at regular intervals, to prepare a comprehensive progress

report to Cabinet on the targeted support work that is done by the Department.

10.3. The Directorate: Government Interventions will also be responsible for

conducting monitoring and evaluation on the departments where targeted

support was provided to assess progress.

10.4. Lastly, it should be noted that departments are ultimately responsible for the

effective and efficient functioning of their internal human resources including to

ensure full compliance with regulatory prescripts.

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References

South Africa (Republic). 1996. Constitution of the Republic of South Africa (Act

108 of 1996).Pretoria: Government Printers

South Africa (Republic). 1994. Public Service Act (Act 103 of 1994 as amended

Act 30 of 2007).Pretoria: Government Printers

South Africa (Republic). 2011. National Development Plan .Pretoria:

Government Printers

South Africa (Republic). 2014. Medium-Term Strategic Framework (2014 – 2019)

.Pretoria: Government Printers

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