DEPARTMENT OF

WATER AFFAIRS AND FORESTRY

CHALLENGES IN THE SECTORAL APPROACHES TO CHALLENGES IN THE SECTORAL APPROACHES TO PROGRAMME MANAGEMENTPROGRAMME MANAGEMENT

Case Study on Masibambane Water Services Sector Support Programme

Kalinga U Pelpola B Sc Eng,Pr Eng,C Eng, FICE,FWISAKalinga U Pelpola B Sc Eng,Pr Eng,C Eng, FICE,FWISA

Director: Water Services Support & Director: Water Services Support &

Programme Manager Masibambane WSSSPProgramme Manager Masibambane WSSSP

Department of Water Affairs and ForestryDepartment of Water Affairs and Forestry

PROJECT MANAGEMENT IN THE PUBLIC SECTOR 2003PROJECT MANAGEMENT IN THE PUBLIC SECTOR 200326 – 28 November 200326 – 28 November 2003

Park Hyatt HotelPark Hyatt Hotel

OUTLINE

• PrefacePreface

• ImperativesImperatives

• Challenges in the sectoral approach to programme Challenges in the sectoral approach to programme

managementmanagement

• Masibambane Water Services Sector Support Masibambane Water Services Sector Support

ProgrammeProgramme

• Moving into the FutureMoving into the Future

• ConclusionConclusion

OUTLINE

• Preface

• Imperatives

• Challenges in the sectoral approach to programme

management

• Masibambane Water Services Sector Support

Programme

• Moving into the Future

• Conclusion

POLITICAL IMPERATIVES POLITICAL IMPERATIVES Water and SanitationWater and Sanitation

• Community Water Supply Sanitation White Paper ‘94Community Water Supply Sanitation White Paper ‘94– Basic Water Supply 12m, Sanitation 21mBasic Water Supply 12m, Sanitation 21m– To be Achieved in 5-7 yearsTo be Achieved in 5-7 years

• Millennium development goals (MDG)Millennium development goals (MDG)– Halved Water backlog –2015, Sanitation backlog halved –2015Halved Water backlog –2015, Sanitation backlog halved –2015– Full coverage water & sanitation –2025Full coverage water & sanitation –2025

• What has been achievedWhat has been achieved– Water backlog halvedWater backlog halved :: 2001-14y ahead of MDG2001-14y ahead of MDG– Created job opportunitiesCreated job opportunities :: 375 000 375 000 – SpentSpent :: R7,0 billionR7,0 billion

• Water Globe Award – 2002 CWSS for most innovative Water Globe Award – 2002 CWSS for most innovative programme in the worldprogramme in the world

Water Globe Award 2002Water Globe Award 2002 Winning Programme CWSS Winning Programme CWSS

6th March 2002 Linz-Austria6th March 2002 Linz-Austria

PREFACEPREFACE

• Not an academic treatiseNot an academic treatise

• Lessons learnt over past 10 years on CWSS– with Lessons learnt over past 10 years on CWSS– with focus on 3 year Masibambane Programme experience focus on 3 year Masibambane Programme experience

• This is a practical understanding & analysis of Project This is a practical understanding & analysis of Project management principles applied in a Sector Wide management principles applied in a Sector Wide Approach (SWAP) Approach (SWAP)

• With greater scrutiny, comparative study & academic With greater scrutiny, comparative study & academic rigour rigour best practice in Programme Management best practice in Programme Management identifiedidentified for future multi-sectoral approaches in MIG for future multi-sectoral approaches in MIG

CLIMBING THE CLIMBING THE WATER WATER LADDERLADDER

BoTT

Masibambane R 3,2b/a for WS within R10b / a MIG Framework

R1,5 billion budget 2003/4

CWSS

All South Africans have access to safe water

14 million without safe water

5 million without safe water

2008

2004

1994

CONSTITUTIONAL IMPERATIVESCONSTITUTIONAL IMPERATIVESWater Services SectorWater Services Sector

• Cooperative governanceCooperative governance

• National Government responsible for Policy and National Government responsible for Policy and RegulationRegulation

• Local government responsible for Water servicesLocal government responsible for Water services

• Autonomous Local GovernmentAutonomous Local Government

• Right of access to Basic ServicesRight of access to Basic Services

LEGISLATIVE IMPERATIVESLEGISLATIVE IMPERATIVES

Enabling legislative environment for effective delegation

– Water Services Act, 108 of 1997– Public Finance Management Act 1 of 1999– Division of Revenue Act (DORA) –each finance year– Municipal Structures Act, 117 of 1998– Municipal Systems Act, 32 of 2000– Disaster Management Act, 57 of 2002– Municipal Finance Management Act, 2003– Employment Equity Act, 55 of 1998– Preferential Procurement Framework Act, 22 of 2000– White Paper on Municipal Services Partnerships, Notice 1689 of

2000

Defines Environment for Effective Programme Management

OUTLINE

• PrefacePreface

• ImperativesImperatives

• Challenges in the sectoral approach to Challenges in the sectoral approach to

programme managementprogramme management

• Masibambane Water Services Sector Support Masibambane Water Services Sector Support

ProgrammeProgramme

• Moving into the FutureMoving into the Future

• ConclusionConclusion

CHALLENGES IN THE SECTORAL APPROACH TO PROGRAMME MANAGEMENT

• Large sectoral development programmesLarge sectoral development programmes

• Tendency to operate in silos Tendency to operate in silos

• Cultural diversityCultural diversity

• Sector leadership & joint decision-makingSector leadership & joint decision-making

• Establishment of collaborative practicesEstablishment of collaborative practices

• Communication & sharing of informationCommunication & sharing of information

• Accountable without direct controlAccountable without direct control

• Planning and Project PrioritisationPlanning and Project Prioritisation

• Internal and external continuously changingInternal and external continuously changing

• Attract investment (Government & donor) to the sectorAttract investment (Government & donor) to the sector

COMMUNICATION

INTEGRATION

National

Provincial

Local

Institutional capacity

Decision-making

Multi-sectoralenvironment

Legislation

Political objectivesReal backlog

Investment plan

Funding mechanisms

Funding conditions

Donor requirements

Strategic objectives

Planning processes

Procurement

Implementationmechanisms

Geographical spread Stakeholders

Cultural diversity

Empowerment

Resources

CHALLENGES TO SECTORAL APPROACH

CHALLENGES TO SECTORAL APPROACHCHALLENGES TO SECTORAL APPROACH

• IntegrationIntegration– Strategic objectives– Funding mechanisms– Service delivery

• Leadership & decision-makingLeadership & decision-making

• Communication Communication & dissemination of information& dissemination of information

• Roles, responsibilities & accountabilityRoles, responsibilities & accountability

• Internal sectoral challengesInternal sectoral challenges

MEETING THE CHALLENGES OF SECTORAL APPROACH

• Key focus areas:Key focus areas:– Change managementChange management– IntegrationIntegration– ScopingScoping– Quality & riskQuality & risk– CommunicationCommunication

• Programme management approach based on:Programme management approach based on:– Best practiceBest practice– Robust FrameworkRobust Framework– RepeatabilityRepeatability– EmpowermentEmpowerment– Appropriate technologyAppropriate technology– Cross cutting issues (Gender, Civil Society,Environment etc)Cross cutting issues (Gender, Civil Society,Environment etc)

OUTLINE

• PrefacePreface

• ImperativesImperatives

• Challenges in the sectoral approach to programme Challenges in the sectoral approach to programme

managementmanagement

• Masibambane Water Services Sector Support

Programme

• Moving into the FutureMoving into the Future

• ConclusionConclusion

WHAT IS MASIBAMBANE?

• Multi-faceted sector support programme

• Multi-donor pooled funds included in government budget – phase 1 2001/2- 2003/4 -Cost R2.5billion

– phase 2 2004/5- 2006/7 -Estimated at R7.5 billion

• Implemented in a single Government run programme

• Managed by DWAF - responsible for delivery, financial accountability & reporting BUT owned by sector

• Not a separate programme, not a funding conduit - but …support to DWAF’s WS strategy and that of the sector

• Masibambane is a concept of sector collaboration to be taken forward by ALL!

WHAT IS SECTOR COLLABORATION?

• Closest is Cooperative Governance …..Closest is Cooperative Governance ….. butbut government only government only

• Collaboration is more voluntary for Collaboration is more voluntary for

mutual benefit mutual benefit

• Not about formal structuring – but about Not about formal structuring – but about workingworking together together

Masibambane = Let’s work togetherMasibambane = Let’s work together

4. Combating crime & corruption

2. Developing human resources

5. Transforming the State

6. Building a better Africa

1. Speeding delivery to meet

basis needsCABINET MEDIUM TERM STRATEGIC OBJECTIVESCABINET MEDIUM TERM STRATEGIC OBJECTIVES

3. Building the economy & creating jobs

Effective WSIs

Local level O&M & transfers

WS for economic & social development

Promote & support Africa’s MDGs

Basic WS services

Nation

al

workp

lan

STRATEGIC ALIGNMENT

Water Services SectorWater Services Sector

• DWAFDWAF

• DPLGDPLG

• SALGASALGA

• WSIsWSIs

• Local GovtLocal Govt

• NGO/CBOsNGO/CBOs

• Private Private SectorSector

• EtcEtc

WS WS Sector Sector StrategyStrategy

DWAFDWAF

Policy and RegulationPolicy and Regulation

OperationsOperations

Regional OfficesRegional Offices

DWAF WS DWAF WS StrategyStrategy

Masibambane Sector SupportMasibambane Sector Support

Content coordination Programme Management SupportContent coordination Programme Management Support

INTERNAL MASIBAMBANE ENVIRONMENT

WS Functional

Management Committee

Sector Strategic and Management Committees

COMPLEX INTER RELATIONSHIPSEXTERNAL ENVIRONMENT

CABINETCABINET

DWAF REGIONAL OFFICES

W.S. FUNCTIONALMANAGEMENT

COMMITTEE

PARLIAMENTPARLIAMENT

L.G. PORTFOLIO COMMITTEEL.G. PORTFOLIO COMMITTEE

N.C.O.P.N.C.O.P.

MINISTER - DWAF

L.G. MINMECL.G. MINMEC

MINISTER – EXEC COMMITTEE

MANCO

OPERATIONSBRANCH

POLICY & REGULATION

BRANCH

SUPPORT SERVICES BRANCH

W.S.SECTOR LEADERSHIP

GROUP

W.S.SECTOR LEADERSHIP

GROUP

NAT SANITATIONTASK TEAM

NAT SANITATIONTASK TEAM

MASIBAMBANECOORD CTTEEMASIBAMBANECOORD CTTEE

INTER-DEPTTRANSFER CTTEE

INTER-DEPTTRANSFER CTTEE

MINMEC

WATER RESOURCES WATER SERVICES

MINTECH

MINMEC

WATER RESOURCES WATER SERVICES

MINTECH

SOCIAL CLUSTERSOCIAL CLUSTER

PROVINCIAL LIAISON COMMITTEE

PROVINCIAL LIAISON COMMITTEE

SALGASALGA

PORTFOLIO COMMITTEEWater Affairs & Forestry

PORTFOLIO COMMITTEEWater Affairs & Forestry

SOCIAL CLUSTERTASK TEAM

FOSAD – DG’sFOSAD – DG’s

PLGAsPLGAs

DPLGDPLGDPLGDPLG

MITTMITT

IDPIDP

ISRDPISRDP

PROV DEPT of LGPROV DEPT of LG

PROJECT MANAGEMENT PRINCIPLES

SWAPSECTOR WIDE APPROACH

Best practiceEmpowerment

Appropriate technology

PMBOK “Back to the basics”

Programme Management

Plan DevelopmentPlan ExecutionChange Control

Integration Management

IT RequirementsIT PlanningIT UtilizationIT ReportingIT Maintenance

IT Management

InitiationScope PlanningScope DefinitionScope VerificationChange Control

Scope Management

Activity DefinitionActivity SequencingDuration EstimationSchedule Dev.Schedule Control

Time Management

Resource PlanningCost EstimationCost BudgetingCost Control

Cost Management

Quality PlanningQuality AssuranceQuality Control

Quality Management

Organizational PlanningTeam AcquisitionTeam Development

Human Resource Management

Communication PlanInfo. DistributionPerformance ReportsAdmin. Closure

Communications Management

Risk IdentificationRisk QuantificationResponse DevelopmentResponse Control

Risk Management

Procurement planSolicitationSource SelectionContract Admin.Contract Close-out

Procurement Management

BEST PRACTICE PRINCIPLES

“IDP / WSDP”

Plan DevelopmentPlan ExecutionChange Control

Integration Management

INTEGRATION MANAGEMENT

“IDP / WSDP”

• Political objectives & targets

• Integration of sector objectives

• IDP’s, WSDP’s & sector work plans

• A common framework:

- - One strategyOne strategy - - into which all strategies feedinto which all strategies feed

- - One work planOne work plan – – into which provincial plans and all into which provincial plans and all activities feed & meet donor requirements; Bridge the activities feed & meet donor requirements; Bridge the gap between strategy & project BPs gap between strategy & project BPs

- - One reporting systemOne reporting system – – quarterly per PFMA & quarterly per PFMA & incorporating donor requirementincorporating donor requirement

JOINT DECISION MAKING

• Threatening term!Threatening term!

• Fear setting up alternative structures & decision-making Fear setting up alternative structures & decision-making processes from authorised onesprocesses from authorised ones

• Sector collaboration is NOT about undermining these – but Sector collaboration is NOT about undermining these – but about decision makersabout decision makers taking decisions in their own right taking decisions in their own right within their legislative mandatewithin their legislative mandate with a better understanding with a better understanding of others’ viewpointsof others’ viewpoints

• If no decision taking for action – ineffective collaboration!If no decision taking for action – ineffective collaboration!

• Learning from experienceLearning from experience

DWAF PROGRAMME MANAGEMENT UNIT

InitiationScope PlanningScope DefinitionScope VerificationChange Control

Scope Management

SCOPE MANAGEMENT

• High level scoping – current backlog• Water – 6 million

• Sanitation – 17 million

• ……. Meeting National Strategic Objectives

• DWAF change in scope• Planning & prioritization

• Appropriate level of service

• Challenges Accuracy of services / infrastructure backlog

• Budgetary Constraints (Investment Planning)

• Planning & prioritization

• Appropriate level of service

• Availability of funding vs capacity to implement

• Realistic targets

Quality PlanningQuality AssuranceQuality Control

Quality Management

QUALITY MANAGEMENTQUALITY MANAGEMENT

• Quality management principles• Customer-focused

• Process & systems approach

• Continual improvement

• Factual approach to decision-making

• Repeatability

• Standardization & uniform approach

• Preferential procurement• Service providers – large established to small emerging

• Cultural diversity

• Support to achieve consistent quality

• Apply ISO 9000 principles

Communication PlanInfo. DistributionPerformance ReportsAdmin. Closure

Communications Management

COMMUNICATIONS MANAGEMENTCOMMUNICATIONS MANAGEMENT

• Communication strategy• Critical to success

• Network for dissemination of information

• Conversation of data into information• Presentation in digestible format

• Evaluation of status

• Identify non-conformance

• Formulate reaction plans

• Standard reporting procedures• Level of reporting / detail

• Frequency

• Sensitivity classification

• Method & distribution

MONITORING & EVALUATIONMONITORING & EVALUATION

INDIVIDUAL PROJECT REPORTS

LOCAL MUNICIPALITY REPORTS

PROVINCIAL REPORTS

TREASURY REPORTS

NATIONAL SUMMARY REPORTS

KEY PERFORMANCE INDICATORS KPI Hierarchical Framework KPI Hierarchical Framework

Class 3Class 3

KPI IndicatorsKPI Indicators

Class 2Class 2

KPI IndicatorsKPI Indicators

Class 1Class 1

KPI IndicatorsKPI Indicators

Vision / MissionVision / Mission

Str

ateg

ic

Str

ateg

ic

Sp

ecif

icS

pec

ific

Pro

ject

P

roje

ct

Sp

ecif

icS

pec

ific

ProjectProject

Pro

gra

mm

e P

rog

ram

me

Sp

ecif

icS

pec

ific

StrategicStrategicStrategicStrategic

ProgrammaticProgrammatic

Inp

ut

Inp

ut

Ke

y P

erf

orm

anc

e F

ram

ewo

rkK

ey

Pe

rfo

rman

ce

Fra

mew

ork

Me

as

ure

Me

as

ure

Me

as

ure

Me

as

ure

Risk IdentificationRisk QuantificationResponse DevelopmentResponse Control

Risk Management

RISK MANAGEMENTRISK MANAGEMENT

• Identify critical success factors

• Identify risk throughout project cycle

• Key behavioral variables• Quality of team & top management support• Client acceptance

• Define Programme Implementation Profile (PIP)

• Regular reviews external & internal built into project/ programme cycle

PM TOOLS DEVELOPED

• Programme Management ManualProgramme Management Manual

• Tool box and guidelines for procurementTool box and guidelines for procurement( Accepted for inclusion in the UNCHS Web page under best practice models)( Accepted for inclusion in the UNCHS Web page under best practice models)

• Budget allocation frameworkBudget allocation framework

• Investment Planning ModelsInvestment Planning Models

• Financial DelegationFinancial Delegation

• Work plan & reporting templatesWork plan & reporting templates

• M&E framework & KPIsM&E framework & KPIs

• Compendium of guidelines for various WS issues Compendium of guidelines for various WS issues

Masibambane Programme approach has been identified as a Masibambane Programme approach has been identified as a Best Practice Model for consideration in MIGBest Practice Model for consideration in MIG

OUTLINE

• PrefacePreface

• ImperativesImperatives

• Challenges in the sectoral approach to programme Challenges in the sectoral approach to programme managementmanagement

• Masibambane Water Services Sector Support Masibambane Water Services Sector Support ProgrammeProgramme

• Moving into the FutureMoving into the Future• ConclusionConclusion

MIG MULTI-SECTORAL APPROACH

• Merging of delegated functions in terms of the following:Merging of delegated functions in terms of the following:– Consolidated Municipal Infrastructure Programme (CMIP)Consolidated Municipal Infrastructure Programme (CMIP)

– Local Economic Development Fund (LED)Local Economic Development Fund (LED)

– Water Services Capital Grant (CWSS)Water Services Capital Grant (CWSS)

– Community-based Public Works Programme (NPWP)Community-based Public Works Programme (NPWP)

– Building for Sports & Recreation ProgrammeBuilding for Sports & Recreation Programme

– Urban Transport GrantUrban Transport Grant

– Electrification – to be added laterElectrification – to be added later

• Overall MIG targetOverall MIG target

““Removing the backlog with regard to access to basic municipal Removing the backlog with regard to access to basic municipal services in 10 years” at an estimated cost of R 100 billionservices in 10 years” at an estimated cost of R 100 billion

MIG FRAMEWORKMIG FRAMEWORK

Project Management Units

MIG Management UnitSU

Ope

ratio

nal L

evel

Tac

tical

Lev

elS

trat

egic

Lev

el

Management Information Systems

IDP, WSDP etc

Wat

er a

nd

San

itat

ion

Sec

tor

Local Municipalities and District Municipalities

Local Government Processes and Systems

Po

vert

y A

llevi

atio

n S

ecto

r

Sp

ort

an

d R

ecre

atio

n

Ele

ctri

fica

tio

n S

ecto

r

Tra

nsp

ort

Sec

tor

CabinetStrategies

National and Provincial GovernmentDepartments

DPLG StrategicObjectives

Sectoral Strategies

CrossCutting

MultiSectoralIssues

MIG Strategic Unit

CONCLUSIONCONCLUSION

• Integration to balance competing demands

• Apply basic principles of sound project management

• Robust management framework to accommodate

change

• Harmonize donor requirement into Department’s

processes- Avoid duplication

• One Strategy- One Workplan- One reporting System

• Apply Change Management

• Communication is key

MID TERM EVALUATION (MTE) SEPT 2002

“ “ Masibambane has been successful and is Masibambane has been successful and is exemplary in exemplary in the region and beyondthe region and beyond. In particular, it is unique in . In particular, it is unique in proactively setting up a sector-wide programme … & in proactively setting up a sector-wide programme … & in decentralisation .. to provincial and local government decentralisation .. to provincial and local government institutions. (It is) very much relevant within the South institutions. (It is) very much relevant within the South African context. Based on .. African context. Based on .. programme management programme management best practice, Masibambane adopted an implementation best practice, Masibambane adopted an implementation process that emphasises the active coordination and process that emphasises the active coordination and collaboration among relevant sector partnerscollaboration among relevant sector partners..””

– – UN/World Bank/SA Team

The End - Thank you