department of water affairs and forestry challenges in the sectoral approaches to programme...
TRANSCRIPT
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