masibambane ‘let’s work together’ experiences of collaboration in the water services sector
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Masibambane‘Let’s work together’
Experiences of Collaboration in the Water Services Sector
Louise Colvin
PMIG Discussion Session07 December 2005
CONTENTS
• What is Masibambane?
• Share findings of Sector Collaboration Review
• Raise questions for discussion
Imperative to collaborate is all around us
Masibambane - Let’s Work Together
• Led by DWAF, Masibambane initiated in 2000
• A SWAP – Sector Wide Approach Programme with pooled donor funding
• Grappled from start with notion of Masibambane being a concept ‘owned’ by the sector – not a separate programme or donor funding conduit
• Challenge was not to create a separate empire – but strengthen the sector and its partners
• Fundamentally a vehicle for transformation – driving a new paradigm and shift in power relations
• Prepared sector to face the changes ahead …
DWAF WS in Transition
200520001994 elections
…. in support of transformation & DWAF
fulfilling its leadership role
PAST FOCUS
Nationally driven CWSS
Inheritance & running of ex-Bantustan schemes
Transformation
Building WS capacity & development paradigm in DWAF
PRESENT FOCUS
Restructuring
Decentralisation
Policy framework
Addressing W&S backlog
Transfers
Building sector
LG Support
FUTURE
Sector Leadership
Policy
Support thru cooperative governance
Regulation
Institutional Reform
Information
WS & Local Government Context
dplg
DWAF takes on ex-Bantustan schemes & WS role
Drives national community based infrastructure projects for basic services
1994 1997 2000 2003 2005 +
DWAF
LG
WSTransition to programmatic approach.
Top slicing for Institutional Dev & sustainability
BoTT
WS Act
LG legislation for new structures & systems
1999 Demarcation process
2000 Elections
Wall to wall transitional LG – 804 municipalities
Huge variance in capacity
SALGA – organised LG body -established
Masibambane – funds & drive for sector collaboration & LG institutional develop-ment and support
WSA* focus
Transfers & preparing for decentralisation
Free basic water
DWAF restructured for regulatory role
Strategic Framework for WS
Sector Approach Extended
Institutional Reform
284 municipalities established
3 categories:-▪ Metro ▪ District▪ Local …still capacity variance
New Powers & Functions = 155 WSAs
Consolidated MIG** launched – DWAF capital program migrates to MIG
Project Consolidate –integrated focus on strengthening LG & service delivery as political priority
Determining WSP *** arrangements * WS Authority ** Municipal Infrastructure Grant *** WS Provider
New democracy
Masibambane/ SWAP
Agreed process for
harmonization of systems
Government-led process of donor
coordination
Systematic mechanism for collaboration
Clear & agreedSector policyand strategy
Commonperformancemonitoring/
reporting
Sector expenditure framework(all local & external
resources)
A Sector Wide ApproachKey Components
Water Services SectorWater Services Sector• DWAFDWAF
• DPLGDPLG
• SALGASALGA
• Other DeptsOther Depts
• WSAsWSAs
• WSPsWSPs
• NGO/CBOsNGO/CBOs
• WSIsWSIs
• EtcEtc
DWAFDWAF
Policy and RegulationPolicy and Regulation• Water Resource & ForestryWater Resource & Forestry
• Water ServicesWater Services• Policy & StrategyPolicy & Strategy
• Sector DevelopmentSector Development• RegulationsRegulations
• Planning & InfoPlanning & Info
OperationsOperations• Forestry Forestry ▪ ▪ DevelopmentDevelopment• Water Services ClusterWater Services Cluster
• Regional co-ordinationRegional co-ordination• SanitationSanitation• TransfersTransfers
• WS SupportWS Support
Regional OfficesRegional Offices
Masibambane Sector SupportMasibambane Sector Support
Sector CommitteesSector Committees• Water Services Strategic Leadership GroupWater Services Strategic Leadership Group• Masibambane Co-ordination CommitteeMasibambane Co-ordination Committee• Provincial Collaborative ForumsProvincial Collaborative Forums
Masibambane Water Services Sector Support
Strategic Strategic Framework Framework for WSfor WS
DWAF WS DWAF WS StrategyStrategy
Sector Sector Strategic Strategic
and and ManagemeManageme
nt nt CommitteesCommittees
WS WS Functional Functional
ManagemenManagement Committeet Committee
Elements of collaboration
• It is about:-
– Common identity & ownership
– Leadership
– Joint (or collective) decision making
– Sharing
– Organisation - coordination & management
– Collaborative programmes
Building identity & ownership• Approach:-
– Strengthen members to participate eg SALGA, WSAs (even the playing field)
– Ensuring mutual benefit:• Voice/say on national agenda• Sharing experiences / learning lessons• Empowered by being better informed –
seeing bigger picture• Working better (maximising resources,
minimise duplication etc)• Meeting need
Building identity & ownership
– Masibambane to act in interest of all
– Moving from Us and them WE
– Wearing two hats :-
• sector hat (eg: provincial forums on WSSLG)
• own organisation/dept hat
…. both require role clarity, common purpose & understood positions
Leadership
• Complex – not just who but HOW
• Critical for collaboration & essential to guide this period of transformation
The very essence of leadership is (that) you have to have a vision, It’s got to be a vision that you
articulate clearly and forcefully on every occasion. You can’t blow an uncertain trumpet.
Father Theodore Hesburg
• Not ONE leader
• Leaders come to the fore at different levels & in different arenas
Leadership
Leadership is a process of influencing group members toward the attainment of defined goals ….
and is about coping with change. Greenberg & Baron
• The role of the leader can change: eg from directing & doing to facilitating and supporting
• Have to grapple with what leadership means, what role & how to effect – especially DWAF
‘Leadership is example.’ Albert Schweizer.
• It does not happen because it is legislated … nor because there is one good leader
Leadership
• Lessons:
Shared and clearly articulated VISION
Must have champion (often individual based)
Allow members to choose (each forum differed)
Cater for different level & type of leadership
Can have collective leadership (WSSLG)
Clarity and consistency
Leadership style is important – as befitting the occasion
Collaborative Structures
• Sector structures (govt and others):-
1. WS Sector Leadership Group (WSSLG) to strategically guide the sector
2. Masibambane/WS Coordinating Committee to oversee sector plans & reporting at national level
3. Provincial Sector Fora (comprising mainly municipalities) to jointly plan, budget & implement provincial sector strategies
• 1 & 2 have sector sub committees, working on specific areas (sanitation, gender, HIV/Aids, Civil Society etc)
Sector Collaborative Structures
• Functioning of Provincial Fora differ (stronger in the original Masibambane supported provinces – KZN, EC, LP)
• The sector collaborative structures are not formalised or legislated (except in KZN).
• Additional fora established – District WSA WS Managers Forum (à la Cities Network WS Managers) Water Information Network (WIN) – as determined by participants
Sector Collaborative Structures
• The measure of their success and continuance lies in them being relevant and useful.
• Exchange of information knowledge sharing has become increasingly important
• Should not duplicate existing structures
Collaborative decision making
• Joint decision making means joint responsibility – key for effective decentralisation.
• Vital for coherence & good decision making in sector – otherwise potential for fragmentation & even conflict.
• Sector collaboration is NOT about undermining authorised decision makers – but about them taking decisions in their own right … within & with the formal decision making structures, across– 3 spheres of government– Political & Executive/Official– Inter-sectoral
proposalrecom
mendation
reco
mm
endat
ion
action
decision
decision
joint
FORUM
SECTOR MEMBER
SECTOR MEMBER
Collaborative decision making process
FORUM
agreement
Organisation• Vital to be organised – thru coordination &
management, requiring:-
A common strategic framework into which all strategies feed
Integrated planning
Common (mutually intelligible) reporting systemsthe WS Sector Coordinating Committee which meets
nationally to report quarterly per PFMA – checklistbenchmarking Link in with LG reporting processes
Annual analysis of the State of the Sector
Planning AlignmentCross Sectoral Plans & Water Sector Plans
National
Provincial
Local
Cross Sectoral Water Sector
Water Services Development Plan
(WSDP)
Water Services Development Plan
(WSDP)
Strategic Framework for Water Services
Strategic Framework for Water Services
Provincial Water Services Sector Strategic Plan
Provincial Water Services Sector Strategic Plan
Integrated Development Plan
(IDP)
Integrated Development Plan
(IDP)
Medium Term Strategic Framework
(MTSF)
Medium Term Strategic Framework
(MTSF)
Provincial Growth & Development
Strategy (PGDS)
Provincial Growth & Development
Strategy (PGDS)
NATIONALSPATIAL DEVELOPMENT FRAMEWORK
NATIONALSPATIAL DEVELOPMENT FRAMEWORK
NATIONALWATER RESOURCE
STRATEGY
NATIONALWATER RESOURCE
STRATEGY
WATER BOARD / /UTILITIES
BUSINESS PLAN
WATER BOARD / /UTILITIES
BUSINESS PLAN
PROVINCIAL GROWTH & DEVELOPMENT
STRATEGY
PROVINCIAL GROWTH & DEVELOPMENT
STRATEGY
CATCHMENT MANAGEMENT
STRATEGY
CATCHMENT MANAGEMENT
STRATEGY
WATER SERVICES PROVIDER
WATER SERVICES PROVIDER
DPLGDPLG
WATER SERVICES AUTHORITY
WATER SERVICES AUTHORITY
PROVINCIAL WS SECTOR STRATEGIC
PLAN
PROVINCIAL WS SECTOR STRATEGIC
PLAN
MUNICIPAL WS
DEVELOPMENT PLAN
MUNICIPAL WS
DEVELOPMENT PLAN
MUNICIPAL IDPMUNICIPAL IDP
SO
CIA
L ▪ E
CO
NO
MIC
▪ EN
VIR
ON
ME
NT
AL
▪ INS
TIT
UT
ION
AL
DR
IVE
RS
NATIONAL SECTOR
PARTNERS
NATIONAL SECTOR
PARTNERS
PROVINCIAL SECTOR
PARTNERS
PROVINCIAL SECTOR
PARTNERS
CIVIL SOCIETY
CIVIL SOCIETY
WATER SERVICES SECTOR STRATEGY RELATIONSHIP DIAGRAM
PEOPLE’S NEED
SFWSSFWS Implementation Implementation StrategiesStrategies
DWAF WS DWAF WS StrategyStrategy
Current Lines of WS Reporting
= not formal reporting but input & exchange at strategic level
Provincial structuresProvincial structures
ClustersRPM etcClustersRPM etc
= not legislated reporting but collaborative reporting of ALL (govt & non-govt) sector members
= legislated, formal government reporting
Sector Collaboration Review
• Held between February to September 2005, coordinated by WIN
• The objectives:-
– to document the Masibambane / sector approach,
– to understand how collaboration is contributing to
sector progress and why and how sector stakeholders
are coming together.
– to recommend how to consolidate and institutionalise
the approach
Generic Lessons Learnt
• Build capacity within partner organisations allowing them to collaborate … eg: SALGA was able to be the voice of disparate munix, enabling real dialogue
• Concentrate on tangible issues and projects (such as strategic plans, programmes – Transfers, S78 etc)
• Concentrate on support to municipalities
• Flexible funding essential (donors)
• Involve political players – esp councillors
Generic Lessons Learnt (SCR)
• Different types of collaboration are needed at different levels. Regular review of structures and process to remain relevant
• Honest brokers can assist in recognising change
• Informality can help. Mandating an organisation’s collaboration often does not always achieve results
• Collaboration and communication builds trust – transparency builds credibility
Generic Lessons Learnt (SCR)• Collaboration over planning, budgeting and
implementation is as important as developing policy
• Regular ‘open’ provincial/national reporting has improved information flow and built trust
• There is need to measure performance of munix early on in decentralisation process as it promotes accountability
• Collaboration is not necessary all the time – it can hold up as well as facilitate transformation. It is not a substitute for strong line management
Generic Lessons Learnt (SCR)
• Both drivers for and barriers to collaboration will change over time – must be flexible to accommodate these changes
• Cannot expect the same constellation of partners or individuals to remain static – plan for turnover in advance
• Collaboration costs money – must be budgeted for – cannot rely on donor funds in the long term
• Collaboration across sectors is more difficult but equally important
Eastern Cape Findings
• Eastern Cape only province reviewed, but findings shared & corroborated with other provincial stakeholders
• Overall positive:• provincial collaboration has worked well, the
improved DWAF / municipal relationships are very evident” … “the dynamics have changed …. to more of a municipality-to-municipality lesson-learning platform” (p33)
• “the collaboration has drawn councillors into discussions [which has been very positive]” (p33)
Eastern Cape Findings
• “as a result of collaboration there is a more widely-owned, more coherent policy framework for water service and implementation issues are being solved pragmatically” (p31)
• “the nature of collaboration has become increasingly practical, assisting in solving operational issues” (p34)
• Yet on occasion “collaborative structures are reacting to external changes rather than influencing them (which) highlights a need for greater political engagement in the future” (p31)
General Findings
Champions and brokers helped greatly, but are
individuals
Expansion and staff turnover a challenge
Good progress being made on backlog (sanitation?)
Less focus on performance of service delivery
Service delivery political: technocrats cannot
stand apart
Involvement of councillors crucial (cf E Cape)
Sector pro-active in adapting to change
Strong focus on supporting municipalities
Observations & issues for the future
Approach for Future
• Putting municipalities first in collaboration
• Taking the customers’ perspective
• Ensuring gains are sustainable
2 Key Observations
• Collaboration to be more integrated within municipal wide systems
• Changing dynamics - shifting towards regulation and accountability
It seems that there are
4major shifts
( happening or awaited )
4 Shifts
1. Political and fiscal decentralisation
2. Moving from delivery of infrastructure to delivering services
3. Moving from individual relationships to organisational collaboration
4. Bringing the technocrats and politicians together
The review presents a series of options (supported by international ‘best practice’) that the sector may want to consider.
Aligning the sector with national and municipal systems
MUNICIPALITY Responsible for sectors, eg Housing,
Municipal Services etc Delivering Infrastructure in all sectors (MIG) Develop Human Resources in municipality Entire Council makes water decisions
DWAF DPLG&
DHLG
Other Sector Ministries
WSPs
WSA Water Councillor
Water Resources
Water Services
MIG
Water Services Collaboration Stays within the Sector
Major Collaborative relationships
MIG PMUs
Municipal managers
Human resources departme
nt
A focus on service sustain-ability
DWAF / DPLG
relationship
Role for a broker?
(Treasury?)
Political viewpoint
How Water Sector and MIG collaborative structure relate
WATER SERVICES SECTOR LEADERSHIP
GROUPPolicy guidance &
coordination
WS COORDCOMMITTEE (MCC)National coordination
& reporting
PROVINCIAL WATER SERVICES SECTOR FORADevelopment of strategies & plans, service delivery
issues, reporting, lesson learning
WATER SECTOR INTERGOVERNMENTAL
FORUMPolicy, Legislation,
Coordination & Performance
MUNICIPAL INFRASTRUCTURE
TASK TEAM Policy, Legislation,
Coordination & Performance
MUNICIPAL INFRASTRUCTURE
TECHNICAL TASK TEAMNational Coordination, Monitoring, reporting
PROVINCIAL MI TASK TEAMSCoordination, IDP process
INTERMINISTERIAL COMMITTEE/CABINET
Overall responsible for policy, legislation and
performance
T
his
in
terf
ace w
ill b
e
key
Aligning the sector with national and municipal systems
IGR Act proposal
Harnessing Political Will
Learn from experience of
councillor involvement
Make us of the IGR bill
Consider a National Intergovernmental
forum for water sector
Look at lack of MEC challenge and how best to work with
SALGA
Links between technocrats & politicians
WATER SERVICES SECTOR
LEADERSHIP GROUP
Policy guidance & coordination
WATER SERVICES SECTOR
LEADERSHIP GROUP
Policy guidance & coordination
WS COORDCOMMITTEE
(MCC)
National coordination& reporting
WS COORDCOMMITTEE
(MCC)
National coordination& reporting
WATER SECTOR INTERGOVERNMENTAL
FORUMPolicy, Legislation,
Coordination & Performance
INTERMINISTERIAL COMMITTEE/CABINET
Overall responsible for policy, legislation and
performance
Focussing on service performance as well as infrastructure delivery
“…consumers are in the best place to monitor the effectiveness of water services
provision.”
Strategic Framework for Water Services
Strengthening the voice of consumers
“it is the responsibility of WSAs to put in place mechanisms to facilitate, listen and
respond to consumer and citizen feedback on the quality of service delivery”
Focussing on service performance as well as infrastructure delivery
WSPs
Consumers &Civil Society
MunicipalAdmin/WSA
DWAFNational
Politicians
Councillors
Grievance
mechanisms
Customer
complaints /
consultations
Consumer voice
Voice within the
collaboration?
Internalising collaboration
for process
Placed people
Moving beyond
champions
Job descriptions
Spreading
ownership
Internal ‘process
budgets’
Where to start?
• There are “eight actions … which could shift both the agenda and the substance of collaboration towards municipalities and the consumer” (p53)
Areas for action
National treasury / broker
WSDP / IDP / MIG relations
Municipal system risk
Internal decision into collaborative process
Benchmarking
Performance and publicity
IGR forum for water
Consumer collaboration
Recommended Actions
1. Rapidly implement a unified system of WSA benchmarking and ensure all participate by mid 2006
2. Disseminate information on sector performance thru publicity campaigns & raise awareness of developments within sector
3. Develop policies on customer involvement & collaboration within munix and roll out thru provincial sector fora
4. Consider establishing a National Water Sector Intergovernmental Forum (IGR) – thereby anchoring the sector into the political realm
5. Lobby National Treasury to play honest broker role in cross-sector collaboration
Recommended Actions
6. Develop guidelines to better integrate the WSDP with the IDP … hand over primary responsibility for coordinating WS infrastructure to MIG fora, clarifying back-stopping role of DWAF & how MIG will relate to service delivery (other than infrastructure)
7. Review how WS sector support relates to broader strengthening of munic systems (conduct risk analysis of these from sector standpoint)
8. Review how decision-making within stakeholders related to collaborative processes and discuss strategies for better institutionalisation of organisational interface
Open questions to consider Treasury’s role in
sector & inter-sector collaboration? Enhance its ability to improve effectiveness of resource allocation, consistency of policy & links with LG.
Given centrality of infrastructure spending in new accelerated & shared economic growth plan – collaborative approach is essential & Treasury has critical role?
Sustainable budget for collaboration & importance of flexible resources?
Does IGR open opportunity to entrench collaboration? Resource allocation -job descriptions – political leadership?
Budgeting for collaboration & importance of flexible resources? (MIG 1% lost opportunity)
Open questions to consider Horse before the cart?
LG/dplg vis a vis WS sector/DWAF
Premiers’ offices key to coordinating across sectors?
Taking sector wide approach in other sectors, esp re donor coordination? When is a sector ready?
Harmonising reporting systems – with LG at the centre?
Does collaboration streamline or proliferate planning and when?
Recognising decentralisation is a process – not overnight instruction
Will ‘regulatory collaboration’ look significantly different from existing collaboration –given change in relationship?
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