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?