Masibambane ‘Let’s work together’ Experiences of Collaboration in the Water Services Sector

1. Masibambane ‘Let’s work together’ Experiences of Collaboration in the Water Services Sector PMIG Discussion Session 07 December 2005 Louise Colvin

2. CONTENTS • What is Masibambane? • Share findings of Sector Collaboration Review • Raise questions for discussion

3. integrated development inter-sector coordination cooperative governance SWAP sector wide approach clusters sector collaboration inter-governmental relations alignment Imperative to collaborate is all around us project consolidate

4. 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 … Masibambane - Let’s Work Together

5. DWAF WS in Transition • 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 PAST FOCUS Nationally driven CWSS Inheritance & running of ex-Bantustan schemes Transformation Building WS capacity & development paradigm in DWAF …. in support of transformation & DWAF fulfilling its leadership role 1994 elections 2005 2000

6. WS & Local Government Context New democracy 1994 1997 2000 2003 2005 + DWAF takes on ex-Bantustan schemes & WS role Drives national community based infrastructure projects for basic services Transition to programmatic approach. Top slicing for Institutional Dev & sustainability BoTT WS Act 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 WS DWAF Wall to wall transitional LG – 804 municipalities Huge variance in capacity SALGA – organised LG body -established LG legislation for new structures & systems 1999 Demarcation process 2000 Elections 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 LG dplg * WS Authority** Municipal Infrastructure Grant *** WS Provider

7. A Sector Wide Approach Key Components Government- led process of donor coordination Agreed process for harmonization of systems Masibambane / SWAP Systematic mechanism for collaboration Clear & agreed Sector policy and strategy Common performance monitoring/ reporting Sector expenditure framework (all local & external resources)

8. Masibambane Water Services Sector Support DWAF • Policy and Regulation • Water Resource & Forestry • Water Services • Policy & Strategy • Sector Development • Regulations • Planning & Info • Operations • Forestry ▪ Development • Water Services Cluster • Regional co-ordination • Sanitation • Transfers • WS Support • Regional Offices Water Services Sector • DWAF • DPLG • SALGA • Other Depts • WSAs • WSPs • NGO/CBOs • WSIs • Etc WS Functional Management Committee DWAF LED Sector Strategic and Management Committees DWAF WS Strategy Strategic Framework for WS Masibambane Sector Support • Sector Committees • Water Services Strategic Leadership Group • Masibambane Co-ordination Committee • Provincial Collaborative Forums

9. Elements of collaboration • It is about:- • Common identity & ownership • Leadership • Joint (or collective) decision making • Sharing • Organisation - coordination & management • Collaborative programmes

10. 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

11. 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

12. 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

13. Leadership Leadership is a processof 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

14. 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

15. Sector structures (govt and others):- WS Sector Leadership Group (WSSLG) to strategically guide the sector Masibambane/WS Coordinating Committee to oversee sector plans & reporting at national level 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) CollaborativeStructures

16. 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

17. 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 Sector Collaborative Structures

18. 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 themtaking decisions in their own right …within & with the formal decision making structures, across 3 spheres of government Political & Executive/Official Inter-sectoral Collaborative decision making

19. Collaborative decision making process decision SECTOR MEMBER recommendation joint FORUM FORUM action proposal agreement recommendation SECTOR MEMBER decision

20. Vital to be organised – thru coordination & management, requiring:- A common strategic framework into which all strategies feed Integrated planning Common (mutually intelligible) reporting systems the WS Sector Coordinating Committee which meets nationally to reportquarterly per PFMA – checklist benchmarking Link in with LG reporting processes Annual analysis of the State of the Sector Organisation

21. Planning AlignmentCross Sectoral Plans & Water Sector Plans Cross Sectoral Water Sector Medium Term Strategic Framework (MTSF) Strategic Framework for Water Services National Provincial Growth & Development Strategy (PGDS) Provincial Water Services Sector Strategic Plan Provincial Integrated Development Plan (IDP) Water Services Development Plan (WSDP) Local

22. WATER SERVICES SECTOR STRATEGY RELATIONSHIP DIAGRAM NATIONAL SPATIAL DEVELOPMENT FRAMEWORK DWAF WS Strategy NATIONAL WATER RESOURCE STRATEGY SFWS Implementation Strategies NATIONAL SECTOR PARTNERS DPLG CATCHMENT MANAGEMENT STRATEGY SOCIAL ▪ ECONOMIC ▪ ENVIRONMENTAL ▪ INSTITUTIONAL DRIVERS PROVINCIAL SECTOR PARTNERS PROVINCIAL GROWTH & DEVELOPMENT STRATEGY PROVINCIAL WS SECTOR STRATEGIC PLAN WATER BOARD / / UTILITIES BUSINESS PLAN MUNICIPAL IDP WATER SERVICES AUTHORITY MUNICIPAL WS DEVELOPMENT PLAN WATER SERVICES PROVIDER CIVIL SOCIETY PEOPLE’S NEED

23. Current Lines of WS Reporting Treasury Provincial structures WSA DPLG national govt decision making structures Other Provincial Sector Forum Other WS Sector Coordinating Committee(MCC) WSSLG SALGA etc DWAF Clusters RPM etc DWAF region national = legislated, formal government reporting = not formal reporting but input & exchange at strategic level = not legislated reporting but collaborative reporting of ALL (govt & non-govt) sector members

24. 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

25. 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

26. 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

27. 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

28. 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

29. 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)

30. 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)

31. Champions and brokers helped greatly, but are individuals Expansion and staff turnover a challenge Sector pro-active in adapting to change Strong focus on supporting municipalities Service delivery political: technocrats cannot stand apart Involvement of councillors crucial (cf E Cape) Good progress being made on backlog (sanitation?) Less focus on performance of service delivery General Findings

32. 2 Key Observations • Collaboration to be more integrated within municipal wide systems • Changing dynamics - shifting towards regulation and accountability Observations & issues for the future • Approach for Future • Putting municipalities first in collaboration • Taking the customers’ perspective • Ensuring gains are sustainable

33. It seems that there are 4 major shifts ( happening or awaited )

34. 4 Shifts • Political and fiscal decentralisation • Moving from delivery of infrastructure to delivering services • Moving from individual relationships to organisational collaboration • Bringing the technocrats and politicians together

35. The review presents a series of options (supported by international ‘best practice’) that the sector may want to consider.

36. Water Services Collaboration Stays within the Sector DPLG & DHLG DW AF Other Sector Ministries Water Services Water Res ources MIG MUNICIPALITY Responsible for sectors, eg Housing, Municipal Services etc § Water WS A Councillor § Delivering Infrastructure in all sectors (MIG) § Develop Human Resources in municipality § Entire Council makes water decisions WSPs Major Collaborative relationships Aligning the sector with national and municipal systems MIG PMUs Municipal managers Human resources department A focus on service sustain-ability

37. Aligning the sector with national and municipal systems How Water Sector and MIG collaborative structure relate INTERMINISTERIAL COMMITTEE/CABINET Overall responsible for policy, legislation and performance DWAF / DPLG relationship Role for a broker? (Treasury?) Political viewpoint IGR Act proposal WATER SECTOR INTERGOVERNMENTAL FORUM Policy, Legislation, Coordination & Performance MUNICIPAL INFRASTRUCTURE TASK TEAM Policy, Legislation, Coordination & Performance MUNICIPAL INFRASTRUCTURE TECHNICAL TASK TEAM National Coordination, Monitoring, reporting WATER SERVICES SECTORLEADERSHIP GROUP Policy guidance & coordination WS COORD COMMITTEE (MCC) National coordination & reporting This interface will be key PROVINCIAL WATER SERVICES SECTOR FORA Development of strategies & plans, service delivery issues, reporting, lesson learning PROVINCIAL MI TASK TEAMS Coordination, IDP process

38. Harnessing Political Will INTERMINISTERIAL COMMITTEE/CABINET Overall responsible for policy, legislation and performance Links between technocrats & politicians 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 WATER SECTOR INTERGOVERNMENTAL FORUM Policy, Legislation, Coordination & Performance WATER SERVICES SECTOR LEADERSHIP GROUP Policy guidance & coordination WS COORD COMMITTEE (MCC) National coordination & reporting

39. Focussing on service performance as well as infrastructure delivery “…consumers are in the best place to monitor the effectiveness of water services provision.” 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” Strategic Framework for Water Services

40. DWAF National Politicians Municipal Admin/WSA Councillors WSPs Consumers & Civil Society Focussing on service performance as well as infrastructure delivery Grievance mechanisms Customer complaints / consultations Consumer voice Voice within the collaboration?

41. $ $ $ for process Internalising collaboration Placed people Moving beyond champions Job descriptions Spreading ownership Internal ‘process budgets’

42. Where to start? • There are“eight actions … which could shift both the agenda and the substance of collaboration towards municipalities and the consumer” (p53)

43. Benchmarking Performance and publicity IGR forum for water Consumer collaboration Areas for action National treasury / broker WSDP / IDP / MIG relations Municipal system risk Internal decision into collaborative process

44. Recommended Actions • Rapidly implement a unified system of WSA benchmarking and ensure all participate by mid 2006 • Disseminate information on sector performance thru publicity campaigns & raise awareness of developments within sector • Develop policies on customer involvement & collaboration within munix and roll out thru provincial sector fora • Consider establishing a National Water Sector Intergovernmental Forum (IGR) – thereby anchoring the sector into the political realm • Lobby National Treasury to play honest broker role in cross-sector collaboration

45. Recommended Actions • 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) • Review how WS sector support relates to broader strengthening of munic systems (conduct risk analysis of these from sector standpoint) • Review how decision-making within stakeholders related to collaborative processes and discuss strategies for better institutionalisation of organisational interface

46. 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)

47. 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?