TABLE OF CONTENT
Page
1 INTRODUCTION
2 DEFINITION OF TERMS
2.1 Community development worker
2.2 Community participation
2.3 Representative forum
2.4 Integrated development planning
2.5 Covid-19
3 COMMUNITY PARTICIPATION AT MUNICIPAL LEVEL
3.1 Mechanisms that facilitate municipal community participation
4 THE ROLE OF CDW AS A MECHANISM TO FACILITATE COMMUNITY
PARTICIPATION AT MUNICIPAL LEVEL
5 THE ROLE OF IDPRF AS A MECHANISM TO FACILITATE COMMUNITY
PARTICIPATION AT MUNICIPAL LEVEL
6 ADVANTAGES AND DISADVANTAGES OF CDW AND IDPRF
6.1 Advantages of community development worker
6.2 Disadvantages of community development worker
6.3 Advantages of Integrated Development Planning Representative forum
6.4 Disadvantage of Integrated Development Planning Representative forum
7 CONCLUSION
BIBLIOGRAPHY
1 INTRODUCTION
Every Local Municipality is not unique from other South African Municipalities that are
faced with growth and developmental challenges of re-dressing development,
maintaining and upgrading developed urban areas and uneven developed peri-urban
and rural areas within a limited budget. Municipalities are at the cold face of service
delivery, and that citizenry of our country will only enjoy this democracy, peace and
freedom as enshrined in the Constitution of 1996, the Bill of Rights and various pieces
of legislation, if a sense of belonging, ownership and participation of communities in
their development can possibly be achieved through the Integrated Development Plan
process. The purpose of this assignment the discourse will be based on the role and
effectiveness of Community Development Workers (CDW) and the Integrated
Development Planning Representative Forum (IDPRF) as mechanisms to facilitate
municipal community participation.
2 DEFINITION OF TERMS
The explanation and clarity of terms that will be used throughout the
assignment, will be defined below.
2.1 Community development worker
CDWs are participatory change agents who work in the communities where they live,
and to whom they have to answer for their activities (Fox & Meyer 1995:20).
2.2 Community participation
Community participation could be understood as the direct involvement of the citizenry
in the affairs of planning, governance and overall development programmes at local
or grassroots level (Mafukidze 2009:12).
2.3 Representative forum
According to Rauch (2003:1) Community Representative Forum represents the
interest of the community and serves as a link between the general community and
the municipality.
2.4 Integrated development planning
According to Mathye (2002:31) Integrated Development Planning process is a process
that is undertaken to produce IDP, which is a developmental plan for a municipal area
containing short, medium and long-term objectives and strategies.
2.5 Covid-19
Any of various RNA-containing spherical viruses of the family Coronaviridae, including
several that cause acute respiratory illnesses (World health Organisation 2020:3)
3 COMMUNITY PARTICIPATION AT MUNICIPAL LEVEL
According to Ababio (2012:33) the concept of community participation can have
variety of meaning relating to a particular context. The conception of community
participation in South Africa is largely linked to the planning and management of
development activities at the local sphere of government. This is because local
municipalities are regarded as the sphere of government that is closer to the people
and the pillar of democracy (Republic of South Africa, 1998). Municipalities can
therefore play a developmental role by among other things, ensuring that people are
at the centre of local government initiatives. For this reason, municipalities in South
Africa are required through legislative frameworks to encourage the involvement and
participation of the ordinary members of the society in decisions that affect their wellbeing. The involvement of people should create consensus between different
stakeholders and a sense of ownership of development initiatives and allow them to
share equitably the benefits resulting from such development (Moseti, Madzivhandila
2012:34).
3.1 Mechanisms that facilitate municipal community participation
According Lovato (2004:26) participation by the local community within the issues of
the region take place through political structures for cooperation in terms of the
Municipal Structures Act (Act 117 of 1998), the components, forms and procedures
for interest in civil governance built up in terms of this Municipal Structures Act ( Act
117 of 1998), other suitable components processes and methods built up by the
region, and councillors. Municipality is required to set up suitable mechanisms,
processes and strategies to empower the local community to take part in the affairs of
the district. For this reason, district must give for the receipt, handling and thought of
petitions and complaints lodged by community members. It is vital for Municipality to
compose open gatherings and hearings by the civil board and other political structures
and political office bearers of the district, consultative sessions with locally recognised
community associations, conventional specialists and report back to the local
community (Murray and Schaffer 2004:2).
The capacity to actively to actively encourage public support at community level is
constrained in most places. The support for public participation subsequently centres
on those groups which are not well composed and which don’t have the control to
articulate their interface freely. These incorporate destitution bunches, women, or
specific bunches (youth, vagrants, and matured individuals). Municipality is required
to distinguish the bunches and decide fitting ways of ensuring their representation with
the Agent IDP Gathering (Cloete and Thornhill 2005:126).
4 THE ROLE OF CDW AS A MECHANISM TO FACILITATE COMMUNITY
PARTICIPATION AT MUNICIPAL LEVEL
The role of the community development workers (CDWs) is to bring government
closer to the people. They give people access to government services and relevant
information that could lead to economic empowerment. In 2003, the South African
Government introduced the community development workers (CDWs) system
administered at the provincial sphere, but operating in municipalities according to the
geographic demarcation of their wards. CDWs are appointed public servants governed
by the Public Service Act 1994 (Act 103 of 1994) (Ministry for Public Service and
Administration 2007). According to the former Minister of Public Service and
Administration, Minister Fraser-Moleketi (2007), CDWs are a fundamental building
block of the public service registering an important step forward in South Africa’s
developmental agenda (Batten 1957:45).
CDWs are formed to bridge the gap between government and citizens in great need
of services provided by it. It is a complementary structure to existing structures in
municipalities with different, and to a certain extent, some overlapping, responsibilities
to other structures such as Ward Committees and Ward Councillors. CDWs are
formed to bridge the gap between government and citizens in great need of services
provided by it. It is a complementary structure to existing structures in municipalities
with different, and to a certain extent, some overlapping, responsibilities to other
structures such as Ward Committees and Ward Councillors. CDWs are formed to
bridge the gap between government and citizens in great need of services provided
by it. It is a complementary structure to existing structures in municipalities with
different, and to a certain extent, some overlapping, responsibilities to other structures
such as Ward Committees and Ward Councillors (2010:19).
South Africa ‘s impressive mass-screening and targeted testing response to COVID19 has depended on teams of community workers already in place, detecting
tuberculosis and bringing drugs to the millions living with HIV. The South African
approach to date has relied heavily on an army of community health workers. People
with disabilities face stigma because of their impairments. They are often
marginalised, more so if they have psycho -social disabilities. This makes it difficult for
them to access basic services such as healthcare. But community-based workers
have specialised skills and experience working at a household and community level.
They are able to identify, screen and support vulnerable individuals and families.
These workers are part of an essential service in health systems across Africa. They
include community health workers, home based carers, community rehabilitation
workers and community development workers (Leedy 2020:14).
A national study on young people with and without disabilities in South Africa showed
that community rehabilitation workers are able to reduce inequalities in access to
health and social services. They can do this through health literacy and activism, and
mobilising community resources through co-ordinated action with the different
government departments. This is why this cadre of worker is well placed during the
COVID-19 crisis. They can help ensure that people with disabilities are not left behind
in screening, testing and referral to health services. This is particularly important given
that many are more vulnerable to ill-health and dying (Maxwell 2020:10).
Community rehabilitation workers are able to ensure that people with intellectual
disability get easy-to-read information about the virus. This includes mitigation
strategies and hygiene rules. Community rehabilitation workers can also raise these
matters with community radio station and journalists. This would ensure that it reached
vision impaired and blind people. They are also able to provide emotional and spiritual
support to people with disabilities and their families. This is particularly important for
mothers or caregivers of children with disabilities (Lorenz 2020:23).
5 THE ROLE OF IDPRF AS A MECHANISM TO FACILIATATE COMMUNITY
PARTICIPATION AT MUNICIPAL LEVEL
The IDP Representative Forum is a key mechanism to gain community input during
the annual review of the IDP. This review is necessary to ensure its relevance of the
Municipality’s Strategic Plan as far as adjustment to changing circumstances is
concerned. The annual review is also important to respond to performance related
issues, and to inform the cyclical inter-governmental planning and budgeting cycle.
The IDP Forum is an effective mechanism to enable community-based planning.
Community-Based Planning (CBP) can be regarded as a ward-based planning
approach with the aim to cascade the IDP down to ward level. CBP makes municipal
plans more relevant to local conditions and increases community involvement in the
processes and control in issues of service delivery. This approach requires functional
ward committees who develop plans for their own wards, and link ward priorities to the
IDP of the municipality. CBP empowers communities to plan for themselves by helping
local government to be responsive to local issues and service delivery (Cooke
2020:17).
6 ADVANTAGES OF COMMUNITY DEVELOPMENT WORKER
The former President Mbeki on 14 March during the CDWs Indaba (Summit) in that
CDWP had brought in a new category of professionalism in the local government
sphere and would assist and fast-track service delivery. It had a structural resource
budgeted for its effective and efficient operations. The CDWP was formed on the basis
of the following strategic objectives and advantages. It empowers community
members as it opens doors for exchange of ideas and sharing. It encourages active
involvement through the participation of all members of the community in the planning,
decision making and it seeks to remove the barriers that limit the participation of
marginalised citizens. It supports decentralised, non-hierarchical decision-making
processes that strengthen the autonomy of the individuals in the community
(Tshishonga and Mafema 2010:574)
To assist in the removal of development and service delivery bottlenecks, to link
communities with government services and relay community concerns and problems
to government, to support, nurture and advocate for an organised voice for the poor,
to improve government community networks (The Presidency 14 March 2008 ‘SA:
Mbeki: Community Development Workers Indaba (Summit)’ in (Tshishonga &
Mafema 2010:574).
Community healthcare workers have become what some have called our “heroes on
the ground” during COVID-19. By keeping more people healthier for longer, and
increasing productivity, these workers could save South Africa more than R400-billion
over 10 years. South Africa’s national shutdown has bought the country precious time
to prepare for an inevitable rise in COVID-19 cases once lockdown restrictions ease.
Presently, the majority of planning has centred around ensuring the country has
enough hospital beds, staff and equipment to treat COVID-19 patients (Tshishonga &
Mafema 2010:575).
The national health department has also rolled out large-scale screening, testing and
tracing programmes using clinics, community healthcare centres and mobile testing
units. All three rely on community-level services delivered by community healthcare
workers (CHWTsi). If CHWs are to continue to play a central role in not only the fight
against COVID-19 but in safeguarding access to broader services, such as maternal
and child healthcare, they need support. There are no guidelines around the provision
of services by CHWs in light of COVID-19 or what kind of personal protective gear, for
instance masks, gloves and face shields, they are entitled to (Walton 2020:24).
7 DISADVANTAGES OF COMMUNITY DEVELOPMENT WORKERS
The CDWP is a cumbersome programme: it is based in the Department of Cooperative
Governance and Traditional Affairs (COGTA), but is overseen by the whole
municipalities as the locus of their day-to-day activities. Therefore, the CDWP was
conceived without a policy direction. Communities did not trust the programme
because of new suspicion that the CDWs spy for the government, a legacy of the
previous oppressive government. The South African culture is built on suspicion of
top-down and state-led community development programmes as they were used
during the apartheid to control people. The role and responsibility of the CDWs are
misunderstood by both local government and communities, and it often causes conflict
and tension (Gray & Mubangizini, Tshishonga & Mafema 2010:67).
The following list is intended to serve as a representative catalogue of the many
disadvantages and limitations identified: supporting the goals of public management;
low citizen participation levels; a threat to the professional image of public
administration;
a
potential
for
conflict;
lack
of
government
response;
representativeness; time, costs and benefits; attitude of public managers; lack of
information; participation mechanisms; and citizen competence ( Bekker 1996:70)
The issue of programme accountability was an added challenge as councillors had an
expectation that CDWs were to report directly as councillors had an expectation that
CDWs were to report directly to them, thus there was confusion as to who was in
charge of them. This resulted in fragmented and uncooperative relationships and
networks between ward councillors and CDWs (Gray & Mubangizini, Tshishonga &
Mafema 2010).
The local government officials and Councillors felt threatened by CDWs’ position and
direct line communication to the COGTA. CDWs were thus treated with suspicion in
case they assumed the government and councillor’s roles. The suspicions and
infighting with political stalwarts of the communities placed CDWs in a precarious
position where they felt exacerbated by the lack of a formal introduction of the
programme, particularly to the relevant stakeholders such as government
departments, the private sector and communities as targeted recipients of their
services (Chile 2003:23).
8
ADVANTAGE
OF
INTEGRATED
DEVELOPMENT
PLANNING
REPRESENTATIVE FORUM
Represent the interest of the municipality`s constituency in the IDP Process. Provide
an organisational mechanism for discussion, negotiation and decision making
between the stakeholders inclusive of municipal government. Ensure communication
between all the stakeholder representatives inclusive of municipal government.
Monitor the performance of the planning and implementation process (Cornwall
2002:56).
According Pretty (1991:134), the COVID-19 pandemic has imposed extraordinary
burdens on the country at large and local government in particular. Added to this the
fiscal ability to respond to the pandemic is constrained due to the prevailing economic
conditions of the country. With short turn-around times to respond and respond with
urgency to the pandemic, the SALGA NEC is calling for the disbursement of the
disaster management funding to be efficient and agile in nature and it must assist
municipalities to respond swiftly to the directives and regulations pronounced to
combat the pandemic. The SALGA NEC sponsors an approach of an upfront allocation
of funds to municipalities based on equitable share modelling and further applying a
vulnerability component which considers the short to the medium financial health of a
municipality, its community viability, institutional capacity and state of municipal
infrastructure (Oakley 1991:45).
To this end, the NEC has proposed to the Minister of COGTA to consider the
redistributive model that favours vulnerable municipalities. Municipalities will continue
to work in unison with provincial and national government to deliver essential services
during this period. SALGA will continue to advocate and lobby on behalf of local
government, to ensure that the sector is adequately supported and enabled to perform
its function considering that it is the sphere of government that interfaces closely with
communities (David 2005:35)
9
DISADVANTAGES
OF
INTEGRATED
DEVELOPMENT
PLANNING
REPRESENTATIVE FORUM
Limited budget and resources within the municipality, and planning, during the covd19 pandemic local municipalities are provided with limited financial support and
resources. The SALGA NEC welcomes the Minister of COGTA’s proposal to
reprioritize Municipal Infrastructure Grants for disaster-related purposes. The 21day
lockdown period occurring in the last quarter of the financial year-end of local
government will impact negatively on major infrastructure projects and this will result
in under expenditure of infrastructure grants (Heller 2008:29).
Referring to municipal operations and governance, Mr Kolisa said there should be
additional services offered to municipalities which were consistent with the level of the
disease they were encountering. This meant the services offered needed to be
consistent with the required levels of hygiene. He highlighted that the frequency of
servicing some communities had been almost doubled, if not tripled. He pointed out
that there was a need for extraordinary cleansing of public facilities, and support
needed to be provided to quarantine sites. This included mitigation measures, the
monitoring of social gatherings, as well as the frequent health inspections and availing
certain facilities for the homeless (Phago 2008:239).
Issues expected to be a major challenge arising from COVID-19 were job losses,
reduced income and the reduction of revenue collection levels by municipalities, which
would directly impact on their ability to meet their other obligations. In terms of the
rental of municipal areas, some of these were situated in coastal areas and if facilities
were not being utilised, this directly affected municipal revenue (Tapscott 2006:2).
SALGA had projected that due to the general decay of the economic situation in South
Africa, this would result in a general drop in payments to municipalities. It had projected
a loss for water and sanitation, and had also factored into the estimation of revenue a
reduction in revenue from businesses and schools. It would be challenging to collect
outstanding debt from poor communities where there was major outstanding debt at
present. A drastic reduction in the collection rate over the past three months was
expected. Electricity collection levels would be very similar to the collection rate for
water, and consumption in some areas would be particularly high, as people were at
home (Masango 2002:60).
For the 2020/21 financial year, SALGA had projected that the collection ratios would
also decline in municipalities up until 30 June 2021. A major challenge was anticipated
in respect of electricity, due to the electricity revenue being used to cross subsidise
other non-revenue elements of municipal functions, such as cemeteries, community
swimming pools and police stations. Money was not directly received from these
areas, so the knock-on effect would cut across the value chain (Mufamadi 2006:7).
Regarding property rates, the Municipal Finance Management Act (MFMA) did not
make provision for special rebates in terms of the areas listed. SALGA anticipated a
reduction of income in some of the coastal cities ad the hospitality industry, and the
knock-on effect across all municipalities would be significant. The projected financial
loss to municipalities for July 2020 until 2021 was anticipated to be considerable in all
respects. Events related revenue would also be lost, such as from stadiums,
convention centres, and fines from traffic services (Brinkerhoff and Crosby 2002:51).
Over the past six weeks, municipalities across all provinces had raised a number of
issues with SALGA in respect of their limited resources and means to implement
directives, and sites which had been identified to be lacking in certain resources and
limited manpower to expand municipal services on a regular basis. There were also
issues relating to deep cleaning and fumigation, as well as other facilities which would
ordinarily not be included, such as water tankers, which had placed an extra burden
on municipalities (Harrison 2008:323).
Mr Lance Joel, Chief Operations Officer (COO): SALGA, gave details of the
challenges that municipalities faced in executing regulations pertaining to water
tankers and ensuring that taxi ranks, stations and markets were serviced, when the
reality was that three million people did not have access to water. Where there was
access to water, there was a 63% rate of reliability, and those who did not have access
to water resided in rural areas. The challenge was that COVID-19 had affected the
supply and delivery of water and sanitation cross the country, but this had mostly
affected the poor and vulnerable communities (Department of Provincial and Local
Government, 2008).
When a long-term solution was considered, the reality was that tanks were not cheap,
and their running costs were currently estimated at R100 billion a month. This rate was
particularly high in rural areas. The use of tanks placed a serious burden on
municipalities through the logistical challenges, and a sense of expectation had been
created which had proved to go far beyond COVID-19. He asserted that government
would not be able to respond to these expectations. The water tanks had had a positive
impact on access in vulnerable communities and areas that had not been serviced
(Masango 2002:23).
SALGA wanted to draw attention to the fact that there was a possibility that these
services could be discontinued post COVID-19 due to the financial situation of the
country. While water tankers were a short-term intervention, there was a need to
consider what would happen post COVID-19, and provincial and national government
would have to come together in order to shift the focus toward sustainable solutions.
The long-term solutions were related to the diversification of water sources, such as
through acid rain, desalination or tapping into ground water (DPLG 2008:56).
The next challenge involved credit control. SALGA had acknowledged that there would
be a huge impact on the income level of communities, and one was currently seeing
households which were unable to service their municipal accounts, which would
ultimately lead to disconnection. Mr Joel pointed out that disconnections to water and
electricity supplies would worsen the situation, and SALGA had approached
municipalities to suspend its credit control measures. Several municipalities had
responded positively, stating that they would not disconnect water and electricity
supplies. SALGA would also engage with Eskom about this issue, requesting that it
does not suspend any electricity supplies for the present phase of the lockdown. He
commented that Eskom was not as forthcoming as the municipalities, and was not
willing to come on board in relation to payment holidays. SALGA was hoping that
Eskom would come on board and not worsen the current situation (Mogale 2003:232).
Regarding the fiscal response for the foreseeable nine to 12 months, the municipalities
would have reduced collections, which required a “business unusual” approach. There
were three areas which could assist municipalities in covering the COVID-19 costs
which it would have to execute, such as the Disaster and Management Relief Fund
and the reprioritisation of funding toward COVID-19. He said the challenges
municipalities were faced with were related to the fact that the lockdown was currently
in week five, and no municipality had benefited from the funding options said to be
available, and were relying on their own resources to fund the obligations placed on
them by the regulations. The third area of fiscal response was related to the R20 billion
allocation, and SALGA had made a proposal in relation to the relief fund grant and the
reprioritisation of funding. The challenge with this was that National Treasury had
stated that the funding would be available only in the new financial year, for
municipalities to utilise in July (Masango 2002:62).
Referring to the complaints about councillors, he said SALGA had noted that there
were two or three cases in the media around this issue, and a communication had
been sent to municipalities which condemned this behaviour, and Speakers of
municipal councils had been urged to act in accordance with the code of conduct.
There had been 19 incidents of misconduct within municipalities that had been picked
up across nine provinces, and these had involved 20 councillors. Action had been
taken against these councillors in a particular municipality, and in some instances
political parties had taken action against those contravening the code of conduct and
regulations (DPLG and GTZ 2005:25).
Regarding the Solidarity Fund, SALGA had recommended that councils consider
certain matters and engage with municipal staff and councillors so that before any
reductions could be made in terms of the necessary legislation, there should be
consent from all parties involved. The National Executive Committee (NEC) had not
taken any decisions which forced municipalities to implement certain things. The NEC
had recommended that councillors, officials and SALGA staff should contribute to the
fund, and had provided information on how councillors, senior managers and
bargaining council employees should make this pledge. It had been recommended
that the use of the fund should benefit those within municipalities and local areas, and
that every municipality should establish its own Solidarity Fund. Terms of reference
had been developed for the fund to make it transparent and accountable. This funding
would also be used to attract contributions from businesses and other stakeholders
within that particular municipality. He stressed that SALGA was aware that it could not
dictate to municipalities what to do (SALGA and GTZ 2006:70).
10 CONCLUSION
An effective response to COVID-19 requires strong coordination across multiple
sectors, guided by strong leadership at all levels of the health system. Communitybased efforts should be integrated with existing health system infrastructure and
aligned with plans and protocols endorsed by the Ministries of Health and regional
authorities. Isolated investments in CHWs for COVID-19 will not work. While strategic
investments at all levels of the health system are needed, there are steps we can take
now to protect CHWs and communities on the front lines of this pandemic. COVID-19
reminds us of the urgent need for strong health systems that can provide essential
services while protecting against emerging pandemic threats. The investments in the
supply chain, compensation, dedicated supervision, continuous training and
performance management necessary for rapid community response in a pandemic
are the same as those required to achieve universal health coverage and prevent the
next epidemic. Strengthening high-quality healthcare delivery systems will save lives,
not just during COVID-19, but always.
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