DEPARTMENT OF
WATER AFFAIRS AND FORESTRY
PROJECT MANAGEMENT IN THE PUBLIC SECTOR 2003
26 – 28 November 2003
Park Hyatt Hotel
CHALLENGES IN THE SECTORAL APPROACHES TO
PROGRAMME MANAGEMENT
Case Study on Masibambane Water Services Sector Support Programme
Kalinga U Pelpola B Sc Eng,Pr Eng,C Eng, FICE,FWISA
Director: Water Services Support &
Programme Manager Masibambane WSSSP
Department of Water Affairs and Forestry
OUTLINE
• Preface
• Imperatives
• Challenges in the sectoral approach to programme
management
• Masibambane Water Services Sector Support
Programme
• Moving into the Future
• Conclusion
OUTLINE
• Preface
• Imperatives
• Challenges in the sectoral approach to programme
management
• Masibambane Water Services Sector Support
Programme
• Moving into the Future
• Conclusion
POLITICAL IMPERATIVES
Water and Sanitation
• Community Water Supply Sanitation White Paper ‘94
– Basic Water Supply 12m, Sanitation 21m
– To be Achieved in 5-7 years
• Millennium development goals (MDG)
– Halved Water backlog –2015, Sanitation backlog halved –2015
– Full coverage water & sanitation –2025
• What has been achieved
– Water backlog halved
:
– Created job opportunities :
– Spent
:
•
2001-14y ahead of MDG
375 000
R7,0 billion
Water Globe Award – 2002 CWSS for most innovative
programme in the world
Water Globe Award 2002
Winning Programme CWSS
6th March 2002 Linz-Austria
PREFACE
• Not an academic treatise
• Lessons learnt over past 10 years on CWSS– with
focus on 3 year Masibambane Programme experience
• This is a practical understanding & analysis of Project
management principles applied in a Sector Wide
Approach (SWAP)
• With greater scrutiny, comparative study & academic
rigour best practice in Programme Management
identified for future multi-sectoral approaches in MIG
CLIMBING THE WATER LADDER
2008
All South Africans
have access to
safe water
2004
5 million without
safe water
Masibambane
1994
BoTT
14 million without
safe water
CWSS
R 3,2b/a for WS within
R10b / a MIG Framework
R1,5 billion
budget 2003/4
CONSTITUTIONAL IMPERATIVES
Water Services Sector
• Cooperative governance
• National Government responsible for Policy and
Regulation
• Local government responsible for Water services
• Autonomous Local Government
• Right of access to Basic Services
LEGISLATIVE 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
• Preface
• Imperatives
• Challenges in the sectoral approach to
programme management
• Masibambane Water Services Sector Support
Programme
• Moving into the Future
• Conclusion
CHALLENGES IN THE SECTORAL APPROACH
TO PROGRAMME MANAGEMENT
• Large sectoral development programmes
•
•
•
•
Tendency to operate in silos
Cultural diversity
Sector leadership & joint decision-making
Establishment of collaborative practices
• Communication & sharing of information
• Accountable without direct control
• Planning and Project Prioritisation
• Internal and external continuously changing
• Attract investment (Government & donor) to the sector
CHALLENGES TO SECTORAL APPROACH
Real backlog
Investment plan
Political objectives
National
Funding mechanisms
Provincial
Funding conditions
Local
Donor requirements
Strategic objectives
Multi-sectoral
environment
Decision-making
Institutional capacity
Geographical spread
Planning processes
Stakeholders
Cultural diversity
Procurement
Implementation
mechanisms
Legislation
Empowerment
INTEGRATION
COMMUNICATION
Resources
CHALLENGES TO SECTORAL APPROACH
• Integration
– Strategic objectives
– Funding mechanisms
– Service delivery
• Leadership & decision-making
• Communication & dissemination of information
• Roles, responsibilities & accountability
• Internal sectoral challenges
MEETING THE CHALLENGES OF
SECTORAL APPROACH
• Key focus areas:
–
–
–
–
–
Change management
Integration
Scoping
Quality & risk
Communication
• Programme management approach based on:
–
–
–
–
–
–
Best practice
Robust Framework
Repeatability
Empowerment
Appropriate technology
Cross cutting issues (Gender, Civil Society,Environment etc)
OUTLINE
• Preface
• Imperatives
• Challenges in the sectoral approach to programme
management
• Masibambane Water Services Sector Support
Programme
• Moving into the Future
• Conclusion
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 …..
but government only
• Collaboration is more voluntary for
mutual benefit
• Not about formal structuring – but about
working together
Masibambane = Let’s work together
STRATEGIC ALIGNMENT
3. Building the economy
& creating jobs
4. Combating crime
& corruption
2. Developing human
resources
5. Transforming the
State
1. Speeding
delivery to meet
basis needs
6. Building a better
Africa
CABINET MEDIUM TERM
STRATEGIC OBJECTIVES
WS for economic &
social development
Basic WS services
Effective WSIs
Local level O&M &
transfers
Promote & support
Africa’s MDGs
INTERNAL MASIBAMBANE ENVIRONMENT
Water Services Sector
• DWAF
• DPLG
Sector
Strategic and
Management
Committees
• SALGA
DWAF
Policy and Regulation
Operations
Regional Offices
WS
Sector
Strategy
• WSIs
• Local Govt
• NGO/CBOs
DWAF WS
Strategy
• Private
Sector
WS
Functional
Management
Committee
• Etc
Masibambane Sector Support
Content coordination
Programme Management Support
COMPLEX INTER RELATIONSHIPS
EXTERNAL ENVIRONMENT
PARLIAMENT
CABINET
N.C.O.P.
SOCIAL
CLUSTER
L.G. PORTFOLIO COMMITTEE
PORTFOLIO COMMITTEE
Water Affairs & Forestry
MINISTER - DWAF
MINMEC
WATER RESOURCES
L.G. MINMEC
WATER SERVICES
MINISTER – EXEC COMMITTEE
MINTECH
FOSAD – DG’s
DPLG
SALGA
MANCO
SOCIAL CLUSTER
TASK TEAM
MITT
IDP
ISRDP
W.S.SECTOR
LEADERSHIP
GROUP
NAT SANITATION
TASK TEAM
W.S. FUNCTIONAL
MANAGEMENT
COMMITTEE
MASIBAMBANE
COORD CTTEE
INTER-DEPT
TRANSFER CTTEE
OPERATIONS
BRANCH
PROV DEPT of LG
PLGAs
PROVINCIAL LIAISON
COMMITTEE
POLICY &
REGULATION
BRANCH
DWAF REGIONAL OFFICES
SUPPORT
SERVICES
BRANCH
PROJECT MANAGEMENT PRINCIPLES
SWAP
SECTOR WIDE APPROACH
PMBOK
Best practice
Empowerment
Appropriate technology
“Back to the basics”
BEST PRACTICE PRINCIPLES
Integration
Management
Plan Development
Plan Execution
Change Control
“IDP / WSDP”
Scope Management
Initiation
Scope Planning
Scope Definition
Scope Verification
Change Control
Time Management
Activity Definition
Activity Sequencing
Duration Estimation
Schedule Dev.
Schedule Control
IT Management
IT Requirements
IT Planning
IT Utilization
IT Reporting
IT Maintenance
Procurement
Management
Procurement plan
Solicitation
Source Selection
Contract Admin.
Contract Close-out
Cost Management
Resource Planning
Cost Estimation
Cost Budgeting
Cost Control
Quality
Management
Programme Management
Risk Management
Risk Identification
Risk Quantification
Response
Development
Response Control
Communications
Management
Communication Plan
Info. Distribution
Performance Reports
Admin. Closure
Quality Planning
Quality Assurance
Quality Control
Human Resource
Management
Organizational
Planning
Team Acquisition
Team Development
INTEGRATION MANAGEMENT
Integration
Management
Plan Development
Plan Execution
Change Control
“IDP / WSDP”
•
Scope Management
Time
Political
objectives
&Management
targets
•
Integration
of sector
Scope Planning
Activity objectives
Sequencing
Initiation
Activity Definition
Scope Definition
Scope Verification
Change Control
Duration Estimation
Schedule Dev.
Schedule Control
Procurement
Management
Procurement plan
Solicitation
Source Selection
Contract Admin.
Contract Close-out
Resource Planning
Cost Estimation
Cost Budgeting
Cost Control
•
IDP’s, WSDP’s & sector work plans
•
A common framework:
IT Management
IT Requirements
IT Planning
IT Utilization
IT Reporting
IT Maintenance
Cost Management
Quality
Management
- One strategy - into which all strategies
feed
Quality Planning
Programme Management
Quality Assurance
- One work plan – into which provincial
plans
Quality
Controland all
activities feed & meet donor requirements; Bridge the
gap between strategy & project BPs
Human
Resource
- One reporting system
– quarterly per
PFMA
&
Communications
Management
Management
incorporating
donor
requirement Organizational
Risk Identification
Communication Plan
Risk Management
Risk Quantification
Response
Development
Response Control
Info. Distribution
Performance Reports
Admin. Closure
Planning
Team Acquisition
Team Development
JOINT DECISION MAKING
• Threatening term!
• Fear setting up alternative structures & decisionmaking processes from authorised ones
• Sector collaboration is NOT about undermining these
– but about decision makers taking decisions in their
own right within their legislative mandate with a better
understanding of others’ viewpoints
• If no decision taking for action – ineffective
collaboration!
• Learning from experience
DWAF PROGRAMME MANAGEMENT UNIT
SUPPORT UNIT
DDG (OPERATIONS)
OPSCOM
PMBOK Focus Areas
SU MANAGER
PROGRAMME MANAGER
WSFMC
Deputy SU
MANAGER
Strategy
KFA 10 Work Plan
Reporting
Strategy
KFA 11 Work Plan
Reporting
Strategy
KFA 12 Work Plan
Reporting
Strategy
KFA 13 Work Plan
Reporting
Strategy
KFA 14 Work Plan
Reporting
FINANCE,
BUDGET &
PLANNING
MANAGER
Deloitte & Touche
Manase & Associates
KPMG
•Budget process
•Donor Fund Tracking
•Financial Delegation
•Support to MIG
Processes
•Workplan
•Audits
Integration management
Scope management
Team management
Risk management
Procurement Management
MOU management
PMBOK Focus Areas
Policy coordination
Time management
Cost management
Progress reporting
Communication management
Incl. P & R Interfacing
MONITORING,
REPORTING &
EVALUATION
MANAGER
BUSINESS
PLANNING
SUPPORT
MANAGER
Africon
T&T
Segodi Marah Martin
Stewart Scott
•BP Support
•Local Government
Support
•One Stop Shop
•Free Basic Services
•CSO Project
Management
•Monthly reports
•Quarterly reports
•Annual Report
•M&E Framework
Development
•KPI Development
MANAGEMENT FUNCTIONS
Unit
responsible
for:
Specialist
Advisor
Strategic Planning*
Business processes*
Change management
Best practice
CONTRACT
GOVERNANCE &
TECHNICAL
SUPPORT
MANAGER
Bigen Africa
iNtatakusa Consulting
Manase & Associates
•Overall reporting
•Contract Tool Box
Development
•BoTT Pilot Processes
•SMM Pilot Processes
SUPPORT FUNCTIONS
MANAGEMENT
TEAM
SCOPE MANAGEMENT
•
• Time
Water
– 6 million
Management
Cost Management
•Activity
Sanitation
– 17 million
Definition
Resource Planning
Activity Sequencing
Cost Estimation
•Duration
…….
Meeting
National
Strategic Objectives
Estimation
Cost Budgeting
Scope Management
Initiation
Scope Planning
Scope Definition
Scope Verification
Change Control
High level scoping – current backlog
•
Schedule Dev.
Schedule Control
DWAF change in scope
•
•
•
Planning & prioritization
Quality
Appropriate level ofManagement
service
Challenges
Programme Management
Risk Management
Risk Identification
Risk Quantification
Response
Development
Response Control
Cost Control
Quality Planning
Quality Assurance
Quality Control
 Accuracy of services / infrastructure backlog
• Budgetary Constraints (Investment Planning)
Human Resource
• Communications
Planning & prioritization
Management
Management
• Communication
Appropriate
level Organizational
of service
Plan
Planning
Info. Distribution
Team Acquisition
• Performance
Availability
vs capacity to implement
Reports of funding
Team
Development
Admin. Closure
• Realistic targets
Resource Planning
Cost Estimation
Cost Budgeting
Cost Control
QUALITY MANAGEMENT
•
• Customer-focused
Quality
Management
Quality Planning
Quality Assurance
Quality Control
Human Resource
Management
Organizational
Planning
Team Acquisition
Team Development
Quality management principles
•
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
Management
Management
Quality Planning
Quality Assurance
Quality Control
COMMUNICATIONS MANAGEMENT
•
Resource
•Human
Critical
to success
Management
Communications
Management
Communication Plan
Info. Distribution
Performance Reports
Admin. Closure
Communication strategy
• Network for dissemination of information
•
Organizational
Planning
Team Acquisition
Team Development
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 & EVALUATION
NATIONAL SUMMARY REPORTS
TREASURY REPORTS
PROVINCIAL REPORTS
LOCAL MUNICIPALITY REPORTS
INDIVIDUAL PROJECT REPORTS
KEY PERFORMANCE INDICATORS
KPI Hierarchical Framework
Programmatic
Class 2
Measure
Project
Specific
Input
Class 3
Project
KPI Indicators
Measure
KPI Indicators
Key Performance Framework
KPI Indicators
Measure
Class 1
Input
Programme
Specific
Strategic
Measure
Strategic
Specific
Vision / Mission
Management
Programme Management
Quality Planning
Quality Assurance
Quality Control
RISK MANAGEMENT
Risk Management
•
Identify
critical success
factors
Human Resource
Communications
Management
Risk Identification
Risk Quantification
Response
Development
Response Control
Communication Plan
Info. Distribution
Performance Reports
Admin. Closure
Management
Organizational
Planning
Team Acquisition
Team Development
•
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 Manual
• Tool box and guidelines for procurement
( Accepted for inclusion in the UNCHS Web page under best practice models)
• Budget allocation framework
• Investment Planning Models
• Financial Delegation
• Work plan & reporting templates
• M&E framework & KPIs
• Compendium of guidelines for various WS issues
Masibambane Programme approach has been identified as a
Best Practice Model for consideration in MIG
OUTLINE
• Preface
• Imperatives
• Challenges in the sectoral approach to programme
management
• Masibambane Water Services Sector Support
Programme
• Moving into the Future
• Conclusion
MIG MULTI-SECTORAL APPROACH
• Merging of delegated functions in terms of the following:
–
–
–
–
–
–
–
Consolidated Municipal Infrastructure Programme (CMIP)
Local Economic Development Fund (LED)
Water Services Capital Grant (CWSS)
Community-based Public Works Programme (NPWP)
Building for Sports & Recreation Programme
Urban Transport Grant
Electrification – to be added later
• Overall MIG target
“Removing the backlog with regard to access to basic municipal
services in 10 years” at an estimated cost of R 100 billion
MIG FRAMEWORK
Cabinet
Strategies
DPLG Strategic
Objectives
National and Provincial Government
Departments
Sectoral Strategies
MIG Strategic Unit
MIG Management Unit
Operational Level
Project Management Units
Local Government Processes and Systems
Local Municipalities and District Municipalities
IDP, WSDP etc
Management Information Systems
Electrification Sector
Sport and Recreation
Poverty Alleviation Sector
Transport Sector
Water and Sanitation Sector
Tactical Level
SU
Cross
Cutting
Multi
Sectoral
Issues
CONCLUSION
• 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 exemplary in
the region and beyond. In particular, it is unique in
proactively setting up a sector-wide programme … & in
decentralisation .. to provincial and local government
institutions. (It is) very much relevant within the South
African context. Based on .. programme management
best practice, Masibambane adopted an implementation
process that emphasises the active coordination and
collaboration among relevant sector partners.”
– UN/World Bank/SA Team
The End - Thank you