NATIONAL YOUTH COMMISSION
DRAFT STRATEGIC FRAMEWORK ON THE LOCAL
GOVERNMENT WORK
Prepared for Internal Discussions by
Mary Maake, September 2006
“Strengthening local government
for a meaningful participation, intervention and contribution to the upliftment
of young people” Is this your vision, place it
relevantly
1.
BACKGROUND AND INTRODUCTION
Since the inception
of democracy in 1994 in
The
Constitution of the
The
National Youth Commission (NYC), established in 1996 through the Act of 1996 (Act
No. 19 of 1996, has been mandated to cater for the needs of young women and men
in country. The responsibilities of the NYC in advancing youth development as central
to transformation and addressing poverty an underdevelopment in
2.
OVERVIEW ON THE POLICY FRAMEWORK
DIRECTING THE NYC’S LOCAL GOVERNMENT PROGRAMME
There is an
acknowledgement that the local government programme of the NYC will not be like
any other local government programme, in particular for the implementing structures.
Nevertheless, this programme is subject to certain policy regimen. The following
paragraphs provide an overview on such a framework.
2.1
BROAD POLICY FRAMEWORK FOR LOCAL
GOVERNMENT IN
While the policies
of the government of the day have been progressive overall in addressing the developmental
challenges, essentially, non of the local government specific policies do target
youth as a specific group. Essential legislation such as Municipal Systems and Structures
Acts will require strategic interventions from the NYC to ensure that youth issues
are given the seriousness they deserve. Nevertheless, the Constitutional framework
gives the National Youth Commission leverage on devising interventions for youth
development at local government level.
Section 2 of the Constitution of the Republic Of
South Africa, 1996 (Act 108 of 1996), reflects that “ this Constitution
is the supreme law of the Republic, law or conduct inconsistent with it is invalid
and obligations imposed by it must be fulfilled. This in essence means that any design of youth
development interventions at local government level should be constitutional. There
are plethora of human rights encapsulated in the Constitution for which youth are
also subject to benefit. The National Youth Commission should seek ways through
which it can leverage the opportunities brought about by the new constitutional
dispensation in
2.2
SPECIFIC FRAMEWORK FOR THE NYC’S
LOCAL GOVERNMENT PROGRAMME
2.2.1
The National Youth Commission Act
The National Youth Commission, created
in terms of an Act of Parliament, (National
Youth Commission Act, Act no 19 of 1996 as amended By Act 16 of 2000) is a statutory
public entity created with some specific objects. The objects as they relate to
this strategy are defined in the paragraphs below.
q To coordinate and develop an integrated national youth policy – An integrated National Youth
Policy should take cognizance of the status of youth at municipal level. In essence,
the national youth policy will find its real life in its implementation at local
government level.
q To develop an integrated national youth development strategy that utilises
available resources and expertise for the development of the youth and which shall
be integrated with reconstruction and development programme
- The integrated national youth development strategy is the implementation
arm of the National Youth Policy. As with the policy, the strategy can only make
a meaningful impact at local government level. While the National Strategy will
be the over-aching strategy, local youth plans will give it measurable impact.
q To develop principles and guidelines and make recommendations to the government
regarding such principles and guidelines for the implementation of such principles
and guidelines as a matter of priority : The National Youth Commission will have to continue refining
youth practices at local government level. The Guidelines on local government will
need to be refined and on the cutting edge of local government development to influence
developments in lieu of youth development.
q To implement measures to redress the imbalances of the past relating to the
various forms of disadvantage suffered by the youth generally or specific groups
or categories of persons amongst the youth. The interventions of the National Youth Commission at
this level should ensure that the previously disadvantaged youth in particular are
given credence.
q To promote uniformity of approach by all organs of state, including provincial
and local government, to matters relating to or involving the youth. The development of guidelines and policies
related to youth development targeting municipalities remain critical.
2.2.2
National Youth Development Policy
Framework
National Youth Development Policy Framework (2002-2007) sets broad
goals for youth development in the following categories:
o
Social Well being – eg. Involvement of young people in
poverty alleviation programmes and strengthening of capacity building programmes
aimed at young people.
o
Education and training – Collaborative learning
o
Economic participation and empowerment – Learnerships,
training, PPP, youth Business development
o
Justice and Safety – e.g The Youth Crime Prevention
Strategy
o
Social mobilisation, capacity building and advocacy –
eg National Youth Service.
This is the document that the government
adopted as a working document for youth development; hence it identified the following
key goals amongst others:
v On youth Social Well Being
-
Young People’s active involvement in the conceptualization,
implementation and, monitoring processes of youth driven poverty alleviation programmes
in local government.
-
Support and expansion of the Youth Aids ambassadors programme.
-
Arts and culture involvement of youth.
-
Youth involvement in sport.
-
Youth access to information.
v Education and Training
-
Participation of youth in structures that deliberate
on education.
-
Developmental programmes to promote structured learning
for youth who are outside the formal education system.
v Youth Economic Participation
-
Creation of youth specific learnerships,
-
Market driven training,
-
Public private partnerships to drive the youth entrepreneurship
course,
-
Strengthening the capacity of Umsobomvu Youth Fund for
increased youth economic participation and empowerment.
v Justice and Safety
-
Community involvement
-
Life skills programmes
-
Houses of safety for young people
-
Alternative means of sentencing for youth
-
After care for young offenders
v Social Mobilisation,
-
Implementation of National Youth Service Programme,
-
Capacity building for youth organisations,
All the above find better expression at local government
level. It is through active involvement of local government that the youth’s socio-economic
status can be improved.
2.2.3
NATIONAL YOUTH POLICY 2000
The National
Youth Policy 2000, acknowledges the role of local government in youth development
by encouraging the local government to design mechanisms for the creation of youth
development programmes and to also identify the needs and developmental opportunities
for young people. The policy identifies roles that municipalities need to play in
addressing the needs of young people:
2.2.4
The White Paper on National Youth Service
The White Paper on National Youth Service set the clear
framework for the implementation of the National Youth Service in
q Service – National
Youth Service is implemented in areas that are regarded as essential to national
development and the communities. Young people therefore should deliver such a service
to the directly affected community voluntarily getting only a stipend.
q Learning
Component – while involved in the delivery of the essential National Service, young
people are also gaining some accredited skills.
q Exit opportunities
– The National Youth Service Programme in South Africa is structured such that young
people on conclusion of the project do not have to return to the streets, but get
pre-planned exit opportunities.
The service component of this programme finds clear expression
at local government level. It remains significant to find avenues of implementing
this programme mainly at local government level.
3.
THE CURRENT STATUS OF
YOUTH DEVELOPMENT AT LOCAL GOVERNMENT LEVEL
A recently completed
study entitled Youth Development Policy in Municipalities in
v On the Existence of youth policies in Municipalities: While slightly less than 24% of all municipalities
have a youth development policy, the figures hide significant differences between
the various categories of municipalities. All six metropolitan municipalities, 35%
of district municipalities and 19% of local municipalities have such policies.
v On the reasons for not having a youth policies: The primary reasons for not having a
policy were attributed to a lack of capacity, the fact that the policy is still
being prepared and a lack of political will.
v On the officials’ perceptions of their youth development policies: The highest average rating of their
policies was amongst officials employed in metropolitan municipalities (7.6 out
of 10), followed by officials employed in district municipalities at 6.9 out of
10 and officials employed in local municipalities at 5.8 out of 10. These ratings
do, however, hide a wide range of perceptions, with some officials scoring their
policies as low as 4 out of 10 and others as high as 10 out of 10. The reasons for
the higher ratings were given as the focus of the policy on youth issues, involvement
by youth and alignment with other developmental plans and policies, as well as with
the national youth framework. Lower ratings were primarily attributed to the policy
still being under construction and a lack of implementation.
v On the Content/Focus of policies: While there are some differences between the content of the
policies as provided by the interviewees from the three types of municipalities
there are a number of dominant themes in all three sets. These are (1) employment
creation and LED; (2) capacity building and skills development; (3) sport development;
(4) initiating and sponsoring youth development projects and programmes; (5) HIV
and AIDS; and (6) ensuring integration between youth and the structures and activities
of the municipality.
v On the Institutional arrangements and the role of the youth official: More than 50% of all municipalities
have appointed an official to deal directly with youth issues. The location of this
official in the administration varies significantly in and between the various categories
of municipalities. Despite the differences in location the majority of these officials
tend to report to the Mayor. As for the key functions of these officials, this tends
to revolve around the development of youth strategies, coordination of youth matters,
lobbying and advocacy.
v On Youth Development Research at local government level: Not much research by municipalities
into youth and youth issues was reported. The bulk of the research that was done,
was also undertaken during the course of the last year, which may not necessarily
be a result of a lack of concern, but rather the newness of the youth function and
youth officials in municipalities.
v On the Implementation of youth policy at municipal level: According to the respondents commitment
to implementation is high amongst all categories of municipalities. Skills development
and local economic development programmes were the areas that were most actively
implemented by municipalities throughout the country. The majority of municipalities
do not have mechanisms or measures in place to monitor policy-implementation and
performance. The majority of municipalities are also enforcing youth quotas in municipal
procurement. The most important success factor for implementation of the youth development
policy is whether it was budgeted for or not, followed by the support of key officials.
Inclusion in the IDP seemed not to be regarded as that important. The main stumbling
blocks for implementation of these policies were listed as lack of finances, lack
of communication and information sharing, lack of capacity and lack of awareness
of youth issues.
Overall,
it can be acknowledged that work has been done in terms of institutinalising youth
development at local government level. However in practice there is still some work
that need to be undertaken in ensuring that youth units are effectively utilised
to inform policy at municipal level.
4.
RATIONALE/ CASE FOR A
LOCAL GOVERNMENT STRATEGY AT LOCAL GOVERNMENT LEVEL
v
To provide for a focused approach on local government work of the National
Youth Commission.
v
To set clear goals and objectives on the National Youth
Commission’s local government work.
v
To set basis for lobbying and advocacy work at local government level.
5.
NATIONAL YOUTH
COMMISSION’S STRATEGIC APPROACH TO LOCAL GOVERNMENT WORK
5.1
VISION: To build a sustainable youth
development programme at local government level
5.2
5.3
OBJECTIVES
5.4
CHARACTERISATION OF THE
NYC’S LOCAL GOVERNMENT WORK
The NYC Local Government Programme focuses on facilitating
the implementation on institutionalization of youth development at local government
level. The Local government programme will continue focusing on the “CAR” model
which is an abbreviation of the following:
C:
A: Advocacy and Lobbying
R: Research
5.4.1 Capacity building element of the local government programme mainly focuses on
building the capacity of youth and municipalities to effectively ensure youth development
and participation at local government level. There are two key areas on capacity
building, namely:
·
To establish a framework for efficient local youth Policy development
that can be replicated in SA.
·
To use best practice models to illustrate practical application
of local youth policy.
·
To strengthen the capacity of youth organizations and municipalities
in
5.4.2 Advocacy element aimed at assisting municipalities in
institutionalizing youth development at local level. In this regard, Municipal
Youth Guidelines adopted at the 2004 national Conference on Youth Development at
local government, have been developed to serve as an instrument that should provide
guidance to Municipalities on setting up appropriate interventions for youth development
at local level. As a consequence its monitoring, research and policy work, the NYC
shall advocate for relevant programmes, services and facilities for the development
of young people in municipalities.
In ensuring that institutionalization of youth development in municipalities
occur, the NYC among other things, has further developed the Municipal Youth
Development Guidelines that are aimed at providing information to assist stakeholders in conceptualizing,
developing, planning and evaluating the implementation of youth policy in the municipalities.
Based on the continues challenges that municipalities are still facing with regard
to the istitutionalisation of youth development, the NYC will continue using the
guidelines as a guiding document to lobby and advocate for the youth development
in municipalities. Other purposes of the guidelines included:
·
To
provide basic guidelines to all municipalities in developing relevant policies
·
To
assist the municipalities in developing working and appropriate strategies for youth
development interventions
·
To
set minimum programme content for local government that each municipality has to
annually report on as part of their performance scorecard
·
To
bring closer the disparate attempts at youth development programming that are mostly
difficult to quantify
·
To
assist municipalities in institutionalising youth development and ensuring its mainstreaming
in the broader integrated development planning processes.
The following points were highlighted
as guidelines for the implementation of youth development in municipalities:
On the Municipal
Youth Policy: Municipalities
should establish a policy on youth development.
On the Institutional structures: There is an existing policy framework
compeling municipalities to establish structures for youth development. The overall
policy framework compels municipalities to establish the structures necessary for
implementing the Local Youth Policy. Furthermore, the policy framework compels municipalities
to identify a specific elected official and committee to be designated as the custodian
of youth matters in/for council.
On the Management
structure: Municipalities
are required to appoint a member of staff in a senior position to be responsible
for youth matters.
On the location
of Youth Units: Youth
affairs officials should be located in a place where they visible. This should be
in the office of the mayor.
On the Role
and Responsibility of the Youth Unit: The following key roles are critical to these units:
·
To
develop appropriate strategy that will enable the municipality to meet its policy
commitments and legal obligations to the youth in its area of jurisdiction;
·
To
conduct or commission meaningful, periodic research into youth development and its
impact in the municipality;
·
To
co-ordinate and facilitate the formation of a ”Youth Council” or hold/convene an
annual youth summit as may be dictated by the policy of the municipality;
·
To
manage projects for, and report on, various interventions aimed at youth development;
·
To
develop mechanisms such as scorecards or indicators for monitoring and evaluation
of the municipality’s performance on youth development
·
Initiate
programmes and projects for the municipality and ensure their inclusion in the IDP
of the municipality including the process of annual review;
·
To
provide a platform for advocacy, public information and planning for the youth structures
in the municipality; and
·
To
provide a stakeholder liaison and representation function on youth matters on behalf
of the elected representatives at local, regional and national levels.
Core youth programmes for implementation
in municipalities as stipulated in the guidelines
The co-ordination of volunteer services by young people has been
demonstrably done in other countries, notably by
The municipality should establish a career advice center modeled
alongside those of NGOs and universities around the country. In many instances,
the Councils could enter into o-operation agreements with institutions that can
add value to make this possible. From research conducted, including the CASE report
done for the NYC in 1996, “poor career guidance and ignorance about educational
opportunities” are just some of the challenges facing the country’s poorer communities.
Also, advise about educational assistance such as bursaries and loans can be proffered.
In addition to the above, educational institutions can be brought on board to provide
direct contact to learners as well as in some instance bring distance learning opportunities
to far-flung regions.
The single greatest challenge in disadvantaged areas is lack
of facilities and knowledge about sports. While sporting activities are limited
to the affordable soccer and in some instances netball, these activities are mainly
school-based and little organized sports takes place. It is also noteworthy that
Olympic sport is not organized at local levels. It is imperative that municipalities
take some responsibility for organisation of sport to support national effort at
increasing
Secondly, the construction of sports facilities in the disadvantaged
areas is a challenge that the national constitution poses on local government. As
a developmental local government, infrastructure development has become a field
of play for the sector. How youth can be involved in the construction opportunities
as well as management of contracts for sports facilities is an opportunity that
needs exploring.
Facilities management is another area of concern. Previously,
municipal facilities would remain ‘white elephants’ in a sea of communities that
have no facilities. It is thus crucial for municipalities to develop local capacity
to manage the facilities. Public-private partnerships, as well as agreements with
civil society organizations, have potential that needs to be looked into. Youth
can specifically be trained and compensated for managing facilities on behalf of
councils. Obviously, the participation of organized sports in the management and
use of such facilities is crucial for the success of such interventions.
Two crucial issues are internships and learnerships. The department
of Labour has put in place a human resource development strategy for the country,
which requires employers to create opportunities for post-school development of
skills. Municipalities should put in place the HRD policy framework that prioritises
local youth as beneficiaries of organized training opportunities. Specific fields
of priority could be earmarked that relate to the economic challenges that face
the area. For instance, in conjunction with private sector organizations, municipalities
should compile a database of learnerships in the area for the scarce skills that
will support their Local Economic Development strategy. Thus, skills development
is directed at specific needs of the economy of the municipality. This will make
investment in HRD a worthwhile objective for business as well as potential investors.
Potential for investment by municipalities in income-generating
activities is huge. This will also make a dent in the unemployment rates in the
area. Some areas have identified sea-harvesting activities, others tourism and yet
others mining support activities. These areas can potentially be used as a catalyst
for job creation and economic growth. In that instance municipalities could look
into their strengths and put their resources into creating a core of business opportunities
for their citizens.
A second area
is exploring the preferential procurement policy that prioritises companies doing
work through investment in development of local human resource capacity. Tenders
such as cleaning, maintenance, refuse disposal, storm-water, electrification and
other infrastructure tenders could require service providers to demonstrate their
ability to use locals as employees and joint venture players in tendering process.
Obvious risks such as repeated circulation among a few elite, well-connected businesses
should be guarded against in the process. Specific attention should be paid to youth
development impact of such contracts.
It is crucial, with
Volunteer groups that will clean and green the towns are still
a basic necessity. The dry seasons being experienced today, provide a good reason
to call for youth action on saving the environment. Activities such as managing
drainage, deforestation, greening the parks, national arbour day, etc will support
environmental conservation and make a meaningful contribution to the youth’s all-round
development.
Research element - The research element focuses on developing
based practices and communicating. Ongoing research on various matters of youth
development at local level is key to our work in identifying needs for local facilities
on youth development.
Youth Advisory Centres:
5.5
PRINCIPLES OF THE NYC’S
LOCAL GOVERNMENT PROGRAMME
o
Redressing imbalances
Recognition of the manner in which young women and men have been
affected by the imbalances of the past and the need to redress these imbalances
through more equitable policies, programmes and the allocation of resources.
o
Gender inclusive
The National Youth Policy promotes a gender-inclusive approach
to the development of young women and men, where the socialising influences of gender,
the impact of sexism and the particular circumstances of young women are recognised. The National Youth Policy celebrates the many
differences found amongst young people and promotes equal opportunity and treatment
of all young people – male and female.
o
Empowering environment
Creation of an environment which supports the continued life-long
development of young men and women and their skills and capacities.
o
Youth participation
Promotion of young people's participation in democratic processes,
as well as in community and civic decision-making and development e.g. IDP processes.
o
Youth-driven
Youth development services and programmes should be youth-driven
and youth-centred.
o
Mainstreaming youth issues
Whilst recognising the need for youth-driven and youth-centred
development programmes and services, the needs, opportunities and challenges facing
young women and men are the concerns of the whole society. Youth development should
be recognised as an important mandate for all government agencies, non-government
organisations and development institutions.
o
Responsiveness
Responds to the needs, challenges and opportunities experienced
by young women and men in a realistic and participatory manner.
o
Cultural and spiritual diversity
Recognition of cultural and spiritual diversity as a basis for
youth development and the important role tradition, spirituality and culture can
play in the development of young men and women.
o
Sustainable development
The value of sustainability is promoted to ensure the needs of
the present are met without compromising the ability of future generations to meet
their own needs.
o
Rural emphasis
The National Youth Policy promotes a rural emphasis in many of
its strategies. Where many development efforts
contain an urban bias, the National Youth Policy endeavours to recognise and address
the needs of rural young people and their communities.
o
Transparency and accessibility
Institutions and organisations involve in youth development should
operate in a transparent and accountable manner, whilst ensuring they are accessible
to young women and men.
5.6
STRATEGIES ON ENGAGING
WITH MUNICIPALITIES
Status Quo
Municipalities,
Metro, District and Local provide a significant platform through which youth policy
can be implemented. The real challenges facing youth are found at local level. The
interventions at this level therefore remain significant.
Strategies
v
Consistently
provide guidelines to municipalities in institutionalizing youth development in
their workings.
v
Assist
Municipalities by setting minimum programme content for youth development programme.
v
Promote
uniformity of approach on the implementation of youth policy in general at municipal
level.
5.7
STRATEGIES ON ENGAGING
WITH YOUTH CIVIL SOCIETY ORGANISATIONS DOING WORK AT MUNICIPAL LEVEL
Status Quo
Civil
Society Organisations has an important role to play at in terms of youth development
at local government level. They represent the voice of young people in communities.
Youth Organisations in municipalities lack key competencies to drive youth development;
they need to be capacitated on skills such as leadership skills, resource management
and IDPs.
Strategies
o
The NYC needs to facilitate
the process of resuscitating SAYC
o
The NYC Needs to develop an MOU with SAYC to define the partnership
o
Municipalities need to develop a clear strategy on how they will engage
with civil society organizations. Municipalities have a leadership role to establish
sustainable relations with youth organizations in responding to the needs of young
people and representing their interests within the municipality.
o
Municipalities need to financially support and capacitate the youth
organisations
o
Private sector organizations need to support youth organizations in
terms of funding as well as establishing constructive partnerships.
o
Civil Society’s role in youth development requires recognition and
resources. It is only through a strong and well-resourced civil society that participation
in the development and promotion of youth development policies and programmes can
occur.
5.8
STRATEGIES ON ENGAGING
WITH HIGHER SPHERES OF GOVERNMENT TO IMPLMENT YOUTH POLICY AT MUNICIPAL LEVEL
The Most critical challenge for the implementation of youth development
in municipalities in Institutionalisation of youth development is at this sphere.
While in the national and provincial spheres of government there has been policy
and legislative attempts at institutionalizing youth development, the same cannot
be said about local government. The local government legislation such as Municipal
Systems and Structures Act do not contribute towards the institutionalisation of
youth development in
o
Establish
a strategic relationship with DPLG and SALGA through Bilaterals with Premiers and
Mayors, including other representative bodies.
o
NYC
to sign an MOU with DPLG and SALGA on the role clarifications
o
To
facilitate the incorporation of youth development in the local government legislation
and policies through DPLG
o
NYC
needs to ensure that youth issues at local government are tabled at the Presidential Working Groups and Advisory
Councils, Portfolio Committee briefings, especially the JMC and other relevant Parliamentary
Structures
5.9
STRATEGIES ON ENGAGING
THE PRIVATE SECTOR ON THE IMPLEMENTATION OF THE NYC’S LOCAL GOVERNMENT
PROGRAMME
NYC needs to establish substantial and significant
interaction with the private sector to support youth development projects at local
government.
5.10
STRATEGIES ON ENGAGING
WITH INTERNATIONAL PARTNERS IN LIEU OF THE IMPLEMENTATION OF THE NYC’S LOCAL
GOVERNMENT PROGRAMME
International Partnership has been very instrumental
to the NYC work. The NYC has established a constructive partnership with the Flemish
Government. The Co-operation Agreement between the
two countries aimed at strengthening the capacity of youth at local government level.
5.11
STRUCTURAL IMPLICATIONS FOR THE
IMPLEMENTATION OF THE NYC’S LOCAL GOVERNMENT PROGRAMME
5.12
STRATEGIC PARTNERSHIPS AND LINKAGES
The NYC needs to establish
key partnerships with the following stakeholders:
5.13
IMPLEMENTATION FRAMEWORK
|
ACTIVITY |
RESPONSIBLE ORGANISATION |
TIME FRAME |
KEY PERFORMANCE INDICATORS |
|
|
Training of
youth managers |
NYC/PYCs and
Municipalities |
April 2007 |
Report on
the training |
|
|
ADVOCACY AND LOBBYING |
|
|||
|
Institutionalisation
of youth development in municipalities |
NYC/PYCs |
On going |
Research reports |
|
|
Establishment
of a Reference Committee |
NYC |
February 2007 |
o
Final list of stakeholders o
Meeting reports |
|
|
Bi-annual
local government conference |
NYC |
Bi-annual |
Conference
reports |
|
|
Singing of
MOU with SALGA and DPLG |
NYC, DPLG
and SALGA |
2006 December |
Signed
MOU |
|
|
Submission
to DPLG on the incorporation of youth development in their policies and legislation
(IDPs, municipal systems Act…) |
NYC and DPLG |
December 2006 |
Adopted submission
|
|
|
Facilitation
on youth participation during the local government elections |
NYC/IEC |
On going |
Report on
youth participation during the elections |
|
|
Road shows
to municipalities |
NYC/PYCs |
May 2006 |
Report from
the road shows |
|
|
Contribute
to the Youth Advisory centres on youth development matters |
NYC/PYCs |
On going |
Research report |
|
|
LOCAL GOVERNMENT COMMUNICATIONS |
||||
|
Contribution
on local government issues to the overall NYC newsletter |
LG unit |
Quarterly |
Final newsletter
produced |
|
|
Develop leaflets
on the Local Government Programme |
LG unit |
February 2006 |
Leaflets developed
|
|
|
Update on
Local Government Programme to the NYC website |
LG unit |
Quarterly |
Updated website
|
|
|
RESEARCH |
||||
|
Develop on
going research on youth development at local Government |
NYC |
Bi-ennially |
Research reports |
|
|
|
|
|
|
|