The Budgetary Review and Recommendation Report
of the Portfolio Committee on Water and Environmental Affairs on the
Performance of the Department of Environmental Affairs for the 2011/12
Financial Year, dated 18 October 2012
The
Portfolio Committee on Water and Environmental Affairs (the Committee), having
assessed the service delivery performance of the Department of Environmental
Affairs (the Department), reports as follows:
1. Introduction
The
Committee, in undertaking the process of compiling this report, has interacted
and engaged with the following source documents, and engagements with the
Department and other stakeholders:
·
Departmental quarterly expenditure trends briefings,
to ascertain expenditure patterns.
·
Through correspondence and briefings, the committee
received progress reports on the
departmental programmes and projects on the ground such as pollution and waste treatment management and
infrastructure, Expanded Public Works Programme, public awareness campaigns and climate change mitigation and
adaptation programmes/projects.
·
Annual report briefings, in terms of Section
65 of the Public Finance Management Act of
No.1 of 1999, which requires that Ministers table the annual reports and
financial statements for the
department and public entities to parliament.
2. Department’s Strategic Priorities and
Measurable Objectives
2.1 Strategic Priorities of the Department
The key
strategic priorities, in line with the vision and mission of the Department,
over the medium-term, comprise the following:
·
Support to local government in areas of air quality,
waste management, coastal planning and open-space planning;
·
Strengthening compliance and enforcement on rhino
poaching and environmental impact assessments;
·
Governance systems alignment with outcome 10 – Mining
integrated permitting, environmental management frameworks and land use issues;
·
Draw linkages between climate change, green economy
and sustainable development; and
·
Focus on key national and international engagements.
2.2 Measurable Objectives of the Department
Six (6)
critical programmes determine the work of the department. Within each of the programmes, the
department identified a number of measurable objectives, which relate
specifically to the purpose:
In Programme 1:
Administration and Support, the purpose is to provide
strategic leadership, administration, executive support and corporate
services. Within this programme, and for
the 2011/12 financial year, the Department achieved the following:
·
Achieved 11.5% vacancy rate (Target – 14%);
·
10.6% turnover rate (Target – 14%);
·
56% women representivity (Target – 56%);
·
65% procurement on BEE enterprises (Target – 58%);
·
10 public awareness and participation events (Target –
5);
·
55% share on media voice (Target – 55%);
·
2011/12 unqualified audit report; and
·
98% expenditure of the Department spent (Target – 98%)
The
challenges encountered in this programme related to a delay in the initiation
of the construction phase for the Department’s building. Key issues that were outstanding have been
concluded with the preferred bidder and construction will start in Quarter 1 of
2012/13.
The
Department was unable to meet its target of employing 2% of people with
disabilities due to an insufficient pool of relevant skill available,
especially in scarce skills categories.
The strategy to address this is to be finalized for implementation in
2012/13.
In Programme 2: Environmental Quality and
Protection, the purpose is to improve the quality and safety of
the environment in order to give effect to the right of all South Africans to
an environment that is not harmful to their health and well-being, the
achievements for 2011/12 reflect the following:
·
100% (58/58) of all complaints/incidents received and
processed (Target – 75%);
·
252 environmental management inspectors attended
specialized training courses/capacity building interventions (Target – 60);
·
66 officials trained in environmental impact
management (Target – 50);
·
60 ambient air monitoring stations reporting to the SA
Air Quality Information System (SAA/QS) (Target – 42).
The key
challenges noted in this programme focused primarily on:
·
Target of inspections of 70 facilities could not be
met due to financial constraints. The
Department only inspected 46 facilities;
·
Decision by industry to review the integrated waste
management plans which meant the targets are being reviewed and not yet
approved;
·
Baseline established for recovery of waste streams,
but consultations and discussions with industry required more time than
anticipated;
·
The target of 89% to process environmental
authorizations within timeframes were not met due to the Department receiving
significantly higher numbers of applications than anticipated, which placed more strain on
available resources; and
·
In relation to the finalization of environmental
assessment and management strategy, the project proposals and costing of Theme
3 report exceeded the anticipated amount of R500 000.
In Programme 3:
Marine and Coastal Management, the purpose is to promote the
conservation and sustainable use of marine and coastal resources to contribute
to economic growth and poverty alleviation.
This is also aimed at facilitating transformation and job creation
within the sector towards poverty alleviation in achieving this
department. The Department in this
financial year achieved the following:
·
Draft Green Paper on Oceans Management policy
developed as planned;
·
Draft estuary management protocol reviewed and
approved by Cabinet;
·
Three relief voyages undertaken (Marion/Gough/SANAE)
as planned;
·
Research on international methodology for shark and
whale population estimation completed;
·
·
25 peer review publications made (Target – 23).
The key
challenges noted in this programme relate to:
·
Prince Edward MPA (PEI MPA) declaration – objections
were raised during consultations in relation to targeted areas for declaration
led to delays as additional time was required to finalise the process;
·
Needs analysis and system design for South African
ocean and coastal information system – systems specification completed but the
availability of expertise delayed progress in achieving planned annual targets.
In Programme 4: Climate Change, the key
achievements noted:
·
National climate change response white paper approved
by Cabinet and gazetted;
·
9 climate change provincial summits were successfully convened;
·
The climate change response expo successfully hosted
alongside the UNFCCC COP 17 conference in
·
Four climate change sector adaptation plans finalized
(biodiversity, water, forestry and agriculture).
The key
challenges in this programme relate to:
·
The initiating of the Long Term Adaptation Scenarios
(LTAs) process being delayed as the LTAs had to be aligned with National Policy
and further consultations needed to be undertaken;
·
SAWS forecasting and South African risk and
vulnerability atlas Phase 11 – Finalisation toolkit review is still in process
as it required more time than anticipated; and
·
The transport GHG sector study delayed due to human
resources constraints.
In Programme 5:
Biodiversity and Conservation, the purpose is to promote the conservation and sustainable use of
natural resources to contribute to economic growth and poverty alleviation. The
department, for the 2011/12 financial year achieved the following:
·
7.3 % hectares of land under conservation;
·
Five management plans finalized as planned;
·
100% of GMO applications assessed for environmental
compliance;
·
31 398 ha of land rehabilitated and conserved;
·
100% (43) CITES applications received and evaluated;
·
100% (10) TOPS application received and evaluated.
In Programme 6:
Sector Services, Environmental Awareness and International Relations, the
purpose is to promote a global sustainable developmental agenda, and the
department, achieved the following:
·
Created 65 182 employment opportunities through the
SRP/NRM programmes against a target of 48 084;
·
Used 846 small, micro-medium enterprises as part of
DEA commitment to empower emerging businesses against a target of 250;
·
Planted 41 476 indigenous trees against a target of 10
000;
·
32 923 households benefited from collection initiates
led by the department against a target of 30 000;
·
National strategy on sustainable development finalized
and approved by Cabinet;
·
Facilitated 100 environmental education and awareness
workshops; and
·
Created 49 746 accredited person days against a target
of 32 675.
The key
challenges reflected in the programme relate to:
·
The National Resource Management programme was
transferred from the Department of Water Affairs in April 2011, and that
transition contributed to delays in achievement of some of the planned annual
targets as there was a need to align the work of the programme to departmental
processes and to deal with human resource capacity issues.
3. Analysis of
the Department’s 2011/12 Annual Report and Financial Statements
3.1 Expenditure trends for 2011/12
A cursory
overview of the final appropriation in Vote 30 and the expenditure trends for
2011/12 reflects the following:
Programme |
Final Appropriation |
Expenditure |
Expenditure as % Final appropriation |
Variance |
Administration |
293 995 |
293 995 |
100 |
|
Environmental
quality and management |
308 614 |
298 016 |
96.6 |
10 598 |
Oceans and
coasts |
876 337 |
876 337 |
100 |
|
Climate
change |
137 163 |
137 163 |
100 |
|
Biodiversity
and conservation |
456 577 |
456 577 |
100 |
|
Sector
services, coordination and information management and international relations |
2 128 980 |
2 046 461 |
96.1 |
82 469 |
Total |
4 201 626 |
4 108 549 |
97.8 |
93 067 |
The spending
trends in the Department reflected an under spending in Programme 2:
Environmental Quality and Protection.
The reasons for under spending of R19 000 million related to the
incorporation of Buyisa e Bag into the Department during December 2011 after
the approval of the adjusted estimates.
The funds were still under Programme 2.
National Treasury granted approval to move the funds Programme 2 and to
increase the transfer payments under the Social Responsibility Policy Programme
under Programme 6. The funds were
therefore shifted to fund the waste management projects under the SPPP.
An amount of
R9 100 million was under spent as the acquisition process and installation of
the air quality monitoring stations were slower than anticipated. Funds will be repriopritised during the
2012/13 financial year to fund the expenditure.
Virements
In relation
to virements for the financial year under review, the Department shifted funds
from Environmental Quality and Protection to Administration of an amount of R7
166 million due to administrative expenditure with regard to the hosting of COP
17 by the Department. Funds from this
programme were also shifted to Climate Change and Sector Services Coordination
and Information Management and International Relations. The Department shifted
funds from Biodiversity and Conservation to Climate Change, Oceans and Coasts.
The Department shifted funds from Sector Services Coordination and information
management and international relations to Oceans and Coasts to fund the
additional cost for the additional voyages to
Transfer payments
National
Treasury granted approval to increase transfer payments for the following and
after the adjusted Estimates of National Expenditure:
·
Increase in the transfer payment to South African
National Parks (SANParks) with 4.5 million for the acquisition of two new
machinery items;
·
Increase the transfer payment to SRPPP with R19
million to manage the waste projects incorporating into SRPP as a result of the
incorporation of Buyisa e Bag into the Department; and
·
Increase the transfer payment to Working on Fire with
R56.3 million to clear invasive alien plants in inaccessible areas and clear
areas in risk of veld fires.
3.2 Report of the Auditor-General
·
The Department received an unqualified audit.
·
The donor-funding audit for 2011/12 is in progress and will
be finalised by end of October 2012.
·
In relation to unauthorised and irregular expenditure:
Irregular expenditure was incurred in the current year and condoned by National
Treasury during the 2012/13 financial year.
·
Disclosure items in the financial statements: The Department complied with all disclosure
requirements, classifications and policy frameworks as prescribed by Treasury.
·
Transfers to agencies and other organisations: All transfers made are per prior management
and Treasury approval as well as within disclosure requirements.
4. Medium Term Expenditure Framework for Additional Funding
Proposals
The
Department of Environmental Affairs is well governed, compliant with relevant
Treasury regulations and achieves satisfactory outcomes against the annual
business plan. The department is however not nearly realizing its full
potential and is, by admission of its own senior officials, hampered by the
inadequate allocation that is appropriated to it each year, in addition to the
lack of skilled human resources in some projects/programmes.
An overview
of the baseline allocation over the MTEF was provided to ascertain the extent
to which the Department would effectively undertake its work with the current
allocations. The baseline allocation for
2011/12 is R5 175 321 and over the medium term will increase slightly, reaching
an amount of R5 358 739 in 2015/16. If one further breaks down the baseline
allocation trends over the MTEF period per programme, money has already been
allocated for capital assets or for earmarked funds, and cannot be shifted.
The
Department argues that there is very little growth in funds, while there is
growth in expenditure. National Treasury
has indicated that all departmental budgets will be reduced by 1% in 2013/14,
2% in 2014/15 and 3% for 2015/16. Treasury
also indicated that there may be no additional resource allocation in the first
two years of MTEF, as priority will be given to infrastructure development.
The strategy
adopted by the Department to National Treasury has been packaged according to the
three priority areas adopted by Government – infrastructure investment,
science-based priorities and job creation.
The table below provides a breakdown of the additional funding requests
over the priority areas:
Priority Areas |
2013/14 |
2014/15 |
2015/16 |
Notes |
|
R’000 |
R’000 |
R’000 |
|
Infrastructure
Investment |
303 889 |
272 582 |
477 640 |
To address
the identified challenges related to infrastructure build programmes and
lengthy authorization processes. To develop
an integrated permitting system to accommodate any current and future
permitting/licensing/authorization requirements of the Department and its
provincial/local government partners. Protected
area expansion, high performance computer system for meteorological purposes
and waste services infrastructure. |
Science
Based Priorities |
284 818 |
360 200 |
387 600 |
Oceans and
coasts hazards risk management, effective management and conservation of
biodiversity and implementation of National Climate Change Response Strategy. |
Job
Creation |
775 020 |
1
184 571 |
1298 210 |
Green
Fund, Environmental Programmes: Working for Waste, Working for Coasts and
People and Parks. |
Total |
1 363 727 |
1 817 353 |
2163450 |
|
5. Oversight by the Department of its entities
The
following public entities report to the Minister
·
South African National Biodiversity Institute (SANBI)
·
iSimangaliso Wetland Park Authority
·
South African Weather Service (SAWS)
·
South African National Parks (SANParks)
All the
entities listed above received unqualified annual audit reports. However, SANBI received an unqualified audit
with emphasis of matter on the following:
·
Material under spending resulting in a surplus at year
end; and on
·
Financial and performance management.
6.
Committee’s Observations
The
committee noted that the Department, at a strategic level, is doing good work,
but required further clarity on the following issues:
Environmental
impact assessment and environmental authorizations
There are
many activities for which South African law requires an environmental impact
assessment (EIA). The extent to which the EIA process is understood by industry
is sometimes problematic. A project
requiring an EIA may make business sense but cannot be implemented before the
relevant authority issues an authorization.
The issue raised
is the extent to which the Department designs mechanisms not only to enhance
understanding of the processes to industry, but to citizens of the value of
EIAs to sustainable development.
Environmental
Assessment Practitioners Association of
The
Environmental Assessment Practitioners Association of South Africa (ESAPA) was
launched on 7 April 2011. What is the
current status of the ESAPA?
Access to
national parks and conservation areas by more Black communities
The
Department should begin to look at creative ways of ensuring that more Black
people access national parks and conservation areas in
Integrated
permitting
Fragmentation
of the environmental regulation of air, land and water at national and local
government levels. Integrated permitting
may have considerable potential for achieving greater regulatory integration.
Compliance
and enforcement on rhino poaching
Rhino
poaching affects a number of parks at a national and provincial level. If the
Department improves compliance and enforcement and thereafter displaces the
function onto provincial parks and private owners. In light of the immense
pressure of allocations to the Department, are there any other options being
considered by the Department to look at sustainably protecting our rhino
species in the future?
Green Fund –
Working on Waste
There is
currently a pilot project under the Green Fund for the Working for Waste
progamme. The approach does not only
look at certain elements of waste but at the entire value chain. The Department does not have the capacity to
implement the project and therefore the management function is transferred to
an implementing agent which receives a management fee of 12%. How is the
Department monitoring and evaluating the process and outcomes of this project
and when will the project be rolled out to the entire country?
Strategy
adopted by the Department to motivate for increase allocations in the outer
years
While
excellent in terms of its forward thinking and planning, the broad generic
scope of the strategy may hinder the Department receiving additional
allocations over the MTEF period within its infrastructure development, job creation
and science-based activities. The
reprioritization and structured approach to motivating for year by year
allocations for specific projects and programmes would have been a better and
more successful approach. The Committee
itself finds it difficult to request additional allocations from National
Treasury for the Department in this financial year as the scope is too broad.
7.
Conclusion and Recommendations
The
Department is performing quite well in its activities and programmes, but the
Committee recommended that:
·
Department oversee the work of SANBI to correct the
issues raised by the Office of the Auditor-General;
·
Prior to the Department drafting their strategic plan,
the Committee meet with the two Departments, Water and Environmental Affairs
and the Office of the Auditor-General to determine realistic indicators and
targets;
The
Committee understood the concerns raised by the Chief Financial Officer with
regard to baseline allocations in the outer years, as well as the National
Treasury reducing all departmental budgets by 1%, 2% and 3% over the MTEF. In principle, the Committee supports the
generic framework of motivations for additional allocations from National
Treasury within the infrastructure development, job creation and science based
priorities, but was concerned that the Department did not carefully and
strategically limit its prioritization list from year to year.
The Committee supports additional allocations
for the conservation, infrastructure, and integrated permitting issues.
The Budgetary Review and Recommendation Report of the Portfolio Committee on
Water and Environmental Affairs on the Performance of the Department of Water
Affairs for the 2011/12 Financial Year, dated 25 October 2012
1.
Background
The Money Bills Amendment
Procedure and Related Matters Act, 2009, Act No. 9 of 2009 (the Money Bills
Act) requires the National Assembly to review the Annual Report and conduct
annual assessments of the performance of each national department with regard
to the medium-term estimates of expenditure and the strategic priorities and
measurable objectives of each National Department of government.
The Portfolio Committee
on Water and Environmental Affairs (the Committee) having considered the Annual
Report, reviewed and assessed the Strategic Plan, having received a briefing on
the attainment of the Millennium Development Goals (MDG) in the water sector,
and having assessed the service delivery performance and financial governance
of the Department of Water Affairs (the Department), for the 2011/12 financial
year, reports as follows:
2. Introduction
The governance of water
resources management in a water stressed country such as
Of primary importance in
the South African context is the success of service delivery, and the extent to
which institutions of service delivery are accountable to the citizens. Institutional changes, which ensure that
service providers are accountable to all citizens, are an important political
imperative. Undertaking such changes on a pilot basis is difficult enough,
scaling it up across jurisdictions and sustaining it over time, is a daunting
challenge. Yet, it is precisely the
scaling up of institutional change that is needed to ensure that the goal of
universal access to reliable basic services is realised. Whilst the Department
has made immense progress in ensuring access to water to the citizens of
The Committee, in
reviewing the work of the Department in the 2011/2012 financial year placed
emphasis on the following aspects:
·
An overview and analysis of the Department’s strategic
priorities, measurable objectives, indicators and attainment of targets;
·
An overview of the service delivery environment of the
Department to contribute to the 12 Government outcomes;
·
An overview of the overall performance of voted funds: Vote
38 and Water Trading Entity;
·
Achievements and challenges in the service delivery
environment;
·
Committee observations; and
·
Recommendations.
2. Department’s
Strategic Priorities
In the course and prior
to the 2011/2012 financial year, the Department has grappled with and made some
headway in addressing the following:
·
Separating the responsibilities for the Main account and the
Trading account to address inefficiencies in financial management;
·
Addressing the aging computer network infrastructure;
·
Facilitation of access to water services through the
Regional Bulk Infrastructure Grant (RBIG) with a focus on rural communities in
·
The implementation of the seven water resources
infrastructure augmentation projects and maintenance of the existing national
dams and conveyance projects;
·
Policy adjustments related to the legislative review
(National Water Act, Water Services Act, and Water Research Act), National
Water Resources Strategy and the realignment of institutional arrangements to
enhance water resources management and service delivery;
·
Establishment of a rapid response unit for support on
technical water-related emergencies for municipalities (for example, floods,
droughts and pollution of water); and
·
Implementation of proactive water services interventions.
To assist the Department
in attaining its key priorities over the medium-term and to strengthen the
Department’s ability to carry out its functions, the Minister appointed a
committee of experts in June 2011 to review and re-engineer the Department’s
business processes to ensure that functions are carried out efficiently. The Committee is expected to make
recommendations on optimal approaches to restructuring the Department to
address backlogs in the rehabilitation and refurbishment of national bulk water
infrastructure, integrate bulk water infrastructure with reticulation
infrastructure at the local level, support improvements in the management of
wastewater treatment works within local government, and improve the financial
position of the water trading entity.
3. Overview of the service delivery environment of the
Department to contribute to the 12 Government outcomes
Within the outcomes-based
performance management framework adopted by Government, the Department
contributes to two critical outcomes:
the development of an efficient, competitive and responsive economic
infrastructure network (outcome 6), and the protection and enhancement of
environmental assets and natural resources (outcome 10). The Department contributes to these outcomes
by ensuring the maintenance and supply availability of the country’s bulk water
infrastructure, protecting and enhancing environmental assets and natural
resources, and improving water quality and quantity of water resources.
During the year under
review, the Department focused its service delivery programme on the following
six strategic priorities, informed by the twelve government outcomes. Within
the Main Exchequer Account and Water Trading Entity, the following priorities
gave effect to Government outcomes:
3.1 Economic growth, rural development, food security and land
reform
This priority was
implemented with consideration of broad objectives outlined in outcomes 6, 7
and 9, which talk to the contribution of infrastructure to economic
development, rural development and support to local government. During the year under review, the Department
cumulatively created 4 505 job opportunities through the Regional Bulk
Infrastructure Programme (RBIG). The
programme completed five (5) bulk infrastructure schemes for the availability
of water supply for domestic use. A
total of 4 174 additional resource poor farmers had access to water while 598
776 additional people, as informed by the Municipal Infrastructure Grant (MIG)
allocations, were provided with access to water. A total of 8 068 rainwater harvesting tanks
were distributed, 6 308 of which were for access to water and 1 760 for food
production.
3.2 To promote sustainable and equitable water resources
management
This priority is driven
by the programme that ensures that the country’s water resources are protected,
used, developed, conserved, managed and controlled in a sustainable manner for
the benefit of the people and the environment through effective policies,
integrated planning strategies, knowledge base and procedures. It further addresses government outcome ten
(10) which ensures that the country maintains environmental assets and natural
resources that are well protected and continue to update a range of strategies
for water management. The following
frameworks have been on the agenda of the Department during the year under
review:
·
The National Water Resource Strategy;
·
The Pricing Strategy;
·
Desalination Strategy;
·
Ground Water Strategy; and
·
Re-use Strategy.
3.3 Strengthening the regulation of the water sector
This priority is to address
issues around the regulation, governance and control of the use, development,
conservation and management of water throughout the value chain within the
context of the relevant legislation. To
facilitate access to water for historically disadvantaged groups a process of
compulsory licensing was undertaken in a number of areas including Tosca, Jan
Dissel and Mhalthuze. Reports have been completed which will lead to
redistribution and final water use authorisations.
In an effort to improve
the issuing of water use licenses to various water users, the Department has
established a dedicated backlog eradication programme, known as Letsema. Since the inception of Letsema, 3 358
applications dating from 2001 to 2010 have been finalised, leaving a backlog of
549 applications.
The Department also
facilitated the improvement of the regulation of drinking water quality through
compliance, monitoring and enforcement. The Department of Water Affairs had in
a previous financial year introduced incentive-based regulation in the form of
the Blue and Green Drop Certification Programmes as a means to improve drinking
water quality and wastewater service respectively. These programmes were designed and developed
to inspire managers, specialists, and practitioners alike towards excellence;
based on the simple principles of setting stringent criteria; subjecting
municipalities to thorough auditing; ensuring improvement through consultative
auditing; and revealing performance by means of annual publications.
3.4 Support local government to deliver water services
To contribute to
Government Outcome 9, which facilitates a responsive, accountable, effective
and efficient Local Government system; Programme 4 of the Department
coordinates the Department’s service delivery plan and strategic objectives at
the regional level. The programme is
also charged with supporting service providers to ensure the acceleration of
providing water to communities.
4. Overview of
attainment of targets to specific indicators
There is reasonable progress
in some of the key projects and slow progress in other projects, as will be
gleaned from below:
4.1 Regional bulk infrastructure programme (RBIG)
On infrastructure
projects, the following progress was achieved:
·
91% of the Inyaka Water Treatment Works was completed
against a target of 98%;
·
On the Nandoni Water Distribution Network and Water
Treatment Works, its achievement is 58% against a target of 79%; and
·
On the construction of the Nandoni Pipeline, its performance
is 20% against a target of 27%. For Hluhluwe, the Department’s percentage
progress exceeded the targeted percentage by 1% (93% versus the target of
92%).
The Department has also
completed five (5) bulk infrastructure schemes out of a target of seven (7)
schemes. The main reasons for the
under-achievement vary from the delayed appointment of professional service
providers to tender bids being awarded late.
4.2 Local government support
A total of 68
municipalities have been supported in implementing water conservation and water
demand measures to reduce water losses against a target of 62
municipalities. The higher achievement
is due to the interventions that were in place to support municipalities
through the Department’s Accelerated Community Infrastructure Programme (ACIP)
and donor funding.
4.3 Water schemes
A total of 52 water
schemes have been refurbished against a target of 51 schemes.
4.4 Water licenses
Although 93 water
licenses were issued to Historically Disadvantaged Individuals against a target
of 1 088 licenses, this is because licenses are demand driven and insufficient
information from applicants delayed the evaluation process.
5. An overview of the
overall performance of voted funds: Vote 38 and Water Trading Entity
5.1 Overview of financial statements on Vote 38 for the 2011/12
financial year
The spending focus over
the medium term of the Department will be on developing bulk water
infrastructure, to accelerate delivery of water services to households,
agriculture and industry. The Department
will also focus on strengthening economic regulation within the water sector.
Spending increased from
R5.1 billion in 2008/09 to R9 billion in 2011/12, at an average annual rate of
20.6 per cent. This is driven by the
increase in expenditure on the development of the bulk water infrastructure,
which includes funds allocated for the construction of new dams and ancillary
infrastructure, and rehabilitating and repairing existing bulk infrastructure
in line with government's renewed emphasis on infrastructure development.
Transfers and subsidies
expenditure increased from R2.7 billion in 2008/09 to R3.5 billion in 2011/12,
at an average annual rate of 9.2 per cent, as a result of the development of
bulk water infrastructure. These
included funds allocated for the construction of the De Hoop Dam and ancillary
infrastructure such as distribution pipelines for the Nandoni Dam, and the
rehabilitation of repair and existing bulk infrastructure.
The table below reflects
the spending trends of the Department over the current financial year.
|
Budget 2011/2012 |
YTD Expenditure |
Variance |
% spent |
% Variance Under Expenditure |
Programme |
R 000 |
R 000 |
R 000 |
|
|
Administration |
878 379 |
781 491 |
96 888 |
89% |
11% |
Water
Sector Management |
852 351 |
511 807 |
340 544 |
60% |
40% |
Water
Infrastructure Management |
2 384 963 |
2 384 020 |
943 |
100% |
0.0% |
Regional
Implementation and Support |
4 774 145 |
4 375 501 |
398 644 |
92% |
8.4% |
Water
Sector Regulation |
112 370 |
91 153 |
21 217 |
81% |
18.9% |
International
Water Cooperation |
26 111 |
20 934 |
5 177 |
80% |
19.8% |
Total |
9
028 319 |
8 164 906 |
863 413 |
90.4% |
|
The Department had spent
R8.1 billion of the total allocation of R9 billion, which represented 90.4% of
the total expenditure of the Department.
In terms of spending trends within the programmes of the Department, the
following Programmes under spent on their allocations for the 2011/12 period.
Programme 1: Administration by 11%; 40% on Programme 2: Water Sector
Management, 8.4% on Programme 3: Regional Implementation and Support, 18.9% on
Programme 4: Water Sector Regulation and 19.8% on Programme 5: International
Water Cooperation.
The under expenditure in
Administration related to an allocation of R34 million that could not be spent
in respect of the Business Process Review (BPR) as the BPR Committee was
appointed in the middle of the financial year.
Unfilled vacant posts in Administration amounted to R12 million; goods
and services amounted to R32 related to accrual and commitments, machinery and
equipment amounted to R16 million while funds, in respect of the Learning
Academy amounted to R2.3 million.
The under expenditure in
Water Sector Management related to an allocation of R250 million for the
response to Acid Mine Drainage (AMD) in the
The spending on Programme
3: Water Infrastructure Management was at an acceptable level. The Programme
managed to make use of its allocated budget, which reflected an insignificant
variance.
The under expenditure in
Programme 4: Regional Implementation and Support related to an allocation of
R209 million not being spent on water services projects such as the Nandoni
Pipeline, Hluhluwe and Inyaka. The approval
of service providers took longer than anticipated. In respect of Moutse Bulk Water Supply, an
amount of R20 million could not be spent as the payment could not be captured
before the payment cut-off date. Unfilled
vacant posts, including OSD posts amounted to R88 million. Material ordered for regional bulk
infrastructure projects were not delivered at year-end. This amounted to R81 million.
The under expenditure in
Programme 5: Water Sector Regulation was due to accruals and commitment
amounting to R5 million in the Goods and Services subprogramme. Unfilled vacant post, including OSD posts
amounted to R16 million.
The under expenditure in
Programme 6: International Water Cooperation reflected an allocation of R3.7
million due to a number of planned international engagements not taking
place. This was mainly attributed to
political dynamics and postponements of certain activities in certain
countries. Unfilled vacant posts
amounted to R1.4 million in this programme.
5.2 Overview of financial statements of the Water Trading Entity
for the 2011/12 financial year
The Water Trading Entity
(WTE) performs two functions: water resource management and infrastructure
management. Water resource management
deals with the management of water quality, conservation and allocation of water
through the catchment management agencies or proto- catchment management
agencies (regional offices).
Infrastructure management deals with the operation and maintenance of
existing infrastructure as well as the development of new infrastructure. To fund the development of new
infrastructure, the entity receives an allocation from the Department. Funding for operation and maintenance comes
from revenue generated from raw water charges.
Water resource management charges cover the operational costs of
catchment management agencies.
The basis used to prepare
the WTE financial statements differed from the processes used by the
Department. The WTE changed its
accounting framework from the International Financial Reporting Standard’s
(IFRS) Generally Accepted Accounting Practices (GAAP) to the Accounting
Standards Board’s (ASB) Government Regulated Accounting Practices (GRAP). The WTE adopted GRAP for the first time in
2011/12, which resulted in the re-classification and re-measurement of certain
annual financial statement items.
The increase in revenue
(24% compared to 2010/11) resulted primarily from increase in water consumption
volumes from some of the Department’s major customers and the annual tariff
increase. There was a decrease in expenditure
(11% compared to 2010/11) due to the following:
·
Operating expenditure decreased by 6% due to the
construction costs, which decreased by R20 million emanating from less spending
on Nandoni replacement of GRP pipes due to delays in appointing PSPs. The pumping cost decreased by R23 million due
to less pumping demand on the
·
There was an increase in employee costs (7% increase
compared to 2010/11) due to annual salary adjustments; and
·
A decrease in impairment on financial assets of 78% due to
the management analysis that the historic plus current impairment provision on
debtors is sufficient. This is perceived
as a revenue turnaround plan.
There was an increase in
total assets (2% compared to 2010/11), due to the following:
·
Increase in cash and cash equivalents by 46% due to
improvements in cash collections;
·
Receivables from exchange transactions have increased by
30%. Although revenue from ‘water sales’
has also increased by approximately 30%, much work is still required to ensure
that debt collection is improved;
·
Property, plant and equipment increased by 1% (R925 million)
primarily due to an increase in Asset under Construction of some R1.1 billion
reduced by an increase in depreciation of R269 million compared to 2010/11; and
·
Increase in total liabilities (1% compared to 2010/11, an
amount of R236 million) resulted mainly from an increase of R160 million in the
provision required for dam safety rehabilitation. There is still some work required to enhance
the processes involved in the formulation of the dam safety
rehabilitation. There was also a
marginal increase in TCTA financial liability compared to the previous year.
6.
Report of the Auditor-General
The Committee has noted
with satisfaction that the Water Trading Entity has moved from a
disqualification to a qualified audit with emphasis of matters. Based on the
audit report of 2010/11, which highlighted 19 audit recommendations, management
of the WTE implemented or devised alternative actions to resolve the prior year
audit findings. Fifteen (15)
recommendations are still in the process of being implemented.
The Department in its
Main Account too has begun the process of improving on its financial
management, and this may improve in the future years. In relation to the Main Account (Vote 38), the Department
received a qualified audit on issues relating to expenditure for tangible
assets and prepayments and advances, goods and services, irregular expenditure,
commitments, immovable tangible capital assets, movable tangible capital
assets, contingent liabilities, and loans. An emphasis of matter was given on
material under spending of the vote and financial reporting framework.
In relation to the WTE, the Department received a
qualified audit with emphasis of matters on the following:
·
Inadequate review and monitoring of compliance with
applicable laws and regulations;
·
Poor review and monitoring to ensure accurate and complete
daily and monthly financial and performance reporting; and
·
No reliable evidence to support regular, complete and
accurate financial and performance reports;
The WTE has a shared
internal audit division with the Main Exchequer Account, the division did not
have adequate personnel to carry out its mandate, and as a result, the internal
audit function is not effective. Two
audit committee members resigned and they have not been replaced.
The Committee was
particularly concerned by the overview provided by a representative from the
office of the Auditor-General. The
particular emphasis was on the risks posed in the public sector if no effective
checks and balances were systematically undertaken in the internal units. A
number of issues in the Department should be dealt with proactively instead of
reactively and these could be achieved if the Department committed to the
submission of quarterly reports.
On Procurement, the Committee was
extremely concerned at some of the flaws and risks identified in the
procurement system of the Department.
This entailed deviations from the procurement process due to lack of
proper planning by project managers which lead to projects being outsourced
through deviations from normal procurement processes. A deviation from procurement processes can
facilitate the risk of utilisation of favourite service providers, and
compromises the procurement process as the market and value for money is not
properly tested. It can also
disadvantage other companies who might want to enter the market.
On irregular expenditure,
the
Department showed a number of cases of irregular expenditure which resulted in
poor/bad planning where appropriate approval is not sought. Lack of contract management skills in the
Department and lack of accountability where non-Supply Chain Management
practitioners perform Supply-Chain Management function poses major risks to the
Department.
On the findings of performance
against predetermined objectives, compliance with laws and regulations and
internal control, the audit reflected the following:
·
The reasons for major variances between the planned and
reported (actual) targets are not adequately explained;
·
In terms of measurability, the performance indicators are
not well-defined;
·
The performance indicators are not verifiable;
·
Targets are not measurable;
·
Performance targets are not specific; and
·
The validity, accuracy and completeness of the actual
reported performance relevant to 82% of Programme 1 and 4.
7. Oversight by the
Department over its Entities
Due to time and other
constraints, the Committee could not call each of the entities to the Budgetary
Review and Recommendation Review hearings. The Department presented the
relevant information to the Committee on the following entities:
·
Trans-Caledon Tunnel Authority (TCTA)
·
Water Research Commission (WRC)
·
Catchment Management Agencies: The Breede-Overberg Catchment
Management Agency (BOCMA) in the
7.1 Trans-Caledon Tunnel Authority (TCTA)
The TCTA, for the
financial year under review funded and implemented the following primary
projects – the Lesotho Highlands Water Project (LHWP) in relation to the South
African portion of the delivery tunnel, the Berg Water Project (BWP), the Vaal
River Eastern Subsystem Augmentation Project (VRESAP), the Mooi-Mgeni Transfer
Scheme Phase 2 (MMTS2), the Komati Water Scheme Augmentation Project (KWSAP),
the Olifants River Water Resource Development Project Phase 2 (ORWRDP2), the
Mokolo-Crocodile River Water Augmentation Project Phase 1 (MCWAP1), the Metsi
Bophelo Borehold Project (MBBP) and issues relating to Acid Mine Drainage
(AMD), which in the main, focused on the pump station and treatment plant on
the West Rand.
In terms of the
performance of the TCTA, the focus was on the deficit for the 2010/11 and
2011/12 financial years. The audited
results for 2010/11 recorded a R24 million surplus and this had been restated
to a deficit of R284 million in the current financial statements. The overall reason for the restatement was
due to a change in accounting policies applied retrospectively to 31 March
2011, in accordance with the International Accounting Standards Presentation
and Disclosures, related to construction assets, previously recognised as
property, plant and equipment and intangible assets.
In terms of borrowing
rates and/or credit rating, the TCTA had gained and maintained market
credibility that enabled it to access off-budget funding for projects at
excellent rates. The TCTA obtained a
‘clean’ audit report for the 2011/12 financial year.
7.2
Water
Research Commission (WRC)
The
Water Research Commission (WRC) derives its mandate from the Water Research
Act, Act No. 34 of 1971. During the
2011/12 financial year, the WRC continued to leverage levy income by striving
to obtain funds from other sources to support water research. During the year under review, the WRC managed
322 research projects at various stages of project life cycle, of which about
79% (259 projects) were active projects.
In addition, 133 reports were published.
The
WRC obtained an unqualified audit with matters of emphasis relating to IT
systems and procurement.
7.3
Overview
of Catchment Management Agencies
The
National Water Act, 1998 mandates the Minister of Water and Environmental
Affairs to establish Catchment Management Agencies (CMAs) for the management of
water resources at the catchment level.
In March 2012, the Minister of Water and Environmental Affairs approved
the establishment of nine CMAs in nine water management areas and these have
been gazetted for public comment. The
Breede-Overberg CMA (BOCMA) in the
The
BOCMA and ICMA have made significant and effective strides in positioning the
entities to fulfil the mandate of protecting, using, conserving, managing and
controlling water resources in and equitable and sustainable manner while
appropriately involving all stakeholders in their WMA. Key strategic challenges of skills and
capacity building are being addressed and overall the performance over the
reporting period has been satisfactory. Both CMAs received unqualified audits
with no matters of emphasis.
8. Committee’s
Observations
The Committee has noted a
significant improvement, as stated in the report of the Auditor-General, in
relation to the financial management of the Water Trading Entity and the Main
Account of the Department. The Committee commended the Department’s work
towards attaining the Millennium Development Goals in relation to the water
sector. The Committee acknowledged that institutional changes are in progress
in the Department, and whilst an overview was provided, detailed briefings on
an ongoing basis on certain issues would require further scrutiny by the
Committee.
Variances in attainment of performance indicators/targets
against specified indicators/targets
Concerns were raised on
whether the targeted outcomes of the Department not being attained in the
financial year resulted in the Department receiving an adverse, qualified or
disclaimer audit. The methodology and
criteria used by the Department on ascertaining specific performance
indicators/targets during its planning and drafting of its strategic plan
needed further scrutiny to aid in better management and assessment of
performance.
The criteria and
methodology at which the present performance indicators/targets are being
arrived at need to be engaged with. A pre-audit is required to look at the
usefulness of targets and whether they are meaningful, attainable and
time-bound to meet the requirements set by the National Treasury. There needs to be a linkage between the
strategic plan and the budget.
Human Resources Issues
within the Occupational Sector Dispensation
The vacancy rate in the
Department across all programmes is quite high, and of concern to the
Committee. However, of particular importance is the unavailability of
professional specialists (namely engineers, technicians, project managers,
amongst others) within the Occupational Sector Dispensation. This impacts negatively on the implementation
of projects, and may compromise the efficacy of attaining the Department’s core
objectives, that is, the provisioning of bulk water infrastructure for
effective water service delivery. The
Committee requested further details on the way in which the Department would
address the issue.
Appropriate
infrastructure delivery mechanism
The Committee urges
further engagements with the Department on the appropriate and optimum
mechanism or vehicle through which water infrastructure provisioning should take
place. In this context, questions were
raised about the transfer of assets from the Trans-Caledon Tunnel Authority
(TCTA) to the Department and the ability of the TCTA, without assets on its
books, to borrow from capital markets and financial institutions. The Committee would like to start a
conversation with the Department on optimal funding arrangements for the TCTA.
Procurement challenges
The Committee noted that
one of the principal weaknesses in the Department is in the area of
procurement, and maintained that there should be appropriate checks, balances
and protocols in place to prevent problems in this regard. With regard to the WTE, the Auditor-General
could not ascertain whether full disclosure was achieved in terms of irregular
expenditure. There were a number of
issues that constituted irregular expenditure due to disclosure problems in
relation to procurement.
The Committee requested a
report from the Department on all problems related to procurement and the way
in which the Department would handle these critical issues.
Financial controls
responsibility of Chief Financial Officer (CFO)
A number of instances of
financial accountability and irregularity in the regions were noted and this
required immediate action. The Committee
is of the view that all financial aspects in regions and other branches should
have oversight from and be under the control of the national office. Therefore,
the regional and other branch officials dealing with financial matters should
be reporting to the Chief Financial Officer (CFO). The Committee wanted
assurance from the Director-General (DG) that these issues would be addressed,
and further requested that by the end of the year an implementation plan be
presented to the Committee reflecting the implementation of these changes.
Water infrastructure and
services for human and economic development
In
The key risk and/or
success factors are timely planning, appropriate solutions, new and appropriate
technology, skills and capacity (for effective project and operational
management), appropriate institutional arrangements, as well as financing and
financial management. In dealing with
this, it is important to ensure effective use and management of water resources
(water use efficiency), culture and attitude, as well as effective
governance. Water security should cover
the water resources management across the full value chain: from source to tap and tap/waste to source. This includes effective waste management and
associated infrastructure. This approach has major implications on aspects of
integrated planning, programme alignment; water services development planning
and outcomes based management.
To address key risk
and/or success factors extended partnerships with municipalities, and the agricultural,
industrial (including mining), energy and business sectors is required. A core
concern is the way in which some municipalities are managing infrastructure and
associated grants. Other challenges faced by municipalities in relation to
infrastructure relate to operational budgets for service delivery and funding
to maintain the current infrastructure.
In cases where municipalities have taken the additional infrastructure,
the requisite skills to function effectively is limited due to limited technical
staff. Another concern is the fact that some municipalities, after the
demarcation process, are required to deliver, operate and maintain services
across much larger areas than previously.
To address this, the
Department has entered into a collaborative arrangement with COGTA, which
includes work streams covering accelerated delivery, high-risk areas, debt
recovery, and finance and skills development.
It was noted that functionality of water infrastructure does not at
present form part of the mandate of this arrangement.
Furthermore, the
Department embarked on the development of a national water investment framework
and the development of an interim basic service programme focusing on 24
priority district municipalities, mainly in
Relevance of research
undertaken by the Water Research Commission
On the relevance of the
research undertaken by the Water Research Commission (WRC), the Committee
requested clarity on whether the research produced was benefiting anyone apart
from the academics who researched and published the research. While there was acknowledgement that the WRC
was conducting some work of very high importance to the water sector, the
Committee was of the view the WRC needs to increasingly reflect on the overall
value of all its research to the South African water sector and determine
methods that measure the usefulness of its research outcomes, especially for
Government at all levels.
The Committee was of the
view that the WRC should sit down with the Department to discuss performance
indicators in the WRC’s strategic plan. The South African Law Reform Commission
may be a good example of the type of strategic research that can be provided to
a Department. . The South African Law Reform Commission undertakes research on
behalf of the Department of Justice and Constitutional Development. Research is
aimed at problems being experienced in the justice system. The Water Research
Commission could look at a similar process. This would assist when evaluating
performance indicators at the end of the year and would give meaning and value
to performance auditing.
9. Conclusions and
Recommendations
The Committee
acknowledges the successes attained by the Department during this financial
year. Most notably, the movement of the financial statements of the Water
Trading Entity (WTE) from a disclaimer over the last few years to a qualified
audit is praiseworthy. Although, the
financial statements of the main account of the Department remains a qualified
audit, the Auditor General’s assessment that the financial affairs of the
Department has improved significantly, in some respects, is very encouraging
and must be acknowledged. The improvement of the financial management system of
both the Main Account of the Department and of the WTE, is a substantial step
in the right direction in terms of sound financial management.
In light of the above,
the Committee recommends the following:
·
It was difficult for the Committee to assess the performance
indicators/targets of the Department, as contained in the Annual Strategic Plan
of the Department, as the Committee was not part of the process of determining
these performance indicators/targets.
The Committee needs to sit down with the Department and the Office of
the Auditor-General to agree on the criteria for deciding the annual
performance indicators/targets and to assess if performance indicators/targets
for the current year were justified and relevant. Two days, in January 2013,
will be set aside to deal with these issues and to discuss how best to work
towards the determination of realistic performance indicators/targets for the
Department;
·
The Committee will convene a workshop, at the beginning of
next year, of relevant Portfolio Committees (Human Settlements and Cooperative Governance and Traditional
Affairs), with the Department of Water Affairs and the Department of
Environmental Affairs, together with other relevant stakeholders and government
Departments, like Departments of Human Settlements, Cooperative Governance and
Traditional Affairs and Treasury, to
discuss cross-cutting issues in water and environmental governance and service
delivery;
·
With reference to Goal 7 of the MDG relating to water
services issues, performance indicators/targets are only made applicable to
access to water infrastructure, whereas functionality of such infrastructure
does not form part of the performance indicators/targets. Therefore, specific performance indicators on
the functionality of water infrastructure should be developed for
·
The Department and the Department of Local Government have
established a structure to process cross-cutting issues relating to water
services and provisioning. The Committee proposes issues of functionality of
water infrastructure should be included within the mandate of this structure;
·
The Committee strongly recommends that the Department
urgently embark on the drafting of a national water services strategy;
·
The Department should create a facility/database to assess
and monitor incidents of vandalism and destruction of water infrastructure and
record the losses in each instance, and annually report to the Committee in
this regard;
·
The Committee expects a detailed plan on all procurement
challenges faced by the Department. as well as the strategies to be
followed by the Department to resolve
these problems;
·
A detailed report should be provided to the Committee on the
way in which the WRC undertakes research on relevant, current and critical
water issues facing South Africa, and how the WRC intends to measure the
effectiveness of its research outcomes, including the establishment of relevant
performance indicators/targets;
·
The Department and TCTA must engage with the Committee on a
possible appropriate infrastructure provisioning mechanism for the Department,
including future funding models for the TCTA, and whether TCTA should have some
capital assets on its books;
·
A list of pending disciplinary cases involving senior staff
needs to be provided to the Committee, along with recently completed
disciplinary cases; and
·
The Department in its reporting of oversight of entities
next year should also include water boards and water user associations.
Report
to be considered.