Naidoo_Speaker

Report
PROSPECTS AND CHALLENGES IN
ALIGNING M&E IMPERATIVES:
OBSERVATIONS FROM SOUTH AFRICA
Indran Naidoo
Deputy Director-General: Monitoring and Evaluation,
Office of the Public Service Commission of South Africa
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29 June 2011
OUTLINE
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Country context
Entrenching M&E
Benchmarks for Good Governance
Challenges
Making the shift
Seeks to achieve
Underlying principles
12 Outcomes
Going forward
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COUNTRY CONTEXT
• Constitutional democracy, middle-income country,
population: 49 million, diverse language and culture
• Economic giant of Africa, exerts much influence on
international governance discourse
• Developmental State model to
address
inequalities
and
transformation – centrality of
government recognised
• M&E is Constitutionally entrenched
• Recently host of the successful 2010
World Cup
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ENTRENCHING M&E
• There is widespread support for any instruments which
improve transparency and accountability
• The early democratic period was largely one of setting
standards and monitoring compliance – to regulate and
modernise the State
• Several actors contributed to the commentary on
government performance – media, civil society and
oversight institutions
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BENCHMARKS FOR GOOD GOVERNANCE
• Standards for good governance
for
the
country
are
Constitutionally enshrined as 9
values and principles for public
administration
• The PSC is the Constitutional
body
responsible
for
“investigating, monitoring and
evaluating” the Public Service
(comprising 140 departments in 9
provinces, employing 1,1 million
public servants) - motto –
Custodian of good governance
Promoting professional ethics
Efficient,
economic
and
effective use of resources
Development-oriented
Delivers services fairly and
equitably
Public participation
Accountability
Transparency
Good HR management and
career development
Representative
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…EXAMPLE - WEEKLY MEDIA, PRINT,
RADIO AND TV
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THE CONTENT OF THE COMMENTARY …
• Key findings emerging from many oversight
institutions and reports are:
Compliance levels have improved, but there remains
pockets of repetitive poor performance
 In some instances, there is administrative compliance
with regulation, but the felt benefit at the citizen level
has been uneven
 Compliance on its own may have created a “gaming
management culture”, with disproportionate efforts
being place on meeting reporting obligations
compared to checking on actual service delivery
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...EXAMPLE - ADMINISTRATIVE
• Reports on the quality of governance are tabled at
management meetings of all departments (rated), for
engagement, and management action tracked and
reported on
• Departments are expected to comply with advice on
the adjudication of grievances
• Policy impact is assessed – example, Poverty
alleviation programmes, rural development
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CHALLENGES
• Recognition that compliance, and a focus on outputs,
albeit important may not adequately citizen to State
intention and promises.
• The same issues are repeated by oversight institutions –
creating a perception of oversight ineffectiveness and
scepticism
 This means a candid reflection on the current systems
to infuse a new thrust to oversight – the genesis of the
outcomes approach, typified by the observation “a
school as an output does not necessarily generate
quality education (the desired outcome)”
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MAKING THE SHIFT
• Cabinet since 2005 began developing a Government
wide M&E System - a system of systems.
• Key features were agreement of outcomes, outputs,
key activities, inputs, delivery forums and delivery
agreements and performance contracts between
president and Ministers
• A set of 12 Outcomes in 2010 was approved - set the
strategic agenda for government. It addressed the
theory of change, intervention logic, indicators and
targets with baselines.
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SEEKS TO ACHIEVE
• The Outcomes approach seeks to:
 improve service delivery by increasing the
strategic focus of government
 making more efficient use of resources
 more systematic M&E
 all in order to inform government decisions
and promote evidence-based policy making
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UNDERLYING PRINCIPLES
• That there is problem analysis and a clear
understanding of the problem
• That there is a Theory of Change and what are the
Levers of change (Greatest impact, cause and effect,
and build knowledge on what works)
• There is an intervention logic
• Are clear indicators, baselines & targets and clear
basis for monitoring progress and evaluating results
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Development of high level outcomes,
outputs, activities and metrics
Ruling Party election
Manifesto: 5 priority areas
MTSF: 10 strategic priorities
Establish Implementation Forum
Step 1
Done
12 strategic outcomes
(based on consultation process)
Performance Agreements with
Minister(s)
• Based on outcomes
• High level outputs, indicators,
targets and activities per
outcome
• Implementation Forum to
produce Delivery Agreement
per outcome
Develop and implement detailed
inputs, outputs, activities, metrics
and roles and responsibilities
Negotiate detailed inputs, activities,
metrics and roles and responsibilities
Step 3
Delivery Agreements between
stakeholders
Coordinate implementation
Monitor and evaluate
Step 2
Done
Step 4
ongoing
Feed back loop to annual revisions of
Delivery Agreements
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12 OUTCOMES
Quality basic education
A long and healthy life for all South Africans
All people in South Africa are and feel safe
Decent employment through inclusive economic growth
Skilled and capable workforce to support an inclusive growth path
An efficient, competitive and responsive economic infrastructure
network
Vibrant, equitable, sustainable rural communities contributing towards
food security for all
Sustainable human settlements and improved quality of household life
Responsive, accountable, effective and efficient Local Government
system
Protect and enhance our environmental assets and natural resources
Create a better South Africa, a better Africa and a better world
An efficient, effective and development oriented public service and an
empowered, fair and inclusive citizenship
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OUTCOME 12 ILLUSTRATED
• Outputs
 Service Delivery Quality and Access
 Human Resource Management and Development
 Business Processes, Systems, Decision Rights and Accountability
 Corruption Tacked Effectively
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Indicators (for output on service delivery quality and access)
 % improvement in user satisfaction
 Distance travelled to obtain a government service reduced
 % reduction in waiting times
M&E Feedback loop
 Value for money
• Key activities (for output on service delivery quality and access)
 Improve front‐line service supervision
• Inputs required (for output on service delivery quality and access)
 Funding, capacity building support
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Executive level
Administrative level
IMPLEMENTATION OF 12 OUTCOMES
Departments
Technical
Implementation Forums
Technical Clusters DGs
Implementation
Forums
Ministerial Clusters
Cabinet Committees
Cabinet
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MONITORING OF IMPLEMENTATION
• The objective is to institutionalise regular monitoring of
implementation of the Delivery Agreements.
 The revised POA will be based on the final Delivery Agreements
(the high‐level outputs and metrics per outcome)
 Aim is to increase strategic focus in comparison to former POA
 Implementation Forums will:
 Monitor implementation of the Delivery Agreements and
unblock blockages
 Prepare
quarterly progress reports against Delivery
Agreements, for the relevant Cabinet Committees and Cabinet
 Adopt similar approach taken in Government’s management of
the preparations for the World Cup
 Quarterly progress reports against POA will also be placed on
website
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SUMMARY OF IMPROVEMENT PLAN
EFFECTIVE AND EFFICIENT GOVERNMENT
Effective spending on
the
right priorities
(outcomes approach)
• Delivery Agreements
for 12 outcomes
• Monitoring
of
implementation
of
Delivery Agreements
• Building M&E capacity
in Government
• Comprehensive
expenditure reviews
Getting basic administration
right
• Appropriate
location
of
decision powers
• Clarity regarding mandates
and roles and responsibilities
• Performance monitoring of
individual institutions
• Internally‐focused
implementation
support
programmes by the centre of
government
• Improving
interaction
between government and
citizens, communities and
stakeholders
Tackling corruption
• Multi-agency initiative to
address corruption in
procurement
• Improve
internal
departmental
investigations
and
disciplinary processes
• Improve coordination of
anti-corruption work of
various agencies
Amendments
to
legislative and regulatory
frameworks
• Review of spatial land
use legislation
• Review of frameworks
for
recruitment,
competency
assessments,
Performance
management
and
discipline
• Review
of Treasury
Regulations
• Panel
to
identify
unnecessary red tape
DEFINED BY FOUR PILLARS, EACH A KEY ENABLER OF OVERALL SUCCESS IN
BUILDING A MORE EFFICIENT AND EFFECTIVE PUBLIC SERVICE
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PROSPECTS AND CHALLENGES
• The Presidency M&E thrust behoves all oversight
institutions to shift towards outcome monitoring and
evaluation.
• A more qualitative and diagnostic narrative – with
intervention is required
• Review is underway to align oversight systems where
possible, and present a more coherent approach to
oversight
• Work is labour intensive, and has helped to
significantly heighten M&E in the country
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GOING FORWARD
• The PSC shall co-host the 3rd South African
Monitoring and Evaluation Conference between 5-9
September 2011, themed: M&E for outcomes,
answering the “So what?”
• See www.psc.gov.za and www.samea.org.za
• The PSC shall also co-host the International
Conference on National Evaluation Capacity between
12-14 September 2011, see www.undp.org
• Questions
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