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2 $ % &' ( &) * &) $!# * *) +, 2.1 The Purpose of Integrated Development The Legal Status of the IDP Timeframe for Completion The similarity between Integrated Development Planning and Strategic Planning Responsibility to Manage the Process The Core Planning Components of the IDP Who should Participate The Roles and Responsibilities of the Different Spheres of Government Planning and Implementation Management Support Systems (PIMSS) 7 -) $+. + # " # / 3.1 Focused and Proactive Management Institutional Analysis Matching Resources to Needs Project Management Performance Management Realistic Planning Unification and Consensus Building Empowerment of Stakeholders Focused Budgeting Change Agent 11,) 0 &* 4.1 Legal Requirements Ward Committees Vehicles for Participation Council Meetings Communication Regulations 19 *' ( *) &).. *& *& *). %1! -2 -' ( -) % 3,4 &),4 *). &)..,5 2.1 Legal Framework Analysis Leadership Guidelines Community and Stakeholder Analysis Municipality Technical Analysis Institutional Analysis Economic Analysis Socio-Economic Analysis Spatial Analysis Environmental Analysis In-depth Analysis and Consolidation of Key Development Priorities and Planning Guidelines 59

3 -). *) #. 4& 3.1 Introduction Vision, Mission and Value System GAP Analysis and Strategies Link Key Performance Areas and Development Objectives to Sectoral Departments 67,). -) Introduction Performance Management Five Year Sectoral Operational Business Plans 84 7).,) # /7 5.1 Integration of Processes Institutional Restructuring (Transformation) Integrated Communication Plan 104 4). 7) ",' (,) &) $.... *) $#. -) #9 " "1# #,) # &&* &&2 &&2 &*8 &*5 &-8 ANNEXURES: General Annexures A : Legal Framework B : National Legislation applicable to the functions of local government C : Community and Stakeholder Analysis/Municipality Technical Analysis D : Capital Investment Project Prioritisation Model

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5 2 &) & $; During the past few decades, the business community realised that in order to control its destiny in a changing political, economic and technological environment, more structured formalised planning is required. The type of comprehensive planning developed for a business is known as strategic planning. Municipalities have recently adopted integrated development planning as a vital tool for planning and development. In 1995 the Forum for Effective Planning and Development (FEPD) defined Integrated development planning as: A participatory approach to integrate economic, sectoral, spatial, social, institutional, environmental and fiscal strategies in order to support the optimal allocation of scarce resources between sectors and geographical areas and across the population in a manner that provides sustainable growth, equity and the empowerment of the poor and the marginalised. In order to ensure that available resources are optimally utilised towards the promotion of sustainable economic and social development, with the focus on viable service delivery, municipalities must implement the IDP process. Prior to 1994, local government was mainly concerned with service provision and the implementation of regulations. However, with the introduction of the new Constitution and new legislative and policy frameworks, the role of local government expanded to a large extent. Municipalities are now required to be developmental in their approach and activities. The value of integrated development planning for municipalities is embedded in the formulation of focused plans that are based on developmental priorities. This approach will assist with the curbing of wasteful expenditure and perpetual past spending patterns. Thus, the adoption of a more business-orientated approach is not aimed at running a municipality like a profit-bound company, but rather to ensure that scarce resources are allocated and spent effectively. Section 152 of the Constitution: (1) The objects of local government are (a) to provide democratic and accountable government for local communities; (b) to ensure the provision of services to communities in a sustainable manner; (c) to promote social and economic development; (d) to promote a safe and healthy environment; and (e) to encourage the involvement of communities and community organisations in the matters of local government. (2) A municipality must strive, within its financial and administrative capacity, to achieve the objects set out in subsection (1). In addition to ensuring that all citizens have access to at least a minimum level of basic services, municipalities must now also take a leading role in addressing poverty and inherited inequities, and in promoting local economic and social development and democracy. Thus, service delivery should not merely be aimed at present demands, but municipalities are also required to make informed projections about and anticipate future demands in order to ensure effective, efficient and sustained service delivery over the short, medium and long term.

6 3 Municipalities are now also required to align with the provincial and national spheres of government in the delivery of national and provincial developmental programmes at local level. Furthermore, municipalities have to incorporate a wide range of sectoral programmes (e.g. water, health and small business development) into their own municipal development programmes, and also comply with the requirements of a variety of national legislation aimed at facilitating development. The above are some of the key elements of the IDP process that should be implemented by municipalities. Section 153 of the Constitution: A municipality must (a) structure and manage its administration, and budgeting and planning processes to give priority to the basic needs of the community, and to promote the social and economic development of the community; and (b) participate in national and provincial development programmes. Local government should incorporate strategic business principles in its planning and management activities, in order to fulfil its prescribed developmental role. Such development should be aimed at the optimisation of available resources to alleviate poverty and promote sustained economic and social development. This Guide is intended to serve as a supportive tool for municipalities in respect of the IDP process. It is thus important to note that the Guide does not cater for unique situations, but that it merely serves as a general reference framework for municipalities. Furthermore, this Guide is not intended to replace the IDP Guide Pack issued by the Department Provincial and Local Government (DPLG). Instead, it strives to add value to the IDP Guide Pack and the process per se by providing practical methodological guidance to all role-players involved. It is intended to be supportive rather than prescriptive in nature. It aims to build capacity of those local government bodies which do not possess the skills and know-how to undertake the process independently, as well as to provide some ideas and practical guidance to those who are already engaged in the IDP process. The IDP Guide Pack and its contents were primarily utilised as source in compiling this Guide. The same generic processes, terminology and in some instances unaltered portions of the Guide Pack have been included.

7 * 4 % *'&. + # " # Integrated development planning is a process through which municipalities prepare a strategic development plan which extends over a five-year period. The Integrated Development Plan (IDP) is a product of the IDP process. The IDP is the principal strategic planning instrument which guides and informs all planning, budgeting, management and decision-making processes in a municipality. Through Integrated development planning, which necessitates the involvement of all relevant stakeholders, a municipality can: Identify its key development priorities; Formulate a clear vision, mission and values; Formulate appropriate strategies; Develop the appropriate organisational structure and systems to realise the vision and mission; and Chapter 5 Municipal Systems Act Section 25(1) 25.(1) Each municipal council must, within a prescribed period after the start of its elected term, adopt a single, inclusive and strategic plan for the development of the municipality which (a) links, integrates and co-ordinates plans and takes into account proposals for the development of the municipality; (b) aligns the resources and capacity of the municipality with the implementation of the plan; (c) forms the policy framework and general basis on which annual budgets must be based; (d) complies with the provisions of this Chapter; and (e) is compatible with national and provincial development plans and planning requirements binding on the municipality in terms of legislation. align resources with the development priorities. *'* #. + In terms of the Systems Act, all municipalities (i.e. metropolitan, district and local) have to undertake an IDP process to produce IDP s. As the IDP is a legislative requirement it has a legal status and it supersedes all other plans that guide development at local government level. *'- + + Integrated development planning is a very interactive and participatory process which requires the involvement of a number of stakeholders. Because of its participatory nature it takes a municipality approximately 6 months to complete an IDP and this timing is closely related to the municipal budgeting cycle. However, during this period delivery and development is not at a stand still, but continues. The IDP is reviewed annually, which results in the amendment of the plan should this be necessary.

8 5 *',. 01 # " # # # In essence the IDP process and strategic planning are synonymous, even though the public and private sectors use different terms to refer to the process. Quintessentially this planning process serves as a management tool that enables a municipality to determine the broad strategic view of its development requirements and address all key issues holistically. *'7..0 #.. The IDP process does not only entail spatial planning, and therefore the management and implementation thereof should not be delegated to the municipal planning department or to consultants. It is a mechanism to manage the affairs of a municipality and its municipal area, and hence occupies a very high status within a municipality. In terms of the Municipal Systems Act, 2000, (Systems Act) the chairperson of the executive committee or executive mayor or the chairperson of the committee of appointed councillors has the responsibility to manage the drafting of the IDP or to assign this responsibility to the municipal manager. The municipal manager is responsible for the implementation and monitoring of the IDP process. Municipal Systems Act, 2000, Sections 30 and 55(1):- 30. The executive committee or executive mayor of a municipality or, if the municipality does not have an executive committee or executive mayor, a committee of councillors appointed by the municipal council, must, in accordance with section 29 (a) manage the drafting of the municipality s integrated development plan; (b) assign responsibilities in this regard to the (c) municipal manager; and submit the draft plan to the municipal council for adoption by the council. 55.(1) As head of administration the municipal manager of a municipality is, subject to the policy directions of the municipal council, responsible and accountable for (a) the formation and development of an economical, effective, efficient and accountable administration (i) equipped to carry out the task of implementing the municipality s integrated development plan in accordance with Chapter 5; and (ii) operating in accordance with the municipality s performance management system in accordance with Chapter 6. *'4 #. + In a nutshell, the IDP process entails an assessment of the existing level of development and the identification of key development priorities. The vision and mission statements for long term development flow from the aforesaid, with specific reference to critical developmental and internal transformational needs. The development strategies and objectives will be directed at bridging the gap between the existing level of development and the vision and mission. A very critical phase of the IDP process is to link planning to the municipal budget (i.e. allocation of internal or external funding to the identified projects), because this will ensure that the IDP directs the development and implementation of projects. Municipal Systems Act, 2000, Section 26:- 26. An integrated development plan must reflect (a) the municipal council s vision for the long term development of the municipality with special emphasis on the municipality s most critical development and internal transformation needs; (b) an assessment of the existing level of development in the municipality, which must include an identification of communities which do not have access to basic municipal services; (c) the council s development priorities and objectives for its elected term, including its local economic development aims and its internal transformation needs; (d) the council s development strategies which must be aligned with any national or provincial sectoral plans and planning requirements binding on the municipality in terms of legislation; (e) a spatial development framework which must include the provision of basic guidelines for a land use management system for the municipality; (f) the council s operational strategies; (g) applicable disaster management plans; (h) a financial plan, which must include a budget projection for at least the next three years; and (i) the key performance indicators and performance targets determined in terms of section 41.

9 6 *'2 <. = >?. Councillors have to play a leading role in the IDP process. The IDP is not only a mechanism through which they have to make decisions, it also contains their constituencies needs and aspirations. Therefore, councillors have to participate in this process to ensure that their communities issues are well reflected and addressed. >0? ++. The IDP is not a function of the municipality s planning department. Everything that the municipality and its departments do, has to be guided by the IDP. As a result, all departments have to be directly involved in the IDP process. >?!. The purpose of the IDP process is to determine the needs and priorities of a municipality s stakeholders and community which should be addressed towards improving the quality of life in respect of those concerned. Community and stakeholder participation in determining those needs is therefore at the heart of the IDP process. The Constitution and the Systems Act clearly stipulate that a municipality must mobilise the involvement and commitment of its stakeholders by establishing an effective participatory process. The municipality should especially ensure participation by previously disadvantaged groups. Stakeholder groups that are not organised, i.e. Non-Governmental Organisations (NGO s), play a critical role to voice the interests of those groups. Thus it is the nature of the IDP process to allow all stakeholders who reside or conduct business within a municipal area to contribute to the preparation and implementation of the IDP. By abstaining from participating in the IDP process, stakeholders empower others to make decisions on their behalf, which decisions might not be in their best interest. >? ".. The IDP should guide how the provincial and national sector departments allocate resources at local government level. Simultaneously, municipalities should consider the sector departments policies and programmes when developing own policies and strategies. It is in the interest of the sector departments to participate in the IDP process to ensure that its programmes and those of municipalities are aligned. *' " It is the responsibility of municipalities to prepare and adopt IDP s. However, the IDP is an integrated inter governmental system of planning which requires the involvement of all three spheres of government. Some contributions have to be made by provincial and national government to assist municipal planning.

10 7 The IDP roles and responsibilities of the three spheres of government GOVERNMENT SPHERE ROLES AND RESPONSIBILITIES LOCAL Local municipality Prepare and adopt an IDP District municipality Provide support to poorly capacitated local municipalities Facilitate the compilation of a district framework which will ensure co-ordination and alignment between local municipalities and the district municipality Prepare and adopt an IDP Metropolitan municipality Prepare and adopt an IDP PROVINCIAL Department of Local Government Co-ordinate training Provide financial support Provide general IDP guidance Monitor the process in the Province Facilitate co-ordination and alignment between district municipalities Facilitate resolution of disputes between municipalities Facilitate alignment of IDP s with Provincial sector department policies and programmes Assess IDP s Sector Departments Provide relevant information on sector department s policies, programmes and budgets Contribute sector expertise and technical knowledge to the formulation of Municipal policies and strategies Be guided by Municipal IDP s in the allocation of resources at the local Level NATIONAL Department of Provincial and Local Government Issue legislation and policies in support of IDP s Issue Integrated Development Planning Guidelines Provide financial assistance Provide a National Training Framework Establish a Planning and Implementation Management Support System Sector Departments Provide relevant information on sector department s policies, programmes and budgets Contribute sector expertise and technical knowledge to the formulation of Municipal policies and strategies Be guided by Municipal IDP s in the allocation of resources at the local Level *'/ # #.. >? >? <. = The preparation of IDP s is a new requirement for local government in South Africa. The majority of municipalities do not have sufficient capacity to prepare IDP s on their own. To support municipalities, DPLG initiated the PIMSS. PIMSS is a national IDP support system which has been established to provide support to municipalities in the preparation and implementation of IDP s. The core element of the PIMSS is the Planning and Implementation Management Support Centres (PIMS-Centres). The PIMS-Centres are established at district council level and their mandate is to assist local municipalities, which have limited capacity, with the IDP process.

11 8 The PIMS-Centres are staffed by experienced professionals with applicable qualifications and experience in local government, development planning and facilitation as well as other relevant skills required for the IDP process. >0? < 0+ + = The establishment of PIMSS is geared towards assisting local councils. Stakeholders and community groups can however access the PIMSS if they require any form of assistance, e.g. how to organise themselves in order to participate effectively in the IDP process. The PIMS-Centre staff would provide the assistance directly or refer a roleplayer to relevant service providers who have the necessary expertise.

12 - 9 $% % -'& %. " # Integrated development planning mobilises a municipality to focus itself, develop a futuredirected vision and proactively position itself in a changing environment. Furthermore, it enables a municipality to gain a better understanding of the changes it encounters and to identify effective methods to deal with such changes. By analysing the future, a municipality, its leaders, other stakeholders and civil society can anticipate future opportunities and threats. They can develop the ability to optimise opportunities, while controlling and minimising the threats. By identifying problems before they occur, a municipality can avoid being trapped in a cycle of crises management, which consumes valuable financial and human resources resources which could have been used to take advantage of opportunities. -'*... One of the key components of the IDP process is an internal organisational audit or analysis. Such an analysis allows the municipality to know and understand its own internal operations. On the basis of this understanding, the municipality is in a better position to manage the changes which will be required in order to bring about the desired future. The aim of the analysis is to identify the municipality s strengths and weaknesses, including its structures, staff composition and deployment, financial situation and culture. The purpose is not to defend outdated and impractical structures, procedures and practices, but rather to establish an open-minded view of the organisation, to recognise problems, shortcomings, limitations and imbalances and to identify ways to overcome it. The institutional audit also focuses on exposing the vulnerability of the municipality in terms of identified threats. It highlights the capacity of the municipality to optimise opportunities, and be proactive and future-directed. -'- #... Integrated development planning provides an opportunity to establish and prioritise the needs to be addressed by a municipality. It grants a municipality the opportunity to inform the community and all stakeholders about available resources, and to involve them in prioritising services and service levels. It enables the municipality to allocate resources human and financial in order of priority. It also allows for the design of alternative service delivery mechanisms, such as public/private partnerships. -', 6 # The IDP may be defined as a holistic plan the final product of the IDP process. It contains a range of projects, all designed to achieve specific development objectives. The IDP sets measurable development objectives and targets. For each of these objectives and targets a municipality assigns tasks with set target dates to specific persons or task teams. The municipality is then able to monitor the course of each action and make adjustments where necessary to ensure that the intended objective is achieved.

13 10 -'7 + # The IDP sets clear development objectives and targets, and provides direction to improve performance. It sets key performance indicators (KPI s) and the criteria for measuring performance both for the overall IDP, and for specific projects. As such it enables management to align actions with set objectives. Customer satisfaction also serves as a performance measure. External stakeholders (the customers of municipal services) are involved in identifying and prioritising needs, they are able to judge whether the objectives and targets have been successfully achieved as planned. They are therefore an integral part of the monitoring process. -'4. # The community may set an idealistic vision for the future. However, by involving all stakeholders in the planning process and empowering them with knowledge about the municipality s weaknesses and strengths, and its resources and responsibilities, the municipality is able to develop a realistic, achievable plan for future development. Stakeholders are also more likely to prioritise their needs and expectations realistically when they are involved in the planning process. -' $# Integrated development planning provides an opportunity for stakeholders with different needs, priorities and agendas to learn from each other, and to negotiate and compromise around their established view points. The process is not without disagreement and conflict but, if well managed, it can promote consensus and allow compromises and agreements on common development objectives to be reached. Through the process, councillors and officials also gain a better understanding of the municipality and the respective roles they must fulfil. This can enhance team work and promote commitment towards achieving the development and operational objectives contained in the IDP. -'5 1 +!. Integrated development planning can also be termed participative planning, because it involves the participation of all stakeholders. In terms of the Constitution, all spheres of government national, provincial and local are required to promote co-operative governance that is, government which actively seeks to involve all those who have an interest in or a contribution to make. This is the corner stone of our new democracy and for municipalities, this means that the client base the citizens and all affected stakeholders and groups has to be involved in all decision-making which affects them. However, meaningful participation entails that the community and stakeholders have to be empowered with the necessary information and knowledge about all the issues that have to be addressed. This will ensure constructive, practical and achievable objectives. The IDP process is the medium through which such knowledge is channelled to stakeholders, and through which they are empowered to participate in planning for the future. Informed participation enables the community to take shared responsibility for the destiny of the municipality and provides the benefit of greater commitment by stakeholders towards the IDP.

14 11 -'/ %. $## The IDP process facilitates budgeting in accordance with planning it enables the budget to be linked to the IDP as required by the Systems Act. In particular, it provides for strategic management based on a budget, driven by the key development priorities. Stringent financial control and sound financial management are not possible unless there is a focused budget, based on specific objectives with no fat reserves (unallocated resources). Integrated development planning, if correctly carried out, ensures that realism dictates the budget. -'&8 # # Planning for future development also means planning for change. The IDP provides a tool for managing the change which automatically comes with development. Through the IDP process the mindsets of people are changed to address the realities of the present and to embrace the opportunities the future holds. The process requires a new approach to management and planning, and determines the rules with which a municipality s structure and people must comply to develop a culture of change management.

15 , 12 $,'& One of the objects of local government in terms of the The Constitution Section 152(1)(e) and Constitution is to encourage the involvement of The Municipal Systems Act, 2000, Chapter 4. communities and community organisations, in local government. The Systems Act, deals with community participation. The following is a summary of Chapter 4 of the Systems Act. A municipality must develop a culture of municipal governance that complements formal representative government with a system of participatory governance. The Systems Act emphasises three elements: The municipality must foster participation in The IDP process; The evaluation of its performance through performance management; The budget process; and strategic decisions regarding service delivery. The municipality must enable participation through capacity building in the community and among staff and councillors. Funds must be allocated and utilised for the above purposes.,'* <. >?. The Constitution establishes representative democracy and participatory democracy as two objects of local government. The Constitution Section 152. Through regular elections, councillors are elected both in wards and on party lists to represent the residents of the municipality. Participatory The Constitution Section 160(4). democracy is enshrined in the Constitution and section 160(4) contemplates that no by-law may be passed unless it has been published for public comment. >0? %1! A national statutory framework is established that broadly outlines a system of participatory democracy in both the Local Government: Municipal Structures Act, 1998 (Structures Act) and the Systems Act. The Structures Act provides the skeleton of a ward committee system while the Systems Act devotes chapter 4 to community participation.

16 13 >? $:1. The national statutory framework allows municipalities to develop, in terms of the Systems Act, a culture of municipal governance that complements formal representative government with a system of participatory Municipal Systems Act, 2000, Section 16(1). government. The framework for a system of ward committees is best captured in a by-law. >?. + The Systems Act sets out two important principles for community participation: Municipal Systems Act, 2000, Section 16. Participatory governance should not permit interference with a municipal council s right to govern and exercise the executive and legislative authority of the municipality. The municipal council, which is the product of representative democracy, not only has the sole legal mandate to govern, but also, and more importantly, the political legitimacy to do so. Given the pre-eminence of the formal representative structures, participatory democracy is there to complement the politically legitimate and legally responsible structures. This means that any community participatory structure may merely add to the formal structures of government, and not replace or substitute it. While every council must comply with the broad principles of participatory democracy, councils have the discretion to decide whether or not it wishes to establish ward committees. Where ward committees are established, the principles of participatory democracy also apply to this system. >? %. + <. When devising a ward committee system it is important to proceed from the principle that structure must follow function. After a clear function is identified and clarified, a structure that may best fulfil that function can be established. Proceeding the other way around, could defeat the true functions of the system. What then are the functions of a ward committee? >? The primary function of a ward committee is to serve as a formal communication channel between the community and the council. In terms of the Municipal Structures Act, 1998, Section 74(4). Structures Act a ward committee may make recommendations on any matter affecting the ward to the ward councillor or through that councillor to the council. Furthermore, a ward committee is the proper channel through which communities can lodge their complaints. It would also be a forum for communication between the ward councillor and the community about municipal issues and development, as well as service options within the ward.

17 14 >? + < A ward committee should, in a broad sense, be a communication channel for the entire ward community. The ward committee cannot merely reflect and replicate the existing configuration of the elected council. That would result to double representation. Nor should it function as a communication channel for the winning party only. The councillor and his or her supporting political structure already perform this function. A ward committee should also not provide a forum for the losing candidates to fight the municipal election de novo. Minority parties have their own structures within the system of proportional representation (PR) to make recommendations to the council. With regard to the composition of ward committees, the Structures Act merely states that the procedure for electing members must take into account the need for women to be equitably represented on a ward Municipal Structures Act, 1998, Section 73(3). committee and for a diversity of interests in the ward to be represented. The philosophy behind this provision is that the interests that have not been accommodated through the formal political processes should be included in municipal governance. The reference to a diversity of interests stresses this point; it should be an inclusive process. >? %. The Structures Act provides that a council may also delegate specific municipal duties and powers to a ward committee. It is difficult Municipal Structures Act, to conceive what executive functions a ward 1998, Section 74(b). committee should be entrusted with. Once a ward committee is given delegated powers, the issue of election procedures will become contested. Any election procedure, unless it is simply a replication of the councillor election process, will be inherently problematic and provide an insecure base from which to launch executive decisions. It is therefore suggested that no executive functions be delegated to ward committees. Apart from its primary communication function, a ward committee could also be an important mobilising agent for community action. The Masakhane Campaign could, for example, be bolstered by the participation of such committees. They can also play an important role in mobilising partnerships for the development of local projects. The ward committee cannot prescribe to the ward councillor how to vote in council meetings. However, it may well call on the ward councillor to resign and pass motions of no confidence in him or her, but it may not impede any of the activities of the councillor in the ward. >+? Interest groups that should be accommodated are those that are directly relevant to the core business of the municipality. In other words, they must relate to the municipality s key performance areas (KPA s) in that ward.

18 15 >? + + ; ". + < Because of the wide range of municipal functions and powers, many societal groups could claim an interest in municipal matters. Due to the fact that ward committee membership is restricted to ten (10) representatives, only members from organisational groups with a direct interest in the key development priorities of a specific ward should be considered for such membership. Key development priorities in a ward are those identified through the IDP process. >? $. ". In most wards, key development priorities are related to the major services that must be delivered such as water, electricity, sanitation, roads and storm-water. Other social services that are important may include health, sport and safety and security. There is no closed list of key development priorities. Additional areas can be identified through the IDP process. >? < :. + ; ". Some key development priorities could be linked to a particular ward. For example, where a large truck stop along a national road is situated in a particular ward, leading to a high prevalence of HIV/Aids in that ward, the prevention and combating of HIV/Aids would be a key development priority for that ward. The same applies to economic development in wards where central business districts are located. The identified key development priorities of a particular ward should thus be used to identify interest groups. >"?.. The interest groups and formations in civil society are varied and can be categorised as follows: " :. Some civil society organisations are formed with the specific goal of ensuring performance by a municipality in respect of key development priorities. Such organisations include community based organisations (CBOs) and ratepayers associations. These structures would obviously be candidates for inclusion. However, where such structures have been political actors in the election campaign, they would already have representation in the council, and should not be included... The second set of interest groups comprise of organisations that focus on a particular issue, which may or may not intersect with municipal activities. A council should thus identify those groups whose specific areas of interest relate directly to the ward s key development priorities. For example, where safety and security is a key development priority, community safety forums may be appropriate interest groups. Other interest groups may include business chambers, informal trade associations, environmental groups, etc.

19 16... Groups that belong to this category are those whose interests only occasionally intersect with municipal business. Due to their peripheral and occasional engagement with municipal affairs, they should be excluded. Religious groups may fall into this category. <A.. The Structures Act requires that women should be equitably represented on ward committees. Does that mean that they must be equitably represented in the various interest groups, or should women be regarded as an interest group in their own right? The Structures Act does not refer to equitable representation of women under the heading of interest groups. This may suggest that a procedure prescribed in the Structures Act for political parties (that parties must ensure that at least 50% of the candidates on the list are female) should be followed. With usually only one member of each interest group represented on a ward committee, it might be difficult to achieve an equitable result. The alternative approach is to regard women as an interest group. The most equitable solution would be both to emphasise the need that interest groups representation equitably represents women and to accept that women form a relevant interest group in their own right.. The model presented here is based on the assumption that there are welldeveloped, functioning civil society structures formed around specific interests. In some rural areas this may not be the case; interest groups might not be experienced enough to represent a ward s community. In such a case, geographical spread of representation would be the preferred option.. The possible role of traditional leaders, as a particular interest group in a ward committee, will depend upon the outcome of the deliberations between government and the coalition of traditional leaders. It is suggested that traditional leaders should be considered as an interest group within a ward. >"?. + <. To a large extend, the ward committee can determine its own internal procedures. The council must however make rules regulating the frequency of the meetings. The ward councillor is Municipal Structures Act, 1998, Sections 73(2)(a) and 73(3)(c). the chairperson of the committee. He/she calls the meetings and presides over them. The municipal council must determine rules for the manner in which a committee may make recommendations or decisions. Similarly, the council must determine the procedure that the chairperson would follow in submitting a recommendation or decision from the committee to the council.

20 17 >"? +. A PR councillor has no formal standing in the ward committee and, in terms of the Structures Act, may not be a member of such a committee. The ward councillor as the chairperson of the committee is in charge of the committee. A council may develop a policy setting out how PR councillors may participate (as non-members) in ward committees. For example, should a council decide to allocate PR councillors to wards, it may determine that such councillors participate ex officio in the proceedings of the relevant ward committees. Such participation may not, however, disrupt the operation of the ward committee. >"?.. + < The Structures Act leaves it up to the discretion of the council to make administrative arrangements to enable ward committees to function effectively. Municipal Structures Act, 1998, Sections 73(4) and 77. While no remuneration is to be paid to ward committee members, this does not prevent the council from reimbursing committee members for travel costs and other out-of-pocket expenses. The council should also provide assistance such as secretarial assistance, venues for meetings, etc. The Systems Act provides specifically that councils must allocate funds annually in their budgets for the implementation of community participation. This should include funds for ward committees.,'-. + Participation must take place through the established structures (ward committees). It must also take place through mechanisms, processes and procedures that exist in terms of the Systems Act itself or that have been established by the council. The Systems Municipal Systems Act, 2000, Section 16(1)(c). Municipal Systems Act, 2000, Section 17(4). Act mentions the ward committee as a vehicle for participation. In addition to ward committees, the council may, for instance, establish advisory committees consisting of persons who are not councillors. The mechanisms, processes and procedures mentioned in the Systems Act must include: Procedures to receive and deal with petitions and complaints of the public; Procedures to notify the community about important decisions (such as by-laws, IDP service delivery choices, etc.) and allowing public comment when it is appropriate; Public hearings; Consultative meetings with recognised community organisations and, when appropriate, traditional authorities; and report back to the community. These systems must, as a minimum measure, be established in every municipality. The special needs of women, illiterate people, disabled people and other disadvantaged groups must be taken into account. Include at least: Ward Committees Business Civil Society Women Disabled People

21 For example, when planning a public meeting, the council must endeavour to accommodate all these groups and consider issues such as: Venue: Can the venue accommodate people with disabilities, e.g. does it have wheelchair access? Time: Does the time of the meeting make it difficult for women to attend due to family responsibilities? Publicising the event: Should the announcement appear only in newspapers? The council must make the public aware of the established Municipal Systems Act, 2000, mechanisms for participation. It must also inform the public of the Section 18(1). issues in which it wants participation. The residents must be informed regarding municipal governance, management and development.,', #. The municipal manager must notify the public of the time, date Municipal Systems Act, 2000, and venue of every meeting of the council. The council Section 19. determines how notice should be given (e.g. via the local newspaper). This also applies to urgent meetings, except when time constraints prohibit prior notification. The council must determine in a by-law or a resolution the circumstances under which council or committee meetings are closed to the public. The public and the media can attend council and committee meetings, except when it is reasonable to exclude them because of the nature of the items on the agenda. An executive committee or a mayoral committee can also close its meetings if it is reasonable to do so because of the Municipal Systems Act, 2000, Section 20(1). nature of the items on the agenda. The meetings must always be open to the public if one of the following matters is discussed or voted on: A by-law; The budget; The IDP (or an amendment to it); The performance management system; or a service delivery agreement. 18 The council must, as far as its financial and administrative capacity allows, provide space for the public in its meeting venues. It can make rules to regulate access to and public conduct at council and committee meetings. Municipal Systems Act, 2000, Section 20(4).,'7 The council must determine what its official languages are, taking into account the language preferences and usage within the municipal area. Whenever the council notifies the community through the media in terms of any legal provision, these languages must be used. One or more of the following means of notification must be considered: Local newspaper; Other newspaper that has been designated as a newspaper of record; or radio broadcasts.

22 Any such notice, as well as those that must be published in the Provincial Gazette, must also be displayed at the municipal offices. When the municipality invites comments from the public, it must ensure that an official is available at the municipal offices during office hours to assist residents who cannot write (due to illiteracy or disability) to put their comments in writing. This option must be communicated to the public in the invitation for comments. Similarly, when the council requires a form to be completed, officials must assist residents in understanding and completing the form. When the form deals with payment of money Municipal Systems Act, 2000, Section 21(4). to the municipality or the provision of services, the assisting official must explain the terms and conditions of such payment or services to be rendered.,'4 #. 19 The minister for provincial and local government may issue further regulations on participation and may set minimum standards, including standards on funding for participation. In doing so, the minister must take into consideration the capacity of municipalities to comply with the regulations. Municipal Systems Act, 2000, Section 21(4).

23 ( 20 ( &) &) $!# *) + -) $+.,) 0 ( *) &).. *). %1! ( -) % 3 &) *).. :. & -) #. :. *,) 6. :. - 7) # :., 4) " :. 7 (,) &) $.... *) $#. -) #9 " "1#,) #

24 21 *) Drafting an IDP requires a comprehensive planning process and the involvement of a wide range of internal and external role players. Such a process has to be properly organised and prepared. This preparation is the duty of the municipal manager and senior management. The preparation process will be referred to as the Process Plan and should contribute to the institutional preparedness of the municipality for the IDP process. (For more details refer to the IDP guide pack guide 2). & In order to ensure that the IDP process complies with certain minimum quality standards and that proper coordination between and within the spheres of government is established, the preparation of the process plan is regulated by the Systems Act. It requires the adoption of a process set out in writing by each municipality (including local and district), which is supposed to guide the planning, drafting, adoption and review of the IDP. This written document is referred to as the process plan and has to include the following: A programme specifying time frames for the different planning phases; Appropriate mechanisms, processes and procedures for consultation with and participation of local communities, organs of state, traditional authorities, and other stakeholders in the IDP process; and the identification of all plans and planning requirements binding on the municipality in terms of provincial and national legislation. Municipal Systems Act, 2000 Sections 28 and (1) Each municipal council, within a prescribed period after the start of its elected term, must adopt a process set out in writing to guide the planning, drafting, adoption and review of its integrated development plan. (2) The municipality must through appropriate mechanisms, processes and procedures established in terms of Chapter 4, consult the local community before adopting the process. (3) A municipality must give notice to the local community of particulars of the process it intends to follow. 29.(1) The process followed by a municipality to draft its integrated development plan, including its consideration and adoption of the draft plan, must (a) (b) (c) (d) be in accordance with a predetermined programme specifying time frames for the different steps; through appropriate mechanisms, processes and procedures established in terms of Chapter 4, allow for (i) the local community to be consulted on its development needs and priorities; (ii) the local community to participate in the drafting of the integrated development plan; and (iii) organs of state, including traditional authorities, and other role players to be identified and consulted on the drafting of the integrated development plan; provide for the identification of all plans and planning requirements binding on the municipality in terms of national and provincial legislation; and be consistent with any other matters that may be prescribed by regulation. The municipality must notify the local community of the particulars of the process it intends to follow. The Local Government, Municipal Systems process plan has to be submitted and adopted by the Regulations, 2001, Government Notice 459 (25 relevant municipality on or before 16 July May) Gazette no The process plan should fulfil the function of a business plan and should stipulate in simple terms what has to happen, when, by whom, with whom, and where.

25 22.. The following is the proposed table of contents, with due consideration to the prescriptions contained in legislation: Introduction; Institutional arrangements; Establishment process; Roles and responsibilities; Public participation; Process programme; Process time frame; IDP table of contents; Binding national and provincial plans, planning requirements and legislation; and Activity and resource plan. >? The introduction will provide a brief background and other relevant details of the municipality (1-2 pages). >0?. #. The elected council is the ultimate decision-making forum on IDP s. The role of participatory democracy is to inform, negotiate and comment on those decisions, in the course of the planning process. The following positions and structures are recommended and will serve as a guide: IDP representative forum Municipal manager or IDP manager IDP steering committee Project, programme and sectoral task teams The IDP manager, IDP steering committee and IDP representative forum are structures required throughout the IDP process. The project, programme and sectoral task teams will be small operational teams composed of a number of relevant municipal sector departments and technical officials involved in the management of the implementation and, where appropriate, community stakeholders directly affected by the project and programme.

26 23 Proposed IDP Structure MUNICIPAL COUNCIL Executive Committee or Executive Mayor or Committee of appointed Councillors Municipal Manager (IDP Manager) IDP Steering Committee Stakeholder and Community Participation IDP Representative Forum Metropolitan/ District and Local Level Subcommittees Project, Programme and Sectoral Task Teams Stakeholder Structures Ward Committees Ward Level >?.0... (See Page 43) >? B " 9 B " #) Define terms of reference for the IDP manager and steering committee; Identify an appropriate IDP manager, taking into consideration the importance of the IDP; Assign responsibilities to the municipal manager regarding the drafting of the IDP; Identify and nominate suitable candidates for the IDP steering committee ensuring that all relevant issues (e.g. LED, spatial, housing, finance, etc.) have at least one responsible senior official; and include portfolio councillors where applicable. >? 1.0. # " % 0) Defining terms of reference and criteria for members of the IDP representative forum; and informing the public about the establishment of the IDP representative forum and request submission of applications from stakeholders/community groups indicating goals, objectives, activities, number of members, and constitution.