An enquiry into the state of public participation in
the Matlosana Municipal Area
EN Gouwe
orcid.org 0000-0002-3083-8280
Mini-dissertation accepted in partial fulfilment of the
requirements for the degree
Master of Business Administration
at the North-West University
Supervisor:
Prof RA Lotriet
Graduation: October 2019
Student number: 21161844
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ABSTRACT
The construct of public participation holds significant value particularly for South Africa, a country that is emerging from the shackles of apartheid and is making efforts towards image upliftment. Public participation holds high hopes as an element of democracy but also for service delivery in local municipalities. An assessment of public participation is conducted within the Matlosana Municipal Area to expand discussion and debate on the important construct. A quantitative study is conducted utilising a purposively developed questionnaire which was administered to a sample of 143 residents of the Matlosana Municipal Area. Public participation status in the Matlosana Municipal Area is found to be off the worst levels and concluded to be satisfactory. Public participation process, plan and engagements of ward committees are relevant constructs of public participation. Individual satisfaction with public participation processes and compliance to public participation regulations are significant drivers of public participation. The use and adoption of technological advancements, both in hardware and software, are highly recommended for the municipality in seeking to improve public participation.
Keywords: Public participation process, public participation plan and ward committees, City
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ACKNOWLEDGEMENTS
A special thank you to my supervisor Professor Ronnie Lotriet for believing in me and for the support throughout the year.
Wilma Breytenbach for all the statistical assistance.
My husband Emmanuel Gouwe for all the support and late nights you spent with me while I was busy with my schoolwork, and for waiting up while I was coming home late from evening classes.
To my daughter Botlhale Gouwe for her understanding that I was not always available to spend time with her, but I know this experience taught her the importance of education.
To my late father William Sathege you always encouraged me to do my best and to never settle for less and I have grown to remember that even when you gone.
To my family especially my mother Georginah Sathege for all the financial and emotional support.
To Matlosana Municipality and the community for your help and assistance always.
To all my friends and colleagues for the encouragements and support.
Lastly to the almighty God as I always prayed when I required mental and physical strength to complete this study and I know the strength was provided by him.
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LIST OF ABBREVIATIONS
Abbreviation Description
DPSA Department of Public Service and
Administration
IDP Integrated Development Plan
MFMA Municipal Finance Management Act
MSA Municipal System Act
MSA Municipal Structure Act
MSA Measure of Sample Adequacy
SA South Africa
SAS Statistical Analysis System
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TABLE OF CONTENTS
ABSTRACT ... i
ACKNOWLEDGEMENTS ... ii
LIST OF ABBREVIATIONS ... iii
TABLE OF CONTENTS ... iv
LIST OF FIGURES ... vii
LIST OF TABLES ... viii
CHAPTER 1: NATURE AND SCOPE OF THE STUDY ... 1
1.1 Introduction ... 1
1.2 Background ... 2
1.3 Challenges of City of Matlosana ... 4
1.4 Problem statement ... 5
1.5 Objectives of the study ... 6
1.5.1 Primary objective………7
1.5.2 Secondary objectives………7
1.6 The scope of the study ... 7
1.7 The significance of the study ... 8
1.8 Limitations of the study ... 9
1.9 Research methodology ... 9
1.9.1 Literature review……….9
1.9.2 Importance of public participation in the Municipality Affairs………10
1.9.3 Empirical investigation………12
1.9.4 Description of overall research design……….13
1.9.5 Target population……….13
1.9.6 Data analysis………14
1.9.7 Research design and methodology………..14
1.9.8 Assessing and demonstrating the quality and rigour of the research design………..14
1.10 Ethical considerations ... 15
1.11 Layout of the study ... 15
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CHAPTER 2: LITERATURE REVIEW ... 17
2.1 Introduction ... 17
2.2 Public participation and community participation ... 17
2.3 Successful service delivery and public participation ... 24
2.4 Legislation ... 27
2.5 Challenges and obstacles of community and public participation ... 31
2.6 City of Matlosana public participation background ... 34
2.7 Service delivery protests ... 37
2.8 Financial position of the City of Matlosana ... 38
2.9 Conclusion ... 39
2.10 Chapter summary ... 40
CHAPTER 3: EMPIRICAL INVESTIGATION ... 41
3.1. Introduction ... 41
3.2 Research design ... 41
3.3 Research approach ... 42
3.4 Target population and sampling ... 45
3.5 Data collection and analysis ... 46
3.5.1 Research instrument………...47
3.5.2 Data analysis………47
3.6 Ethical considerations ... 48
3.7 Presentation and discussion of empirical outcomes ... 50
3.7.1 The main research questions of the study are stated as………50
3.7.2 Research objectives………50
3.7.2.1 The primary objective of the study is……….50
3.7.2.2 The secondary objectives are……….51
3.8 Demographic analysis ... 52
3.9 The public participation process ... 56
3.10 Kaiser’s measure of sample adequacy (MSA) ... 71
3.10.1 Public participation process……….72
3.10.2 Public participation plan and ward committees……….74
3.11 Discussion ... 79
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4.1 Introduction ... 81
4.2 Summary of findings... 81
4.3 Satisfying research objectives ... 82
4.3.1 Secondary objectives………..82
4.3.2 Recommendation……….83
4.4 Evaluation and objectives of the study………83
4.4.1 Primary objective……….83
4.5 Recommendations for future research ... 84
4.6 Summary ... 85
List of References ... 86
Appendix ... 97
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LIST OF FIGURES
Figure 1: Organisational structure of City of Matlosana ... 3
Figure 2: IAP's public participation spectrum ... 19
Figure 3: Resources to support public participatin in South Africa ... 21
Figure 4: Views on increasing public participation in South Afica ... 23
Figure 5: Public participation structure in South Africa ... 25
Figure 6: Integrated development plan ... 27
Figure 7: Number of Staff per public participation unit ... 32
Figure 8: City of Matlosana public participation framework ... 35
Figure 9: Annual report notice for public participation ... 36
Figure 10: Draft budget 2019/2020 to 2021/2022 ... 37
Figure 11: Age analysis ... 53
Figure 12: Gender analysis ... 54
Figure 13: Highest qualification ... 55
Figure 14: Occupational profile ... 55
Figure 15: Service delivery for housing ... 58
Figure 16: Service delivery for electricity ... 59
Figure 17: Service delivery for water ... 59
Figure 18: Service delivery for sanitation ... 60
Figure 19: Ward councillor ... 61
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LIST OF TABLES
Table 1: The ladder of participation ... 18
Table 2: Totals for public participation ... 34
Table 3: City of Matlosana financial statements 2017/2018 ... 38
Table 4: Qualitative and quantitative approach ... 43
Table 5: Quantitative data analysis methods ... 52
Table 6: Demographic analysis ... 53
Table 7: Frequencies and factors patterns ... 56
Table 8: Factor analysis for residence and participation venue ... 56
Table 9: Alternatives to receiving public participation information ... 57
Table 10: Types of participation ... 58
Table 11: Public participation plan ... 62
Table 12: Significant test outcomes ... 62
Table 13: T test outcomes by residency ... 63
Table 14: Spearman correlations between constructs ... 66
Table 15: Reliability process ... 67
Table 16: Cronbach coefficient Alpha ... 68
Table 17: Reliability participation plan ... 68
Table 18: Cronbach coefficient Alpha ... 69
Table 19: Reliability ward committees ... 69
Table 20: Cronbach coefficient Alpha ... 69
Table 21: Spearman correlations between B6 and constructs ... 70
Table 22: Spearman correlations between C6 and constructs ... 70
Table 23: Process ... 72
Table 24: Kaiser Measure of sampling adequacy ... 72
Table 25: Eigen values ... 73
Table 26: Factors in order ... 73
Table 27: Variance explained by main factor ... 74
Table 28: Standardised scoring coefficients of public participation process ... 74
Table 29: Public participation plan ... 75
Table 30: Kaiser Measure of public participation plan ... 75
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Table 32: Retained factors and Eigen values ... 76
Table 33: Ward committees ... 77
Table 34: Variance explanation by factors in ward committees ... 77
Table 35: Inter-factor correlation ... 78
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CHAPTER 1: NATURE AND SCOPE OF THE STUDY 1.1 Introduction
This study was conducted to examine the state of public participation in the Matlosana Municipal Area. The City of Matlosana is a member of the Dr. Kenneth Kaunda District Municipality in the North West Province of South Africa. Public participation and support are perceived as key factors which empower the respective authorities to contribute to local development. Several studies have been conducted, focusing on the importance of public participation and the role it plays in the decision-making processes of society (Kolasa K, et al., Przegl Epidemiol 2013:75-9,157-60). It is a noticeable fact that the public is the one important entity and stakeholder of a country.
It is also noticeable that public participation entails the involvement of the local public in the governing channels as is required in democratic processes. Democracy provides an opportunity for the public to become representatives of their own people and the consequences allow them to get their issues resolved (Du Toit, 2012:169-181).
The representatives of the public are responsible for identifying their issues and making efforts to take the concerns to the higher authorities. In this manner, it is believed that public participation can be ensured through the democratic approach of Government which allows the public to participate in the important decision-making processes that are solely done for the public (Kolasa et al., Przegl Epidemiol 2013:75-9,157-60).
It is the responsibility of the public, in a democratic dispensation, to realise the importance of public participation. When the public is unaware of how important their role is in decision-making and how they can contribute to progress and development of their society, their participation may not be secured to their demise (Luyet, 2012:213-219). Public participation is a critically important source of developing the dignity and self-esteem of people and is perceived as one of the basic needs of individuals which they aspire for. Public participation plays an important role in human development and the development of society (Moseti, Y 2010). The observations on the critical role played by public participation in human development are responsible for the view that, when the public is involved in the decision-making processes benefitting the public, only then is
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there a greater probability that real issues and problems are identified and addressed in a more meaningful manner.
Several studies such as Cheyne (2015: 416-432) have offered insights into the notion of public participation. The argument in Cheyne (2015: 416-432) that public participation is an open accountable process in which individuals of a society are responsible to share and exchange views and opinions in relation to the important decision-making process for the society, sufficiently defines public participation in the context of this study. It is a noticeable fact that public participation is viewed, by both practitioners and scholars, as a cornerstone of the democratic structure which allows and welcomes the individual of a society to make decisions and provide important suggestions that are eventually implemented and used for the public itself. It is the above theoretical context and the problems that can emanate from a lack of public participation in the Matlosana Municipal Area that this study sought to examine.
1.2 Background
The City of Matlosana is situated approximately 164 kilometres South West of Johannesburg, on the N12 highway and covers about 3 625km² in area. The City of Matlosana is the fourth member of the Dr Kenneth Kaunda District Municipality in the North West Province. The municipality was previously called Klerksdorp Municipality and the name was officially changed to the City of Matlosana on the 1st of July 2005.
The municipal area has strong physical and socio-economic linkages and economic interactions with Gauteng, as well as other main towns like Potchefstroom, Rustenburg, Welkom, Ventersdorp, Wolmaransstad and Ottosdal (Matlosana Municipality website, 2013). The name Matlosana is said to mean “People helping each other to move from one area to the other” (Matlosana Municipality website, 2013). Figure 1 below show the map of the municipal area and the municipal offices.
3 Source: Matlosana Municipality website, 2013
Figure 1: Organisational structure of City of Matlosana
Municipal Manager Director Municipal & Social Service Director Corporate Service & Governance Chief Financial Officer Director Infrastructure and utilities Director Economic Growth Executive Mayor Council Manager: Municipal Manager Office
4 The City of Matlosana is one of 278 municipalities in South Africa. Matlosana municipality has a population of 433 973 people of whom about 399 255 (92%) are living in urban areas and the other 34 718 (8%) are rural (Matlosana Annual Report, 2018). The municipality is manned by a diverse and politically affiliated staff, some of whom are elected and others selected. There are more than one native languages spoken, other than the official language English which include Afrikaans, Sesotho, Xhosa and Tswana, among many others. The city is like any other city in the world in the sense that it has a population of people who have settled. The municipal area is less developed if compared to modern industrialised cities in the world. This study is an inquiry into the level of participation by the citizens of South Africa in the concerned municipal area. The participation may be in the form of getting involved in the administrative activity of the municipal area or other types of decision-making pertaining to its running and maintenance and other activities conducted in the area.
1.3 Challenges of City of Matlosana
It is evident that the challenges faced by the municipality emanate from several factors such as a less supportive public local government, low public participation and unethical practices within the municipality and its operation. In light of contributions in Boamah (2012: 136-142), the major causes of the intensified issues of the municipality are due to poor municipal services and the infrastructure which have raised significant challenges for most municipalities in South Africa. The challenges related to cost containment and sustainability have restricted the municipalities from realising and identifying the need of its people in a more logical and sustainable manner.
One of the most significant challenges that directly affects the operations and management of the municipalities of South Africa is the lack of sufficient finance which the majority of the municipalities in South Africa are also facing (Gao,2014). It is a noticeable fact that a municipality faces a financial issue when there is a lack of support from the local government (Gao, 2014). It is evident that, when a government fails to avail sufficient resources to the local municipality, it becomes difficult for the municipality to effectively manage the municipality issues. Government grants and locally generated
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income are major sources of fulfilling the financial needs of the municipalities. The Annual Report of 2010 - 2011 of the Municipalities of South Africa reveals that government grants and subsidies provided up to 71% of the total income to the different municipalities which confirms that municipalities are highly dependent on the support of the financial services being offered by the local government (Infrastructure.ws, 2019).
Gao (2014) identified one of the most influential causes of the intensified challenges of the municipality as evident when local governments face uncertainty and instability due to the political unrest or any other reason. It then becomes difficult for the local government to provide full assistance and support to its municipalities. The crisis in local government is the one significant aspect which greatly intensifies the challenges for the smaller municipality in managing its operations.
Boamah (2012: 136-142) claimed that human resource issues are also prominent factors which beset the municipalities. Without the involvement of sufficient and efficient human resources, it becomes difficult for the municipalities to effectively manage their operational activities. Officials and government employees are required to follow the five-year plan in a bid to contain these financial and human resources variables. Municipalities’ workers and officials change after the completion of their tenure (Badgie, 2012). The loss of efficient and expert employees occurs and the appointment of less skillful, less experienced and less talented employees thus happens (Badgie, 2012).
This study was mainly devoted to exploring and investigating the challenges which the municipality faces. The study focused on defining public participation in the relevant municipality in detail while exploring evidence relating to the involvement of the local community in municipal planning and reviewing the annual municipal report (Monkam, 2014: 275-298).
1.4 Problem statement
Perennial service delivery protest and reported incidences of public dissatisfaction with the municipality’s will to engage its citizenry on matters of development and planning
6 suggest that the all-important public participation has taken a back seat in the running of affairs of the municipality (Van Rooyen, 2016: 73-86). The situation has detrimental effects on the local community whose hopes are entrusted in the democratic mechanisms which inherently promise the factoring of the public’s views, opinions and participation of the operation and decision-making processes of the municipality. According to the Municipal IQ (2019), South Africa has so far seen 144 protests against a lack of service delivery in less than a year. The worst affected province is the Eastern Cape, followed by Gauteng. There was a slight increase of protests in the Western Cape and Free State. Makhafola (2018) also noted that Service delivery protests have become a daily feature of South African life with an alarming increase in violent confrontations between protesters and police. As such, the opportunity for communities to engage constructively on grievances is lost and municipalities need to work to ensure that channels for such communication remain accessible. Service delivery expectations and the input of the public into plans and controls of the municipality make public participation a desirable variable to enhance the welfare of the local community. Public participation is, however, two-pronged in that it can be promoted by the municipality and also championed by an enlightened public. Failure to promote public participation by a municipality has profound negative implications on the planning processes’ ability to take into consideration public needs and generate public satisfaction with the operations of the municipality. A resigned and aloof public creates fertile grounds for corruption and misalignment of public needs with municipality plans. The unfortunate outcomes are service delivery protests and unhealthy suspicion between the public and municipality officials, even employees with costly consequences. The study examined public participation in the municipality with a view to expand debates on public participation while creating a platform from which relevant information can be generated that deals with public participation.
1.5 Objectives of the study
The aim of the study was to examine whether the local communities understand the role of public participation and what role they play in enhancing public participation. To satisfy
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the aim of this study, the following primary and secondary objectives of the study were identified.
1.5.1 Primary objective
The primary objective of the study is stated as follows:
To examine the state of public participation within the Matlosana Municipal Area.
1.5.2 Secondary objectives
The following secondary objectives flowed from the primary objective:
To examine mechanisms for public participation in the development and implementation of the Integrated Development Plan (IDP) and the Annual Report Review in Matlosana Municipal Area.
To explore the meaning that community members ascribe to public participation and the IDP.
To critically analyse the mechanisms for citizen participation in the development of the IDP.
To make recommendations on ways to improve public participation in the IDP within the local government sphere.
1.6 The scope of the study
The municipality is responsible for providing individuals within its jurisdiction with the entire infrastructure necessary to ensure the exercise of basic rights which are perceived as essential for living in the society. It is the foremost responsibility of the local government to formulate such an integrated development program that can enable the municipality to pursue progress and development within the municipality area (Chandler, 2013). Even though the role of the local government in most of the regions is limited to only providing a five-year budget program, also referred to as the Integrated Development Program, it is also required to monitor and assist the municipality regarding the distribution of the resources of the municipality.
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The scope of the study was broad, encompassing the provision of meaningful recommendations and suggestions to both the municipality and the local government regarding the importance of public participation and how it can prevail within the municipality sector. The study was restricted to the Matlosana municipal area. The findings of the study and the argument presented in the study are hoped to be conclusive and authentic to be generalised in other municipalities in South Africa. The examination of public participation in Matlosana local municipality can be beneficial to other local municipalities in the District of Dr Kenneth Kaunda District Municipality.
1.7 The significance of the study
This study provides pathways and directions to policy makers, other government institutions and to the current legislature on guiding implementation of the concept of public participation (Puren, 2013: 36-49). The study also provides recommendations to different committee members, councillors and stakeholders on how to entrench public participation as one of the ways to empower municipalities.
The study will have far reaching propositions for public participation beyond Matlosana spheres. Knowledge gained from the study will be helpful to advance public participation in the City of Matlosana and other local municipalities in the district of Dr Kenneth Kaunda District Municipality and beyond.
The study will add to the existing knowledge on the construct of public participation and support Government and other policy makers to get a better understanding of current legislation on public participation. The study also explored the tools that make the implementation of the concept of public participation easily attainable for all concerned. The study attempted to provide more light on the subject of public participation for the benefit of academic disciplines and also the public. In the process of research, respondents such as councillors, ward committee members and individuals were made aware of their rights to participate and be empowered with regard to the quality of service they can expect from the municipality.
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With this study, the researcher informed the local community about the need to take up participation in the municipal planning and the need to review annual reports of the municipal corporation. It is very important for any government to engage with its communities.
1.8 Limitations of the study
Even though enough effort was made to provide sufficient rigor in order for this study to follow a scientific process, there were still some limitations of a methodological nature and scope that limited the study. The adoption of a quantitative method limited the study to the processing of numerical data which in some instances failed to provide in-depth knowledge of the phenomenon. Several constraints were also faced while collecting the data by means of the primary research instrument. The collection of the data from governmental sectors or employees was a challenging task as access problems surfaced. The sampling technique was modified from a random sample to a convenient sample to resolve access problems. There were challenges of a financial and time resources nature that restricted the collection of samples from the wider population. Collection of samples from the wider population would have added more rigor to this research.
1.9 Research methodology
The research methodology consisted of literature and empirical investigation.
1.9.1 Literature review
Internationally, the question exists whether politicians are involving the public, which is termed to public participation, or not? The question finds expression in one of the current problems termed ‘Brexit’ - was there enough public participation into processes that informed the vote for the British to leave Europe. The discussion over ‘Brexit’ has been going on since 2016 and has cost taxpayers a lot of money (Wheeler B, 2019). The current stalemate and polls indicate that most people of Britain are not in support of the policy shift, indicating some lack of public participation especially if it can be proved that it has always been the public view.
10 Nationally, the impasse on the e-toll system indicates that the national government never conducted proper public participation to gather public buy-in in this regard. With all the service delivery protests happening around the country, it is evident that proper participation is never followed by leaders and politicians. Currently, SENRAL has decided to halt the process of the e-toll system because there was no proper public participation process in place to secure public satisfaction. This project exemplifies the importance of public participation.
Public participation lets the reigns of the city or country in the hands of the people, which motivates them to give input in the administration and other matters related to the business. In many places, participation by the public is a separate process as designed in accordance with the needs and situation of the city or the country (Bryson et al., 2013: 23-34). The main aim of designing processes of public participation is to establish the context of participation and its purpose. The next step in the cycle of the design is to arrange resources for the participants and also to control the participation activity. The last step is to assess the design continuously for improvements (Bryson et al., 2013: 23-34).
It is essential to initiate a two-way communication between the people who are in power and citizens of the state to initiate and maintain a strong level of participation by the people who are being ruled (Schweizer et al., 2016: 206-209). Communication is as essential for any activity as for public participation. The input or participation from the people would require effort in achieving the public affair targets. In addition to that, it also requires communication between the stakeholders to better coordinate their efforts. Some people consider public participation as the formation of decisions with the help of the people who are concerned with the decisions. The level of public participation is affected by the method of implementing public participation (Schweizer et al., 2016: 206-209).
1.9.2 Importance of public participation in the Municipality Affairs
Several studies have highlighted the need of public participation in the course of managing the municipality operations (Plummer, 2013). Public participation is referred to as necessary in the success of municipal operations, because it allows people to
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participate in important decision-making processes and this has a significant influence on the lifestyle standards of the local community. Sandoval (2012: 72-81) described the importance of public participation as the decisions made by the public on behalf of the public that are beneficial for them in comparison with the decisions that are made by other individuals for the purpose of improving the standard of their lives.
Public participation is the fundamental right of the public which is ensured in a democratic process. Plummer (2013) highlighted one important aspect of the importance of public participation within the context of municipality operations by stating that power, authority and funds are referred to as the desired elements which any municipality desires progress in. It is important to highlight that there are cases where the integrated development plan (Siphuma, 2009: 71-90) is either not fully transferred to the municipality or limited resources or authority is provided to the municipality that does not allow the municipality to add efficiency and sustainability to the municipality operations. In this regard, the importance of public participation becomes essential as it is perceived as the one important source of highlighting and raising the concerns of the public to the local government.
Temenos (2012: 1389-1406) states that it is also important to highlight the importance of public participation within the context of municipality operations. Temenos (2012: 1389-1406) also argued that accountability is perceived as necessary and an important act of ensuring transparency within the transference and usage of funds. When the public is participating in the operational activities of the municipality, the evaluation of the activities is also preceded which limits the option for any unethical and corruption related chances. In this regard, it can be stated that, when a public participates in the operational activities of the municipality, it ensures that operations are performed in a transparent and accountable manner. The importance of public participation is also viable as it restricts the municipality from practicing any unethical practices that can cause damage to the rights and services that are being provided by the municipality to the local public.
Public participation has significant importance in the majority of sectors and different government levels (national, provincial and other levels). The need and importance of
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public participation within the context of municipality operations are also viable for different reasons. As already discussed and highlighted in different prior studies(Matshe, 2009), the importance of public participation in municipality operations allows the municipality to realise the actual problems of the people living in a particular municipal area. The municipality is also provided, upon adopting public participation, with meaningful suggestions on dealing with the challenges faced by municipalities in resolving the issues of the public living in the respective municipality area.
It has been highlighted in several prior studies(Siphuma, 2009: 79-90) that the importance of public participation is reflected in the performance of the municipality and the review mechanism of the municipality structure. When public participation prevails at any governmental level and sector, the sustainability of the governance structure is guaranteed as what is known as a good governance approach (Sandoval, 2012: 72-81). Even though the importance of public participation is significant for different government levels and in different sectors, its importance at grassroots level which is at municipality operations, cannot be overemphasised. Public participation is vitally important due to the fact that municipality operations are directly associated with the basic needs and services of the public and the public itself knows best what they want and what their necessities are.
1.9.3 Empirical investigation
Empirical research mainly deals with the means of collecting data and the utilisation of data (Riley et al., 2010:10). The empirical investigation in this study includes a discussion on the research design, sample design, the research instrument, the method of data collection and the procedures for data analysis.
Data was collected by means of a questionnaire of which the questions fall into several categories: the demographics section, perception on public participation process, public participation planning and the ward committee’s role section. The following 4-point Likert scale was used to evaluate the questions asked in the questionnaires:
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B 1 Almost never 2 Rarely 3 Often 4 Almost always
1.9.4 Description of overall research design
The study will have far reaching propositions for public participation beyond Matlosana Municipal area as the concept of public participation is applicable to all government spheres. Knowledge gained from the study will be helpful to advance public participation in Matlosana Municipal area and other local municipalities in the district of Dr Kenneth Kaunda and beyond. The study will add to the existing knowledge on the focus of public participation and support Government and other policy makers to get a better understanding of the current legislation on public participation and extend tools that will make the implementation of the concept of public participation easily attainable for all concerned.
It is predicted that the study will provide more light on the subject of public participation in the academic discipline. It is probable that, in the process of research, participants in the research, especially councillors, ward committee members and other stakeholders, will learn about their rights to participate and be empowered with regard to the quality of service they can expect from the municipality.
1.9.5 Target population
According to Lavine et al., (2011.34), a population consists of all the items or individuals about which or whom the researcher wants to draw a conclusion and a sample is the portion of a population selected for analysis. For this study, the researcher sampled a portion of the population as opposed to touching a census on the entire population. The statistical sampling procedures focused on collecting a small representative group of the larger population. The sampling technique was not random as not all participants had a fair chance of been selected (Trochin, 2006). A non-probability sampling method was used and the type of sampling was convenience sampling.
14 It was not difficult to conduct the research as permission was requested from the Municipal Manager of the City of Matlosana and the Integrated Development Plan (IDP) Manager to be part of all public participation meetings.
In terms of section 16 of the Municipal Systems Act, 2000, municipalities are permitted to create the necessary capacity for communities and community organisations to take part in municipal planning and the councillors and officials must foster participation. Structuring the capacity of communities to participate means the municipality should allocate resources for community education as communities will not participate if they are not aware of the need and importance of participation (Temenos, 2012: 1389-1406).
1.9.6 Data analysis
The data collected was analysed statistically using the Statistical Analysis System (SAS) software. Data was analysed in collaboration with the Statistical Consultation Services (SCS) of North-West University.
1.9.7 Research design and methodology
Mouton (2012:49) defines research design as the plan of how one intends to conduct the research. According to Mouton (2012:49), the research design focuses on the end product, formulates a research problem as a point of reference and focuses on the logic of research. Inferential statistics were used, complemented by an analysis of frequencies and factor analysis. The study’s aim was to examine public participation and collect enough evidence to prove or disapprove the hypothesis that, when the public participates in planning, they will give input to service delivery plans (Matshe, 2009).
1.9.8 Assessing and demonstrating the quality and rigour of the research design
This chapter provided a brief background of the political and public administration atmosphere in the country which in turn provides a wide framework for understanding the challenges relating to citizen participation. The problem statement, research questions, significance of the study, ethical considerations and research methodology were outlined.
15 In the problem statement, a point was argued that, even though the local government legislative framework provides for public participation, the benefits of public participation have not been fully realised by Government and the community. This results in a gap between Government and the citizens. The research methodology was outlined and the target population identified. As the study aimed to examine the perceptions and views of the community on the topic of public participation, a quantitative approach was proposed as a suitable methodology.
1.10 Ethical considerations
Mketane (2013:23) argues that, because social science research focuses on people, it is important for the researcher to note the importance of ethical issues. Because knowledge confers powers, data collection and management must be guided by principles of informed consent and respect for the rights of participants. The study touched on issues of service delivery which are important to the hearts of the people.
The researcher requested permission to distribute the questionnaire. In order to secure participation in the study, the researcher clarified the relevance and objectives of the study and guaranteed potential respondents of anonymity and discretion.
1.11 Layout of the study
This study has been divided into the four chapters. Each chapter covers a specific content and its work has been planned to compile the study in a chronological manner with the specified span of time. The layout of the study is as follows:
Chapter 1: Nature and scope of the study
This chapter introduced the concept of public participation in the Matlosana Municipal area. Public participation and support are perceived as key factors which empower the respective authorities into contributing to local development. The importance of public participation was the main discussion covered in this chapter.
16 The literature review chapter presents in-depth and valuable information related to the importance of public participation, especially during the phases of strategic planning for development-based projects and initiatives. More importantly, the preliminary review of peer-reviewed journal articles further elaborates that developmental projects and initiatives cannot achieve the desired results without community and public involvement; hence, the Integrated Development Plan (IDP) was created to act as a platform for Government and the community members to actively communicate and participate in identifying the needs and demands of the members and the ways through which these needs can be addressed.
Chapter 3: Empirical study
This chapter discusses the methodology in detail where it is stated that the research utilised a quantitative design. The researcher used a survey questionnaire as a research instrument and conducted a survey responded to by 143 participants from the City of Matlosana population. In addition, the techniques of analysis were frequency analysis, correlation analysis and factor analysis that were computed on the Statistical Analysis System (SAS).
Chapter 4: Conclusion and recommendations
This chapter starts by concluding the research and also provides recommendations. The conclusion is aided by two different types of analysis that are part of a quantitative analysis of collected numeric data.
1.12 Chapter summary
The last chapter of this study concludes all the major findings which have been obtained while formulating a research study. The achievements are discussed as well as recommendations to the concerned area.
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CHAPTER 2: LITERATURE REVIEW 2.1 Introduction
Community participation is considered central to planning and policy reforms, especially in the era of a global movement that has continually supported and promoted democracy, justice and sustainability. Green and Haines (2015) and Hielscher et al., (2013: 133-158) argued that community participation, in the modern day, is a prerequisite to fair and effective decision-making, especially in terms of achieving sustainable development. The argument is further reflected in Caplan (2013) who stated that active community groups and their engagement in the planning and implementation phases ensure that the plans take into consideration not just their needs, but also their interests and expectations. The resulting atmosphere is good for motivating participants and planners in the achievement of ecologically and socially beneficial outcomes. It has also been frequently argued that community participation is the key to hearing the voices of the minorities and the poor (i.e. the traditionally voiceless group) and can ultimately result in the achievement of equity, sustainability and efficiency. Considering the latter, the purpose of this literature review chapter is to shed light on the important constructs of community participation, municipal planning and evaluation and to the challenges and obstacles in public and community participation, with regard to the Matlosana Municipal Area.
2.2 Public participation and community participation
Public participation is defined as a belief that those who are impacted by the decisions have a right to take part in the decision-making process (Jacobs et al., 2013: 11). Public participation is also regarded as the process through which the firms consult with affected or interested organisations, individuals and Government prior to taking any decisions (Ehn, 2017: 41-77). On the other hand, community participation is the dimension of public participation involving the manual respect of strategies, values and actions for pertinent authentic partnership of people affiliated with geographic proximity in order to address issues affecting the community’s wellbeing (Jacobs et al., 2013: 11).
18 According to Jacobs et al., (2013: 11), public participation has been argued to be amongst the fundamental prerequisites for achieving the goals and objectives associated with sustainable development, and this development can potentially affect the communities at large, in which the public live and work. Ehn (2017: 41-77) defined participation as the decision-making power to control the resources, whereas Friend et al., (2013) defined participation with regard to power relationship, where the construct of power implies the relationship between the people and others within the given system. The definitions eventually led to the development of a Ladder of Participation, where the degree of participant’s involvement is related to their decision-making powers. The ladder represents a model of participation and is also suggested to be a simplified and precise model that indicates the disempowerment of the people (public) in the decision-making process. The Ladder of Participation is shown below in Table 1.
Table 1: The ladder of participation
Source: Arnstein (1995)
The ladder suggests that public and community participation can have different meanings to a different context, which in the case of South Africa, has frequently been linked to the developmental activities and their planning and management (Madzivhandila & Asha,
19 2012: 652; Moseti, 2010: 61-81). The local municipalities are considered to be amongst the fundamental pillars of democracy and are quite close to the people. The realisation of the municipality as a pillar of democracy implies that municipalities can play an influential role in the developmental state where people are at the centre of the initiatives taken by municipality. For this reason, the municipalities in a country are primarily required, based on the legislative framework, to work towards the inclusion and involvement of the people. People in this context refer to even the ordinary members of the society who must be involved in the decision-making process that affects their wellbeing and livelihood (Davids, 2012). Figure 2 below represents the spectrum of public participation.
Figure 2: IAP's public participation spectrum
Source: Gélinas (2015)
Figure 2 shows the goals and promises made to the public regarding public participation. Wood (2013: 50-58) defined community participation as an on-going and active process through which the community members are given the opportunity to take part in the
20 activities associated with the political and socio-economic environment, especially in their given areas, hence making them the beneficiaries of the decisions resulting from their participation in the overall process. Plummer and Taylor (2013) elaborated that community participation is a process through which the local stakeholders, i.e. non-governmental organisations (NGOs) and even community-based organisations (CBOs) collectively work in the process of decision-making, which ultimately has an influence on the developmental outcomes, especially in the municipal jurisdiction. Hence, it can be argued that community participation is considered a central mechanism that allows the local stakeholders and the community members to be actively involved in matters related to the local governance.
Fung (2015: 513-522) elaborated that public and community participation is central to municipal development projects, as the public share and express their concerns and views. This implies that the planning and implementation phases of the development projects can only be taken into consideration after consultation and considerable discussion with the public and community members. Sihlongonyane (2015: 83-100) indicated that marginalised individuals are presented with a voice with regard to future development initiatives. The ordinary members in the community can have full involvement in not just the decision- making but also in other important areas including the phases of planning, designing, organising and executing the initiatives that can directly affect them.
Studies have reflected that the process of involving the public should take account of consensus between a wide variety of stakeholders. The development initiatives must gain a sense of ownership from the public as that can result in providing an equitable share of the benefits resulting from the initiatives (Abrahams, 2018: 131-145; McLaverty, 2017). The following figure indicates the resources needed to support public participation.
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Figure 3: Resources to support public participation in South Africa
Source: Scott (2009)
There are three different types of municipalities in South Africa:
Category A: Metropolitan municipalities exist in the six biggest cities in South Africa.
They have more than 500 000 voters and the metropolitan municipality co-ordinates the delivery of services to the whole area. There are metropolitan municipalities in Johannesburg, Cape Town, Durban, Pretoria, Port Elizabeth and the East Rand. These municipalities are broken into wards (local government of South Africa, 2018).
Category B: Areas that fall outside of the six metropolitan municipal areas are divided
22 municipality is broken into wards. The residents in each ward are represented by a ward councillor (local government of South Africa, 2018). This is the category in which the City of Matlosana falls along with all its responsibilities.
Category C: District municipalities are made up of a number of local municipalities that
fall in one district. There are usually between 4 - 6 local municipalities that come together in a district council (local government of South Africa, 2018).
The Constitution of South Africa sets the rules for how Government works. There are three spheres of Government in South Africa:
National government
Provincial government
Local government
According to Scott (2009), different municipalities in South Africa use different sources to support public participation. Figure 3 identifies the sources of support provided to each municipality in South Africa. The democratic school of thought refers to the idea of public participation as the one that drives the political order and is justified to those who are living in the community. Another school of thought considers the role of public engagement as the role played by civic community in addition to the political process. Unlike earlier indicated in Harrison and Sayogo (2014), participation from the public with regard to developmental initiatives reflects the citizenship and domestic engagement which is amongst the fundamental principles of good governance.
Moseti (2010: 61-81) argued that the general public and communities can be further empowered if they are given the opportunities to develop skills and abilities to make informed decisions. In this consideration, public and community participation can be considered as a tool that can close the gap between the general community and the civil society as well as between Government and the private sector. The suggestion is echoed in Slaughter (2013: 71-90) who argued that the foremost purpose of public and community participation is towards the promotion of accountability in governance, transparency and creating a sense of ownership with regard to the development decisions. Figure 4
23 demonstrates some views that theoretically underpin increasing public participation in South Africa.
Figure 4: Views on increasing public participation in South Africa
Source: Van Belle and Cupido (2013)
Van Belle and Cupido (2013) identified the views of the public on increasing public participation in South Africa and the use of phones in obtaining knowledge or information about public participation. Figure 4 indicates that people are prone to gather information about government facilities, labour force and about the Department of Home Affairs using their mobile phones. Public participation can be in any form but municipalities are responsible for encouraging participation by incorporating efficient and effective policies that tap into the engagements by the public through phones. The City of Matlosana municipality is part of Dr Kenneth Kaunda District Municipality in the North West Province of South Africa where public participation and support are perceived as key factors to empower the respective authorities (Van Rooyen, 2016: 73-86).
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2.3 Successful service delivery and public participation
Public participation is a terminology used for depicting the extent and frequency of the engagement and involvement of the community members, even the marginalised people, for the developmental programmes at grassroots (i.e. local) level and has frequently been considered an integral pillar in the democratic practices (Madzivhandila & Asha, 2012: 652-660). With regard to South Africa, the Constitution clearly requires that the local government should focus and prioritise the developmental initiatives. The White Paper on Local Government (1998) drafted the mechanism through which the development goals can be achieved by the local government. As per the public participation, the City of Matlosana is ranked as a category B municipality where the major activities that create economic wealth in the city include mining, construction, agriculture, transport, services and manufacturing.
Madzivhandila and Maloka (2014: 652-660) considered public participation to be the key and the valid mechanism through which the general public can promote their mandate, in higher prominence, for the development projects. This is primarily because of the fact that public participation holds a strong appeal in the sense that it is from and for the multiple actors in the city or a country (i.e. civil societies and the communities and their members). Considering the latter, studies have also suggested that local governments have frequently responded to the gaps existing between the government institutions and the citizens in several ways. Cornwall and Gaventa (2001: 32-35) presented two ways through which gaps can be closed between Government and its citizens:
(i) Strengthening the process that allows both rich and poor in the community to exercise their voice through either consultation, inclusion, or mobilisation that focus on informing as well as influencing the policies and the institutions. (ii) Strengthening the responsiveness and accountability of the policies and
institutions that led to the changes in the institutional designs, while making the institutions responsible for good government or enabling structures.
Public participation and its current trends have been suggested to be complex and have frequently been manipulated for the advantage of the municipality in multiple ways such
25 as the support for the community association for the purpose of delivering social services, especially when the state is in a weak condition (Mergel, 2015: 599-612). This can play an important role in changing the relationship of the state with its citizens. For instance, the City of Matlosana is responsible for the governance matters and that also include the provision of services, developing the society and economy of the city. The responsibilities place the municipality in an advantage position to influence the relationship between itself and its citizens. Figure 5 represents public participation structures in South Africa.
Figure 5: Public participation structure in South Africa
Source: Villiers (2001)
Mergel (2015: 599-612) unveiled that the inclusion of beneficiaries and their concerns and voices, in development initiatives and projects, offers an opportunity to counterweight the development approach (i.e. traditionally top-down). The suggestion is that the interaction further exposes the communities to essential and important information that can serve in the generation of radical consciousness amongst the general public and might even lead to the possibilities of further budget allocations for the developmental purposes. With regard to decision-making at local government level, public participation has been suggested to be influenced by the different spheres of Government (Abrahams,
26 2018). The local government institutions are still facing challenges in terms of human resource capacity and finance, indicating the importance of cooperation and collaboration between the government spheres to ensure the success of development projects and initiatives at municipal level (Nhamo, 2013: 115-142).
Direct resource allocation is considered as a prerequisite for the success of public participation. Amin (2017: 59-72) argued that democracy can be facilitated by empowering local governments, it can be facilitated in the improved alignment of the decision-making, especially considering the local sources of information and knowledge, with local preferences.
Democracy can help in ensuring participation which would further reduce the costs and the unevenness for the call to collective action. Madzivhandila and Asha (2012: 652-660) reflected that, in South Africa, there is a prevailing concern related to the lack of strong and competent civil social structure. The lack of civil social structure is believed to have eventually resulted in the failure to represent the community members’ interest. It is further elaborated that there is also an apparent lack of capacity in the general public that reduces their ability to meaningfully respond to the complex matters. This indicates the need for more resources that can be channelled for strengthening local government which would eventually help in facilitating meaningful participation from the ordinary people in the community.
According to Bee and Guerrina (2014: 29-50), the call for action (i.e. incorporating the disadvantaged and/or marginalised groups) has played an important role in expanding the depth and scope of citizenship but also the expansion of the sustainable decision-making process, especially with regard to service delivery. Municipalities should continually take more of the meaningful opinions of the citizens into account while working further on them by being involved rather than just acknowledging these opinions as value laden. Participation can be considered as a guard against the politically elected representatives going off script while providing them with an opportunity to become pure advocates of bureaucracy.
27 Bee and Guerrina (2014: 29-50) suggested that public participation can lead to progress in the achievement of concrete goals which means that participation can play an influential role in the process at local level. It has also been stated that, when authorities fail to consult the public and community members, it ultimately leads to decisions where the voices are heard but have no influence (Madzivhandila & Maloka, 2014: 652-660). Communities should act as shapers and makers rather than being treated as choosers and users of services that are primarily designed by others with or without the opinions of others.
Madzivhandila and Maloka (2014: 652-660) suggested that the political representations resulting from traditional forms should be immediately be re-examined as this can help in promoting direct democratic mechanism through which the citizens can actively participate in the decision-making process, these decisions can affect their lives.
2.4 Legislation
According to Landau et al., (2013), public participation and the Integrated Development Plan (IDP) are the fundamental instruments of local planning, through which the local government offers the community members and the municipalities with an ability to effectively counter to the prevailing concerns in the society ranging from inequality to poverty. Plummer (2013) suggested that these developmental approaches are primarily based on the principle of representative consultation, inclusion, and participation of all the residents, as well as the key stakeholders and communities in the local governance.
Madzivhanda and Asha (2012: 652-660) defined the Integrated Development Plan as a participatory planning process with an underlying aim of developing a strategic management plan that can help in guiding and informing the key processes of planning, budgeting, management and even decision making, especially with regard to the municipality. This is the main reason why the IDP is mainly used in this study. Figure 6 below demonstrates the Integrated Development Plan process.
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Source: Matlosana.gov (2015)
Matlosana.gov (2015) suggested that the integrated development plan (IDP) planning approach revolves entirely around the municipality, the stakeholders in the community, and the citizens for the purpose of finding and proposing the most feasible and appropriate solution for the achievement of long-term developmental objectives. The view is suggestive of the fact that IDP focuses on bridging the gap between the developmental projects undertaken by the municipality and the variety of stakeholder’s expectations by delineating, defining, and promoting their common interest.
Casale (2013: 14) suggested that the IDP can only be achieved through the structured and voluntary participation of the community members as such can be achieved by establishing the conditions for the involvement of the public throughout the important processes (i.e. plan, implement, monitor, evaluate, and review). IDP can be considered somewhat similar to a business plan for the municipality as it focuses on addressing ‘what’ and ‘how’ the plans are going to address the concerns of the local communities while determining the benefits for the communities (Marais et al.,2015). The success of the IDP is argued to be hinged on the communities and their participation but this can only be
29 achieved by informing, consulting, and allowing them to participate in the planning processes which play an influential role in addressing their needs and future demands. Studies have suggested that municipalities should play an important role in the creation of an environment that promotes co-ordination for the IDP while ensuring adequate involvement of the local stakeholders (Rogerson, 2018). IDP and its underlying processes can help in empowering the communities and their members meanwhile playing a critical role in enhancing their capacity for the purpose of influencing the IDPs processes but in a logical and meaningful manner.
With regard to the case of South Africa, Government has continually focused on community participation throughout the process of IDP to further promote good governance and democracy. The White Paper on the Local Government (1998) has clearly reflected that the IDP is a bargaining platform between the community members and Government since it promotes enhanced and active community participation thereby making the communities and their members to play an active role in the overall decision-making process. Adhering to the IDP process suggests that Government has acknowledged that communities are continually facing challenges. These challenges are the reason why communities have been integrated in the planning process so that they can actively participate and help the local municipalities in resolving the challenges in a more proactive manner, rather than being reactive all the time (Govender and Reddy, 2011: 60-77).
Jaglin (2014: 1394-1414) further elaborated that IDPs exists for the purpose of allowing the stakeholders and the municipalities to coordinate their understanding of the dynamics and situations existing in the local areas while allowing them to effectively plan developmental projects that can meet the changing needs of the communities in an effective manner. Jaglin (2014: 1394-1414) said that the coordination and enhanced communication between the parties can result in improved quality of life, this can only be achieved by developing a clear vision and strategies, which dependent upon the public and public participation in the decision is making process by municipalities.
30 Govender (2011: 60-77) indicated that IDPs ensure community involvement and participation through the IDP Representative Forum. This forum is believed to have played a critical role in ensuring that the interests and needs of the communities and of other stakeholders are precisely and effectively represented in the IDP process. The forum not only represents the interests of the communities, but also facilitates the process of negotiations, debates, and even decision-making that is to take place between the key stakeholders and the local government (Plummer, 2013). The forum also acts as a communication platform between the local government and the stakeholders as well as a platform through which the activity of performance monitoring can be conducted to the planning and implementation of the IDPs (Ololade & Annegarn, 2013: 568-576).
Jaglin (2014: 1394-1414) further suggested that IDPs have committees (wards) which serve as a platform upon which the community members can actively participate in the process of integrated development. Marais et al., (2015) and Rogerson (2018) further elaborated that public participation can promote the communities and stakeholders at ward level which is highly dependent on the based planning. The community-based planning requires functional ward committees that can help in developing plans for the wards while linking the priorities of the ward with that of the IDP of the municipality.
Marais et al., (2015) argued that public and community participation is essential which is why the officials, councillors, and even the ward committees are considered accountable and responsible for ensuring that the plans introduced by the local governments and the municipalities have effectively reflected the needs of the citizens. It can be argued that without public participation, the development initiatives undertaken by the local government would become meaningless thus making the IDP of municipality devoid of reality. Considering this, it is essential to understand the challenges that can affect the public participation during the IDPs which are reflected in section 2.5.
There is other legislation such as that championed by the National Treasury that has been playing a major role in introducing financial management reforms in South Africa which in retrospect gave birth to the Municipal Finance Management Act (MFMA). The main objective of these reforms is to ensure sustainable and sound management of
31 Government’s financial affairs at local, provincial and national level. MFMA aims to modernise the accounting, financial management and budget practices by placing the Government’s finances in a position where they can maximise the capacity of the municipalities to deliver development and growth to communities (MFMA, 2003). Moreover, the Municipal System Act of 2000 (MSA) allowed the municipalities to create capacity for communities and provide community organisations with mechanisms for planning and advisory into operations of the municipalities. The Service Delivery and Budget Implementation Plan (SDBIP) have also provided the details of service delivery where it serves as the contract between the Council, community and administration.
2.5 Challenges and obstacles of community and public participation
According to Madzivhanda and Asha (2012:652-660), the participation method reflected in the decision making of Government is highly influenced by a variety of factors ranging from contradictions to struggles and conflicts. These can be associated with not just the political relation of power but also with the ideological and economic apparatus at local level (Marais et al., 2015). Madzivhanda and Asha (2012: 652-660) argued that multi platitudes and endless rhetoric haves resulted in reduced community participation to cumbersome rituals. This situation reflects the complexities that revolve around the relationship between the general public and Government and to the most important element of failure in terms of satisfying the obligations resulting from the convolution. It can be observed from the argument that the cause for poor participation arise from two sources, unfulfilled promises and cumbersome bureaucracy in the participation processes.
This can become a prevailing concern for the municipality as studies have suggested that municipalities in South Africa have no specific knowledge and information that can be provided to the community members with regard to the service thus resulting in the overall issue of lack of transparency (Nkosi, 2017). Studies have also stated that community participation has not offered any desirable results as it only reflects the ceremonial presence of the community members and residents in the local institution (Madzivhandila and Maloka, 2014: 652-660). Madzivhanda and Asha (2012: 652-660) have called for
