DPME Guide Number 1 (2014)
Outcomes Coordination
Created 22 October 2014
Addressed to
Purpose
Reference
documents
Contact person
1.
Ministers and Directors General, Outcomes Coordinating Departments
All departments involved in outcome implementation forums
The purpose of this guide is to provide terms of reference and guidance on
outcome coordination and the convening and roles of outcome
implementation forums during the 2014-2019 MTSF period.
1. This guide draws from the 2014-2019 Medium Term Strategic
Framework
2. This guide is linked to the Guide Number 2 (2014) on Outcome POA
Quarterly Reports
Ms. Nolwazi Gasa, Deputy Director-General: Outcomes Monitoring and
Evaluation Branch, the Department of Planning, Monitoring and
Evaluation (DPME) in the Presidency. Email address: [email protected]
BACKGROUND
In 2009, as the fourth administration of the democratic South African Government we adopted the
outcomes-based approach to improve the way in which we plan and manage our work and realise
the society we have always envisioned. We identified 12 priority outcomes, with measurable
outputs, targets and key actions that would contribute to achieving the targets.
The overall aim of the outcomes-based approach was to increase the strategic focus of
government by focusing on a limited number of priority outcomes and ensure meaningful impact
on the lives of our people. Our understanding was that even if the 12 outcomes were all that we
achieved, we would be a very successful administration. To ensure this, we committed to doing
things differently and moving away from continuing to do things even if they did not work and had
no meaningful impact. We introduced whole-of-government plans (delivery agreements), on the
12 outcomes and committed to improved coordination across all spheres of government. Through
the delivery agreements we sought to ensure increased focus on measurable results, and effective
and efficient spending. By focusing on a limited number of outcomes, we were better able to
undertake high level evidence-based assessments to determine progress against our
transformation objectives. During the 2009-2014 administration, quarterly progress reports were
produced, outlining achievements and bottlenecks to delivery, and proposing key actions to
address identified challenges. Over time, we sought to use this information to determine impact
and to inform future policy making and implementation.
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22 October 2014
Reviews conducted at the end of the 2009-2014 administration assert that while there has been
good progress made in meeting some of the outcomes, much more needs to be done, if we are to
tackle the triple challenges of poverty, inequality and unemployment that continue to beset us.
These findings are consistent with those of the Diagnostic undertaken by the National Planning
Commission and the Twenty Year Review.
On 23 July 2014 Cabinet adopted the 2014-2019 Medium-Term Strategic Framework (MTSF) to be
used as the first 5 year building block towards realising the 2030 Vision in the National
Development Plan (NDP). Building on the experience of the previous administration, the MTSF is
structured around 14 priority outcomes (with two new outcomes added to those outcomes of the
2009-2014 administration) which cover the focus areas identified in the NDP. The outcomes are as
follows:
1. Quality basic education
2. A long and healthy life for all South Africans
3. All people in South Africa are and feel safe
4. Decent employment through inclusive economic growth
5. A skilled and capable workforce to support an inclusive growth path
6. An efficient, competitive and responsive economic infrastructure network
7. Comprehensive rural development and land reform
8. Sustainable human settlements and improved quality of household life
9. A responsive, accountable, effective and efficient local government system
10. Environmental assets and natural resources that are well protected and continually enhanced
11. Create a better South Africa and contribute to a better and safer Africa and World
12. An efficient, effective and development oriented public service
13. An inclusive and responsive social protection system
14. Nation building and social cohesion
The MTSF contains detailed five year implementation plans for the 14 outcomes: with targets,
indicators and timeframes for the implementation of key actions. This should enable monitoring of
implementation and drive performance. The MTSF is the mechanism through which all plans of
government institutions across the three spheres of government will be aligned to the NDP and
made to pull in the same direction. The MTSF is the result of an intensive planning process
involving all three spheres of government. Essentially, the MTSF seeks to ensure policy coherence,
alignment and coordination across government plans and alignment with budgeting processes.
Many priorities in the NDP are not about new policies or programmes but are about improving the
quality of implementation of existing ones. The MTSF therefore includes measures to:
o
o
o
o
DPME
Improve capacity in government in key areas of weakness
Strengthen coordination within government and to make sure that government policies
and programmes are better aligned
Strengthen performance management
Improve implementation-level planning, including using Operation Phakisa (an
adaptation of the Malaysian Big Fast Results methodology).
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22 October 2014
2.
OUTCOME COORDINATION
2.1
Annexure 1 presents the list of Ministers appointed for Outcome Coordination. The list also
includes the Ministerial and Technical Implementation Forums. As in the previous
administration, the existing MinMECs, MinTecs and Expanded MinMECs and equivalent
structures have been mandated to serve as Ministerial and Technical Implementation
Forums for the different outcomes and collaborate on key actions towards the realisation of
the outcomes. The use of expanded MinMecs and MinTecs and equivalent structures to
coordinate concurrent outcomes (Basic Education, Health, Rural Development, Human
Settlements, Environment and Local Government outcomes) appears to be contributing to
the strengthening of the intergovernmental relations system. Please see the section entitled
Implementation Forums for further information on the roles and responsibilities of the
Ministerial and Technical Forums.
2.2
Outcome Coordinating Ministers are expected to coordinate the overall implementation of
key actions towards the realisation of the relevant outcome. Their responsibilities include
the following:
2.2.1 Convene the Ministerial Implementation Forum for the outcome, whose key mandate is to
provide executive oversight towards the realisation of the outcomes. In the main, the
Ministerial Implementation Forum will review the work of the Technical Implementation
Forum, convened and chaired by the relevant Technical Implementation Forum.
2.2.2 Ensure the effective functioning of the Ministerial Implementation Forum. Key in realising
the society envisioned in the NDP will be the extent to which the Ministerial Implementation
Forums:
o
o
o
o
facilitate collaboration across different departments and spheres
focus on the implementation of key actions and interventions as outlined in the
relevant MTSF chapter
ensure that delivery is on track to meet targets stipulated in the MTSF chapter and
use performance information to unlock blockages to service delivery timeously.
2.2.3 Facilitate the preparation and submission of quarterly progress reports to the relevant
Cabinet Committees. As per the POA reporting guide prepared by the Department of
Planning, Monitoring and Evaluation, the quarterly progress reports should highlight
progress made, challenges encountered and measures to address the challenges.
3.
IMPLEMENTATION FORUMS
3.1
Through the Implementation Forums, the main stakeholders who have a role to play are
brought together and need to ensure that there is effective coordination and problem
solving and that the key commitments made in the relevant outcome are being achieved.
As indicated above, the Ministerial Implementation Forums will be either Minmecs or
Clusters or equivalent structures. At some meetings the Minmec or Cluster will focus on the
outcome, and sometimes it will focus on other aspects of government work (see Annexure
3.2
DPME
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22 October 2014
2). When the Minmec or Cluster is focusing on the outcome it is then functioning as an
Implementation Forum.
3.3
The MinTec or FOSAD Cluster of DGs is referred to as the Technical Implementation Forum
(TIF), and the meeting of Ministers and MECs is the Ministerial Implementation Forum (MIF).
3.4
As forums that oversee implementation, Technical Implementation Forums and relevant
substructures should meet at least once in two months to review planned actions, while
Ministerial Implementation Forums meetings focusing on the outcomes should occur at least
every 3 months (at least 4 times a year), linked to reporting to Cabinet Committees on the
PoA.
3.5
In order to synchronise the quarterly reports with the financial year used by national and
provincial government, the quarterly reports from the Implementation Forums to the
Cabinet Committees should follow the following cycle for submission of reports:
o
o
o
o
In August covering the months April, May and June
In November covering the months of July, August and September
In February covering the months of October, November and December
In May covering the months of January, February and March.
Because of the elections and the transition to the 2014-2019 administration, the cycle for
the submission of reports will differ in 2014, with Implementation Forums meeting in
October to prepare progress reports covering the period April-September 2014.
4.
AIM, PURPOSE AND ROLES OF IMPLEMENTATION FORUMS
4.1
The main aim of monitoring and reporting on progress is to enter into a cycle of continuous
improvement to drive performance towards the realisation of priority outcomes. Monitoring
of the progress reports should highlight areas where implementation is weak, where the
activities and outputs are not contributing to the outcome as planned, and should prompt an
investigation of why and what is needed to improve performance. This in turn should result
in interventions to improve implementation or in revisions (when necessary) to the activities
in the MTSF chapters on outcomes, so that government gets better at achieving the
outcomes and outputs over time.
4.2
The purpose of all the Implementation Forums is to ensure effective implementation and
monitoring of the key actions, by tracking progress towards achieving targets, unblocking
blockages where these manifest and periodically agreeing on revisions to Outcomes, where
necessary.
4.3
Specifically, the roles of the Technical Implementation Forums are to:
o
o
o
o
DPME
Develop, review and refine the MTSF chapter on the outcome; when necessary
Ensure that there is focus on the implementation of key actions and unlock blockages
Coordinate and secure mutually supporting actions amongst all members to fast-track
delivery on the outputs and activities related to the outcome
Ensure that administrative data is collected and analysed to allow oversight on
progress at an activity level from the various implementing departments. DPME will
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o
o
o
o
o
o
o
o
o
22 October 2014
triangulate this data with budget expenditure data and output level indicators, where
available, and provide its own progress reports to Cabinet
Ensure ongoing monitoring of, and reporting on, implementation of the MTSF chapter
(the suggested format for reporting is contained in DPME Guide to Outcome POA
Quarterly Progress Reports)
Identify and resolve emerging bottlenecks (organisational, legislative, policy, financial)
which impact on the implementation of the outcome and which hamper effective
service delivery
Where needed, identify special working groups or specialised pieces of work, to
address specific bottlenecks (or emerging opportunities)
Refer issues of a crosscutting nature including legislation and high-level policy issues to
the relevant Cluster
Prepare and submit quarterly progress reports to the relevant Ministerial
Implementation Forums, and upon review and approval, table a quarterly progress
report to the relevant Cabinet Committee for resolution and guidance
Consider and address key recommendations from Cabinet Committees regarding
bottlenecks and how best to address these
Decide on communication more widely with the sector to facilitate implementation,
wider support and buy-in
Prepare communication for public engagement regarding government performance at
quarterly intervals
On an annual (or as and when required) basis, review and revise where necessary the
activities in the MTSF chapter, linking to the budget process accordingly.
4.4
Cabinet will use the MTSF to closely monitor the implementation of the NDP across
government, through monitoring the detailed actions, indicators and targets contained in
the annexures to the MTSF. The MTSF is designed to enable Cabinet, Parliament, provincial
legislatures and the public to monitor the overall impact of implementing the MTSF on
society.
4.5
Outcome Coordinating Ministers will communicate quarterly progress updates to the public.
Through the Programme of Action website, DPME will also support this process by making
progress reports public on a quarterly basis.
4.6
The quarterly progress reports against the outcomes will form the basis for occasional
meetings between the President and the relevant Minister in his/her outcome coordinating
or supporting role.
5.
COMPOSITION OF THE IMPLEMENTATION FORUM
This will depend on which type of structure is being used as the Implementation Forum.
5.1
DPME
Minister’s Implementation Forum
The Minister’s Implementation Forum is mandated to provide political oversight of the
outcome and will consist of the following permanent members, e.g.
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a)
b)
c)
d)
e)
f)
22 October 2014
The Coordinating Minister(s) (Co-chairpersons);
Other key Ministers identified in the MTSF chapter
Deputy Ministers
Directors-General or their representatives;
The Outcome Facilitator(s) from DPME in the Presidency;
Other organisations/ institutions identified in the MTSF chapter , or who need to be
involved to address a specific issue may be invited to attend the Implementation
Forum meetings
If the Implementation Forum is a MinMEC, the Members of the Executive Councils (MECs)
responsible for the outcome and their Heads of Department would also be members. The
Implementation Forum could also include municipal representation.
5.2
Technical Implementation Forum
The following are permanent members of the Technical Implementation Forum:
a)
Directors General of the coordinating Departments (Co-chairpersons)
b)
Directors General (or their representatives) of other key departments identified in the
MTSF Chapter on the Outcome
c)
Outcome Facilitator(s) from DPME in the Presidency
If a MinTech, the Technical Implementation Forum would also include the Heads of
Departments responsible for key actions related to achieving the outcome in the provinces.
The Technical Implementation Forum could also include municipal representation.
The Chairperson of the Technical Implementation Forum may invite any
department/organisation/stakeholders or any other persons to attend Technical
Implementation Forum meetings as and when necessary, to assist in supporting the
Technical Implementation Forum.
6.
FUNCTIONS OF THE CHAIRPERSON
The Coordinating Minister(s) will convene the Ministerial Implementation Forum meeting,
act as the Chairperson(s) and determine the agenda for the meetings. This should be done
after consultation with the Chair of the Technical Implementation Forum, building on issues
emerging from the monitoring reports. A proposed agenda is attached as Annexure 3. In
some instances joint Implementation Forum meetings (between two or more
Implementation Forums) may be required to discuss cross-cutting issues impacting on the
outcome.
7.
DOCUMENTATION OF THE IMPLEMENTATION FORUM
The following criteria are proposed for the submission of documentation to the
Implementation Forum:
o
DPME
Implementation (both Ministerial and Technical) Forum agenda items must be
supported by a submission in a standard format/ template not exceeding one page
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o
o
o
o
8.
22 October 2014
Where supporting documentation in addition to the one pager is to be submitted the
document should not exceed 10 pages and should comply with the format used to
compile Cabinet Memoranda
PowerPoint presentations could also accompany the one page submission and should
be limited to not more than 10 slides
The distribution of Implementation Forum documentation during meetings should not
be allowed
Classification of Implementation Forum documents will be the responsibility of
departments, provinces and municipalities on the basis of the principles and
requirements as contained in the Minimum Information Security Standards (MISS).
IMPLEMENTATION OF RESOLUTIONS OF ALL IMPLEMENTATION FORUM MEETINGS
The following criteria should apply with regard to the implementation of Implementation
Forum resolutions:
Step 1: The Secretariat will draft the Implementation Forum Minutes within 7 days after the
meeting
Step 2: Copies of the draft minutes will be submitted to all Implementation Forum
members
Step 3: Accompanying the Implementation Forum resolutions will be a standard format
letter requesting the relevant party to indicate what follow-up actions it will take to
implement a resolution
Step 4: One page progress reports will be requested from Implementation Forum members
and stakeholders on the Implementation of Forum resolutions one week before
Technical Implementation Forum meetings. These reports will be submitted to the
Technical Implementation Forum for noting/discussion.
A transcription of the minutes of Implementation Forum meetings will be compiled for
purposes of enquiries related to resolutions taken and provided to members.
9.
SCHEDULING OF IMPLEMENTATION FORUM MEETINGS
The following criteria will apply with regard to the scheduling of all Implementation Forum
meetings:
o
o
o
o
DPME
Ministerial Implementation Forum meetings will be convened at least 4 times per
annum. Technical Implementation Forums and its substructures may meet more often
The Secretariat of all Implementation Forum meetings will determine a schedule
containing dates for Forum meetings and this should be circulated at least 6 months in
advance
Ministerial Implementation Forum meetings should take place at least two weeks
before Cabinet Committee meetings in order to ensure that reports reach the Cabinet
Office 7 days before Cabinet Committees sit to reflect on progress reports
All Implementation Forum meetings must take place as scheduled and should not be
cancelled unless there are exceptional circumstances, and
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o
10.
22 October 2014
Only the Chairperson may cancel or postpone a meeting. If this situation arises it is
proposed that the meetings be reconvened within seven days of the scheduled date.
ROLE OF THE IMPLEMENTATION FORUM SECRETARIAT
The Department of the Coordinating Minister or one of the Coordinating Ministers (where
an outcome has more than one coordinating Minister) is responsible for providing the
secretariat for the Implementation Forums. Annexure 4 outlines proposed roles for the
Secretariat. The DPME Outcome Facilitator is available to provide support with respect to
substantive matters in the preparation for Forum meetings, as well as the analysis of the
reports produced, prior to their submission to Cabinet Committees.
DPME
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Annexure 1: Outcomes Coordination
OUTCOME
OUTCOME
COORDINATING
MINISTRY
MINISTERIAL
IMPLEMENTATION
FORUM
TECHNICAL
IMPLEMENTATION
FORUM
1. Quality
basic Basic Education
education
Council for Education Heads of Education
Ministers (CEM)
Departments
Committee (HEDCOM)
2. A long and Health
healthy life for
all
South
Africans
National Health Council
Technical
National
Health Council
3. All people in Defence
South Africa are
and feel safe
4. Decent
Trade and Industry
employment
through
inclusive growth
Justice, Crime Prevention
and Security Ministerial
Cluster
Ministers of Trade and
Industry,
Finance,
Economic Development
and Public Enterprises
Justice,
Crime
Prevention and Security
FOSAD Cluster
DTI, NT, EDD , DPE
5. A skilled and Higher Education and Various higher education Department of Higher
capable
Training
and training coordinating Education and Training
workforce
to
bodies
and key departments
support
an
inclusive growth
path
6. An
efficient, Rural Development
competitive and and Land Reform
responsive
economic
infrastructure
network
Presidential
Infrastructure
Coordinating Commission
structures
7. Comprehensive Rural Development Rural
rural
and Land Reform
MinMec
development
and land reform
ll
8. Sustainable
Human Settlements
human
settlements and
improved
quality
of
DPME
Human
MinMec
Presidential
Infrastructure
Coordinating
Commission structures
Development Rural
MinTec
Development
Settlements Human
MinTec
Settlements
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22 October 2014
household life
9. Responsive,
accountable and
efficient
local
government
Cooperative
Local
Government Local
Government
and
MinMec
MinTec
Traditional Affairs
Government
10. Protect
and Environmental
enhance
Affairs
environmental
assets
and
natural
resources
Environmental Resources Environmental
MinMec
Resources MinTec
11. Create a better Telecommunications
South Africa and and Postal Services
contribute to a
better
Africa
and a better
world
International
International
Cooperation, Trade and Cooperation, Trade and
Security Cluster
Security FOSAD Cluster
12. An
efficient,
effective
and
developmentoriented public
service
Public Service and Governance
and
Administration
Administration Cluster
13. A
Social Development
comprehensive,
responsive and
sustainable
social
protection
system
Social
MinMec
14. Nation building Arts and Culture
and
social
cohesion
Arts and Culture MinMec
Governance
and
Administration FOSAD
Cluster
Development Social
MinTec
Arts
Development
and
Culture
MinTec
Note: For the purpose of coordinating the outcomes, most of the MinMecs are convened as extended
MinMecs to include all stakeholders critical for the implementation of key actions across different
departments and spheres.
DPME
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Annexure 2: Outcome coordinating arrangements and links with FOSAD Clusters
Figure 1 illustrates the link between the coordination structures for the 2009-2014 12 outcomes
and the FOSAD Clusters. The coordination arrangements for the outcomes are shown on the left
hand side. As mentioned earlier, the Technical Implementation Forums can be either technical
MINMECs or FOSAD clusters or FOSAD cluster substructures. The Technical Implementation
Forums will report to the Implementation Forums, which straddle the administrative and
executive level. The Implementation Forums in turn report into the relevant Cabinet Committees.
Figure 1 Relationships between Structures
Cross cutting matters,
Legislation and policy
Implementation of the 12 outcomes
Departments
Administrative
level
Technical Implementation
Forums (e.g. Headcom /
FOSAD cluster /
cluster substructures)
Technical Clusters
DGs (FOSAD clusters)
Implementation Forums
e.g. Minmec / FOSAD DG
and Minister Cluster
Ministerial Clusters
(Mins/Dep Mins/DGs)
Executive
level
Cabinet Committees
Key:
Meets fortnightly
Meets monthly
Cabinet
Meets bimonthly
Source: Presidency (2010). Guide to the Outcomes Approach.
DPME
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Annexure 3: Proposed agenda for an Implementation Forum meeting
Item
1
1.1
1.2
1.3
1.4
3
3.1
4
4.1
4.2
5
5.1
5.2
DPME
Issue
Introduction
Welcome
Agenda and apologies
Approval of minutes of meeting of….
Report on progress on actions decided on by previous
Implementation Forum meetings (a written summary should be
prepared by the Secretariat so that items completed don’t need
to be discussed – see example format below)
Quarterly report
Progress report including report on PoA and narrative report on
issues arising
Addressing key issues arising from the quarterly report
(ensuring that remedial measures to address blockages in
implementation have been identified and responsibilities
assigned)
Issue 1
Issue 2
Etc.
Confirmation of decisions
Decisions by Implementation Forum
Decisions needed by Cabinet
Date of next meeting
Responsible
Chair
Chair
Chair
Chair
DG
Minister/DG
Minister/DG
Chair
Chair
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Annexure 4: Roles of the Secretariat
The Department of the Coordinating Minister is responsible for providing the secretariat for the
Implementation Forum with support available from DPME, and will be responsible for:









DPME
Draft agendas for Technical Implementation and Minister’s Implementation Forum meetings
Structure the Implementation Forum agenda in accordance with key outputs identified for the
outcome
Compile quarterly progress reports as per the Guide on Outcome POA Quarterly Progress Reports
for submission to the relevant Cabinet Committee
Ensure that the following timeframes for the submission and distribution of Technical
Implementation and Implementation Forum documentation are met:
o Submission of Implementation Forum documentation 10 working days before the meetings
o The Implementation Forum agenda and documentation is finalised 7 working days prior to
meetings and distributed at least 5 working days before Implementation Forum meetings.
Ensure that submissions to the Fora meet the specified requirements and are of adequate quality
Send invitations and coordinating attendance of members of the Implementation and Technical
Implementation Forum
Logistical arrangements (e.g. venues, equipment and catering for meetings)
Prepare a budget for Implementation Forum meetings at the end of the preceding financial year
Ensure that processes relating to protocol and security are followed.
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