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The South African Criminal Law's Response to The THE SOUTH AFRICAN CRIMINAL LAW’S RESPONSE TO THE CRIMES OF FRAUD AND CORRUPTION WITHIN LOCAL GOVERNMENT by STEPHANIE NAIDOO Submitted in accordance with the requirements of the degree of MASTERS OF LAW (LLM) in the subject PUBLIC LAW at the UNIVERSITY OF PRETORIA SUPERVISOR: PROFESSOR G.P. STEVENS OCTOBER 2016 © University of Pretoria ii DECLARATION OF ORIGINALITY UNIVERSITY OF PRETORIA The Department of Public Law places great emphasis upon integrity and ethical conduct in the preparation of all written work submitted for academic evaluation. While academic staff teach you about referencing techniques and how to avoid plagiarism, you too have a responsibility in this regard. If you are at any stage uncertain as to what is required, you should speak to your lecturer before any written work is submitted. You are guilty of plagiarism if you copy something from another author’s work (eg a book, an article or a website) without acknowledging the source and pass it off as your own. In effect you are stealing something that belongs to someone else. This is not only the case when you copy work word-for-word (verbatim), but also when you submit someone else’s work in a slightly altered form (paraphrase) or use a line of argument without acknowledging it. You are not allowed to use work previously produced by another student. You are also not allowed to let anybody copy your work with the intention of passing if off as his/her work. Students who commit plagiarism will not be given any credit for plagiarised work. The matter may also be referred to the Disciplinary Committee (Students) for a ruling. Plagiarism is regarded as a serious contravention of the University’s rules and can lead to expulsion from the University. © University of Pretoria iii The declaration which follows must accompany all written work submitted while you are a student of the Department of Public Law No written work will be accepted unless the declaration has been completed and attached. Full names of student: Stephanie Naidoo Student number: 28243146 Topic of work: The South African Criminal Law’s response to the crimes of fraud and corruption within Local Government Declaration 1. I understand what plagiarism is and am aware of the University’s policy in this regard. 2. I declare that this thesis (eg essay, report, project, assignment, dissertation, thesis, etc) is my own original work. Where other people’s work has been used (either from a printed source, Internet or any other source), this has been properly acknowledged and referenced in accordance with departmental requirements. 3. I have not used work previously produced by another student or any other person to hand in as my own. 4. I have not allowed, and will not allow, anyone to copy my work with the intention of passing it off as his or her own work. SIGNATURE S.Naidoo © University of Pretoria iv DEDICATIONS This research is dedicated in the loving recognition, to my parents Mr Deven Naidoo and Mrs Premie Naidoo, for the unconditional love, support and encouragement. I further dedicated this research to my late grandparents Mr Kistah Naidoo and Mrs Radha Naidoo, you both are greatly revered and never forgotten. My most important praise and appreciation is given to my personal Lord and Saviour Jesus Christ for his unfailing love and blessings. © University of Pretoria vi SUMMARY The crime of fraud and corruption is rife within South African municipalities. This negatively impacts on the efficient and effective service delivery through wasteful and uneconomic expenditure incurred by Municipalities through the perpetration of the aforementioned crimes. The writer envisages researching, investigating, critically analysing and evaluating the South African criminal law’s response in combatting the scourge of fraud and corruption within local government. In order to do so the research will examine the efficacy of the Prevention and Combatting of Corrupt Activities Act 12 of 2004, in prosecuting individuals who perpetrate acts of fraud and corruption. The current Act unlike its predecessor, has enacted special provisions in sections 4 and 26(1)(a) for the prosecution of public officials who commit acts of fraud and corruption. The Act makes provisions for a general offence of corruption and also punishes various specific forms of corruption. The essential purpose of the Act is the ‘unbundling’ of the offence of corruption. A duty is imposed by the Act to report corrupt practices and keep record of previously convicted persons and enterprises who unlawfully received tenders and contracts as a result of such acts of corruption. This record will ensure that harsh restrictions are placed on such individuals. Furthermore, this Act is designed to reinforce South Africa’s obligations under the United Nations Convention against Corruption adopted by the General Assembly on 31 October 2003. The penal provisions of the Act, serves as a deterrent in that a conviction for corruption invokes a 15 year imprisonment term. All in all, the Act has provisions to effectively prosecute perpetrators of corruption. The same is true for the crime of common law fraud although punishment is at the court’s discretion. Detecting fraud and corruption within local government is extremely difficult because of its disguised form. In view hereof forensic investigative methods have to be adopted in order to produce the standard of proof required in our courts of law to successfully prosecute these crimes. Finally, the research will produce findings which will inform the recommendations that will be made. The writer envisages making implementable recommendations that may lead to the detection, effective investigation, successful prosecution and ultimately the prevention of the crimes of fraud and corruption within local government. © University of Pretoria vii TABLE OF CONTENTS TITLE PAGE NO DECLARATION ii-iii DEDICATION iv SUMMARY vi TABLE OF CONTENTS vii CHAPTER 1: INTRODUCTION, BACKGROUND AND CONCEPTUALISATION OF FRAUD AND CORRUPTION IN SOUTH AFRICA 1 1. INTRODUCTION 1 2. PURPOSE AND OBJECTIVES OF THE STUDY 3 3. RESEARCH QUESTIONS 4 4. STATEMENT OF THE PROBLEM 5 5. HYPOTHESIS 6 6. METHODOLOGY 6 7. DEFINITIONS OF KEY CONCEPTS 7 8. PLAN OF STUDY 11 CHAPTER 2: THE SOUTH AFRICAN RESPONSE TO THE CRIMES OF FRAUD AND CORRUPTION WITHIN LOCAL GOVERNMENT 13 1. INTRODUCTION 13 2. CONSTITUTIONAL RELEVANCE OF THE CRIMES OF FRAUD AND CORRUPTION WITHIN LOCAL GOVERNMENT 14 2.1 CONSTITUTIONAL OBJECTIVES OF THE MUNICIPALITY 15 2.2 DUTIES OF PROVINCIAL LEGISLATURES 15 2.3 RELEVANCE OF CHAPTER 9 STATE INSTITUTIONS 16 © University of Pretoria 2.4 CONSTITUTIONAL REQUIREMENT FOR PROCUREMENT 17 3. GOVERNANCE 19 3.1 PARTICIPATION 20 3.2 RULE OF LAW 20 3.3 TRANSPARENCY 21 3.4 RESPONSIVENESS 21 3.5 CONSENSUS ORIENTATED 21 3.6 EQUITY AND INCLUSIVE 22 3.7 EFFECTIVENESS AND EFFICIENCY 22 3.8 ACCOUNTABILITY 22 4. LEGISLATIVE FRAMEWORK 24 4.1 ELEMENTS OF CORRUPTION IN TERMS OF THE PREVENTION AND COMBATING OF CORRUPT ACTIVITIES ACT 24 4.2 PREVENTION OF ORGANISED CRIME ACT 35 4.3 PROTECTED DISCLOSURE ACT 36 4.4 PROMOTION OF ACCESS TO INFORMATION ACT 37 4.5 PROMOTION OF ADMINISTRATION OF JUSTICE 37 4.6 WITNESS PROTECTION ACT 37 4.7 THE PUBLIC FINANCE MANAGEMENT ACT AND REGULATIONS 38 4.8 FINANCIAL INTELLIGENCE CENTRE ACT 39 4.9 MUNICIPAL FINANCE MANAGEMENT ACT, THE MUNICIPAL SYSTEMS ACT AND THE LOCAL GOVERNMENT: MUNICIPAL STRUCTURES ACT 39 5. COMMON LAW FRAUD 43 5.1 INTRODUCTION 43 6. CONCLUSION 45 CHAPTER 3: LEGAL PRECEDENT (CASE LAW) ON THE CRIMES OF FRAUD AND CORRUPTION WITHIN SOUTH AFRICAN MUNICIPALITIES 46 1 INTRODUCTION 46 2 CORRUPTION AND FRAUD CASES WITHIN SOUTH AFRICAN © University of Pretoria MUNICIPALITIES 46 2.1 Viking Pony Africa Pumps (PTY) LTD t/a Tricom Africa v Hidro-Tech Systems (PTY) LTD and Another 46 2.2 Democratic Alliance Western Cape & others v Western Cape Minister of Local government & another 51 2.3 Minister of Local government, Housing and Traditional Affairs (Kwazulu- Natal) v Umlambo trading 53 2.4 Esorfranki Pipelines (PTY)LTD v Mopani District Municipality 55 3 CORRUPTION AND FRAUD PRECEDENTS WITHIN THE PUBLIC SECTOR 57 3.1 S v KGANTSI 57 3.2 S V SHAIK & OTHERS 60 3.3 SELEBI V S 63 3.4 TSHOPO V STATE 66 4 CONCLUSION 68 CHAPTER 4: EARLY WARNING SYSTEMS(EWS) OF FRAUD AND CORRUPTION 70 1. INTRODUCTION 70 2. WHAT ARE RED FLAGS? 71 3. MANIFESTATIONS OF FRAUD AND CORRUPTION SCHEMES IN PUBLIC PROCUREMENT 72 4. PHASES OF PROCUREMENT CYCLE WHICH ARE PRONE TO FRAUD AND CORRUPTION 73 4.1 PROJECT IDENTIFACTION AND DESIGN 73 4.1.1 RED FLAGS OF PROJECT IDENTIFICATION AND DESIGN 74 4.2 ADVERTISING, PREQUALIFICATION, BIDDING DOCUMENTS PREPARTATION AND SUBMISSION OF BIDS 74 4.2.1 ADVERTISING 74 4.2.1.1 RED FLAGS IN ADVERTISING 75 4.2.2 PREQUALIFICATION STAGE 76 4.2.2.1 RED FLAGS IN PREQUALIFICATION 76 © University of Pretoria 4.2.3 PREPARATION OF BIDDING DOCUMENTS STAGE 77 4.2.3.1 RED FLAGS IN PREPARATION OF BIDDING DOCUMENTS 78 4.2.4 SUBMISSION OF BIDS STAGE 79 4.2.4.1 RED FLAGS IN BID SUBMISSIONS 79 4.3 BID EVALUATION STAGE 80 4.3.1 RED FLAGS IN BID EVALUATIONS 82 4.4 CONTRACT PERFORMANCE, ADMINISTRATION AND SUPERVISION STAGE 82 4.4.1 RED FLAGS IN CONTRACT PERFORMANCE 83 5. COMMON RED FLAG INDICATORS OF FRAUD AND CORRUPTION WITHIN THE LOCAL GOVERNMENT 83 5.1 COMPLAINTS FROM BIDDERS AND INTERESTED PARTIES 84 5.2 MULTIPLE CONTRACTS BELOW PROCUREMENT THRESHOLDS 84 5.3 UNUSUAL BID PATTERNS 84 5.4 INFLATED AGENT FEES 85 5.5 SUSPICIOUS BIDS/BIDDERS 86 5.6 NON-SELECTION OF LOWEST BIDDER 86 5.7 REPEATED AWARDS TO SAME CONTRACTOR 86 5.8 CHANGES IN CONTRACT TERMS AND CONDITIONS 87 5.9 MULTIPLE CHANGE ORDERS TO CONTRACTS 87 5.10 POOR QUALITY OF WORKS AND/OR SERVICES 87 6.
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