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Critical Analysis of Modimolle Local Municipality Labour-Intensive Projects (2002–2007)

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Critical Analysis of Modimolle Local Municipality Labour-Intensive Projects (2002–2007) CRITICAL ANALYSIS OF MODIMOLLE LOCAL MUNICIPALITY LABOUR-INTENSIVE PROJECTS (2002–2007) Thabo Zacharia Hlabela A research report submitted to the Faculty of Engineering and the Built Environment of the University of Witwatersrand in partial fulfilment of the requirements for the degree of Master of Science in Engineering Johannesburg March 2012 DECLARATION I declare that this research report is my own, unaided work. It is being submitted in partial fulfilment of the Degree of Master of Science in Engineering in the University of the Witwatersrand, Johannesburg. It has not been submitted before for any degree or examination in any other University. ……………………............……..... T Z Hlabela Signed in Johannesburg on the 30th day of March 2012 i ABSTRACT The 2002 Stellenbosch African National Congress Policy Conference discussed and agreed on a short- to medium-term programme aimed at reducing unemployment and alleviating poverty. Subsequently, the Republic of South Africa‟s ruling political party, the African National Congress, announced the Expanded Public Works Programme through President Thabo Mbeki‟s “State of the Nation” address in February 2003. The President‟s announcement endorsed the Government‟s adoption of the position towards correcting unemployment levels in South Africa. However, during November 2002 Modimolle Local Municipality (formerly known as “Nylstroom”) had already embarked on an on-the-job labour-intensive programme. The programme was intended to introduce and implement labour-intensive construction methods in all the Municipality‟s infrastructure projects. The above background formed the basis for the purpose of this research project which aims to discuss, analyse and evaluate Modimolle Local Municipality‟s nine (9) – six (6) water projects (including the pilot project) and three (3) sewer projects – labour- intensive infrastructure projects undertaken between November 2002 and March 2007 in comparison with experience gained on similar projects in Africa, with specific reference to their contribution to job creation. The research found that the success of Modimolle‟s programme was due to long-term political support; adequate training; the availability and willingness of unskilled people to be employed as casual labourers; the pilot project that was carried-out before the main or core programme, and the ability to transfer experience and lessons learnt from the pilot project to the other projects. The research concludes that labour-intensive construction methods are economically feasible for water and sewer infrastructure projects and can reduce unemployment and alleviate poverty. KEYWORDS: Expanded Public Works Programme, Modimolle labour-intensive work programme, construction projects, construction methods. ii This research report is dedicated to my late father, Mogoba Nanana Albert Hlabela, from whom I have learnt not to give up, his parental guidance, financial support throughout, the father figure and the role model he played in my career life. The role my mother, Mpho Maphuthi Agnes Hlabela, played is also highly appreciated; it is indeed a blessing to have a loving and supporting mother like her. The support I received from my other half, Patience. It is through her patience and encouragement that I have finally made it. Last, but not least, the support I received from my three sons, Refentše, Reatlegile and Realeboga, and their sister, Maphuthi, is highly appreciated. iii ACKNOWLEDGEMENTS I would like to thank the following people who guided, supported, coached and assisted me to compile this research report and whose inputs are greatly appreciated: R T McCutcheon – Professor Emeritus, University of the Witwatersrand, who was my supervisor Harry A. Quainoo – Lecturer, University of the Witwatersrand Thembi Mtselu – Senior Administration Manager, University of the Witwatersrand Lesley Salter – Faculty Registrar, University of the Witwatersrand Professor M Gohnert – Head of School, University of the Witwatersrand M C Powell (now deceased) – Former Municipal Manager, Modimolle Local Municipality T T Mohapi – former Mayor, Modimolle Local Municipality P Mabunza – former Chief Financial Officer, Modimolle Local Municipality T Selamolela – Director Social Services, Modimolle Local Municipality K L Thobane – former Director Corporate Services, Modimolle Local Municipality S Motsegoa – former Chief Whip and Councillor, Modimolle Local Municipality D Dibe – former Speaker of Council, Modimolle Local Municipality Etienne du Plessis – Director and Shareholder, Dombo, du Plessis & Partners (Africa) (Pty) Ltd Frank Haupt – Director and Shareholder, CES Consulting Engineers Carel Kruger – Director and Shareholder, SSA Consulting Engineers Peter de Jager – Director and Shareholder, Phala Consulting Engineers Mpho Lekoloane – Project Manager on the Modimolle programme recruited from the Gundo Lashu programme Ms Jeannette Menasce for assisting to edit, correct and format my research report. Ms Wendy Phillips, Department of Geography, University of the Witwatersrand, for providing the map of South Africa and the study area. Thank you all very much indeed. iv TABLE OF CONTENTS DECLARATION ..................................................................................... I ABSTRACT ....................................................................................... II ACKNOWLEDGEMENTS ................................................................. IV TABLE OF CONTENTS ....................................................................... V LIST OF FIGURES ........................................................................... XIII LIST OF TABLES ............................................................................. XIV ABBREVIATIONS, ACRONYMS AND GLOSSARY ................... XV CHAPTER 1: INTRODUCTION ......................................................... 1 1.1 BACKGROUND AND STATEMENT OF THE PROBLEM 1 1.2 LABOUR–INTENSIVE CONSTRUCTION 2 1.3 SCOPE OF THE STUDY AND METHODOLOGY 3 1.3.1 SCOPE OF THE STUDY 3 1.3.2 METHODOLOGY 3 1.4 OBJECTIVES AND PURPOSE OF THE RESEARCH 4 1.4.1 MAIN OBJECTIVES OF THE RESEARCH 4 1.4.2 PURPOSE OF THE RESEARCH 5 1.5 LIMITATIONS OF THE STUDY 5 1.6 STRUCTURE OF THE RESEARCH REPORT 5 v CHAPTER 2: LITERATURE REVIEW FROM A REGIONAL PERSPECTIVE ............................................................. 7 2.1 INTRODUCTION 7 2.2 LABOUR-INTENSIVE PROJECTS IN AFRICA 7 2.2.1 MALAŴI 7 2.2.2 LESOTHO 9 2.2.3 GHANA 12 2.3 NOTEWORTHY LABOUR-INTENSIVE PROJECTS 14 2.3.1 KENYA: THE RURAL ACCESS ROADS PROGRAMME 1974 14 2.3.2 BOTSWANA: THE DISTRICT ROADS LABOUR- INTENSIVE IMPROVEMENT AND MAINTENANCE PROGRAMME 20 2.4 DISCUSSION AND CONCLUSIONS 23 CHAPTER 3: LITERATURE REVIEW FROM A SOUTH AFRICAN PERSPECTIVE ........................................ 25 3.1 INTRODUCTION 25 3.2 THE STRATEGIC OIL FUND (OCTOBER 1991 TO MARCH 1994) 26 3.2.1 BACKGROUND AND BRIEF ABOUT THE PROGRAMME 26 3.2.2 CRITIQUING THE METHODOLOGY 28 3.2.3 SHORTCOMINGS WITH RESPECT TO THE STRATEGIC OIL FUND 28 3.2.4 EXTENT TO WHICH THE STATE PRESIDENT’S REQUIREMENTS WERE MET 30 3.2.5 MAIN FINDINGS AND RECOMMENDATIONS ON THE STRATEGIC OIL FUND 31 3.2.6 CONCLUSIONS 32 vi 3.3 THE COMMUNITY-BASED PUBLIC WORKS PROGRAMME (1994 TO 1996) 32 3.3.1 BACKGROUND AND BRIEF ABOUT THE PROGRAMME 32 3.3.2 SUMMARY OF SHORTCOMINGS 35 3.3.3 CONCLUSIONS 35 3.4 THE EXPANDED PUBLIC WORKS PROGRAMME PHASE 1 (APRIL 2004 TO MARCH 2009) 36 3.4.1 BACKGROUND AND BRIEF ABOUT THE PROGRAMME 36 3.4.2 SHORTCOMINGS WITH RESPECT TO THE EXPANDED PUBLIC WORKS PROGRAMME PHASE 1 38 3.4.3 MAJOR CONCLUSIONS FROM NATIONAL STUDIES ON THE EPWP 41 3.4.4 INFRASTRUCTURE AND LABOUR INTENSITY 45 3.4.5 CRITIQUING THE METHODOLOGY 47 3.5 CONCLUSIONS 48 CHAPTER 4: MODIMOLLE LOCAL MUNICIPALITY AND THE PILOT PROJECT.............................................. 53 4.1 BACKGROUND 53 4.1.1 INTRODUCTION TO MODIMOLLE LOCAL MUNICIPALITY 55 4.1.2 EXISTING INFRASTRUCTURE 57 4.1.3 ROAD INFRASTRUCTURE 60 4.1.4 WATER INFRASTRUCTURE 61 4.1.5 SANITATION INFRASTRUCTURE 62 4.1.6 ELECTRICITY INFRASTRUCTURE 62 4.2 THE PROCESS OF IDENTIFYING, BUDGETING FOR AND IMPLEMENTING PROJECTS 62 4.2.1 ANALYSIS PHASE 63 4.2.2 STRATEGY DEVELOPMENT PHASE 63 vii 4.2.3 SPECIAL DEVELOPMENT FRAMEWORK PHASE 63 4.2.4 IMPLEMENTATION PHASE 63 4.2.5 FINANCIAL PLANNING PHASE 63 4.2.6 ORGANISATION STRUCTURE PHASE 64 4.2.7 REVIEW PHASE 64 4.3 MODIMOLLE LOCAL MUNICIPALITY PILOT PROJECT (NOVEMBER 2002 TO JUNE 2003) 65 4.3.1 BACKGROUND AND BRIEF ABOUT THE PROJECT 65 4.3.2 APPROVAL OF IDP AND MUNICIPAL BUDGET 65 4.3.3 PROCESS OF IMPLEMENTING THE FIRST-EVER, LABOUR-INTENSIVE PROJECT (PILOT PROJECT) IN MODIMOLLE 66 4.3.4 PROJECT IMPLEMENTATION PLAN PHASES 67 4.3.5 SYNOPSIS OF PROJECT MILESTONES 70 4.3.6 OUTLINING AND DETAILING OF DUTIES FOR THE PILOT PROJECT 71 4.3.7 TEAM OUTPUT DURING IMPLEMENTATION 71 4.3.8 CHALLENGES THAT FACED THE PILOT PROJECT 72 4.3.9 GAPS IDENTIFIED DURING THE PILOT PROJECT 73 4.3.10 EVALUATION OF PILOT PROJECT OBJECTIVES 74 4.3.11 IDENTIFYING INDICATORS OF SUCCESS 79 CHAPTER 5: MODIMOLLE LOCAL MUNICIPALITY LABOUR-INTENSIVE PROJECTS ......................... 81 5.1 PHAGAMENG EXTENSION 7 LETŠEMA WATER AND SEWER PROJECT (APRIL 2003 TO MARCH 2004) 81 5.1.1 PROJECT DETAILS 82 5.1.2 BACKGROUND TO THE PROJECT 82 viii 5.1.3 ANALYSIS OF THE PROJECT IN LINE WITH COUNCIL’S OBJECTIVES AND THE PROJECT SPONSOR 84 5.1.4. THE EXTENT TO WHICH PREVIOUS PROJECTS CONTRIBUTED TO THE SUCCESS OF THE PROJECT 90 5.1.5 CHALLENGES ENCOUNTERED ON THE PROJECT 94 5.1.6 INTERVENTIONS BY THE MUNICIPALITY TO MITIGATE
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