An evaluation of the functioning of metropolitan municipal councils in Gauteng, South Africa by ONKGOPOTSE SENATLA MADUMO Submitted in fulfilment of the requirements for the degree DOCTOR OF ADMINISTRATION: (Public Administration) in the FACULTY OF ECONOMIC AND MANAGEMENT SCIENCES UNIVERSITY OF PRETORIA Supervisor: Prof. Dr C. Thornhill December 2017 DECLARATION OF ORIGINALITY I, Onkgopotse Senatla Madumo, student number 04307542, declare that the thesis, titled “An evaluation of the functioning of metropolitan municipal councils in Gauteng, South Africa” which I hereby submit for the degree Doctor of Administration (Public Administration) at the Faculty of Economic and Management Sciences, University of Pretoria, is my own work and has not previously been submitted by me for a degree at this or any other tertiary institution. Signature: Date: 05 December 2017 Onkgopotse Senatla Madumo Pretoria, Republic of South Africa ii DEDICATION This thesis is dedicated to my mother, Mamoriri Violet Madumo for the immense and instrumental role she has played in my life. My mother epitomises excellence, hard work, dedication and resilience. This thesis is the fruit of your toiling. You are appreciated. Kea leboga! “Kodumela moepathutse, ga go lehumo le le tšwago kgauswi” iii ABSTRACT The study examines the functioning of municipal councils in ensuring the provision of services to communities in a sustainable manner. Municipalities are at the coalface of service delivery, which is why they are significant in improving the quality of lives of the communities under which they serve. The study is significant as municipalities in the recent past experienced different forms of civil disobedience which could arguably be attributed on the lack of capability by municipalities to respond adequately to the delivery needs for services from communities. Thus, the research stems from the fact that municipalities are charged with the responsibility of providing services to communities in a sustainable manner as mandated by Section 152(1)(b) of the Constitution, 1996. Hence, the failure to deliver will impact the community, especially the indigent, to an extent that the quality of their lives will degenerate. This research investigates the role and functions of municipal councils in making decisions that would have an effect on the provision of services in municipalities in South Africa. Thus, the study has three objectives: • to establish the role that the municipal council plays in ensuring effective and efficient service delivery plans; • to determine the extent to which the municipal council influences the implementation of decisions for effective administration of the delivery of services; and • to develop a framework that enhances the decision-making capability of the municipal council. The research investigates the role of the municipal council in establishing its effect on the administration of a municipality. Thus, this research will answer two research questions: • What role do municipal councils play in ensuring effective and efficient service delivery plans or integrated development plans? iv • To what extent are municipal councils significant role players in terms of influencing the implementation of decisions required for the administration of the delivery of services by municipal officials? The success of a municipality depends on the quality of the decisions made by the municipal council and the administrative capacity of the officials carrying out tasks as mandated by the municipal council. Hence it is argued that the effectiveness of the municipal administration depends on the effectiveness of the municipal council. Through the proposed decision- making framework, the coordination of policies and directives that will result in effective and efficient administration in a municipality is simplified. The study employed a qualitative research method, a case study research design and adopted inductive reasoning, i.e. generation of theory, interpretivism, and constructionism as the dispositions of the research. Both primary and secondary sources for data collection are used. In terms of collecting data through the primary sources, non-participant observation will be applied in order to draw conclusions from observing and listening to the activities taking place in municipal council meetings. Secondary sources that are utilised refer to the documented research conducted by previous researchers, i.e. census, Integrated Development Plans, Auditor-General report and studies conducted by municipalities and other stakeholders. Thus, the study makes a contribution to the body of knowledge by proposing a decision formula and a logical framework that is aimed at enhancing the decision-making process of metropolitan municipal councils. v ACKNOWLEDGEMENTS I would like to thank my supervisor, Professor Christopher Thornhill, for his astuteness, patience, diligence and the thoroughness he has applied to this work. I am grateful for the critical review he has given me which improved the quality of this thesis. Prof. Thornhill’s passion for the discipline has invigorated my determination towards completing this thesis. Thank you for being a fantastic supervisor and an academic mentor. I am grateful for everything you have done for me. Words alone cannot begin to describe how grateful I am. I am thankful for the support that Prof. Jerry O. Kuye has afforded me throughout my academic journey. Prof. Kuye ignited an interest in the initiation of this thesis. This thesis is the affirmation that I have managed to live by the principles of “ RED PA ”. I am indebted to my colleagues at the School of Public Management and Administration and I am most grateful for the vote of confidence, constant words of encouragement, the support and for always reminding me to constantly keep my eyes on the prize. I am thankful for the support given by Dr Sam Koma, a dependable friend and mentor. Mokone, thanks for availing yourself always when I needed your assistance. Your assistance in shaping some arguments in this thesis is appreciated. I would like to extend my gratitude to Ms Clara Ngobeni, the Public Administration information specialist, Ms Rachel Phahla and Mr Sam Makgalemele, Mamelodi Campus library specialists, who went an extra mile when I needed their assistance. Your support was instrumental in completing this thesis and I am grateful for that. vi I would like to express my appreciation to my dear friend and partner, Tshegofatso Makete, for the patience and sacrifices she has had to endure while I was writing this thesis. Most importantly, I am thankful to her for being the “springboard” of my ideas throughout this research. Love is the greatest invention of mankind. To my mother, Mamoriri, and my brother, Pani, thank you for making my doctoral studies worthwhile. Your sacrifices, understanding and presence in time of need are appreciated. Thank you for the unwavering support. Thanks to my friends and family, for having interest in my study. I am grateful to the University of Pretoria, for the financial assistance, sabbatical leave granted and academic support provided. Most importantly, I thank my Creator, the omnipotent and the omnipresent, for the wisdom and knowledge bestowed upon me. Go lena ke re, montshepetša bošego ke mo leboga go sele! vii TABLE OF CONTENTS 1. CHAPTER 1: GENERAL INTRODUCTION AND METHODOLOGICAL FRAMEWORK OF THE RESEARCH………..1 1.1. INTRODUCTION AND BACKGROUND…………………………. 1 1.2. PURPOSE AND SIGNIFICANCE OF THE STUDY…………….. 2 1.3. MOTIVATION FOR THE RESEARCH……………………………. 5 1.4. SURVEY OF THE LITERATURE…………………………………. 7 1.5. PROBLEM STATEMENT AND RESEARCH QUESTIONS……. 8 1.6. AIMS AND OBJECTIVES OF THE RESEARCH………………... 10 1.7. RESEARCH DESIGN………………………………………………. 11 1.7.1. Phenomenology…………………………………………………... 11 1.7.2. Ethnography………………………………………………………. 12 1.7.3. Grounded theory…………………………………………………. 13 1.7.4. Case study………………………………………………………… 14 1.8. RESEARCH METHODS…………………………………………… 17 1.8.1. Different types of research methods……………………………. 18 1.8.1.1. Quantitative research…………………………………………... 18 1.8.1.2. Qualitative research……………………………………………. 19 1.8.1.3. Mixed method approach...………………………………………20 1.8.2. Contrast between quantitative and qualitative………………… 21 1.8.2.1. Deductive reasoning…………………………………………… 22 1.8.2.2. Inductive reasoning……………………………………………. 22 1.8.2.3. Positivism………………………………………………………... 22 1.8.2.4. Interpretivism……………………………………………………..22 1.8.2.5. Objectivism……………………………………………………… 23 1.8.2.6. Constructionism………………………………………………… 23 1.8.3. Population size and sampling…………………………………… 24 1.8.4. Data collection technique……………………………………….. 25 1.8.5. Ethical considerations……………………………………………. 28 1.9. LIMITATIONS OF THE STUDY…………………………………… 28 1.10. CLARIFICATION OF TERMS AND CONCEPTS ……………... 29 viii 1.10.1. Public Administration…………………………………………… 29 1.10.2. Public administration……………………………………………. 30 1.10.3. Local government……………………………………………….. 30 1.10.4. Municipality………………………………………………………. 30 1.10.5. Municipal council………………………………………………… 31 1.10.6. Councillor………………………………………………………… 31 1.10.7. Constituency……………………………………………………... 32 1.10.8. Efficiency…………………………………………………………. 32 1.10.9. Effectiveness…………………………………………………….. 32 1.10.10. Decision-making……………………………………………….. 33 1.10.11. Service delivery………………………………………………… 33 1.11. PRELIMINARY FRAMEWORK OF THE RESEARCH……....... 33 1.12. CONCLUSION…………………………………………………….. 35 2. CHAPTER 2: THEORETICAL CONSTRUCTS IN PUBLIC ADMINISTRATION………………………………………………………. 37 2.1. INTRODUCTION……………………………………………………. 37 2.2. CONCEPTUAL