ISSN 2519-1284 European Journal of Economics, Law and Social Sciences Special Issue

Acces online at www.iipccl.org IIPCCL Publishing, Graz-Austria December, 2021

Monitoring and evaluation in the public sector: a case of the Department of

Masilo Mmacheneke Masilo & Tyanai Masiya

University of Pretoria

Ntwanano Erasmus Mathebula

University of Venda

Abstract

The unprecedented economic, political, social and technological challenges around the world

the performance of the public service. The performance of the South African public sector
has been hindered by a number of challenges over the last two decades. In response to these

is part of the public service reform and the approach towards increasing the Government’s

is a critical tool that brings performance

processes together for the enhancement of service delivery. The article concluded that

expand the structure to all levels within their departments. Advocacy and Communication
Plans should be in place and should be used as tools to overcome misconceptions or lack of

information as this is key in ensuring evidence-based development of policies, planning and

decision making.

Introduction

as it assists government to ensure good “governance, accountability, transparency,

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the manner in which the “objectives, indicators, inputs, outputs, outcomes, impact and

that would serve as input towards the development of policies and implementation

by monitoring and evaluating policies, programmes and projects, service delivery

informed decision-making across all spheres of government. This study corroborates

a critical tool that brings performance processes together for the enhancement of
service delivery.
This study, serves as input not only to the academic body of knowledge but also in

Furthermore, the study will assist the Department in fostering a culture that values

still limited in South Africa. This will help in identifying new policy areas and those

more research and contribution on the implementation of government reforms and

Design and Methodology

is aimed at producing in-depth information in order to describe and understand a

problem that is under study by soliciting views and perceptions from a small group

in creating an understanding of the topic under study through the experiences of

The research design consisted of semi-structured interviews. This method of data

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collection was used to gain a detailed understanding of participants’ beliefs and

et al

data and for the majority of interviews, telephonic interviews were conducted.

Documentary research method is referred to as the analysis of documents that

method was also employed during data collection. A comprehensive review of

Study Site
The study used the case study research design. The case study selected was the

it is one of the government departments in South Africa that has a well constituted

to ensure that there is a coherent logic and alignment between selected outcomes,

security across government and private sectors. It is “a critical enabler of citizen

stakeholders by meeting their expectations and needs.

functioning of the state and the economy. The Department serves both the public
and private clients in their provision of services. This pertains to provision of services

an example, access to the pensions and child-support grant system depends on

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ISSN 2519-1284 European Journal of Economics, Law and Social Sciences Special Issue
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“such legislation and regulations may not be grounded in coherent policies that are
fully aligned with the Constitution, new legislation and current developments, which

abuse of human rights pertaining to provision of some of its services.

Research Ethics

in dealing with ethical considerations were applied. Additionally, approval was

safe is also another important ethical consideration adhered to for everyone involved
in a study. To reduce the increased exposure of respondents to risks of everyday life

interviews were conducted electronically with all the participants.

Fieldwork
The primary research was conducted between September 2020 and January 2021.
For this study, a total of 11 semi-structured interviews were conducted with 1 x

Selection of the research participants

The researcher used purposive sampling to target participants. For this study, middle

Department.

Data Analysis

was categorised, synthesised and coded using thematic analysis, to identify themes.

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Background and context of the study

Discourse of M&E

data on inputs, activities, outputs, outcomes and impacts as well as external factors,

periodic exercise that seeks to provide credible and useful information to answer

development intervention with indications of the extent of progress and achievement

assessment of an on-going or completed project, programme or policy, its design,

evaluation should provide information that is credible and useful, enabling the

complementary. They are complementary in that monitoring, by its very nature is

on-going whilst evaluation is a post-event activity. As a result, managers receive

evaluating as they make judgments about progress and interventions that need to be
introduced. Similarly, when they evaluate, they do so on the basis of the insights and

on achievement of set targets, objectives and indicators and early warning signs
of problematic areas needing to be corrected are communicated to managers and

sustainability may be assessed through the evaluation exercise. Through the

The predominant focus of monitoring is on tracking program implementation and

progress, including inputs that contribute to the achievements of service delivery
output, activities and processes used to produce the desired outputs, outputs
produced and initial outcome achieved as a result of the outputs produced. The focus

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is thus on both what is being done in a program and how it is being done, with the
aim of identifying the necessary corrective action, if any.
For monitoring to take place, targets and indicators are often used as an important

management and accountability. Evaluations on the other hand, move beyond the
tracking focus of monitoring and focuses on forming judgements about program

issues associated with a program and developing explanations of what is being

based

implementation, the achievement of high performance, improved employee and

management competencies, and the enhanced accountability that could as a result

management of performance information. These include inputs, outputs, activities,

towards production of service delivery. These are all the resources that are used and
work done to produce service delivery outputs. These resources include human

way that the manner in which the government intends utilising its available resources

of facilitating the utilisation of performance information. It therefore becomes the

government’s responsibility to put measures in place to ensure the generation of

become part and puzzle of management decision-making process.

dependent or determined by the context or environment within which they exist.

and organisations perform should not be underestimated. It is also important to

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a shortage of skills is one of the factors that prevent the successful implementation

not impossible to track progress on achievement of projects or targets, and to draw

lessons from the performance information. This results in the making uninformed

Importance of M&E in the Public Sector

decisions by management, as a tool to promote learning within an organisation,

with the ultimate aim of improving how government operates and does things, and

systems are not meant to replace good management practices. Instead they are there

decisions such as program direction and continuation and ensure optimal utilisation

System is dependent on the extent to which it is planned, managed and resourced to

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make it ‘stick’.

of analysis and advise provided. The extent to which information is accurate and
how it is presented becomes key in helping managers make informed decisions

for monitoring of performance, optimal allocation of resources and enhancement of

et al

made by managers in their organisations, it is also meant to generate knowledge and

promote the learning within an organisation. Learning is one of the primary purposes

its utilisation as a management tool results in learning to improve planning, service

tools utilised to improve service delivery, and the emphasis is thus placed upon the

foster a culture of learning in an organisation and improves service delivery. The

information collected should be converted into “analytical, action-oriented reports

the conversion of such information into lessons learnt has not been easy.

South African Public Service is that these must be utilisation-orientated and must also

is the responsibility of all government departments to include evaluations as part

of the functions of management as a way to continuously improving performance.

and forums to serve as a basis for planning, budget decisions and general decision-

are successful and also more generally, what is working or not working as planned,
and reasons why things are not working as planned, whilst promoting organisational

learning from experience, learning from the results, analysis and analysis of results

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framework is assessed by among others, the strength of the demand for evaluation.

The conducting of organisational performance monitoring enable government

to learn about what is working and what is not with the aim of improving service

accountability process if measures are put in place through regular exchange of

information, reporting, knowledge products, learning sessions and the evaluation

Institutionalisation of M&E in the South African Public Sector

The South African Public Service has three national, provincial and local spheres of
government which consist of dedicated ministries assigned with the responsibility
of managing public services based on democratic values and principles of the South

fair manner. This is aimed at addressing the remnants of the apartheid era by being
responsive to the needs and expectations of citizens, particularly those from poor and

of services to citizens by the South African government is compelling it to try to do

strategies are developed by departments in the national and provincial spheres of

mechanisms and to design structures to enable the measurement of progress whilst

also introducing corrective action, where a need arises.

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across all spheres of government and its public entities. The Framework consists of
tools such as “standards, processes, strategies, plans, information systems, reporting

put in place to assist the public sector in continuously assessing its performance with
the aim of identifying the contributory factors which to its service delivery outcomes

projects, the government aims at ensuring that service delivery is achieved, funds

Africa and this has assisted government departments to design policies that are
responsive to citizen’s service delivery needs. The adoption of this approach also
ensured that there is alignment of planned objectives of government programmes

based management should become part of the organisational culture, policies,

responsibility of all departments in all spheres of government to ensure development

for the purposes of facilitating the utilisation of performance information for

improvement of decision-making and service delivery. It therefore becomes the
government’s responsibility to put measures in place to ensure the generation of

Performance information should thus become part and puzzle of management

decision-making process.

assigned with in ensuring the ownership and implementation of the monitoring and

which is responsible for ensuring and ascertaining that the information produced

as a basis of processes relating to planning, budgeting, reporting and implementation

management.

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governance. These and other stakeholders, such as the Public Service Commission,

ensuring that government-wide monitoring and evaluation is undertaken responsibly

As currently conceptualised, the Policy framework for the Government-wide

to generate information from which the performance of government can be measured.

These principles include the principle that there should be clear linkages of the

implementation plan against milestones on a regular basis.

The Presidency is mandated to coordinate the process of implementing government
policies by all departments to ensure integrated service delivery. Another key

As indicated in the introduction, various legislative and policy mandates have been

obligates all government departments and public institutions to provide services

senior managers of public institutions are obliged to respond to people’s needs, be

accountable and transparent at all times by making available accurate information as

accountable in their delivery of services.

performance information produced and the manner in which it is interpreted and

and utilised to coming up with public services that bring about discernible changes

promoting the conducting of evaluations on programmes by government institutions

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provides an outline of the process to be followed in the collection of the information

be successfully implemented, there must be clear objectives and proper coordination

and integration.

Presentation and Discussion of Results

citizenship and civil registration, international migration, refugee protection and the
population register through the delivery of enabling services to all citizens, foreign

implementation of proper strategic management and reporting. In order to conduct

the research with ease, it was necessary to develop an understanding of the role and
the general background of the organisation that is under study.

Administration provides strategic leadership, management and support services to

supporting the core business include policy and strategic management, audit services,

communications, legal services, intergovernmental services and information services

solicit inputs which assisted in creating an understanding of the topic under study

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consisted of Interviews or Interviewing which is one of the widely used methods of

gain a detailed picture of participants’ beliefs and perceptions about a topic under
et al

Findings

has on service delivery. The study found that improvements in governance practices
and the introduction of stringent monitoring and evaluation processes, assisted
the Department in the improvement of its performance since 2015. Interviews with

Relationship between Organisational Performance and M&E

Department introducing various changes which enhanced and supported

utilisation of resources allocated by government. The Department’s performance

stricter monitoring and evaluation processes which promoted utilisation of evidence.

utilisation of resources.

in “…the achievement of high performance and the enhanced accountability that

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The study further revealed that successful accomplishment of monitoring and

evaluation of activities in the Department, hindered by amongst others, the lack of

is seen as a critical tool that brings performance processes

together for enhancement of service delivery. Service delivery levels in the

use of operations management principles. For an example, the time that it took

averages were recorded for immigration permits and visas. All these documents

correction of deviations during programme implementation, the achievement of high

performance, improved employee and management competencies, and the enhanced

resolve complex problems in partnership with citizens by being open, accessible,

M&E Performance Information: (i.e. utilisation of performance information)

information and the reliability of the reported performance information for utilisation

becomes how such information gets utilised by operations for decision-making and
improvement on service delivery. The typical example was made of the non-utilisation
of performance information by units such as Strategic Planning in their planning

continued to experience recurring service delivery challenges and non-achievement

useful because it is not acted upon.

Furthermore, conclusions from respondents show that the information that comes

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out of the monitoring and evaluation system does not help foster a culture of learning

to facilitate the utilisation of performance information, with the aim of improving the
management of the public sector. It therefore becomes critical that governments are
capacitate to supply performance information for use in monitoring of performance,

services delivered. in decision-making. Furthermore, literature shows that it is only

through the availability of data and information about the problem that problems can

of problems and designing of possible solutions to the problems.

which is in contrast to the ideals of the New Public Service which emphasises the role

they serve and respond to their needs. The NPS approach recommends that public

in collaboration with citizens. To address the needs of citizens and to respond and
provide with service delivery-oriented solutions, issues, “openness, accessibility,

M&E Reporting process: (i.e. use of monitoring and feedback as part of a learning
process)
Although performance measurement, reporting, and the use of performance
information to inform decision-making by management at all levels is considered
fundamental to service delivery improvement, sharing of feedback and learning

objectives are reviewed, the impact of these is not felt at operational level. The
feedback coming from these reporting forums has not been successfully cascaded
down to operational level for utilisation in decision making and in enhancing service
delivery. The study further show that performance information collected in the

of their operations in ensuring service delivery and making adjustments to inputs

where necessary to improve performance.

promoting generation of knowledge and how this can be utilised to bring about
improvements and learning. Although the usefulness and reliability of performance

when that information gets utilised by operations and other units., which is one area
that still needs to be examined.

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and proposed solutions to service delivery issues and improvement on performance

felt by all across the Department.

support and guidance on monitoring and evaluation processes at operational level

support and assistance in identifying implications for improved service delivery and
identifying appropriate and priority indicators. The researcher observed that there is

The non-existent culture of evaluation practices and utilisation of evidence in decision

making and improvement in service delivery is another biggest challenge in the

Plan which should guide how evaluations are conducted in the department. The lack

Implications of the study

This study serves as input not only to the academic body of knowledge but also in
enhancing the general understanding of the role and importance of monitoring and

evaluation needs. Also, future research can be conducted on the interrelatedness of

to organisational performance.

Recommendations

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The researcher recommends that for the Framework to have an impact and receive

monitor performance at operational level in terms of inputs, outputs or outcomes in

and overall impact as a national organisation. The applicability and application of the

– currently it is more skewed towards strategic level rather than operational.

the Department which is a huge concern. The researcher therefore recommends that

and will also help in establishing a positive culture within the Department.
Performance Information produced should be used at all times to inform decision-
making, planning, policy development and enhancement of service delivery. The
research recommends that a plan be put in place to monitor utilisation of performance

be determined through comparison of performance against budgets and service

Conclusion

In South Africa, the introduction of stringent monitoring and evaluation processes,

ensuring accountability and improved service delivery. The implementation of

the Framework forced managers to be accountable and more responsible in their
areas of work whilst ensuring amongst others, optimal utilisation of resources

fundamental to service delivery. Performance information is considered key in

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decision-making and promotion of learning, the sharing of such information and

feedback for utilisation in service delivery improvements is key.

References

African
Evaluation Journal,
Indus Journal of

Review,

African Evaluation Journal

8

in the Australian Public Sector.

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International Journal of Science and Research

Introductory Framework.

African Evaluation Journal,

. Batho Pele White

Discussion

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Policy framework for the

from

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