LOCAL GOVERNMENT LEADERSHIP ACADEMY (LOGOLA):

THE ROADMAP FOR THE DEVELOPMENT OF A NATIONAL CADRE OF LEADERS FOR DEVELOPMENTAL LOCAL GOVERNMENT
A CONCEPT PAPER January 2004

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TABLE OF CONTENTS 1. INTRODUCTION ................................................................................................................................4 1. INTRODUCTION ................................................................................................................................4 2.1 The legislative framework .............................................................................................................5 2.3 dplg project viability reports............................................................................................................7 2.4 Other studies and reports................................................................................................................7 2.2 Interviews with organised local government ...................................................................................8 3. DEVELOPMENT AND DEVELOPMENTAL LOCAL GOVERNMENT THE BASIS FOR LOGOLA ..................................................................................................................................................................10 3. DEVELOPMENT AND DEVELOPMENTAL LOCAL GOVERNMENT THE BASIS FOR LOGOLA ..................................................................................................................................................................10 3.1 Current context..............................................................................................................................10 3.2 Historical background on Local Government..............................................................................12 3.3 Transformation of local government.............................................................................................13 4. CAPACITY DEVELOPMENT DEFINED AND THE NEED FOR LOGOLA.......................................16 4. CAPACITY DEVELOPMENT DEFINED AND THE NEED FOR LOGOLA.......................................16 4.1 Defining capacity development.....................................................................................................16 4.2 Implications for LOGOLA..............................................................................................................19 5.1 Overview.......................................................................................................................................20 5.2 Definition and nature of leadership...............................................................................................21 5.3 Early concepts of leadership.........................................................................................................22 5.3.1 Personality trait theories..........................................................................................................22 5.3.2 Behavioural theories ..............................................................................................................23 5.3.3 Contingency approaches........................................................................................................23 5.4 New concepts in leadership .........................................................................................................24 5.4.1 Attribution theories..................................................................................................................24 5.4.2 Charismatic leadership............................................................................................................25 5.4.3 Transactional leadership.........................................................................................................26 Management by exception where the leader intervenes only when mistakes are made or when problems occur;....................................................................................................................................26 Laissez Faire where the leadership factor is absent or not available. Here decisions are delayed not made or happen by accident. There is no intervention of any kind. ..................................................26 5.4.4 Transformational leadership....................................................................................................27 5.5 Summary.......................................................................................................................................28 6. KEY COMPETENCIES FOR THE LOGOLA.......................................................................................30 6. KEY COMPETENCIES FOR THE LOGOLA.......................................................................................30 6.1 Emotional intelligence...................................................................................................................30 6.1.1 Emotional intelligence curriculum...........................................................................................30 6.2 Knowledge management..............................................................................................................32 6.2.1. Knowledge management curriculum.....................................................................................33 6.3 Effective communication and interaction .....................................................................................34 6.3.1 Communication curriculum......................................................................................................35 6.4 Analytical and problem solving skills............................................................................................36 6.4.1 The Problem Solving Process.................................................................................................37 6.4.2 Analytical and problem solving curriculum.............................................................................38 7. OTHER PROGRAMMES BUILDING CAPACITY IN LOCAL GOVERNMENT.................................40 7. OTHER PROGRAMMES BUILDING CAPACITY IN LOCAL GOVERNMENT.................................40 8. CURRICULUM DESIGN ISSUES......................................................................................................41 8. CURRICULUM DESIGN ISSUES......................................................................................................41 8.1 Programme participants ...............................................................................................................41
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8.2 Adult learning ..............................................................................................................................42 8.2.1 Adult learning principles..........................................................................................................42 8.2.2 Adult learning processes.........................................................................................................43 8.3 Related implementation Issues ..................................................................................................45 9. THE LOGOLA IMPLEMENTATION FRAMEWORK.........................................................................46 9. THE LOGOLA IMPLEMENTATION FRAMEWORK.........................................................................46 9.1 LOGOLA development objective .................................................................................................46 9.2 LOGOLA purpose.........................................................................................................................46 9.3 LOGOLA result area and outcomes.............................................................................................46 9.4 LOGOLA key assumptions...........................................................................................................47 9.5 LOGOLA activities in relation to the result areas........................................................................48 9.6 Key inputs in relation to LOGOLA activities.................................................................................48 9.7 Provisional budget for LOGOLA inputs ......................................................................................49 9.7.1 Budget Assumptions...............................................................................................................49 9.7.2 Costing Methodology..............................................................................................................50 9.7.3 Training Programme Assumptions..........................................................................................50 9.7.4 Composite budget...................................................................................................................52 10. LOGOLA RISKS AND CONTAINMENT MEASURES ...................................................................52 10. LOGOLA RISKS AND CONTAINMENT MEASURES ...................................................................52 10.1 Delivery capacity ........................................................................................................................52 10.1.1 Delivery institutions...............................................................................................................52 10.1.2 Scheduling capacity..............................................................................................................53 10.1.3 On the Job Training Capacity...............................................................................................53 10.2 Attrition rate ...............................................................................................................................54 10.3 Resource limitations....................................................................................................................54 10.3.1 Donor funding........................................................................................................................54 10.3.2 Private sector........................................................................................................................55 10.4 Institutional setup and location .................................................................................................55 11. INSTITUTIONAL FRAMEWORK FOR LOGOLA............................................................................56 11. INSTITUTIONAL FRAMEWORK FOR LOGOLA............................................................................56 11.1 Institutional framework options .................................................................................................56 11.2 Key principles for the LOGOLA organisational structure ..........................................................56 12. MONITORING AND EVALUATION..................................................................................................58 12. MONITORING AND EVALUATION..................................................................................................58 12.1 Pre-programme assessment......................................................................................................58 12.2 Process evaluation......................................................................................................................58 12.3 Impact assessment ....................................................................................................................59 13. CONCLUSION..................................................................................................................................61 13. CONCLUSION..................................................................................................................................61 14. REFERENCES AND BIBLIOGRAPHY............................................................................................62 14. REFERENCES AND BIBLIOGRAPHY............................................................................................62

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INTRODUCTION

This paper provides a framework for the design and implementation process of the Local Government Leadership Academy (LOGOLA). LOGOLA is an individually based leadership development programme that has been conceptualised, formulated and is sponsored by the Department of Provincial and Local Government (dplg). It aims to accelerate and improve service delivery to communities and strengthens the sustainability of the local government, by enhancing the leadership competencies of local government elected officials and appointed officials. This paper outlines the background and case statement for the establishment of LOGOLA as a programme of the dplg. It covers a detailed outline of the programme, the assumptions made about the programme, key elements of the programme, a review of relevant literature to enhance the curriculum content of the programme, options for an institutional framework of the programme and an implementation budget for the programme.

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RATIONALE FOR THE DEVELOPMENT OF A LEADERSHIP ACADEMY FOR A

DEVELOPMENTAL LOCAL GOVERNMENT

2.1

The legislative framework

The 1998 White Paper on Developmental Local Government reinforces Chapter 7, section 154(1) and 154(2) of the Constitution in that it places Local Government at the centre of service delivery. To meet this objective leadership in Local Government sphere must show innovative competencies. Section B(1) of the White Paper states: Developmental Local Government is local government committed to working with citizens and groups within the community to find sustainable ways to meet their social, economic and material needs and improve their quality of life. Paragraph 1.4 of the Paper on leading and learning, further suggests: Developmental local government requires that municipalities become more strategic, visionary and ultimately influential in the way they operate. A developmental municipality should play a strategic policy making and visionary role, and seek to mobilise a range of resources to meet basic needs and achieve developmental goals. Against the backdrop of the legacy of apartheid and the previous role of local government, these expectations and their outcomes and performance indicators require special leadership qualities of both the elected officials as representatives of their communities and special interests as well as appointed officials. Chapter 4 of the Local Government Municipal Systems Act, 32 of 2000 provides for the development of a culture of participatory governance. Municipalities are encouraged to create conditions for the local communities to participate in their affairs. This would include the preparation and review of the municipalities Integrated Development Plans. Section 16(b) of the Act specifically provides for the municipality to contribute to building the capacity of the local communities to participate in the affairs of the municipality and for councillors and staff to foster community participation. In addition, municipalities are to allocate budgets to facilitate these objectives.

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Given the provisions of the White Paper and the Municipal Systems Act, it is clear that the leadership role that councillors and municipal managers must play in strengthening the sustainability of local government is extensive and daunting. It requires a different level and type of leadership irrespective of the level of a municipality as contemplated in the Municipal Structures Act, 117of 1998.

2.2

Development Bank of Southern Africa (DBSA) Development Report 2000

In respect of the new role of Local Government, the DBSA Development Report, 2000 concludes as follows; Councillors are likely to play a more prominent role in the future. They will have to act as ambassadors for their communities, lobby other spheres of government or the private sector, defend the interests of minorities and the marginalised, and serve as trustees or protectors of the natural environment or historical heritage. Developmental councillors will need new skills to perform these tasks. The key new leadership skills that the report suggests are necessary to meet these demands include: The ability of leaders to have a clear vision of how they want their cities, towns, districts and localities to develop; Technical competence to deliver in order not to undermine confidence in the local councils; Building consensus in communities with key local interests and the forging of alliances with all the key stakeholders; Integrated leadership and management and the political will to do the right thing despite the possibility of being unpopular. Such skills and competencies require a concerted effort to develop. Given their history in political and community development activism pre-1994, it is possible that many of our councillors possess these skills. Whether skills and competencies developed in political activism are fully transferable to the environment of developmental local government still has to be demonstrated. The development of LOGOLA is partly informed by insufficient demonstration by councillors and municipal managers of this new range of leadership competencies and partly by the scale of issues facing councillors and municipal managers in a new democracy.

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dplg project viability reports

Given the number of municipalities that were not showing viability, the then Department of Constitutional Development (now dplg), instituted a process of assessing the viability of various municipalities. A large portion of these viability assessments was motivated primarily on designing intervention strategies that would make these municipalities more financially sustainable. However, a review of many of the viability reports points to human capacity gaps related to human capital deficiencies. These deficiencies are articulated as a lack of skilled staff, poor relationships amongst councillors lack of commitment, self-interest, poor communication, poor community relations and political interference. These issues point to the need for competent leaders that can transform local government in order to meet the development needs of their communities and usher in a system of a sustainable and developmental local government. 2.4 Other studies and reports

A survey of Women in Local Government undertaken by the Womens Development Foundation (WDF) in 2000 puts the matter of leadership development for councillors beyond question. The survey was conducted in six of the nine provinces namely; Gauteng, Western Cape, Eastern Cape, North West, Limpopo and the Free State. In the foreword Brigalia Bam, President of the WDF and Chairperson of the Independent Electoral Commission (IEC) writes, As the narrative of experiences attests, this first pioneering generation of women councillors have had to confront numerous challenges; a veritable battle of sexes triggered by the active participation of women in local politics, heightened gender tensions within the chambers of Local Government, negative attitudes towards councillors in general stemming from the apartheid era especially the period of non-collaboration that grew out of the local struggles of the 1980s, combining roles of governance as elected officials with the pressures of the normal multiple roles that women must assume as wives, homemakers and as individuals who are active in the church and the community. The survey results show a dearth of experience and lack for support to women leaders to acquire such skills as in governance, self-assertion, communications, political and self-management. Many of the councillors reported levels of personal and family dysfunction that arose as a result of public office.

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The Ministerial Advisory Committee (MAC) Interim Report of 2001 on the challenges facing local government identifies capacity building for councillors as an urgent need requiring co-ordination. It highlights role confusion between councillors and officials as particularly concerning. Such role confusion stems from the lack of leadership and assertiveness skills by elected and appointed officials alike. 2.2 Interviews with organised local government

Interviews conducted with the national and provincial leaders of organised local government identified leadership development issues that are impacting councillors and municipal managers. They identified some of the critical issues that affect their effectiveness and efficiency as including: The varied roles they are expected to play in the municipality and the community; The complex nature of relationships at various municipal levels given the geographic and population diversity of rural and urban based municipalities and the difference in skills required of councillors who are in the metros as against those that are in the districts; The various interface levels for councillors and municipal managers including interaction with issues of traditional leadership and the sustenance of democracy, as well as the fulfillment of diverse political interests and dealing with lobby groups and individuals; Interaction between the councillors themselves and issues of political, cultural and gender diversity; The varied levels of issue orientation amongst councillors given that some are tasked with portfolios and are by definition more engaged in portfolio related issues and development challenges facing their municipalities than those without portfolio; The fact that many existing capacity building programmes focus on functional responsibilities of councillors such as finance, project management and other related fields to the exclusion of personal leadership dimensions. Moreover the interviews suggest that many of these capacity building programmes directed at councillors are poorly co-coordinated;

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The difficulty of balancing issues of ward committees and their sector interests given the voluntary nature of ward committees and the leadership demands and capacity expectations imposed on these elected officials;

The tendency for councillors to interfere with administrative matters in the domain of appointed officials instead of providing leadership in this regard. To illustrate this, one municipal manager reported that a councillor entered his office. The manager politely enquired how he could help. The councillor indicated that he was there to monitor the performance of the official. The councillor wanted to see what the official did from 08h00 to 17h00 because it was important that the municipality remains accountable to the community.

Key competencies for councillors and municipal managers identified by these interviews include the ability to: Deal with issues at a strategic level and the community level and to provide strategic

leadership at both; Build consensus amongst diverse groupings of people and interests; Be innovative, creative and flexible in dealing with community issues and needs; Build trust between the councillors, officials, the community and various competing

interests while maintaining personal integrity; Manage conflict; Recognise the value and worth of the other; Demonstrate the commitment and tenacity to achieve set objectives; Communicate with conviction, confidence and integrity at all levels and constituencies.

The issues identified by these interviews, the policy framework and the various studies make the enhancement of councillors and officials leadership competencies imperative, and confirm the need for a LOGOLA initiative.

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3. DEVELOPMENT AND DEVELOPMENTAL LOCAL GOVERNMENT THE BASIS FOR LOGOLA 3.1 Current context

Poverty alleviation is the resolve of government that continues to reinforce the basis on which the Reconstruction and Development Programme (RDP) was formulated. This expresses the precepts of the Freedom Charter that declares, there shall be houses, security and comfort, the doors of learning and culture shall be opened, and the land shall be shared among those who work it. The RDP as an integrated, coherent socio-economic policy framework sought to mobilise all the people and the countrys resources toward the final eradication of apartheid and the building of a democratic, non-racial and non-sexist future. The RDP was constructed through consultation with a wide range of Non-Governmental Organisations (NGOs) and research organisations. The intention was that civil society organisations would be responsible for the effective implementation of the RDP in order to continue fostering an inclusive approach to developing and implementing policy. Pursuing this priority, the 50th National Conference of the African National Congress (ANC) directed that redressing poverty and inequalities must be a central focus of the ANC to ensure that government and other sectors of society meet the basic needs of the underprivileged of our country. The 51st conference re-affirmed this position by stating the ANC in Government has sought, and continues to seek to confront the challenges of poverty and underdevelopment and to ensure a better life for all through a comprehensive people centered and driven programme of social transformation. Poverty alleviation continues to be a priority of the South African Government. Institutions of government therefore must pursue this objective. The recent agreement signed at the Growth and Development Summit between government, business and labour reinforces the resolve of all parties in this regard. The summit envisions making South Africa: The leading emerging market and destination of first choice for investors whilst retaining and expanding social equity and fair labour practices. A productive economy with high levels of service, a highly skilled workforce and modern systems of work, organisation and management.
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A society in which there are economic opportunities for all, poverty is eradicated, income inequalities are reduced and basic services are available to all. A society in which our people, our most precious resources, are given the opportunity and support to develop to their fullest potential. A society that promotes the values of social equity, fairness and human dignity in the global economy.

The summit set itself the objective of halving unemployment by the year 2014 through mechanisms such as public investment initiatives, expanded public works programmes, sector partnerships and strategies, local procurement, small enterprise promotion, support for co-operatives and jobs impact monitoring. The Human Development Report for 2000 reported that South Africa had one of the largest gaps between rich and poor. South Africas Gini Co-efficient was found to be at 0.584, higher than Brazil. Other world highs were Poland (0.272), Thailand (0.462), Mexico (0.503) and Chile (0.565). South Africa has transformed rapidly since the first democratic elections. Local government structures have been made democratic. Unitary and non-racial cities, towns and villages have become a reality. Local government provides a wide range of services including water, sewerage, electricity, transport, libraries, parks, sports grounds, housing and health. The issue of representation and democracy in local government affects the daily activities of the populace (Reddy P.S. p 49: 1996). In defining this matter, Reddy states on the one hand the wealthy white suburbs are in line with commercial and municipal services comparable to those of established democracies. On the other hand, the sprawling black townships on the peripheries of these towns and cities, with their stereotypical dwelling units, poor services and the ever increasing shacks, were developed as dormitory towns without CBDs or industrial areas, leaving them with no income base. (Reddy P.S. p 53: 1996) The transformation is from race-based, authoritarian Apartheid structures to non-racial democratic structures and addresses the legacy of unequal service delivery. In order to fully grasp the challenges facing present day local government in South Africa, it is important to briefly sketch the historical position this sphere of government occupied in the political landscape of South Africa, more specifically the viability of this level of government under apartheid.

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3.2

Historical background on Local Government

Apartheid local government and municipal structures were characterised by the skewing of access of services and resources according to race. According to the HRC Quarterly Review, October 2000 p. 5, laws discriminated unfairly against black South Africans regarding movement, settlement, institutionalisation and development of local government. These laws included: Land Act 27 of 1913; Black (Urban Areas) Act 21 of 1923; Black Administration Act 38 of 1927; Black (Urban Areas) Consolidation Act 24 of 1945; Urban Black Councils Act 79 of 1961; Group Areas Act 36 of 1966; Black Affairs Administration Act 45 of 1971; Black Local Authorities Act 102 of 1982; and Black Communities Development Act 4 of 1984

The implementation of these laws created a highly fragmented, dysfunctional and illegitimate system of local government marked by a sharp separation between developed, well-serviced and representative local government in white areas, and underdeveloped and unrepresentative local government in black areas. From 1982, fully-fledged local authorities could be established in the black urban areas. Consequently, it could be said that the government and administration of black urban areas was brought in line with the urban areas for the whites, Indians and coloureds. The day-to-day control over black local authorities (BLAs) was assigned to the then provincial administrators of the four provinces. Acts of Parliament provided the overall policy direction of local government matters. From inception BLAs were plagued with difficulties. Though they received more formal powers over the years, the fiscal inadequacies and political illegitimacy of these bodies left them as ill-functioning and controversial institutions (Heymans & White 1991). According to Potto J, (Government by the People, p 96: Black Local Authorities), the biggest obstacle in the way of BLAs was financial self-sufficiency. The poverty of residents and the sub-economic nature of housing meant BLAs had no property tax base and were exclusively dependent on rents. The eventual rent increases met with severe opposition from residents. Furthermore, the Group Areas Act prevented industries from investing in black areas thus further depriving BLAs of important sources of income. Administration Boards were established to co-ordinate
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the development of BLA areas, as white municipalities were not willing to spend their ratepayers money on such developments. Additionally, the BLAs incapacity to address infrastructure and service backlogs meant they suffered legitimacy and hence political viability problems. Simon Bekker (p 177: 1991), articulates that BLAs, expected to be financially self-sufficient in their current accounts, suffered from an inadequate revenue base. Revenue sharing via Regional Service Councils could not meet the fiscal crises of these authorities. Local authorities within homelands received large annual subsidies from the Department of Development Aid. As a result, the costs of basic local authority services in homeland residential areas were typically substantially lower than their equivalents in provincial residential areas within the same city if it straddled the provincial/homeland boundary. Indian and Coloured Management Committees were established in Indian and Coloured areas. According to P.S. Reddy (Local Government Management and Development, 1996:55) very few Indian and Coloured areas progressed to fully-fledged local authorities and no Coloured Management Committee/Local Affairs evolved into autonomous local authorities. Similarly to the BLAs, Indian and Coloured Management Committees remained financially and administratively weak and politically controversial due to lack of revenue, poor management and a weak political base. Reddy, P S further states that with the exception of white local authorities, local government management during the 1980s/1990s era was characterised by oppression, illegitimacy, inefficiency and fragmentation. In this overall crisis, local authorities operating within Indian/Coloured and African communities were unable to provide and deliver sustainable municipal services and infrastructure needed in these areas, hence the massive backlogs within these areas.

3.3

Transformation of local government

The transformation of municipalities since 1994 aims to make local government more accountable, financially sustainable and able to deliver critical services to all residents. This is in tandem with the constitutional vision of the role of local government and the policies outlined in the 1998 White Paper on Local Government.
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The transformation has included the rationalisation from 843 to 284 municipalities, new legislation on operational and financial management, and the re-assignment of powers and functions between municipalities outside of the metropolitan areas. Municipalities also have to adapt to national government initiatives such as restructuring the electricity distribution industry. According to the National Treasury (Intergovernmental Fiscal Review: 2001), municipalities face new pressures such as demands to increase personnel expenditure. The challenge is to manage these pressures effectively. Fiscally, it is important that transformation recognises constraints and introduces innovative ways to deal with revenue shortfalls and emerging expenditure requirements. Since 1994, local government has gone through stages of transformation; the pre-interim phase in 1994 and 1995, the transitional phase from November 1995 to December 2000 and the final stage that started with the elections on 5 December 2000. The final stage of local government transformation was the re-demarcation of local government to ensure that a particular municipality administers every piece of vacant land. This phase of transformation also determined the type of municipality applicable throughout the country i.e. Category A, B or C. This change of boundaries was also accompanied by further changes to the powers and functions of various categories of municipalities. With this demarcation, all boundaries were changed and municipalities now have to service much larger geographical areas with little or no increase in their revenue base. Municipalities now also have to ensure that all services listed in the constitution are provided in one form or another. As indicated in the White Paper on Local Government, the process of transforming the institutions of the South African state is premised on the fact that the new democratic state has a specific mission - to meet the new development objectives which will help to create a better life for all. This challenge is enshrined in the Constitution of the RSA Chapter 7, Section 152 (1) and (2) as well as Section 153 (a) and (b). Schedules 5a and 5b of the Constitution, further entrench the obligations of local government by outlining the functions and services to be performed by local government. The judicial process has also added to the obligations of local government. Other specific legislation for local government also requires compliance such as the Municipal Systems Act, the Structures Act and Municipal Finance Management Bill. These Acts require a fundamental shift to service delivery, demand a new style of management and leadership in local government and introduce the concept of performance management.

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They have also led to the fundamental restructuring of local government institutions to meet the legislative and constitutional challenge so that municipal services are rendered appropriately in terms of its size, revenue potential and asset base. LOGOLA recognises these obligations and is conceptualised on the premise that to meet these obligations, high level, visionary and strategic leadership is required. The next section reviews capacity development issues in local government and the role of LOGOLA.

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4.

CAPACITY DEVELOPMENT DEFINED AND THE NEED FOR LOGOLA

Capacity development is an important aspect of sustainable, developmental local government, given the history of local government in South Africa and its future as set out in the White Paper. LOGOLA will be an important addition to the range of capacity development processes aimed at strengthening local government. 4.1 Defining capacity development

Bolger, J. (2000), suggests that capacity development refers to the approaches, strategies and methodologies used by developing countries and/or external stakeholders to improve performance at the individual, organisational, network/sector or broader system level. Its objective is to enhance, or more effectively utilise skills, abilities and resources; strengthen understanding and relationships and address issues of values, attitudes, motivation and conditions to support sustainable development. Essentially capacity development is about change and transformation. Capacity development as a concept has been preceded by a number of other development processes and notions. In the earlier 50s to the 60s it was referred to as institution building where the objective was to equip developing countries with the basic inventory of public sector institutions required to manage a programme or public investment. The emphasis was on identifying what was lacking and providing more of that. Later in the 60s to the 70s capacity development was referred to as institutional strengthening in order to improve the performance of institutions. In the early 70s and 80s human resources development dominated the notion of capacity development. It began to focus on people and stressed the importance of education, health and the population. In the 80s and 90s the focus switched to new institutionalism emphasising the sector level including networks and the external environment with the aim of shaping national and economic behaviour. It is in this era that issues of sustainability and a move from projects to programme development emerged. Capacity development is the latest concept that stresses the importance of ownership and has become the way to development (Lusthaus C, Adrien M, H and Pestiger M, 1999).

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Capacity development is most effective in an enabling environment. This implies that capacity development must take cognisance of the legal framework, attitudes and values within which the process takes place, and factors internal to the organisation in which it is promoted such as skills, systems, leadership and relationships. The environment can be constraining or enabling to capacity development efforts. At the sector level, capacity development must take into account the coherence of sector policies, strategies and programming frameworks as well as the effective co-ordination of these policies and frameworks within and across the development sectors. The principles governing capacity development must include co-operation, local participation, ownership and control, an understanding of local conditions and a coaching and supportive role by those providing technical assistance. Its approach must be iterative, flexible, systematic and longterm (Lavergne R and Saxby J, 2001). Capacity development can straddle a number of approaches. These are the Organisational, Institutional, Systems and Participatory approaches. The Organisational approach refers to improving the ability of the public sector, singly or in cooperation with others, to perform their tasks. The organisation or set of organisations is the focus of development (Hilderbrand and Griddle, 1996). Institutional approaches build the capacity to create, change, enforce and learn from the processes and rules that govern society (Cohen, 1994). The systems approach is multidimensional including institutional and organisational approaches (Beer, 1986). This approach takes into consideration the fact that organisations are systems. It views things from a multi-level, holistic, and interrelated perspective. In this perspective each system is a part of and is related to another. In the systems approach, capacity development should strengthen on what exists rather than build new systems. Systems extend beyond the individual and organisational levels to systems of organisations, their interfaces and the rules that guide them. The participatory approach represents an ideology about the process of development. It emphasises the importance of the means used to achieve development. It sees development as people-centred and non-hierarchical. Development must be empowering and involve those it affects as partners who have a high degree of the ownership of the process (Fowler, 1997).
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The discourse on capacity development asks the question of what capacity is being developed. This raises the specificity of capacity development and introduces the notion of core capabilities. Core capabilities are the ability of individuals, organisations or society as a whole to do several things such as defining and analysing the environment; defining issues and reaching working agreements on purposes and mandates; resolving conflicts; formulating strategies; planning; mobilising resources; building supportive relationships with other parties and meeting new challenges proactively by adjusting agendas, approaches and strategies. Capacity development should not be viewed as a short-term process. Its outcomes are more long term than short term. It can often be concerned with intangibles. Intangibles are learned by doing and cannot be delivered from outside, as can the more tangibles of development such as roads, bridges and training development plans (Lavergne and Saxby, 2001). Capacity development can occur amidst conflict, epidemics and poverty. The performance excellence of St Marys Hospital in Uganda is a good example. The Hospital is in a region of Uganda characterized by 17 years of civil war, extreme poverty and outbreaks of virulent epidemics. Viler Hauck (Morgen Peter 2003) suggests that the key elements of success of the Hospital are the ability to: Transfer the founders vision and values to others in the organisation. This happens on

the job, through the power of exemplary behaviour and regular staff meetings; Reproduce the organisation through the inner core of staff who act as guardians of the

working culture and core values, the organisations investment in training and building incentives that attract people to otherwise unattractive areas; Adapt and respond to the demands of its key stakeholders and build learning

processes that enable the hospital to acquire more knowledge, to reflect and to apply the lessons of experience. It also means a rejection of the conservatism of dogmas, old habits and outdated procedures; Self-regulate by encouraging staff to take responsibility for their own performance with

controls as secondary;

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Network and collect intelligence by keeping contact with the broader political and

resource environment. This Ugandan case study is educational as it reflects some of the issues faced by councillors and municipal managers and what can be achieved where visionary and transformational leadership exists. Many councillors come from areas of extreme poverty, areas where the HIV/AIDS epidemic has ravaged communities and increased the number of vulnerable and/or child-headed families. Many come from areas of community conflicts and internecine strife, before and after 1994. Developmental local government requires that councillors provide leadership and deliver services in these circumstances. This requires a new orientation to leadership and service delivery as exemplified in this case study.

4.2

Implications for LOGOLA

The implications of this discourse to LOGOLA as a capacity development process are clear. Firstly, LOGOLA is informed by both the development needs of communities and the role that officials and councillors need to play in this regard. The development framework of the country that evolved from the RDP dictates this development role. The RDP is both the ruling partys development policy framework and a programming framework. Secondly, LOGOLA emerges in a legislative environment that reinforces the broad policy and development objectives of the ruling party and the government. The White Paper on a Developmental Local Government reinforced by the Municipal Systems Act dictates the need for new skills and ways of working by councillors and officials alike especially the need for ongoing consultation, the prioritising of community needs and the encouragement of participation in local government. LOGOLA takes into consideration a number of issues. Key amongst these is the fact that several capacity building efforts to support local government efforts have been undertaken. LOGOLA does not replace these but aims to build on existing efforts. The efforts of the Local Government Training Programme and various other capacity building efforts championed by the dplg and a host of donors are acknowledged. LOGOLA recognises the need for human capital development and its focus on developing leadership competencies for councillors and officials adds to the functional aspects of other dplg capacity building programmes.
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5.

LEADERS AND LEADERSHIP

In this section we explore the literature on the subject of leadership and leadership competencies and suggest that transformational leadership can only facilitate developmental local government.

5.1

Overview

Writing in the Blue Print for Workplace Magazine (2003), Professor Palmer states that South Africas entry into the global market requires new leadership skills; Such Leadership skills must be infused with creative lateral thinking, capable of visualizing the future (Palmer, P.2003). Writing in the same magazine, Tibane, D. suggests that leaders need to be inspirational which requires that they themselves need to be inspired and self motivated. He further suggests that inspirational leaders primarily identify, inspire and increase human excellence in their followers; transform followers into leaders. They understand that the purpose of leadership is not to maintain followers but to multiply leaders. Leaders balance results with relationships, stewardship with servanthood, and task with efforts. who gets the credit. Developmental local government, spurred by the need for distributing resources equitably and promoting a better life for all will require the new leadership skills described by Palmer and the inspiration outlined by Tibane. Jonathan Cook, (2003) writing on Current Trends in Leadership Thinking suggests that the big man model of corporate leadership has collapsed astonishingly quickly. Instead leaders are being encouraged to develop their emotional intelligence so as to enhance teamwork and build the effectiveness of others. If local government leaders are to succeed in meeting the diverse expectations of communities they are elected to serve, then they must reject the big man model of leadership and enhance their emotional intelligence. The subject of leadership in organisations is much debated. Central to this debate is what leadership is and what leaders do. Charlton (1993. p.29) suggests that when asked about leadership, people usually produce some vague notion of charisma. He further suggests that there is some difficulty in defining specific behavioural characteristics that can be observed, trained and consequently evaluated.
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They wisely manage ambiguity and

contradictions to the benefit of organisation and focus on getting the job done, regardless of

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This difficulty of definition and understanding can be traced back to the earlier theories and approaches to leadership that emphasised personality traits, situation, styles and attitudes. Later research posits new approaches to the study of leadership and its impact on organisations. 5.2 Definition and nature of leadership

Charlton (1993, p.29) states that there is widespread agreement that dynamic and effective leadership sets successful organisations apart from those that are not. Organisations and communities consist of humans, resources and goals. Managers of organisations set and keep certain activities in motion in order to accomplish the organisations goals. Planning and organising are the first two fundamental activities of the management process. Other activities, such as leadership and control follow. (Smit and Cronje, 1992, p.332). leadership of the enterprise (Cronje Du Toit and Motlatla, 2000, p.146). Various attempts have been made to define the concept of leadership. Robins (1991, p.354) defines leadership as the ability to influence a group towards the achievement of goals. Charlton, (1993, p.32) citing Tom Peters defines leadership as A unique alliance between managers and workers that fully engages the talents and potential of everyone in the organisation. He suggests that leadership encompasses the competencies and processes required to enable and empower ordinary people to do extraordinary things in the face of adversity and constantly turn superior performance to the benefit of themselves and the organisation. Smit et al (1992, p.333) and Cronje et al (2000, p.147) define leadership as influencing and directing the behaviour of subordinates in such a way that they willingly strive to accomplish the goals of the business. Leadership exists to convert plans into reality. It injects energy into the business to activate employees to get things moving and to keep them moving. This includes giving orders, handling and motivating individuals and groups, managing conflict and communicating with subordinates. It also means explaining the mission, the goals and the plans of the organisation, allocating tasks, consulting with stakeholders and supervising the work of staff. Ivancevich and Matteson (1999, pp.408- 409) look at three important variables of leadership, namely, the people, the task and the environment, and define leadership as the process of influencing others to facilitate the attainment of organisationally relevant goals.
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Through regular controls

management ensures that activities and resources are properly utilised to attain goals set by the

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Kroon (1996, p.353) sees leadership as the human factor that leads an institution towards realising its goals through the voluntary cooperation of people in the business. There are several common factors in these definitions. The first is that leadership influences, and individual behaviour can be directed for the benefit of the organisation. Second is that leadership must result in the achievement of organisational goals. These goals however, cannot be achieved without recognising the competencies of individuals in the organisation and how these competencies can achieve superior performance. Even though these definitions tend to emphasise the organisation and the corporate environment, communities are organised entities, municipalities are organisations tasked with achieving specific outcomes and councillors are expected to have the influencing dimension of leadership. Influencing is particularly significant in politically determined roles. LOGOLA should be designed around the nature and type of influence that is expected of councillors and officials. 5.3 Early concepts of leadership Before discussing the effectiveness of the new concepts in leadership, early approaches are briefly outlined below. These approaches are the personality trait, behaviour, contingency, situational and leadership substitute approaches. 5.3.1 Personality trait theories

The trait approach saw leadership from the great person or big man perspective. In this thinking, leaders are born and not made. This is captured by Aristotle, who said from the moments of their birth, some are marked for subjugation and others for command. The underpinning concept is an aristocratic or upper class that differs biologically from the lower classes. (Johnson and Johnson 2nd Edition p.40). This approach identifies the inherent intellectual, emotional, physical or other personal traits that differentiate leaders. Early theorists such Gordon Allport suggested that there were nineteen essential traits for leadership including intelligence and aggression. (Charlton, 1993. p.30). Trait theories to leadership are limited in that they:
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overlook the followers needs; fail to clarify the importance of various traits; fail to take into account cause and effect; ignore situational factors (Robins,1992,p.256).

Ivancevich et al (1999, p.428) argue that the weakness of the trait approach is that it failed to identify universally accepted characteristics or traits of leadership. The lack of consistency in the trait approach to leadership generated the need for new approaches. The next generation was the behavioural approaches. 5.3.2 Behavioural theories In these theories researchers considered specific behaviours of leaders. Ivancevich et al (1999, p. 428) cite job-centred and employee-centred leadership, initiating structure and consideration as examples of leadership behaviour. The implication of the theory is that, unlike inherent traits, once behaviours are identified, leadership can be taught, and subsequently an infinite supply of effective leaders can be produced. (Robins, 1992, p.358) Pioneers of behaviour theories of leadership were the Ohio State and the Michigan University groups. Like the trait theories, the behaviour theories according to (Robins1992, p.359), identify the relationship between leadership behaviour and performance. Situational factors were not considered in these theories. 5.3.3 Contingency approaches

This model of leadership was developed by Fred Fiedler, who proposed that effective group performance depends on the proper match between the leaders style when interacting with the subordinates and the degree to which the leader controls and influences situations (Robins,1992,p.361). Though Fiedler made an important contribution towards understanding leadership effectiveness, his theory failed to include additional contingency variables. Paul Hersey and Ken Blanchard progressed to develop one of the most popular and influential approaches to leadership , known as Situational Leadership. This model presupposes that an effective management style is determined by the maturity of the subordinates. They defined maturity
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as a persons need for achievement, task-related ability and experience and willingness to accept responsibility (Smit at al, 1992. p.347). Another contingency theory approach is Leadership Participation as proposed by Victor Vroom and Phillip Yetton. The Vroom - Yetton approach relates leadership behaviour to decision making (Robins, 1992, p.371) It predicts the degree of group participation in certain functions and then sets standards for subordinates to be included in decision making (Smith, 1992 p.348). The limitation of the contingency theory of leadership is that leadership is not always important. Certain individuals, jobs, organisational variables can act as substitutes for leadership or can neutralise the influence of the leader on subordinates. Leadership substitutes render leadership unnecessary, it negates the leaders ability to increase or decrease the followers satisfaction or performance (Ivancevich et al, 1999, p.428). In conclusion, these approaches or theories on leadership contribute to the knowledge of leadership, but have limitations. Because of these shortcomings Smit et al (1992, p. 348) maintain research on leadership will continue. Contemporary research on leadership has evolved new concepts namely, charismatic, transactional and transformational types of leadership. These are discussed in the next section. 5.4 New concepts in leadership

Contemporary research on leadership puts a different emphasis on the personality trait theory. Robins (1992, p.328) refers to these as implicit theories. These theories attempt to explain the success or failures of leaders. 5.4.1 Attribution theories

Attribution leadership theory attempts to explain why behaviours are happening. This theory can offer predictions about a leaders response to a followers behaviour. Successful outcomes, just like failures or problems, can lead to attributions (Ivancevich et al 1999, p.445).

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Generally the attribution theory of leadership deals with people trying to make sense out of a causeeffect relationship. In this context leadership is merely an attribution that people make about other individuals (Robins, 1992, p.379). 5.4.2 Charismatic leadership

Robins (1992, p.379) sees charismatic leadership theory as an extension of the attribution leadership theory. According to this theory, followers make attributions of heroic and extraordinary leadership abilities by offering certain behaviours. Charismatic leadership originated from the German social theorist Max Weber (Evers and Gabrielle 1996. p.72). Charisma is a Greek word which means gift. The possession of some powers by an individual that cannot be explained logically is called charisma. Charismatic leadership behaviour is a combination of charm and personal magnetism that gets other people to endorse a leaders vision and promote it passionately (Ivancevich et al, 1999.p.448). It is widely believed that charismatic leaders have the following personal characteristics: they have extremely high confidence; they show obedience and strong conviction of their beliefs; they have a compelling sense of vision and purpose; they communicate this vision clearly to followers to identify with; they consistently focus on and pursue their vision; they know their own strengths and capitalise on them.( Robins ,1992,p.379).

Ivancevich et al (1999, pp. 450 - 451) describe two types of charismatic leadership styles, visionary and crisis-based. In visionary leadership, a shared vision is expressed. The leader unites followers needs and goals to those of the organisation. Visionary leaders normally see the bigger picture and the opportunities presented by it. In crisis-based leadership, the leader is able to handle situations where knowledge, resources and procedures are insufficient. The action to be taken as well as its consequences is clearly communicated. People are given power and authority to deal with stress, ambiguity and chaos. Followers are encouraged to look for any solutions - be they disorderly, chaotic or unconventional.

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In times of change, affecting South African society generally and local government particularly, uncertainty, chaos and doubt often engulf people and communities. Dependency is high and people look for models. Charismatic leadership can play a major role in galvanising communities and giving them direction. The Mandela factor has often been relied upon in South Africa precisely for this purpose. The motivational impact of Nelson Mandelas presence on the winning Rugby World Cup team is a good example. The Olympic and the 2006 World Cup bids as well as the 1999 Cricket World Cup believed that the Mandela factor could swing things favourably for the country. Motivation levels increase as followers want to impress the leader. Another example of effective charisma is Gavin van der Merwe of Digital Equipment. His innovative marketing approach, personality, peoples person approach to followers and lack of care for protocol enabled him to lead his organisation to be the second largest computer company in the country (Kroon, 1996, p.370). 5.4.3 Transactional leadership This leadership approach is called transactional because it emphasises the exchange role of the leader. The leader helps followers to identify what can be done to accomplish the desired results. In exchange, the followers self-concept and extrinsic needs like pay and status are highly considered. According to Evers et al (1996.p.74), transactional leadership is characterised by the following factors: Contingency rewards where the leader rewards followers for attaining common goals and objectives. The interaction between leaders and followers is positive reinforcement based on the exchange of desired items; Management by exception where the leader intervenes only when mistakes are made or when problems occur; Laissez Faire where the leadership factor is absent or not available. Here decisions are delayed not made or happen by accident. There is no intervention of any kind. The main focus of this leadership is to guide and motivate followers towards the direction of established goals. These are achieved by clarifying task requirements (Robins, 1992, p.379). The transactional leadership style is not common in most organisations. Employees tend to believe that there should be a direct link between work and pay. Unfortunately good pay is not always
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contingent on good performance. According to Ivancevich et al (1998, p.452), the reasons for this discrepancy are unreliable performance appraisal systems, subjectively administered rewards, poor managerial skills and meaningless or unimportant rewards to employees. Transactional leadership has a role in motivating followers and communities. Its basic tenet of equitable pay for performance is sound, though it may be discredited by inappropriate appraisal systems, lack of such systems and the inappropriate application of such systems. The Municipal Systems Act emphasises performance management and measurable outcomes. Requisite rewards would then have to match with such performance measures to motivate both councillors and the officials to reinforce transactional leadership behaviour. 5.4.4 Transformational leadership

The central purpose of transactional leadership is the enhancement of the individual and collective problem solving experiences of organisational members by identifying goals and practices to be used in their achievement (Evers et al 1996.p.75). Transformational leadership is a special type of transactional leadership, where the reward is internal to the follower. The leader motivates people to work for transcendental goals, achievement and selfactualisation and not for self-interest and security. The leader persuades followers to work hard at achieving goals envisioned by leaders. (Ivancevich et al 1998, p. 453). According to Evers et al (1996. p73) transformational leadership is characterized by the following factors: Charisma - trusted and respected followers want to identify with and imitate the leader. Inspirational motivation - the leader uses symbols and appeals to the followers emotions to reinforce awareness and understanding in the pursuit of shared goals. Intellectual stimulation - followers are encouraged to question their old ways of doing things, their values and beliefs (including those of the leader and the organisation) and to think of new ways to meet challenges. Individualised considerations - followers are treated according to their needs which may be raised to a higher level. They are helped to meet challenges and to become more effective in attaining goals.

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In the transformational leadership style, manage successfully while achieving change (Smit et al. 1992,p.348). Whilst transactional leaders can adjust goals, direction and mission for practical reasons, transformational leaders will make major changes in the organisations mission, way of doing things and management of human resources to achieve their vision. The transformational leader can overhaul the entire philosophy, system and culture of the organisation to attain its goals (Ivancevich et al. 1998, p.453). Robins (1992, p.379) also affirms that transformational leaders inspire followers to transcend their own self-interest for the good of the organisation with their extraordinary effect on followers. Transformational leaders pay serious attention to the developmental needs and concerns of individual followers. They can excite, arouse and inspire followers to put extra effort to achieve group goals (Robins, 1992, p.379). Transformational leaders recognise and exploit an existing need of a potential follower and engage the full person of the follower. South African business abounds with examples of transformational leadership. Charlton (1993.p.36) for instance, cites a study that was conducted by Gail Kelly. The study was conducted on well-known leaders such as Raymond Ackerman, Robin Lee, Meyer Khan and Bob Tucker. In this study Kelly identified the following characteristics of transformational leadership, the leader is in touch with the followers, is able to communicate with them, to empower them and to draw them in behind themselves. Likewise councillors in a developmental local government must demonstrate these traits to remain effective in their leadership roles. 5.5 Summary The The

It can be argued that many organisations in South Africa are over-managed and under-led. Management is about coping with complexity whilst leadership is about coping with change.

challenge is to combine strong leadership and strong management, one balancing the other. changes are brought about by the democratisation of the institutions with the devolution of power and authority, the opening up of existing communication channels and the recreation of new ones. In this way leadership is able to focus on achievement and not on power. For this focus to be strengthened, meaningful participation should be ensured by all concerned.

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Hesselbein, Goldsmith and Beckhard (1996, p.124) suggests that The great observers are not forecasting good times but in the very hazards that lie ahead for leaders, remarkable opportunities exist for those who would lead their enterprises in this country into a new kind of community - a cohesive community of healthy children, strong families and work that dignifies the individual. It is in this arena that leaders with new mind sets and visions will forge new relationships, crossing all three sectors to build partnerships and community. Given the transformation process and the varied economic development needs of South Africa, charismatic, transactional and transformational leadership can be useful to South African organisations, be they corporate or public. We therefore contend that a developmental local government would be fostered and enhanced by the developing the competencies associated with these approaches. Transformational leadership starts with the ability of the leaders to understand themselves and to reach high levels of self-confidence. It is in this regard that we explore some of the key concepts in leadership that would form the basis of LOGOLA. These concepts are emotional intelligence, knowledge management, communication and problem solving.

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6.

KEY COMPETENCIES FOR THE LOGOLA 6.1 Emotional intelligence

Emotional intelligence and the closely related concept of social intelligence refer to the personal qualities of people both as individuals and more critically as leaders. These qualities include initiative, empathy, adaptability and persuasiveness (Goleman, D. 1998). Emotional intelligence combines personal competence and social competence. Personal competence refers to how people manage themselves. It includes knowing ones emotions (social awareness), the ability to manage ones internal state/emotions (self-regulation) and the desire to reach goals (motivation). Social competence on the other hand determines how relationships are handled. It includes knowing others feelings, needs and concerns (empathy) and the ability to induce positive and desirable responses from others (social skills). Being emotionally intelligent therefore implies handling oneself well in an emotional situation, and understanding and showing empathy for others emotions.

6.1.1 Emotional intelligence curriculum To encompass emotional intelligence, a LOGOLA curriculum would have to include the following elements: Self-Awareness Self awareness deals with issues and aspects that focus on emotional awareness, self evaluation, self-assessment and building ones self-confidence. Self-Regulation Self regulation focuses on personal aspects of self control, adaptation and adaptability and innovation. Motivation
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Motivation has to do with generating energy, drive, passion and commitment to goals. Motivation can be extrinsic and intrinsic and deals with achievement drive, exercising initiative maintaining a high level of optimism. Empathy Empathy is the ability to feel what the other is feeling and the ability to connect with others in a way that others can appreciate that their pain is understood. Social Skills Social skills are those skills that are demonstrated by the leaders by building influence, communicating effectively at all levels of society, managing conflict, managing change, building relationships and bonding such relationships as well as building teams. The expected outcome of a learning programme of this nature would be that a leader would experience relative freedom from behaviour associated with tension and anxiety, and would develop the capacity to find satisfaction in giving rather than receiving, to adapt to change and to relate to others with mutual satisfaction and helpfulness. The following are some of the benefits of emotional competence to leadership within the context of LOGOLA: The creation of stronger interpersonal relationships between councillors themselves

and with communities; Getting better at motivating themselves and others; Being more proactive, innovative and creative; Leading more effectively; Functioning better under pressure; Coping better with change; Being at peace with themselves. 31

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Knowledge management

Knowledge management is the ability to recognise and harness community assets (natural, human and social capital) for the economic and social development of a community (Kretzman, J.P.& McKnight,J.L. 1993). The emphasis put on the identification and use of community resources as a basis for community development shifts the development strategy from a need-based development approach. A needsbased approach considers the attraction of resources from outside the community as a basis for economic and social development. Leaders are judged primarily on the external resources they have managed to attract into the community. People see themselves as unable to take charge of their lives and of their development process. The alternative development process of knowledge management recognises that it is the capacities of local people, their associations (civil societies) and communities as a whole that build powerful communities. Knowledge management seeks to promote economic and social development of communities from the inside. In some measure this is reflected in the intent of IDPs advocated by the Municipal Systems Act. Through knowledge management leaders can inspire and lead communities to see themselves as the primary basis and motive for economic and social development. Communities would begin to develop a vision of their community, recognise and identify their own resources, elicit the participation of everybody in the community, direct and leverage those resources towards achieving identified community goals. Economic development through Knowledge Management puts power to communities which in early development models rests with outside agencies (Mathie, A. & Cunningham, G.2002). In this context leaders must see communities that they lead as reservoirs and knowledge banks and not geographic entities without social power and history. Communities know and understand what they want and what they need. The active involvement of the community in its development process often involves working with and in community groups. Leaders must have the knowledge and skills to lead groups. To effectively lead a group, a leader has to understand how individuals experience the groups to which they belong. To intervene effectively and influence a groups process, leaders have to have a framework to guide their action.

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6.2.1. Knowledge management curriculum A curriculum in Knowledge Management for LOGOLA based on the above would include the following elements: Appreciative enquiry This would include concepts such as constructing shared meaning and vision for change, locating the energy for change in the community and focusing on community strengths (exploring and identifying community resources). Indigenous inquiry approaches such as social mapping, Venn diagram and other rural appraisal methodologies could prove highly beneficial to knowledge management. Social capital This would deal with identifying and building social capital (associations and informal networks) and mobilising them for community development. Civil society organisations engage and mediate between government and communities. Participatory approaches Participatory approaches (where the leader leads by stepping back) will elicit the participation of all community members irrespective of power or resources imbalances; stimulate endogenous collaborative economic development initiatives and avoid dependency. Group leadership Group leadership would include understanding group formation processes and the issues that affect groups at their different development stages. These would include issues of dependence and interdependence, performance, inclusion, power and synergy. The key competencies that leaders participating in the above curriculum would have to demonstrate would include: the capacity to recognise and identify community assets; the capacity to elicit the participation of all people in the community development process;

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 6.3

building consensus; building social capital. Effective communication and interaction

One of the most challenging aspects of leadership is human communication. Despite the technological advances of the last decade, the lack of effective communication is still regarded as the most significant limitation of leadership. Effective communication skills form the foundation for successful leadership. Effective communication and interaction involves: speaking clearly and simply so that the spoken words can be heard and listeners attention is maintained; listening for understanding, not only hearing the words being spoken, but also understanding the message; fostering an open communication channel to create an environment that promotes, fosters and facilitates communication, including encouraging others to express contrary viewpoints. This would be possible if there is trust between the leader and those being led. A leader who is a good communicator is: a good story teller who is aware of the audience; a motivator who inspires communities to action; tone setter, who leads by example; a keeper of human climate, with an awareness of the human dimensions in communication.

Communication does not always ensure understanding. There are a number of barriers to effective communication and interaction. One of the greatest barriers to effective communication is our filters that shape our interpretation and understanding of what is being communicated to us. These filters include:
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Exposure - the amount and type of exposure one has had outside ones environment. Generally the less exposure one has the less easily one understands what is being communicated. Experiences - all events and situations we have been involved in. The more experience one has the easier the understanding of issues. Like and dislikes - people make choices based on likes and dislikes. Self perception - how people see and/or perceive themselves. This has a major influence on how people receive and respond to information as they interact with others. Cultural orientation - generally, the less people are aware of cultural differences, the greater the potential for miscommunication and misunderstanding. Language it is self-evident that it is hard to understand another person if one does not understand their language. An effective communicator understands these filters and compensates for them to ensure that there is effective communication and interaction. One method of compensation is to understand and empathise with the cultures of other members of the community. For a leader to be effective, this is critical and relates to emotional intelligence as discussed above. 6.3.1 Communication curriculum The following curriculum elements are suggested for LOGOLA in the area of communication. Effective communication Elements of effective communication Leadership roles in effective communication and interaction

Understanding and dealing with communication filters Identifying communication filters

Dealing with communication filters for effective communication

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Managing diversity in effective communication Dealing with diversity in effective communication Building interpersonal communication Understanding Interpersonal communication and interaction Challenges in promoting effective interpersonal communication

Having participated effectively in the module, leaders will be able to demonstrate: Communicating effectively Promoting and enhancing communication channels between them and the communities they lead. Anticipating community expectations An understanding and appreciation of the barriers to citizen-government collaboration. 6.4 Analytical and problem solving skills

One of the facts of everyday life is the existence of problems in society, community and organisations etc. Leaders come face to face with problems in communities they represent, within government at whatever level they operate and in public companies they lead. Being able to deal with problems and provide workable solutions is therefore a critical leadership quality. Leaders who have a positive attitude to problems are: Searchers - they search for ways things can be done. They focus on ways of getting the problem solved rather than on why something cannot be done. Visionaries - Problems are seen as blocks on the road. A visionary will search for a map to get around the blockage. Open-minded - positive leaders are open to suggestions and new ideas. They are always willing to learn and try new ideas. They are continually learning and growing. Courageous - Positive leaders do not have turf to protect. They have the courage to try new ideas, and are willing to learn from mistakes.
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Optimistic - Leaders with a positive attitude are optimistic that a solution will be found to a problem if they keep searching. Positive thinkers believe that they are bigger than the problem they are solving. Problem solving needs a systematic methodology of identifying a problem, analysing the problem for a possible solution and suggesting solutions. While the nature of problems will always be different, the methodology applies to any type of problem.

6.4.1 The Problem Solving Process The steps in problem-solving are: Define the problem - defining the problem rather than its symptoms. Ensuring the participation of communities for community oriented problems is essential. Collect information information related to the problem is gathered. A collaborative approach in dealing with this is essential for developmental local government. Identify the real problem - with facts, feelings and opinions collected, the problem is redefined more accurately and finely. It may lead to a complete restatement of the problem. Generate possible solutions - the goal is to generate many possible solutions, without a detailed assessment of any. The process calls for the active participation of all stakeholders. Brain-storming methodologies are useful. Evaluate Alternatives - the solutions are examined in detail and critically. The implications of each solution for the various stakeholders are examined. The danger of this step is reaching agreement on a solution without critical analysis, especially if the leader is strong and has gained the respect. Select the Best Alternative - a solution regarded as the best is selected. The best solution may not be optimal to all stakeholders, but must be for the majority of stakeholders. Gain approval and support - generating consensus on a selected solution is critical yet could be difficult given diversity in communities. The capacity of the leader to bring diverse groups to agree to a solution is critical. All stakeholders have to be committed to the solution so that they become part of it. Implement the solution - the selected solution is ready for implementation. A monitoring system
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involving all stakeholders should be part of the implementation process. Evaluate results - after implementation, the results are assessed to determine whether they address the original problems. Communication to stakeholders is as critical at this stage as in the previous stages. Accept responsibility - having generated and implemented solutions in this way, there will be shared responsibilities, though the leader retains the final accountability to the electorates. Leaders have to be aware of potential blocks to solving to problems. Blocks may arise in several ways. Some of these include unilateral thinking, where only one train of thought is pursued, especially if the proponent of that thought is the strong leader himself or herself; reliance on past experience, whereby current problems are seen as variations of the past and the solutions that are suggested are variations of past successful solutions; inability to separate/define the major problem from other minor or resulting problems, particularly in community issues; and inability to solicit the active participation of various stakeholders so only a small part of the community makes critical decisions for others.

6.4.2 Analytical and problem solving curriculum The above discussion suggests the following curriculum elements: Generating positive attitude to problem solving Leadership roles in problem solving Collaborative approaches to problem solving

The problem solving model Understanding the problem solving process

Understanding and dealing with blocks to problem solving Identifying potential blocks to solving problems Dealing with blocks to problem solving

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With this module, leaders would be able to: apply collaborative approaches to the development of solutions to problems; appreciate the difference between traditional approaches and shared leadership practices in problem solving; recognise and apply the power of including stakeholders in problem solving; and apply the systematic model of identifying and generating solutions to problem.

The overall observation is that the four leadership dimensions are discussed as distinct and independent competencies, but are interdependent and used jointly. In problem solving for example, a leader has to have the capacity to effectively communicate, has to have the capacity to elicit the effective participation of communities (knowledge management) and has to be able to deal with emotions of others, which could run high during discussion. The leader has to be emotionally and socially competent. The interdependence of these elements confirms LOGOLAs approach to building the capacity of leaders and that all four dimensions complete this capacity building process in effective leadership.

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7.

OTHER PROGRAMMES BUILDING CAPACITY IN LOCAL GOVERNMENT

Several programmes currently exist in South Africa to build the capacity of councillors and local government in general. These programmes include the Municipal Leadership Training Academy sponsored by the University of the North West and the North West Province Department of Developmental Local Government and Housing; the University of Fort Hare Centre for Local Government & Development; the Municipal Training Institute in the Northern Cape; the Kwa-Zulu Natal Institute of Local Government; JUPMET supported programmes and a number of DBSA sponsored programmes amongst others. Many of them provide leadership training only as an aspect of the modules including Financial Management, Management, Project Management and other regular programmes. LOGOLA on the other hand is designed to provide training exclusively in Leadership, with a focus on Emotional Intelligence, Problem Solving, Communication and Knowledge Management.

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8.

CURRICULUM DESIGN ISSUES

There are two core issues to consider in the design of the LOGOLA curriculum and learning process, and by institutions selected to offer the LOGOLA syllabus. They are the nature of the participants, and consequently the principles of adult learning. Finally, a number of related implementation issues are discussed. 8.1 Programme participants

LOGOLA is aimed at the councillors and municipal managers. These participants have several characteristics. These include: Gender differences. It is estimated that at least 29 % of the councillors are female and may be the main income earners in their homes. Many of these are still at child-bearing age and may need to bring their young ones to the programme. Diversity in educational levels. Councillors and municipal managers span a wide range of educational levels. Some are unable to read and write whilst others have doctoral degrees. Despite educational levels others are able to write only in specific languages. Diversity in language. There is no uniformity of language. Many know only one South African language whilst others are conversant in all of South Africas spoken languages. Diversity in culture. In spite of the fact that the potential participants share a common South African culture, there are different nuances and orientations of culture. Some have an urban and others a rural view of life. The different levels of the metros also dictate different cultural orientations. Diversity in political orientation. Councillors and municipal managers span a range of political orientations. Some municipalities are dominated by specific parties yet others have a wide spread of political interests. Geographic spread of participants. The participants are geographically spread across South Africa. They come from rural, urban and district-based municipalities. The sizes of the municipalities differ greatly and the distances vary. Travel time also varies, in some instances the time to reach one area from another could take up to three days.
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8.2 Adult learning The nature of the participants prescribes an adult education and experiential and interactive. Most adult education theorists agree that the motivation for, and process of learning is different for adults and for children. Malcolm Knowles distinguished between these processes by referring to adult learning as Andragogy and the instruction of children as Pedagogy. training process that will be

8.2.1 Adult learning principles One distinction between adult learning and child learning is that as a person matures, their selfconcept changes from being dependent to self-directing. Children are prepared to be adults in society through schooling. For the child the learners role is dependent and passive. The learners receive information; follow instructions, and take little responsibility for their learning. The motivation for learning is external. It is enforced by the family, society, religion and tradition. The teacher controls the choice of content. The focus of learning is to gain facts and information. Adults, however, are already functioning in society and education helps them to carry out their responsibilities and appropriate decisions. Adults have accumulated a reservoir of experience, and personal experience establishes personal identity. The readiness of an adult to learn is closely related to the developmental task of their social role. Knowledge is gathered for immediate use. Learning is problem-centred and not subject-centred. For the adult the learners role is to offer ideas based on experience and take responsibility for the learning process. The motivation for learning is from oneself and has immediate application. The choice of content is centred on life or workplace problems. The focus of learning is sharing and building experiences. Adult learning means that because of their experiences and high motivation levels the learning experience must incorporate:

Respect - the learner must feel heard, honored, and respected not for what they know but for themselves.

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Immediacy - the learner must be able to use their skills and knowledge and attitudes immediately.

Experience - the learner learns best when their learning is directly related to their experiences.

Experiential learning- Adults learn best when they do things. There is a saying that people use only 20% of what they hear, 40% of what they hear and see and 80% of what they discover for themselves.

Feedback - Evaluation is used to improve application and not to test retention. Free learning environment - Adults learn best in a free and liberating environment.

Co-operative learning - Adults learn best by sharing their experiences. These experiences reinforce learning.

Self-motivation - Adults learn best when their learning is motivated by their recognition of a gap in their experience or knowledge.

Human qualities - Adult learning is related to their human qualities.

Emotional security - Adults learn best when they feel emotionally secure and trust those they interact with.

8.2.2

Adult learning processes

Theorists agree that there is a relationship between the extent of learning achieved and the style of teaching used. Given the above principles of adult learning, certain styles of teaching are likely to be more effective with adults than they would be with children. Kolb, an educational theorist first studied and identified what is today called the learning loop or the learning wheel. Peter Senge and others have used this concept to in organisation development.

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The principle is that all learning occurs from four vantage points. These are action, reflection, generalisation and application. For learning to occur the learning loop must be completed. Depending on their preferred learning styles people will tend towards one or more of these vantage points. The learning wheel means that a learning experience should provide: A direct experience - this reinforces the notion of experiential learning, and the action vantage point. An opportunity to reflect on their experiences - adults learn best when given an opportunity to reflect on their experiences. Giving and receiving feedback facilitates this reflection. An opportunity to generalise their experiences - sharing information, and drawing their own conclusions is reinforced. Application of generalisations and observations in new situations - this reinforces the notion of the immediacy of the application of learning for adults. In order to cater for different learning styles and to acknowledge the specific needs of adult learners, the design of the LOGOLA learning process should encompass the following: A facilitative style of teaching; This is likely to encourage participation, internal awareness, experimentation and self-inquiry. Some facilitative techniques include; case studies, group work, self-analysis opportunities and experiential events. The facilitators role is to create space, provide feedback when requested to do so, provide resources, consult, listen, negotiate, delegate, evaluate and set an appropriate environment. A collaborative style of teaching This encourages participation, interaction, practice, observation, peer challenge and an opportunity for introspection. The role of the facilitator is to question, model, co-ordinate manage, and collaborate with the adult. Adults will limit their preference for dependent learning styles

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Adults are likely to adopt dependent learning styles only in so far as they are limited by a lack of knowledge and in new situations. The role of the facilitator is to lecture, demonstrate, test, check, reinforce learning, transmit content and design learning materials. The needs of the learner in this context are for structure, direction, reinforcement and esteem by and from the authority.

8.3

Related implementation Issues

In the context of the above outline, some other issues will need to be considered for the successful implementation of LOGOLA. These include: A team approach to teaching that will take into account the diversity of the participants; Consistency of content irrespective of the institution presenting the programme; Rotation of the programme and where it is presented to allow a high degree of action learning and local exchange; Scheduling to ensure that adequate time for learning and reflection is built into the learning programme; Mentoring and coaching (on the job training or OJT) to deepen the learning experience, facilitate generalisation and application of learning and provide support to the participants. This is discussed in more detail in Section 9; Large scale intervention training techniques given the expected numbers of learners; Logistical support for transportation and accommodation given the geographical spread and travel times.

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9.

THE LOGOLA IMPLEMENTATION FRAMEWORK

This section outlines the concept of LOGOLA from an implementation and possible design perspective.

9.1

LOGOLA development objective

The development objective of the LOGOLA is to contribute towards the development of a broad base of politically mature leadership that can sustain democracy and strengthen sustainable developmental local government in South Africa.

9.2

LOGOLA purpose

The purpose of LOGOLA is to build a strong local leadership cadre with the capacity to manage and maintain competent municipal entities that deliver effective services at the community level.

9.3

LOGOLA result area and outcomes

In the next three years it is expected that LOGOLA will focus on the establishment of a mandatory one-year individually-based Leadership Academy training course for councillors and municipal managers. The expected outcomes from LOGOLA over the next three years are: The training and development of at least 10 000 councillors and municipality managers in transformational leadership with specific reference to emotional intelligence, communication, problem solving and analytical skills and knowledge management. An expanding leadership cadre that is self-confident, visionary, creative, tolerant, inspirational and committed to the development of others. This leadership will advocate and maintain relationships of integrity with people at all levels of society and the polity. Local government that is developmental and is sustainable.

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9.4

LOGOLA key assumptions

The key assumptions that make LOGOLA achievable are: LOGOLA has been widely endorsed by organised local government. This is evidenced by the report of a consultative workshop that was held in Sandton on 17th April 2003. At this workshop the SALGA General Council resolved that LOGOLA should be implemented in the 2004/2005 financial year and all existing programmes should be integrated under LOGOLA. Interviews with all the provincial and national members of SALGA have confirmed the need for LOGOLA. LOGOLA enjoys the political support of the Presidential Co-coordinating Committee (PCC) as well as dplg. By definition councillors have political orientations, and it is assumed that political parties will continue with their own political education as the department may not sponsor party political education. The policy framework as encapsulated in legislation and the White Paper on Developmental Local Government demands the development of the kind of leadership that is envisaged in LOGOLA. The South Afrcian government is able and willing to fund the initial and administrative costs of the programme through its budget allocations through the dplg. Further funds for training can be sourced from the Local Government SETA. Additional funding can be mobilised and secured from the international and bilateral donor community. Interviews with councillors and municipal managers show keenness to participate in LOGOLA. There are local and international educational institutions with the capacity to develop appropriate partnerships with the dplg to deliver high-quality, innovative training in this field. The Skills Development Act supports the development and training of councillors and workers alike and accreditation will be secured in line with the NQF/SAQA requirements.

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9.5

LOGOLA activities in relation to the result areas

To achieve the results outlined in 9.3, the following activities will be necessary: securing the final approval from cabinet for the implementation of LOGOLA; securing funding to implement all aspects of the programme; designing and setting up the institutional framework and governance structure for LOGOLA; identifying and recruiting appropriate staff to manage LOGOLA; developing an appropriate curriculum including the development of leanerships and assessment processes for accreditation for LOGOLA; identifying appropriate national and international institutions to deliver the programme; identifying appropriate sites for the implementation of LOGOLA; pilot testing the curriculum; documenting learning from the implementation of LOGOLA; monitoring and evaluating the LOGOLA experience and developing case histories and best practice principles for the replication of LOGOLA.

9.6

Key inputs in relation to LOGOLA activities

The following inputs will be necessary to implement the activities identified in 9.5 and therefore to achieve the LOGOLA purpose: professional assistance to design the implementation of LOGOLA, and to develop the initial curriculum and necessary accreditation processes for LOGOLA;
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professional support to identify national and international institutions to partner the dplg in implementing LOGOLA;

professional staff and administrative staff to operate LOGOLA; travel and accommodation for professional staff in the identification of partner institutions; bursary funds for the pilot and main programme to support the participation of councillors in LOGOLA including tuition, travel and boarding;

administrative support, equipment and information technology for the LOGOLA; appropriate office accommodation for LOGOLA staff.

9.7

Provisional budget for LOGOLA inputs

The composite budget with the relevant assumptions for the LOGOLA programme components is presented below. 9.7.1 Budget Assumptions

The budget assumptions for the programme components are: certain core activities will be necessary to achieve the programme objectives; the dplg will meet the staffing, professional and infrastructure startup costs of the programme from its normal budget; institutions bidding for the delivery of the programme will build in their costs in line with the maximum amounts allowed for in this budget; the approach of the academy will be to provide training through accredited service providers, who will be responsible for materials development, training, facilitation assessment and moderation. The role of the academy will be to co-ordinate training and ensure that their quality meets national standards.

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9.7.2

Costing Methodology Personnel costs will be calculated at Total Cost to Company. Personnel costs are assumed to increase by 10% per annum. Costs of training, (including travelling, accommodation, training material, trainers fees) are calculated on a unit cost basis per participant, and are referred to as programme costs.

Administrative Costs are estimated per month at 10% of total programme costs. Capital Costs will be estimated per capital assets required, based on average costs of furniture and equipment for medium- cost furniture and equipment.

9.7.3

Training Programme Assumptions The training programme will have 4 modules. A module will be run over three days. The training will be held in various training centres on a rotation basis. The average cost of accommodation nationally is R450.00 per person per day for 4 days (including three meals and coffees).

Participants will require 4 days of accommodation per module. (This is to ensure that the first day starts on time and the last day is not cut short in order to accommodate travelling arrangements.)

Travelling costs will amount to an average of R2, 000.00 per module. Material costs and facilitator costs (training fees) will amount to R3600 per module. 50

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Leadership Training Programme Costs

Rate Accommodation Module 1 Module 2 Module 3 Module 4 R R R R Per Day 450 450 450 450 Days per Session 4 4 4 4 Number of Sessions 3 3 3 3 No. of Days 12 12 12 12 Cost per Module R R R R R Rate Per Travelling Module 1 Module 2 Module 3 Module 4 Traveling Costs Person Rate per Training Costs Module 1 Module 2 Module 3 Module 4 Training Costs Total Costs Per Person R R R R R Session 1,200 1,200 1,200 1,200 Number of Sessions 3 3 3 3 Cost Per Module R R R R R 3,600 3,600 3,600 3,600 14,400 60,000 Return Trip R R R R 2,000 2,000 2,000 2,000 Number of Sessions 3 3 3 3 No. Trips 3 3 3 3 Cost per Module R R R R R 6,000 6,000 6,000 6,000 24,000 5,400 5,400 5,400 5,400 21,600

Accodation Costs Per Person

Projected Budget for the the Three Year Period

Pilot Phase - Year 1
Year 1

Details Accommodation Travelling Training

Cost per Person R R R R 21,600 24,000 14,400 60,000

Number of Participant 500 500 500 R R R R

Total Costs
10,800,000 12,000,000 7,200,000 30,000,000

Rooll Out Phase - Year 2 and 3

Year 2 Year 3 Total Costs R R R R 102,600,000 114,000,000 68,400,000 285,000,000

Details Accommodation Travelling Training

Cost per Person R R R R 21,600 24,000 14,400 60,000

Number of Participant 4,750 4,750 4,750

Total Costs
R 102,600,000 R 114,000,000 R 68,400,000 R 285,000,000

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9.7.4 10.

Composite budget LOGOLA RISKS AND CONTAINMENT MEASURES

This section identifies risk areas that may impact on the implementation of the programme, and possible steps to counteract these. 10.1 Delivery capacity There are three levels at which capacity for delivery can be identified. They are the overall capacity of delivery institutions, their scheduling capacity and on the job training capacity. 10.1.1 Delivery institutions The proposed leadership training programme is in many ways unique. There is no known programme in the country that focuses on leadership development for local government in the manner that is envisioned. Other programmes deal with leadership in a conventional manner. So there is limited experience in the country in this regard. There is the risk that institutions identified to run the programme may go back to comfort zones and deliver modified versions of their existing programmes, and not achieve the level necessary for LOGOLAs purpose. In order to counteract this risk: A careful identification and selection process of institutions should be undertaken. This should be based on Request for Proposals. Clear selection criteria should be set that will help to identify the extent to which institutions understand the LOGOLA concept and the extent to which such institutions can offer the programme and/or have the capacity to mobilise relevant experience and materials for a LOGOLA type programme. LOGOLA should develop links with international institutions with the experience of running similar programmes. These linkages can improve the design of the training programme, foster exchanges of participants and training staff, and facilitate development of training materials without losing South African context and content. The development of the curriculum and training materials should be monitored closely to ensure that they meet the intended development objectives of LOGOLA.
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10.1.2 Scheduling capacity The programme intends to train at least 4500 councillors per year. This is by many standards a large number of participants in a single programme. To handle this number of learners, selected delivery institutions may be required to run at least one programme every two weeks. Given that these institutions will have their usual other programmes, there is a risk that the institutions will not have the capacity to run the programmes as expected. To minimise this risk the following actions should be undertaken: The identification of a wide range of institutions and localities within each province in order to enrich the learning experience. These institutions should be coordinated, monitored and assessed by the dplg to ensure the achievement of LOGOLA objectives. Mechanisms to mass deliver the programme should be assessed and where possible implemented without compromising the quality of the intended outcomes. 10.1.3 On the Job Training Capacity The proposed training programme has practical training as a major component. Academic Institutions are not known to have the necessary practical experience to support and mentor participants during On the Job Training (OJT). While it is proposed that the corporate sector (where there is some experience and capacity) be used to mentor councillors, there are several risks associated with this approach. These are: rural based councillors may not have mentors; business people may not have the necessary mentorship skills to mentor councillors during OJT; the use of many mentors will introduce differences in the programme based on the capacity and approach of the mentors. This risk element can be contained by: enlisting private sector mentors from all provinces hence reducing the need for long distance travelling; holding a short mentorship training programme for participating business people; 53

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providing a detailed brief on the mentorship programme to reduce individual mentor biases and uncertainties. 10.2 Attrition rate

The programme is envisaged over one year, divided between in-class training and OJT. Given the other responsibilities of councillors and managers, there is a risk that participants may not have consiisten time available to follow the training programme through. The time and distance to travel to the programme and the diversity of participants may contribute to a level of attrition from the programme that would not be cost effective. This risk might be limited given that the programme has government support, organised local government support and is seen as an essential component for a sustainable and developmental local government. However, careful design of the curriculum to limit attrition must be done before programme implementation.

10.3

Resource limitations

The cost of the proposed programme is considerable. It is expected that the bulk of the funding will come from the government and other funding may come from the donor community and the private sector. Each of the funding sources has associated risks. 10.3.1 Donor funding Donor funding has several risks. These include: Donor priorities - unless the support to local government is one of the donors priority areas, it would be difficult to secure funding from international donors; Funding channels and process could be long and inconsistent with the time frames of LOGOLA; Participation of institutions from donor countries as a condition for providing funding, which could introduce a different dimension to LOGOLA. To minimise these risks, dplg will have to work with donors who have identified local government support as a priority area in their country support programmes. These donors include CIDA, UNDP,
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EU, and GTZ. South Africa through the Office of Overseas Development in Treasury has signed a number of bilateral agreements in this regard. Some of the country framework documents of the bilateral donors have identified service delivery and the building of local government capacity as a priority. It is envisaged that in an election year many of the bilateral donor agencies would be looking for new issues and new agreements to emerge. LOGOLA could be a window of opportunity in this regard. 10.3.2 Private sector The private sector is currently making major resource contributions to complement the efforts of the government in poverty alleviation, HIV/ AIDS and job creation programmes. Requests for additional contributions run the risk of putting too heavy a burden on the private sector. The private sector is also playing a major role in the development of infrastructure in most municipalities in addition to their taxes and levies, for example, the Skills Development Levy. It is proposed that LOGOLA funding from the private sector be limited to the SETAs and where possible or necessary through in-kind services such as the provision of venues, secondment of staff for mentorships and similar resources. Should major funds be required of the private sector, an apex approach must be used to secure funding at the highest level. Funding from the private sector should not be secured or solicited at the local municipality level as this may be affected by regional politics. 10.4 Institutional setup and location

One of the critical issues for consideration for the success of the programme is its institutional placement. Placing it within government would have the advantage of easy access to government resources. The long processes, channels, rules and regulations associated with government institutions could however frustrate programme implementation. Placing it outside of government runs the risk of being ignored by government. In order to minimise this risk dplg should investigate the most appropriate institutional framework that will: retain the highest accountability standards provided for in the Public Finance Management Act and other prevailing governance structures; be flexible enough to encourage speedy and effective delivery.

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11.

INSTITUTIONAL FRAMEWORK FOR LOGOLA

As mentioned above, the implementation of the LOGOLA needs an appropriate institutional framework. This section deals with the minimum principles and options available to the dplg for the institutional design of the programme.

11.1

Institutional framework options

LOGOLA can be incorporated as a programme of the dplg in the same manner as the Urban Renewal Programme and Integrated Sustainable Rural Development Programme and other programmes of the department. Such an option allows the dplg to budget for the programme within its current budgets and may not require special legislation for the incurrence of expenditure. LOGOLA could be established as an independent agency accountable to parliament through the dplg. This option will require LOGOLA to be overseen by an independent board of governors and could deal with bilateral and other donors with the support of the dplg. This option would require the development of a legislative process that would publish a LOGOLA Act. Discussion and consultation will however be necessary with the legal department of the dplg to review the advantages and disadvantages of both options, and decide on the most practical for effective and efficient delivery with the best accountability measures.

11.2

Key principles for the LOGOLA organisational structure

For effective programme, the following minimum principles must be considered in the design of the LOGOLA organisational structure. The structure must: facilitate quick and efficient decision-making; be flexible and responsive to stakeholder issues and needs; not be cumbersome and should allow for a reporting structure that is simple; have a minimum hierarchy; take into consideration a representation of all the stakeholders for governance; 56

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consider efficiency in the definition of the span and locus of control; define positions by function rather than status.

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12.

MONITORING AND EVALUATION

For effective delivery by LOGOLA, monitoring and assessment of several factors will be necessary from the onset, and at all the development stages of the programme. Pre-programme, process and summative evaluations must be built in. 12.1 Pre-programme assessment Elements for assessment at this level of the programme will include: the feasibility of the programme including the determination of appropriate institutions to

deliver the programme; councillor and municipal managers readiness to participate in the programme; logistical and material support necessary to implement the programme; the appropriateness of the curriculum; the development of assessment processes and procedures; management and administrative resources required to implement the programme; statutory provisions and facilitating regulations and mechanisms to implement the

programme; political and budget provisions to institute the programme; pilot testing the programme and refining the programme design based on the

outcomes. The successful implementation of the programme will largely depend on the refinement and thorough assessment of these elements before the actual implementation and the full rollout.

12.2

Process evaluation

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An important aspect of programme implementation is the extent to which all design elements are monitored to determine whether all programme inputs and resources lead to the intended programme outputs. This process also helps to determine unintended outcomes during programme implementation and is the responsibility of the programme managers. Key elements to monitor during programme implementation for LOGOLA will include the following elements and aspects: implementation of the curriculum by delivery institutions to determine consistency and

changes necessary to achieve the programme outcomes; programme inputs to determine their adequacy in meeting the programme goals; assessment procedures to determine whether they measure what they purport to

measure and what changes are necessary to meet programme outcomes and results; levels of participation by councillors and municipal managers to determine factors and

issues that would need to be changed to improve participation levels; programme efficiencies and systems that facilitate programme implementation

including staffing, systems, structure and other relevant programme issues; possible elements that may facilitate the continuation and replication of the programme.

12.3 Impact assessment Pre-programme assessment and process monitoring will assist toward developing elements for impact assessment post implementation and after first programme rollout. The key focus of the evaluation will be to: develop lessons as to what worked and what didnt and the reasons why; determine the exact programme outcomes and what led to those outcomes; develop case histories that can contribute to best practice in leadership development; 59

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contribute to a growing body of knowledge on this subject of leadership competencies,

including emotional intelligence in developmental and sustainable local government.

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13.

CONCLUSION

In conclusion, the implementation of LOGOLA will require the support of all the major political players in local government. Based on interviews held with organised local government, there is no doubt about the programmes necessity if funding can be sourced. Debate regarding programme content is a design issue. There is sufficient modern theory and practice to demonstrate that the desired leadership competencies can be learned and acquired. Leadership is no longer the domain of the few who were born to be great or on whom greatness could be thrust. This is the base on which LOGOLA can be structured and designed.

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14.

REFERENCES AND BIBLIOGRAPHY

Aldair John.(2002). Effective Strategic Leadership. Macmillan. ANC Conference resolutions 1999 and 2002, Stellenbosch and Mafeking Bar-on Reuven and Parker James D.A (Eds). (2000). The Handbook of Emotional Intelligence. Theory, Development, Assessment and Application at Home, School and in the Workplace. Jossey-Bass, San Francisco. Charlton,G. (1993). Leadership: The Human Race. Cape Town:Rustica Press. Conger Jay A and Kanungo Rabindra N. (1998). Charismatic Leadership in Organisations. Sage Publications, Thousand Oaks California. Cook ,J. (2003). Current Trends in Leadership Thinking Blue Print for workplace Leadership in the 21st Century: A Dictum Pub;lication sponsored by ABSA. Cooke Alfred L, Brazzel Michael, Craig Argentine Saunders and Greig Barbara (Eds). Reading Book for Human Relations Training 8th Edition. (1999).NTL Institute for Applied Behavioural Science, Alexandria Virginia. Covey, R. Stephen. (1992). The Seven Habits of Highly Effective People: Powerful Lessons in Personal Change. Simon and Schuster Ltd, West Garden Place, Kendal Street, London. W22AQ. Cronje, G.J de J., Du Toit, G.S & Motlatla, M.D.C. (2000). Introduction to Business Management. Oxford: University Press. Development Report 2000: Building Developmental Local Government. Development Bank of Southern Africa

Evers, C.W & Gabrielle,L. (1996). Exploring Educational Administration. Oxford: Elsevier Science. Farkas C, De Backer P and Sheppard A. (1995). Maximum Leadership. Orion Books Ltd, Orion House, 5 Upper St Martins Lane, London W2CH 9EA. Flaherty, Jane S and Stark, Peter B. (1999) The Competent Leader: A Powerful and Practical Tool Kit for Managers and Supervisors. HRD Press, Inc. Amherst, Massachusetts.
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Giber D, Carter L and Goldsmith M. (2000). Best Practices in Leadership Development Handbook: Case Studies, Instruments, Training. Linkage Incorporated One Forbes Road, Lexington. MA 02421. Goleman, Daniel.(1998). Working with Emotional Intelligence. Bantam Books, New York. Gordon G. Darkenwald, Sharan B. Merriam. (1982). Adult education: Foundations of Practice, Harper Collins. New York Growth and Development Summit Agreement, 7 June 2003 Heifetz Ronald A and Linsky Marty. (2002). Leadership on the Line. Staying Alive Through the Dangers of Leading. Harvard Business School Press, Boston Massachusetts. Hesselbein, F., Goldsmith,M. & Beckhard,R. (1996). The Leader of the Future. San Francisco: Drucker Foundation. Ivansevich,J.M. & Matteson,M.T. (1999). Organisational Behaviour and Management. Boston: Mc Graw Hill. Johnson, D.W. & Johnson, F. P. (2nd Edition). Joining Together: Group Theory and Group Science. Boston: Mc Graw Hill. Jolles R. L.K. (1993). How to run seminars and Workshops, John Wiley & Sons Inc. New York. Kets de Vries, Manfred F.R (2001). The Leadership Mystique. A Users Manual for the Human Enterprise. FT Prentice Hall.. Kotter John P. (1996). Leading Change. Harvard Business School Press, Boston Massachusetts. Kretzmann, John P. and Mcknight, John L.(1993). Building Communities From Inside Out. A Path Toward Finding And Mobilizing A Communitys Assets. The Asset-Based Community Development Institute for Policy Research Northwestern University, Distributed by ACTA Publications, Chicago Illinois. Kroon,J (1996). General Management. Durban : Kagiso Tertiary. Mager Robert F and Pipe Peter. (1984). Company, Belmont California.
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Analysing Performance Problems. Lake Publishing

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Mathie Alison and Cunnigham Gord. Occasional Paper No. 4, January, 2002.

From Citizens to Citizens: Asset-Based Community

Development As a Strategy for Community Driven Development. Coady International Institute,

Ministerial Advisory Committee on Local Government Transformation: Interim Report on the challenges facing local government. 22 November 2001. Municipal Structures Act, 117, 1998. Municipal Systems Act 32, 2000. Palmer, P.( 2003). On the Horns of a Dilemma. Blue Print for workplace Leadership in the 21 st Century: A Dictum Pub;lication sponsored by ABSA. Robins,S.P. (1991). Management. San Diego: Prentice Hall. Schein Edgar H. (1987). Organisational Culture and Leadership. Jossey-Bass Publishers, San Francisco, California. Senge P, Ross Richard, Smith Bryan, Roberts Charlotte, Klemer Art, 1995. The Fifth Discipline Field Work, Nicholas Brealey Publishing Limited. London. Smit,P.J. & Cronje, G.J de J. (1992). Management Principles. Kenwyn: Juta & Co. South Africa: Transformation for Human Development 2000, Pages 63-64 The Freedom Charter Adopted at the Congress of the People, Kliptown 26 June 1955. Tibane,J. (2003). Inspired Leaders Inspire others . Blue Print for Workplace Leadership in the 21st Century: A Dictum Pub;lication sponsored by ABSA. Training of Trainers for Development: Conducting a workshop on participatory training techniques. The CEDPA Training Manual Services Volume. CEDPA. Washington DC. Vella Jane , (1989). International. White Paper on Developmental Local Government. 9 March, 1998. Learning to teach: Training of trainers for Community Development. OEF

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Women at Local Government: The Centre of Delivery: A Report by the Womens Development Foundation, (2000). WDF 28 Melle Street, 9th Floor, North City House, Braamfontein, 2017.

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Page 1 of 5 3/7/08 DEFINITION of leadership and leader development Leadership is defined as the process by which an individual determines direction, influences a group and directs it toward a specific goal or organizational mission. i Leader development is broadly defined as formal and informal training and professional development designed for all management and executive-level employees to assist them in development of the leadership skills and styles required to deal with a variety of situations. ii WHO should be developed as leaders? In order to optimize the employee value proposition directly for leaders and indirectly for followers, savvy organizations foster a performance culture through strategically linked leader development processes. An effective leader development effort typically provides programs and services specifically targeted to leaders at each of the following levels: 1. Front-Line Employees with High Potential for Leadership: High potentials are typically defined as those demonstrating high-level contributions, organizational values, potential to move up to an identified position within a given timeframe, and potential to assume greater responsibility. iii 2. New Supervisors: Individuals who serve as lead workers or who supervise front-line employees, and who have little or no prior supervisory training or experience. 3. Experienced Supervisors: Individuals who serve as lead workers or who supervise front-line employees, and who have 40+ hours of competencybased supervisory training and three or more years of direct supervisory experience. 4. New Mid-Level Managers: Individuals who manage other supervisors or broad-scale project teams, and who have little or no prior management training or experience. 5. Experienced Mid-Level Managers: Individuals who manage other supervisors or broad-scale project teams, and who have 40+ hours of competency-based management training and three or more years of direct management experience. 6. Executives: Individuals who lead governmental agencies (Cabinet Secretary, Council of State members, and their deputy-level leaders), with primary responsibility for policy creation and implementation to realize core business missions, and who have varied educational backgrounds and experience levels with NC state government.Page 2 of 5 3/7/08 KEY criteria for effective leader development at all levels The following criteria should be applied when adopting a competency-based leader development strategy for any of the six audiences previously described: 1. Application of best practices based upon both cutting-edge leadership research and a thorough analysis of NC state government realities; 2. Specific written performance feedback for each participant from their immediate supervisor, peers, direct reports, and other key customers/stakeholders through the use of a 360 instrument; 3. Mentoring, networking and/or professional coaching resources for each participant as they create and implement individual leader
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development plans; and 4. Cost-beneficial design, implementation and evaluation of effective instruction by acknowledged experts in the field. NC OSPS leader development services The NC Office of State Personnel (OSP) is committed to supporting state government agencies in their development of leaders at all levels through the provision of: 1. Tools, models and best practices in leader development; 2. Consultation to facilitate in-house program delivery, including support for competency identification, program design, instructional materials development/access, and evaluation methods. This may also include creation of partnerships across NC state government agencies, as well as links with external providers of leadership education. 3. Direct provision of leader development through the following programs: Frontline Leadership for supervisors Managing Effective Performance for mid-level managers NC Certified Public Manager Program NCLEAD Special Emphasis Project Programs, including LIFE Related courses from the university and community college system and/or private industry.Page 3 of 5 3/7/08 THE leader development process 1. Review the organizations primary performance requirements Mission, vision and values Strategic initiatives Key roles & competencies required (prerequisite & fully developed) 2. Determine projected human resources availability Projected turnover for key roles (retirement and otherwise) Identify high-potential employees (high performers with prerequisites and as many fully developed competencies as possible) 3. Identify leadership gaps List required roles/competencies for which organization has less than fully developed internal core of high-potential employees Group competencies by type, level and number of participants requiring development Prioritize/sequence competency groups for development 4. Generate possible development strategies for high-priority competencies Identify developmental program design/delivery resources: internal to agency, OSP and/or external provider Evaluate each developmental program design/delivery resource on key criteria of customization, feedback (360) component, systems support (e.g., mentoring, networking, coaching) and costeffectiveness Choose strategies that best meet key developmental program design/delivery criteria 5. Implement development strategy Design program, including instructional materials and evaluation strategies Enroll participants
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Conduct pilot version of program for a selected group of targeted participantsPage 4 of 5 3/7/08 6. Evaluate development strategy KEY question #1 Whos participating in the program? Are we getting the right people in the program and are they completing program requirements in a timely manner? KEY question #2 Did participants enjoy the program? What are participants reactions to the format/content of the control and of the pilot program designs? KEY question #3 Were participants able to demonstrate key competencies during the program delivery period? Which program design, control or pilot, best facilitates demonstration of key competencies during the delivery period? KEY question #4 Are participants able to apply program skills on their job? Which design, pilot or control, best facilitates on-the-job application? KEY question #5 What difference does leader participation in the program make to the efficient, effective functioning of state government organizations? KEY question #6 What are the costs, and the return-on-investment for the leader development programs? Are there any differences between the control and the pilot formats? 7. Follow Up: Revise program components as needed Disseminate to target group Standardize program components via policy, procedure and ongoing resourcingPage 5 of 5 3/7/08 Conduct ongoing evaluation for key metrics to ensure program continues to meet and exceed organizational performance requirements. i Nancy Lockwood, The Changing Nature of Leadership, Society for Human Resources Management Briefly Stated, April 30, 2007, http://www.shrm.org/research/briefly_published/LeadershipSeries. ii Nancy Lockwood, The Changing Nature of Leadership, Society for Human Resources Management Briefly Stated, April 30, 2007, http://www.shrm.org/research/briefly_published/LeadershipSeries. iii Corporate Leadership Council, Guidelines for Using a Nine-Box Matrix, Washington: Corporate Executive Board, July 2005.

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